迁村政策之检讨与建议.DOC

台湾灾后迁村政策之演变与问题 Review of Post-Disaster Village Migration Policy in Taiwan 谢志诚 张 纫 蔡培慧 王俊凯 Jyh-Cherng Shieh1 Renn Chang2 Pei-Hui Tsai3 Chun-Kai Wang4 摘要 本文针对台湾因灾难而推动之迁村政策进行检视及讨论，并提出非政府组织参与迁村之新模式。本文首先回顾迁村政策之发展与演变历程，并对照介绍财团法人九二一震灾重建基金会在迁村工作上之推动方法，藉以讨论政府、非政府组织与迁住户之角色权责与分工合作关系。其次，以数个迁村实例，说明迁移过程中所产生之议题，并由实例中整理出迁村成功或失败之可能因素。最后，对于台湾于灾难后所引发之迁村议题，提出从政策面到实际执行层面之相关建议。 关键词：原住民部落、灾难、非政府组织、迁村政策。 Abstract This article aims to discuss the village migration policy and introduce the role of NGO participating in the process of migration following natural disasters in Taiwan. First, the historical development of governmental disaster-induced village migration policy was reviewed. In addition, The 921 Earthquake Relief Foundation responses to this issue were also introduced to illustrate the partnership works between government and villager. Next, several examples of the planned village migration in Taiwan were presented. Issues related to the practice of village migration were discussed. Factors linked to successes and/or failures during the process of migration were outlined. Last, suggestions regarding disaster victim’s willingness and capabilities of organizing housing rebuild or relocate affairs are discussed. Further, government responsibilities and provisions regarding financial incentives, housing options, and practical problems of housing construction are also advocated. Key words: Aboriginal village, Disaster, NGO, Village migration policy. 一、引言 综观人类历史，个别或集体、自愿或被迫离开原居住地，移往相同或不相同生活圈之另一个居住地之迁徙行为，不仅早就发生，而且随时都在发生。属于个人或个别家户之迁徙，其因素不外乎生活或求学之需要、或价值观念之改变。属于集体性之迁徙，其因素则可分成政治性、经济性与避险性之目的。其中，属于政治性之目的者，如日治时期台湾总督府为便于治理而推动之「全台湾高砂族集体移住十年计划」，导致原住民大规模之集体移住（王，2000）。属于经济性之目的者，如雾社万大水库集水区之巴兰社（廖，1984）、二重疏洪道泄洪区内之洲后村（李，1986）、翡翠水库集水区之石碇乡碧山、永安与格头村（台湾大学城乡暨建筑研究所，1993）与高雄港扩港建设下之红毛港（郑，2002）等因开发需要，实施限、禁建所衍生之迁村计划。 随着民主化之进程与人民自主意识之抬头，因政治性之目的而要求特定族群迁徙之可能性已经绝迹。然因开发行为之需要，要求开发地区之原住户迁徙者，仍偶有所听闻，除极少数个案外，大多数之案例所遭遇之难度越来越高，甚至有因代价太高而导致开发行为改变或终止者。 倒是因风灾、水灾或地震等自然灾害或过度使用自然资源，造成地形地貌改变并严重威胁居住安全，经评估后因难以工程手段复原或复原之成本过高，为避险之目