核能災害是一個嚴重的區域性災害，其災害的結果可能持續擴大並延伸至廠區以外，危及廠外民眾的生命與健康。鑑於我國九二一大地震及美國九一一事件慘痛的經驗，無法避免的天然災難及人為危害破壞事件，已引起世人的警惕與高度的重視。綜觀國內外重大的核災事件，我們不啻要問我國目前的危機緊急應變的機制如何？是否已做好周全的準備？萬一不幸發生核能事故時，我們是否真的有能力因應解決？如何保護廣大民眾的生命安全與健康？這一連串的問題，殊值得國人深思探討的課題。 目前我國核子事故緊急應變業務是由行政院原子能委員會轄下的全國核子事故處理委員會來統籌運作。近年來由於國內政治型態的轉變，為落實地方自治的政策，民選地方首長基於保護民眾生命和財產的施政目標，對於有關核能事故的資訊掌握和緊急應變計畫的執行，漸已展現主動性；針對核災事故救災應變的時效性及急迫性而論，我國未來如何釐清中央與地方政府在核子事故緊急應變中所扮演的地位與角色，劃分權責與任務，實應儘早妥為規劃準備。 本論文透過文獻探討、深度訪談與核安演習檢討會議資料蒐集研究的結果，分析我國核能緊急應變機制的運作及現況缺失，並以制度面、決策面、程序面等三層面提出結論與建議，作為建構我國核能電廠緊急應變機制研究之參考。 本論文的結論重點為： 一、核電廠嚴格的安全管制與監督機制，能有效保障核能的安全。 二、應變法源不足與經費短缺的現象，亟待政府加以重視。 三、應變組織體制規劃欠佳，難以發揮應變機制應有的功能。 四、指揮聯繫與通報機制仍存在許多缺失，亟待檢討改進。 五、建立與媒體良好的溝通策略，對危機處理有正面的助益。 六、危機應變觀念與教育宣導不足的現象，亟待政府加以重視。 七、核能事故分析與安全度評估技術的能力，尚待加強建立。 八、核電廠運轉作業程序書與安全文化的建立，是確保核電廠安全的重要因素。 九、中央與地方的防災應變與設備和資源，尚未充分的整合運用。 十、核安演習是危機應變具體的表現，執行成效仍有待加強落實。 本論文的建議為： 一、對制度面的建議 （一）完成緊急應變法律的立法。 （二）健全核能災害防救體系。 （三）規劃設置專責的應變組織。 （四）建立專業人才培訓制度。 二、對決策面的建議 （一）建立「核安家園」的共識。 （二）提昇應變決策的品質。 （三）釐清中央與地方應變組織權限。 （四）落實危機應變宣導與教育訓練。 三、對程序面的建議 （一）加強安全度評估與事故分析的能力。 （二）結合中央與地方防災設備與資源。 （三）提昇核安演習訓練的執行成效。 （四）充實核子事故緊急應變基金。 / A nuclear accident is a serious aerial disaster. The result of disaster can continuously expand and extend to outside of a nuclear plant to endanger the public life and health. Due to the tragedy experiences from Taiwan’s 921 Earthquake and the US’s 911 tragedy, we cannot prevent all the natural disasters as well as any human sabotage events. Therefore, the events alert world people for warnings and attentions. In viewing the world important nuclear accidents, we have to ask ourselves if we are ready for a crisis and what are the mechanisms or if we have done a proper preparation. If there is a nuclear accident, will we be capable to handle and resolve the crisis. How will we protect the public lives and health? This series of questions should be carefully study by our people in Taiwan. Currently, the Nuclear Accident Management Committee under the ROC-AEC operates our nuclear accident emergency readiness. Due to the recent political environment changes in Taiwan, the local elected chiefs want to have more says in local policies and also to protect lives and properties. They became more actively involved in the information about nuclear accidents and the execution of emergency plans. In nuclear accidents, the timing, urgencies, responsibilities, and tasks roles for the Taiwan central government and local governments should be now planned and prepared. This paper uses reference studies, in-depth interviews, and meeting information in nuclear safety exercises to analyze Taiwan’s nuclear emergency response mechanism and current shortfalls. This paper makes conclusions and recommendations by means of systems, decision-making, and procedures in order to construct a study reference for nuclear power plant emergency response mechanism. The key points in this paper’s conclusions are: 1. A nuclear power plant should have stringent safety control and surveillance mechanism to effectively secure nuclear safety. 2. The government should pay attentions to lack of legal basis and short of fund problems. 3. The response organization is not properly planned and cannot effectively perform the response functions. 4. The command and communication mechanisms still exist shortfalls and need improvements. 5. A good communication strategy with media is positive in handling a crisis. 6. The government should pay attentions to crisis response ideas and educational communication. 7. Taiwan should have established the capabilities in nuclear accident analysis and safety evaluation. 8. To assure nuclear safety in a nuclear power plant, we should have a culture of safety with plant’s tech specs. 9. The central government and the local governments have yet to integrate equipment and resources for accident prevention. 10. A nuclear safety drill is a performance of crisis response but still needs improvement. This paper has the suggestions as the follows: 1. Suggestions to Systems (1) Complete emergency response law. (2) Complete the prevention and plan systems for nuclear accidents. (3) Set up a response organization with permanent tasks. (4) Set up a training system for experts. 2. Suggestions in Decision-Making (1) Establish “Nuclear Safety Home” consensus. (2) Elevate decision-making quality. (3) Make a clear division on central and local government power in response organization. (4) Advertise crisis management and educational training. 3. Suggestions to Procedures (1) Improve capabilities in safety evaluation and accident analysis. (2) Integrate central and local disaster prevention equipment and resources. (3) Elevate the performance of nuclear safety drill. (4) Increase the fund used in a nuclear accident response.

2001年當美國發生「9.11事件」之後，國內各行政與情報機關所完成之各種反恐想定，「台北101金融大樓」被一致公認為是最可能遭受恐怖攻擊之想定目標，其原因在於它是台灣當下最重要的地標之一，由於目標顯著一旦遭受恐怖攻擊，對於國內經濟與社會民心都將產生極大的震懾效果。直到2007年初，台灣高速鐵路正式營運通車，三鐵共構的台北車站與高鐵運輸系統，也被同時列入可能遭受攻擊的目標之一，並連續三年成為行政院「金華反恐演習」兵棋推演或實兵操演的想定攻擊目標。這意味著無論是在國內、外，都已意識到全球恐怖主義的攻擊型態正逐漸朝向大型交通運輸系統蔓延。 本研究的目的試圖歸納當前高速鐵路可能面臨的威脅與挑戰，並參酌世界先進各國在高速鐵路面對恐怖威脅所擬定之反恐策略與做法，與國內高鐵之現行措施加以對照，來進一步提升台灣高鐵運輸安全防護，以提供國內致力於反恐工作的先進，作為提升反制應變能量之參考。 本研究的重點即在於探討高鐵安全防護的特性，由預防、應變及復原的角度，借重外國的長期經驗，從制度、組織、策略、法令及實務作為進行分析，本研究經過多方比較發現，國內高速鐵路面對恐怖攻擊在基本防護與緊急應變能力上，與世界先進各國在高速鐵路所投入的資源是明顯不足的。 縱然，台灣高鐵在BOT的架構下，在安全防護上有其侷限性，台灣高鐵仍應本於民營企業所需承擔的社會責任與政府攜手合作，共同逐步完備具體可行的反恐機制與災防應變體系，筆者更期盼藉由本研究，能讓國內對於反恐之個案研究上能再增加一項多元的議題。

網絡是一個依據人與人之間的互動關係所建構出來的，它即是形成我們日常生活中的一部分，而政策網絡則是從網絡的生活環境概念化，進而系統化的分析方法，是較傳統分析方法更有彈性的分析架構。在現在的社會中，想要製造對立的關係很容易，想要挑出他人的問題也是容易的，但是如何促使人們溝通呢？在這個民眾對政府信任低落的時代，社會上的急需解決的公共議題卻未見減少，若里長能發揮一個更作為連結政府和民眾之間溝通的良好媒介，發揮其作為中介樞紐的功能。本研究更期許里長在核子事故緊急應變的政策宣導中，是一個能讓民眾和政府之間的溝通更為順暢的角色。透過政策網絡中的社會網絡分析方法，嘗試去解析在核二廠周遭地區的里長，他們在緊急應變網絡中所擁有的角色、地位及其對網絡的影響，並進一步提出改善當前緊急應變宣導僵化的困境。 本研究透過社會網絡分析的中介性分析結果，發現雖然在緊急應變宣導的政策網絡中，里長確實擁有強大的動員能量，更在網絡中有無法抹煞的影響力，但里長卻並非網絡的單一中介核心，在地方上的緊急應變宣導網絡中，形成了多元的中介核心，這些網絡參與者或因為公務上的正式關係，或因為掌握核能的專業知識，因此，各自在網絡中占有重要的地位，但是若核子事故發生時，這些參與者又會形成環環相扣的宣導和疏散系統，缺一不可。故本研究認為里長的角色，確實會對緊急應變宣導產生不同層面的影響，里長在網絡中也具有相當深厚的稟賦，但更多時候里長只是消極的在執行。 最後本研究彙整出不同受訪者的意見，歸納出了兩個方向性不同的建議，期望負責緊急應變宣導的單位能重新省思這些根本性的問題：第一，只有讓民眾真正的體驗過，體驗才會轉換成有價值的經驗和記憶；第二，對於緊急應變宣導的結構性省思，政府擁有的人力、資源和時間有限，政府官員相較於民眾是否是更需要宣導的群體？

政府存在的目的，在維持人民基本的生活水準，在促使民眾能在自由、安和、樂利的平等的社會環境，並透過與運用法律、道德所允許的公權力手段，以促進社會的繁榮為最高之宗旨；但在目前政府處理危機緊急應變機制計有國土安全會報、災害防救會報及全民防衛動員準備業務會報(此即政府三大緊急應變體系)等，並自2005年起推動合併運作迄今，在中央政府之作法，似已達實際聯合運作與資源整合之效益，然在實際運作情形因需涉及中央與地方間權責分工關係？各公民營事業機構等體系能否協同運作之勾聯？等問題，現有運作並非如此順暢，究其原因係政府在面對新型態的危機發生時，三大應變體系聯合運作所能回應與處理的緊急應變處置作為，不僅未能有效的解決危機與事件所引發的問題，甚者更成為危機處置的亂源與礙手礙腳始作俑者；實有再予檢視與探討空間，以期建立一個權責相符且明確的緊急應變機制。 本文試圖以運用跨域治理為出發點，謹就政府目前積極推動之國土安全、災害防救及全民防衛動員準備業務(此即政府三大緊急應變體系)上聯合運作既存的困境，究其緣由乃此三應變體系皆屬危機管理範疇，各體系內所包含之工作項目與所涉單位甚多，任務屬性與編組成員重疊度極高，甚者尚可包含公(私)營事業機構，故亦應屬跨域治理之特徵，此三者之間關係應緊密運作且具關聯性。然從自2005年起政府積極推動情形下，縱然掌握最大的緊急應變資源與能量，但從歷次處理各項災後或危機應變等工作，卻往往是成為社會與民眾所責難焦點，何以如此呢？實因在於政府的緊急應變處置的機制紛亂不一所致，況且今日台灣面臨全球化所造成的衝擊，環境的變遷導致複合式災害所形成的危機出現層出不窮、社會科技上多元技術的需求以及民眾普遍要求全面的危機管理與跨域治理，故本文主要乃是以「跨域治理」與「危機管理理論」作為基礎論點，藉由文獻探討、焦點座談及問卷調查等方式，檢視三大應變體系聯合運作政府與民間的豐沛資源，運用網際網絡之功能與跨域治理的模式，才能達到凝聚總體資源，群策群力共同處理危機。 / The primary purpose of the government existence is maintaining the integrity of the people's basic living standard, encouraging people to have freedom, peace, and equality. Furthermore, under the law and morality, by means of public power to promote social prosperity. Since 2005, the Taiwan government has amalgamated and promoted the joint operation of three urgent strain response systems which includes homeland security council, disaster council, and national defense mobilization council (these three are the urgent strain response systems of Taiwan Government). The government's approach seems to have reached the joint operation of resources integration of benefits. However, in the actual operation, the problems were emerged from the conflict involved between Central and local authorities, the responsibilities between the public and private utilities, and how to implement the operation of the system of cooperative association. To trace the causes, the joint operation of three major urgent strain response systems is incapable to respond and handle emergency disposal when facing a new state crisis. Moreover, it might cause the crisis of the source of chaos and drag initiator. Definitely, there is a need for further review and assessment to establish a consistent and clear responsibilities among these three urgent strain response systems. This article attempts to use cross-domain governance as a starting point to assess the system. The government impetus the urgent strain of government presently, the three urgent strain response systems are the part of crisis management which includes lots of work and connections with other majority organizations. Because the association constitutes various members base on the different tasks, some members may belong to different divisions. Even the enterprises which run by the local people are the members of the “cross-boundary governance” which should be closely related each other. Since 2005, the government has actively promoting circumstances, even the government has enough information and resources of handling emergency situation, this government (administration) still censured by the public. The reason is that the emergency structure of our government is out of frame and inconsistence. In addition, Taiwan is facing the high pressure of becoming globalization. The impact of changes of the environment resulted in the formation of compound disaster crises emerged, the needs of diverse technologies and social science and people generally demand comprehensive crisis management along with cross-domain administration, so this paper is based on “cross-boundary governance” and “crisis management”, by using the literature reviews, seminars and workshops, questionnaires and surveys to assess the joint operation of three urgent strain systems of Taiwan Government, and the public use of the vast resources, to apply the internet functions and cross-domain governance model, will be able to reach the overall resources and effectively integrating the common crisis management of Taiwan Government.