FEMA 災害防救體系

災害防救體系要建置，態度更是關鍵

【聯合報╱社論】
2009.08.23 02:01 am

馬英九總統在災後第十天宣布，立即著手成立隸屬內政部的災害防救總署，地方政府也成立相應配置，並徹底檢討防災體系。
莫拉克颱風重創台灣暴露出防災與救災體系形同虛設，中央缺乏橫向聯繫，未能及時、適切傳遞訊號到地方，極無效率的救災，讓馬政府遭到空前強烈的批評。
早在災後第一時間，救災亂象即讓立委、學界呼籲救災體系不能再不調整，建議設置直屬總統的專責救災機構，並推薦仿照廣獲好評、直屬美國總統的「聯邦緊急救災總署（ＦＥＭＡ）」或日本直屬總理大臣的「緊急災害對策本部」，建置一條鞭式的救災體系才能發揮作用。馬總統的宣示，算是對社會期待的回應。
但是，馬總統提出的新機構，層級未變，功能卻要大增，在實質上有「背心改西裝」的困難，畢竟材料不夠。再說，就算改成了，穿上迷彩裝也不代表就能打仗。不管學ＦＥＭＡ或是日本的緊急災害對策本部，重點應該是學習這些機構的作業態度及原則，絕不是「原裝進口」美日的制度及「標準作業程序」（ＳＯＰ）。
以美國ＦＥＭＡ為例，是一九六八年發生多起大型自然災害之後成立直屬總統的獨立機構，九一一恐怖攻擊事件發生後，改隸新成立的國土安全部，雖然不再直屬總統，但仍是聯邦緊急應變系統ＩＣＳ（Incident Command System）的核心，四個主要任務是防災、整備、應變、復原。
ＦＥＭＡ在布希政府處理卡翠納颶風時遭受嚴重批評，但其效能仍被認為全球第一把，更關鍵的因素是累積經驗、記取教訓、不斷的檢討修正。ＦＥＭＡ的第一個核心精神是各環節權責明確，中央指揮、協調救災，地方執行救災，甚至民間企業也得有列管的災害應變計畫。絕不是國人以為的中央包山包海，跳到第一線代地方政府送糧、抽水。
其次，中央對地方的支援是視地方的努力及準備程度而定。地方要有一套緊急應變計畫，平時反覆演練，災害發生時立即端出計畫按部就班的執行；對這樣「準備好了」的地方政府，上級政府會優先支援、補助；相對的，緊急應變計畫若只是紙上文章，災害來臨時一團亂，則上級不會越俎代庖，也不會像個「富爸爸」，缺什麼就給什麼。
「準備好了」也反映在日常的防災訓練。防災重於救災，ＦＥＭＡ的日常工作是不斷辦理防災訓練，不要求速效，但平時就要做，要準備好。受訓人員不只對公部門國民兵、工程、警察、醫療人員、民間的志工、救難隊，甚至與民眾生活密切相關的保險經紀人、房屋仲介等也都灌輸其防災思維，使能在業務過程第一時間即導入防災警覺。
莫拉克救災，不少被派了任務的部會首長遭批評「外行指導內行」，這在ＦＥＭＡ的運作不會發生，因為即便是美國總統、ＩＣＳ總指揮，都得接受ＦＥＭＡ的防災訓練並考核及格；其下部長級的ＩＣＳ決策委員、縣市長擔任的ＩＣＳ地方指揮官當然更要及格，不「準備好了」是不行的。
「準備好了」還反映在救災的每一個環節，例如通訊。這次莫拉克救災很大的缺點是訊息不明，即便搶進災區的警方、軍方、民間救難隊，各是各的通訊系統，彼此不互通，最後落得靠民間手機系統傳遞訊息，一斷訊，救援工作即停擺。對照美國ＩＣＳ，從總統到地方指揮官，通訊統一，名詞統一，通關密碼一致；不但硬體統一，連操作訓練也「準備好了」。
九二一大地震、颱風、土石流……，台灣每年都傷得很重很慘，但總是事情過去就忘了，從不去檢討、改進，從不記取教訓，應對自然災害始終是「得過且過」。如果仍不能痛定思痛，從建立防災的正確態度出發，只是照搬ＦＥＭＡ或是日本的緊急災害對策本部成立災害防救總署，仍將是個功能不彰的衙門，人民恐仍難逃苦難。
【2009/08/23 聯合報】@ http://udn.com/
1. http://udn.com/NEWS/OPINION/OPI1/5093810.shtml
2.
3. *Federal Emergency Management Agency
Federal Emergency Management Agency
From Wikipedia, the free encyclopedia
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"FEMA" redirects here. For other uses, see FEMA (disambiguation).
Federal Emergency Management Agency

Agency overview
Formed
April 1, 1979[1]
Employees
6,651 (2008 Budget)[2]
Annual budget
$5.8 billion (2008)[2]
Agency executives
W. Craig Fugate, Administrator David Garratt (Acting), Deputy Administrator
Parent agency
Department of Homeland Security
Website
www.fema.gov
The Federal Emergency Management Agency, or FEMA, is an agency of the United States Department of Homeland Security, initially created by Presidential Order on April 1, 1979.[1][3] The primary purpose of FEMA is to coordinate the response to a disaster that has occurred in the United States and that overwhelms the resources of local and state authorities. The governor of the state in which the disaster occurs must declare a state of emergency and formally request from the president that FEMA and the federal government respond to the disaster. FEMA also provides these services for territories of the United States, such as Puerto Rico. The only exception is when an emergency or disaster occurs on federal property or to a federal asset, for example, the 1995 bombing of the Alfred P. Murrah Federal Building in Oklahoma City, Oklahoma, or the Space Shuttle Columbia in the 2003 return-flight disaster.
While on-the-ground support of disaster recovery efforts is a major part of FEMA's charter, the agency provides state and local governments with experts in specialized fields and funding for rebuilding efforts and relief funds for infrastructure, in conjunction with the Small Business Administration. FEMA also assists individuals and businesses with low interest loans. In addition to this, FEMA provides funds for training of response personnel throughout the United States and
See also
Civil Contingencies Secretariat, United Kingdom equivalent Emergency management agency
FEMA photo library
FEMA Trailer
PDD-62
Public Safety Canada - Canadian counterpart disaster response agency
U.S. Fire Administration
United States Civil Defense

[edit] References
MSNBC Article Senate panel recommends abolishing FEMA
^ a b "Executive Order 12127--Federal Emergency Management Agency". Federation of American Scientists. http://www.fas.org/irp/offdocs/eo/eo-12127.htm.
^ a b FEMA's FY 2008 Budget Request, March 9, 2007
^ a b Woolley, Lynn (12 September 2005). "FEMA - Disaster of an Agency". http://www.newsmax.com/archives/articles/2005/9/12/102827.shtml. Retrieved 2007-12-12. "And so it has been since Jimmy Carter created FEMA by executive order on March 30, 1979." See Federation of American Scientists reference above for effective date of April 1, 1979 stated in Executive Order 12127.
^ A History of Emergency Management
^ Article on the RFC from EH.NET's Encyclopedia
^ a b c d Falkenrath, Richard S., "Problems of Preparedness: U.S. Readiness for a Domestic Terrorist Attack" (2001)International Security, Boston.
^ a b c d e Bea, Keith, "Proposed Transfer of FEMA to the Department of Homeland Security", Order Code RL31510 (updated July 29, 2002), Report for Congress, Congressional Research Service: Library of Congress.
^ a b Feberal Emergency Management Agency (1996-02-26). "President Clinton Raises fema Director to Cabinet Status". Press release. http://web.archive.org/web/19970116185236/www.fema.gov/home/NWZ96/cabinet.htm. Retrieved 2009-05-18.
^ Murry, Justin (updated July 10, 2006). "Emergency Supplemental Appropriations Legislation for Disaster Assistance: Summary Data FY1989 to FY2006", CRS Report for Congress, Congressional Research Service: The Library of Congress.
^ Grunwald, Michael, and Susan B. Glasser (December 23, 2005). "Brown's Turf Wars Sapped FEMA's Strength". Washington Post: p. A01. http://www.washingtonpost.com/wp-dyn/content/article/2005/12/22/AR2005122202213.html. Retrieved 2007-04-18.
^ Senate Bipartisan Committee (February 15, 2006), "The Final Report of the Select Bipartisan Committee to Investigate the Preparation for and Response to Hurricane Katrina, U.S. Government Printing Office: Washington D.C.
^ Senate Bipartisan Committee, 2006, p. 208
^ "Searching in Hope: FEMA's Urban Search and Rescue Teams". FEMA. http://www.fema.gov/remember911/911_search.shtm. Retrieved August 28 2006.
^ "Sun-Sentinel Investigation: FEMA". Sun-Sentinel.com. http://www.sun-sentinel.com/news/sfl-femacoverage,0,6697347.storygallery?coll=sfla-news-utility. Retrieved 2007-04-18.
^ Kestin, Sally, and Megan O'Matz (October 10, 2004). "FEMA gave $21 million in Miami-Dade, where storms were 'like a severe thunderstorm'". Sun-Sentinel. http://www.sun-sentinel.com/news/sfl-fema10oct10,0,4751704.story. Retrieved 2007-04-18.
^ Kestin, Sally (June 8, 2005). "Homestead women sentenced to probation for cheating FEMA". Sun-Sentinel. http://www.sun-sentinel.com/news/sfl-fema08jun08,0,1732468.story. Retrieved 2007-04-18.
^ Kestin, Sally; Megan O'Matz; and Jon Burstein (August 10, 2005). "FEMA paid for at least 203 funerals not related to 2004 hurricanes". Sun-Sentinel. http://www.sun-sentinel.com/news/sfl-fema10aug10,0,2326863.story. Retrieved 2007-04-18.
^ Executive Summary, Select Bipartisan Committee to Investigate the Preparation for and Response to Hurricane Katrina, 2006-2-15, U.S. Government Printing Office, Retrieved 2007-6-11
^ a b FEMA, Select Bipartisan Committee to Investigate the Preparation for and Response to Hurricane Katrina, 2006-2-15, U.S. Government Printing Office, Retrieved 2007-6-11
^ Duval, Stanwood R., Jr.; United States District Court, Eastern District of Louisiana (December 12, 2005). ""Order of December 12, 2005" (Rec. Doc. No. 63)" (PDF). "Beatrice B. Mcwaters, et al. v. Federal Emergency Management Section 'K' (3)" (No. 05-5488). USCourts.gov. http://www.laed.uscourts.gov/GENERAL/Notices/05-5488order.pdf. Retrieved 2007-04-18.
^ Duval, Stanwood R., Jr.; United States District Court, Eastern District of Louisiana. ""Modified Order of January 12, 2006" (Ref. Doc. No. 74)" (PDF). "Beatrice B. Mcwaters, et al. v. Federal Emergency Management Section 'K' (3)" (No. 05-5488). USCourts.gov. http://www.laed.uscourts.gov/GENERAL/Notices/order011206.pdf. Retrieved 2007-04-18.
^ FEMA To Melt Ice Stored Since Katrina
^ [1]
^ FEMA Replies To Unjustified Claims Regarding FEMA's Response To Early Snowstorm In Western New York
^ USA Today: Ark. pols blast FEMA for tornado response
^ FEMA Stages Press Conference: Staff Pose As Journalists And Ask ‘Softball’ Questions
^ Why FEMA Fakes it With the Press Amanda Ripley. Time. October 28, 2007.
^ "Press Briefing by Dana Perino". October 26, 2007. http://georgewbush-whitehouse.archives.gov/news/releases/2007/10/20071026-6.html. Retrieved 2007-10-29.
^ "FEMA PR chief loses new job after fake news briefing". CNN. 2007-10-29. http://edition.cnn.com/2007/POLITICS/10/29/fema.newser/. Retrieved 2007-10-29.
^ Why FEMA Fakes it With the Press Amanda Ripley. Time. October 28, 2007.
^ Bovard, James (February 19, 1997). "The FEMA Snow Job". Cato Institute. http://www.cato.org/dailys/2-19-97.html. Retrieved 2007-04-18.
^ Bovard, James (September 1996). "FEMA Money! Come & Get It!". The American Spectator. jimbovard.com. http://www.jimbovard.com/American%20Spectator%20Sept%2096%20FEMA%20Money%20Come%20and%20Get%20It.htm. Retrieved 2007-04-18.
^ Cato Institute (January 1997). "15. Costly Agencies". Cato Handbook for Congress: 105th Congress (spiral edition ed.). Cato Institute. ISBN 1882577515. http://www.cato.org/pubs/handbook/hb105-15.html. Retrieved 2007-04-18.
^ FEMA (July 2004) (in English (Spanish, Korean available)) (text (PDF version)). Help After a Disaster: Applicant's Guide to the Individuals & Households Program. FEMA. http://www.fema.gov/txt/assistance/process/help_after_disaster_english.txt.
^ Serving America's Disaster Victims: FEMA Where Does it Fit? Homeland Security Policy Institute. January 13, 2009.
^ http://www.fema.gov/rebuild/mitigation.shtm#2
^ a b FEMA's Mitigation Directorate Fact Sheet
^ HAZUS is a computer model for hurricane, earthquake, and flood damage estimates.
^ http://www.fema.gov/government/grant/srl/index.shtm
^ Grant Program Comparison: Mitigation Division Grant Programs
[edit] External links

Wikimedia Commons has media related to: Federal Emergency Management Agency
A History of FEMA
DHS organization
EMI Emergency Management Higher Education Program
FEMA Field Operations Guide Including descriptions of markings on evacuated and searched buildings
FEMA Independent Study Program (ISP) Professional Development Series
FEMA website
FEMAanswers.org - wiki site set up to help Katrina victims
Federal Emergency Management Agency - Wikipedia, the free encyclopedia
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