緊急救援時期的跨部門協力：以東日本大地震為例

Cross-Sector Collaboration during Emergency Rescue: the Case of East Japan Earthquake

緊急災害的發生通常有規模大、成因複雜、難以預測、機關權責不易 釐清等特性，造成的損害超過所在管轄機關的能力或資源能夠因應的程 度。為能降低緊急災害所帶來的衝擊，建構緊急情況下的協力關係有其重 要性，但卻也受到時間的有限性、不確定性和關係複雜性等因素之影響， 緊急情況下協力關係的建構難度遠高於承平時期。 研究發現，日本緊急救援時期的跨部門治理，雖然對外設置跨部門整 合協調窗口，但政府部門仍扮演主導功能，同時將民間組織納入防救災體 系，強化災害救援的反應力。然該制度也面臨下列幾項運作困境：一是制 度設計目的雖是「地方負責，中央支援」，但卻可能產生「地方無∕失 能，中央被動等待」的情形；二是協力對象因同屬風險共受區域，降低協 力成效，而中央與地方的垂直協力默契不足；三是 NGO 雖是政府、企業 和民眾間的溝通平臺，但異質性組織間的溝通仍有待加強。

Emergent disaster generally is large in scale, possesses complicated causes, is hard to predict and it is difficult to determine responsibility. The damage is also beyond the capabilities of local authorities in terms of scope and resources. Therefore, to mitigate the impact of emergent disaster, it is critical to construct collaborative relationships. However, collaboration during emergencies is much more difficult compared with that during normal times due to the exigencies of time and uncertainty and the complex nature of the relationships. The study found that in Japanese cross-sector collaboration during emergencies, in spite of the fact that there is a single contact window for crosssector integration, government agencies take on the main leadership role with support from civil society to strengthen responsiveness in rescue operations. However, the system faces several difficulties: (1) the system is designed so that the local government holds responsibility and the central government provides support; however, in actuality the central government could be passive and the local government disabled; (2) as the disaster affects both, both parties may fail to collaborate and the local and central government may lack synergy; (3) an NGO may serve as a communication platform for the government, enterprises and civil society; communication, however, has to be improved.