考量減災觀點之都市計畫通盤檢討防災規劃：以淡海新市鎮特定區為例

Considering Mitigation Concept on Hazards Reduction Planning for the Urban Planning Review: The Case of Danhai New Town Specific District

台灣位於極易受災的地區，我國的空間規劃應考慮透過一些手段來減低其易致災因子。先進國家災害管理之思維大多依循由美國聯邦緊急事務總署（Federal Emergency Management Agency: FEMA）所發展出來之「綜合緊急事務管理」理論（Comprehensive Emergency Management）中，將災害管理之步驟配合災害發生之過程，所建構之災害管理四階段循環理論，也就是包含減災（Mitigation）、整備（Preparedness）、應變（Response）、復原重建（Recovery）。都市空間規劃常使用之土地使用調整，被認為是減災政策中最重要的一種工具（Burby，1998）。然而，現階段與都市空間防災規劃有關，且有明文化規定的法令，僅有都市計畫定期通盤檢討實施辦法第七條：「都市計畫通盤檢討時，應就都市防災避難場所、設施、消防救災路線、火災延燒防止地帶等事項進行規劃及檢討。」此辦法的目標在確立地區防災系統，建立都市防災生活圈、防災據點、避難空間及逃生路徑。從災害管理的角度觀之，實施辦法第七條之規定雖然有某種程度「減災」之意涵，但主要仍著重於災害「整備」及「應變」階段之管理。換言之，現階段在台灣都市空間防災規劃仍較缺乏「減災」之概念。本研究利用「減災」之概念，以「易致災分析」（Vulnerability Analysis）之方法，利用地理資訊系統的技術及分析功能，以淡海新市鎮特定區計畫第二次通盤檢討作為實際操作的對象，透過危害認定（Hazards Identification）的方法，發現颱洪、坡地、地震與海嘯危害是淡海新市鎮特定區之主要危害因子；又透過危害評估（Hazard Assessment）方法，建立了一些空間規劃之原則，並將這些規劃原則回饋至土地使用計畫、公共設施計畫、交通計畫，及都市設計。

Advanced countries mostly follow comprehensive emergency management which is developed by the Federal Emergency Management Agency (FEMA). There are four stages in the theory of comprehensive Emergency Management: Mitigation, Preparedness, Response, and Recovery. The adjustment of land use, often used in urban planning, is considered as the most important tool to reduce natural disasters. However, from the perspective of disaster management, the article 7 of implementation on Urban Planning Review has the meaning of mitigation in some extent but still focused on the management of ‘Preparedness’ and ‘Response’. It can be said that Taiwan’s urban planning against natural calamities is short of the concept of mitigation at the present stage. Therefore, the purpose of this research is to import the concept of mitigation and the technology of geographical information system into the case study by the approach of vulnerability analysis which includes hazards identification and risk assessment to set up the principles of space planning. Moreover, this paper tries to use the set-up principles to adjust the plans of land use, transportation, public facility, and urban design.