巨灾后城镇减灾规划的崛起
——中国台湾“9 ∙ 21 大地震”及“八八水灾”个案的回顾与省思
The Rise of Mitigation Planning After Catastrophes:
A Review and Contemplation of Taiwan 921 Earthquake and 88 Typhoon Morakot
作者信息：
洪启东 台湾铭传大学设计学院城市规划与防灾学系专任教授，院长
陈宗贤 台湾铭传大学减灾规划设计研究中心专案经理
李佳翰 台湾铭传大学减灾规划设计研究中心专案经理
摘 要：发生于1999 年的中国台湾“9 ∙ 21 大地震”和2009 年的中国台湾“八八水灾”这两次重大的自然灾害严重冲击了台湾的城市环境，凸显了传统城市规划的市场失灵与政府体制的脆弱，城市规划欠缺对跨域专业整合重要性的认知，特别是面对极端气候冲击时对土地的（再）利用。两大事件也突出了把“减灾”与“社会—经济脆弱度”融入空间规划的重要性，因此，塑造“韧性城市”逐渐蔚为风潮。本文介绍了“9 ∙ 21 大地震”与“八八水灾”这两次台湾有史以来巨大灾害的背景、重建规划的内涵及政府作为，通过回顾文献与案例讨论，以及比较、分析西方相关的论述，试图厘清两点：一是巨灾之后台湾城镇空间重建规划的经验和体制建设；二是城镇减灾规划论述与当今城市规划和灾害管理接榫的困境。企盼通过本文的综述能对两岸三地空间规划的专业交流有所裨益。
关键词：城市规划，城镇防减灾，台湾“9 ∙ 21 大地震”，台湾“八八水灾”，灾害管理
Abstract ：The 921 Earthquake (1999) and 88 Typhoon Morakot (2009) opened up the issue of Taiwan’s vulnerable urban form, which was guided by traditional urban planning process. These disasters revealed the problems of government structure and market failure concerns. The fact is that the long lacking of multi-disciplinary integration within the academic and governmental agencies could results in serious disconnections among these agencies during disaster phases. Considering mitigation strategies and socialeconomic vulnerability issues during planning process has become urban planning mainstream thinking in recent years. That is to say, building a resilient city gradually becomes a trend both in academia and industry. This research uses these two cases to highlight the importance of mitigation planning. First, the introduction section points out the 921 Earthquake and 88 Typhoon Morakot are two catastrophes with significant impacts onTaiwan; yet, its recovery planning and government involvements are inquisitive. Second, the literature review and result sections highlight the connections and the issues between western urban theories and these two cases. Finally, this research clarifies (1) the Taiwanese urban spatial recovery planning experiences and its mechanism; and (2) the dilemma of urban mitigation strategies with its articulated emergency management planning process. The research results are expected to benefit the urban planning professions among Taiwan, Hong Kong and Mainland China.
Keywords：urban planning, disaster mitigation, Taiwan 921 Earthquake, 88 Typhoon Morakot, disaster management
文章来源：《城乡规划》2017 NO.3
