建置各级政府执行灾害防救工作绩效评估机制纸研究案.PDF

1、 PG9302-0862 093 301060000C1 008 . . . . 1 . 1 . 2 . 6 . 14 . 17 . 17 FEMA . 23 . 59 . 88 . 121 . 123 . 123 . 124 . 139 . 154 . 218 .245 . 245 . 246 . 253 . 259 . 259 . 260 . 280 . 285 . 291 . 293 . 293 . 299 . 301 1-1 . 6 1-2 . 7 1-3 . 11 1-4 . 11 1-5 . 13 2-1 EMF1 . 64 2-2 EMF2 . 66 2-3 EMF3 . 66

2、2-4 EMF4 . 67 2-5 EMF5 . 68 2-6 EMF6 . 72 2-7 EMF7 . 74 2-8 EMF8 . 75 2-9 EMF9 . 79 2-10 EMF10 . 81 2-11 EMF11 . 83 2-12 EMF12 . 85 2-13 EMF13 . 86 2-14 SEMS . 88 2-15 SEMS . 89 2-16 . 97 2-17 . 97 2-18 CRS . 101 2-19 . 109 2-20 CRS . 110 2-21 . 115 3-1 . 125 . 132 3-3 92 . 140 3-4 92 . 141 3-5 . 15

3、5 3-6 . 158 3-7 . 160 3-8 . 162 3-9 . 165 3-10 . 168 3-11 . 171 3-12 . 173 3-13 . 176 3-14 . 178 3-15 . 181 3-16 . 184 3-17 . 187 3-18 . 189 3-19 . 192 3-20 . 195 3-21 . 219 3-22 . 201 3-23 . 204 3-24 . 206 3-25 . 209 3-26 . 210 3-27 . 212 3-28 . 214 3-29 . 216 3-30 . 220 3-31 . 221 3-32 . 222 3-33

4、. 225 3-34 . 227 3-35 . 229 3-36 . 231 3-37 . 233 3-38 . 235 3-39 . 236 3-40 . 238 3-41 . 239 3-42 . 241 4-1 . 246 4-2 . 247 4-3 . 253 5-1 . 261 5-2 . 261 5-3 . 262 5-4 Cluster Analysis . 269 5-5 . 271 5-6 . 272 5-7 . 274 5-8 . 275 5-9 . 280 1-1 . 3 1-2 . 4 1-3 . 8 1-4 . 9 1-5 . 10 1-6 . 10 1-7 . 14

5、 2-1 . 27 2-2 . 45 2-3 . 49 2-4 CAR . 62 2-5 CRS . 111 2-6 . 114 2-7 . 116 2-8 . 117 2-9 . 121 3-1 . 130 3-2 . 131 3-3 . 137 3-4 . 138 3-5 . 139 3-6 . 140 3-7 . 154 3-8 . 218 3-9 . 225 3-10 . 227 3-11 . 229 3-12 . 231 3-13 . 233 3-14 . 235 5-1 93 . 265 5-2 93 . 266 5-3 Cluster Analysis . 268 5-4 . 2

6、76 5-5 . 277 5-6 . 278 1. 2. 3. 4. 1. 2. 3. 4. 5. Abstract In order to evaluate the performance of disaster protection of the governments, National Disaster Prevention and Protection Council proposed a research project to study related criteria in last year. This project was reached its research goa

7、ls. For much further information and establishing detail system of disaster protection performance evaluation, the research project of this year is than proposed. The major goals of this years project include the following items: 1.To collect and to analyze related literatures about disaster protect

8、ion performance evaluation in USA, Japan and our country. 2.To propose related methods, evaluating items, and strategies for our governments. 3.To establish a complete disaster protection performance evaluation system for our governments. 4.To really evaluate the performance of our governments in di

9、saster prevention and protection field to see what happen of the operations. By way of literature review, focus interview, and survey research, this project hopes to complete the next achievements: 1.To understand the nature and related factors of performance evaluation of disaster protection. 2.To

10、know the reality of performance evaluation of disaster protection in USA and Japan. 3.To establish a complete system of performance evaluation of disaster protection in our country to make the operations smoothly. 4.To practically evaluate our governments in disaster protection performance so as to

11、improve the performance. 5.To propose concrete suggestions for our governments to solve related problems as well as to strengthen the system of our country. Keywords Disaster Protection Performance Evaluation Performance Evaluation System 1 1. 2. 3. 2 92 1 92 2 12 11 1. 2. ( ) 3. 4. 5. 1. 2. 1-1 1-2

12、 1 92 3 1-1 4 1-2 1. 5 2. 3. 6 1-1 1-1 1 2 3 4 5 6 7 7 1-2 1-2 92.7.30 92.9.30 92.10.31 92.12.31 8 1-3 9 1-4 10 1-5 1-6 11 1-3 1-4 2 3 5 8 9 12 1. 2. 10 31 12 10 91 13 1-5 1. 2. 3. 4. 5. 1. 2. 3. 1. 2. 3. 1. 2. 3. 1. 2. 3. 4. 14 1-7 2 3 4 5 6 7 8 9 10 11 12 1 1 2 2 3 % 10 20 30 4050 60 7080 90 95 10

13、0 1 2 1 2 3 15 17 (Performance Evaluation) (Peter F. Drucker) 1990 1960 ” ” 1 ; 2 3 (Goal Congruence) (Business International Research Team BIRT) 4 Performance Measurement Study Team,1997 performance management 1 93 165 2 92 12 3 3 92 4 - 89 18 5 6 efficiency) (effectiveness) ; 7 ( ) 8 9 ( ) 5 92 12

14、 3 6 Shertzer&Stone 82 3 4 7 Harvard Business Review on Measuring Corporate Performance 89 5 8 29 4 88 9 86 19 10 1993 (National Performance Review) (work better,cost less) 90 91 11 : 1. 2. 3. 4. 1. 10 11 93 6-8 20 12 1 2 3 2. 13 1 2 3 3. A=a1,a2,a3 ak P (W ) = C ( A ) P(W)= C(A) 14 1 2 12 13 14 21

15、15 1. (Max Webber) 2. 3. : 1. 2. 3. 4. 5. 6. 15 22 爲 Roth(1996) 16 : 17 ( ) (Halo Effect) 18 19 16 78 4 17 ( )( ) 3W - :http:/.tw/ 92 18 93 57 19 89 23 FEMA 2001 1999 9 30 FEMA (Partnership for a Safer Future), 1993 (Government Performance and Results Act of 1993 ,the Results Act) FEMA 2001 30 FEMA

16、M P RR E CS FEMA 24 10 FEMA : GPRA (GPRA Implementation) (Office of Inspector General, OIG) GPRA FEMA FEMA 1998 FEMA 1999 2000 2001 2000 GPRA FEMA FEMA (Financial Management) FEMA FEMA OIG FEMA1998 OIG (Information Technology Management) FEMA IT Y2K IT (National Emergency Management Information Syst

17、em ,NEMIS) (Grants Management) 1998 FEMA OIG FEMA 1997 CFO (Program Challenges) (Disaster Response and Recovery Program) FEMA ; FEMA FEMA 25 OIG 2000 FEMA (State and Local Preparedness Program) FEMA1994 3 1999 3 OIG FEMA FEMA FEMA Capability Assessment for Readiness ,CAR (Flood Insurance Program): F

18、EMA 1993 15.6 : 20 FEMA NFIP FEMA (Mitigation Program) FEMA FEMA FEMA (Flood Insurance Rate Maps) FEMA10 50% 10 FEMA (map modernization program) 75 7 (National Security Support Program) FEMA 39 (Stafford Act) FEMA 26 FEMA FEMA ( ) FEMA FEMA FEMA , FEMA FEMA ( ) 14 22 1297 69.63 26% 56% 27 2-1 M.1: M

19、1-1: : : (Mitigation Directorate )(MT-FEMA Mitigation Directorate) 1. 170 WY; $64,003,000 2. 1 3000 NFIP 2 11000 3 14900 4 5 3 3. : (National Spatial Data Infrastructure Clearinghouse Node for Emergency Management ,NSDI-EM) GIS ( ,Federal Geographic Data Committee) NFIP FEMA (Cooperating Technical C

20、ommunity, CTC) CTC 28 - (HURREVAC) 20 4. 1 (Community Information System ,CIS) ( Managing Information on Contracted Studies ,MICS) 2 LOMC (Letters of Map Change, LOMCs) FEMA 3 FEMA 4 HURREVAC 5 - (Project Impact-2) (grant baseline and annual progress reports-3) 5. Droject Impact (Disaster-Resistant

21、Community) : FEMA 6. : 1 2 FEMA 3 4 20 HURREVAC FEMA 29 M1.2- :MT-( FEMA Mitigation Directorate) 1. 1 Hazards United States,HAZUS 2 2. 1 HAZUS 2002 2 3 4 HAZUS 5 FEMA (Emergency Management Performance Grants ,EMPG) (Hazard Mitigation Grant Program,HMGP) (Project Impact grants-4) HAZUS 3. 1 FEMA HAZU

22、S HAZUS FEMA HAZUS 2 (public awareness campaigns) 5. 1 FEMA 2 3 ( ) M.2: M.2.1- :MT-( FEMA Mitigation Directorate) 1. 30 8 WY; $1,464,000 2. 1 5 FEMA 2 3. 1 1999 FEMA , 2 ( National Earthquake Hazards Reduction Program,NEHRP) NEHRP NEHRP 3. 1 2 (mitigation programs) M2.2.- :MT-( FEMA Mitigation Dire

23、ctorate) 1. 94 WY; $61,552,000 2. 1 (Strategy developed) (International Building Code) (International Residential Code) 2000 2 ( ) 3 (construction practices) 4 (Project Impact) 200 5 1999 ( Cooperating Technical Community, CTC) 6 (Project Impact) (baselines5) 10% 3. 4 31 (proactive business or gover

24、nment actions) 4. (Code Resource Development Committee) (International Code Council) ( ) (Partnership in Advancing Technology in Housing ,PATH) (Project Impact) FEMA 5. 1 2000 2 (Project Impact) 5 3 2001 M2.3.- 2000 20% :MT-( FEMA Mitigation Directorate) 1. 11 WY; $1,011,000 2. (Project Impact) 3. 4

25、. 1 (Project Impact) 2 5. (Partner Commitment Database) 32 M2.4.- (Tribal) (Tribal) : (Preparedness, Training, and Exercises Directorate,PT) 1. 10 WY; $16,493,000 2. 1 100% 2 2001 (Compendium of Exemplary Practices) 3 12 22 3 2 (pilot courses) 3. 1 56 2 (Compendium of Exemplary Practices) 3 (“Impact

26、 Exercises”), 4 EENET 22 3 (Residential Coastal Construction) (Disaster Resistant Jobs) 4. EENET (Emergency Management Institute ,EMI) (resident course catalogs and field offerings) M.3: M.3.1 NFIP 10 NFIP : ( Federal Insurance Administration ,FIA) 1. 12 WY; $3,772,000 2. 33 1 2 3. 1 ( ) (incentives

27、 or disincentives) Commumity Rating System, CRS 2 (The Federal Insurance Administration and the Mitigation Directorate) 4. NFIP 5. 1 NFIP 2 M.4: 5% NFIP 2007 M.4.1. NFIP5% ( : 3,811,253 in FY 1997) : (Federal Insurance Administration ,FIA) 1. 14 WY; $21,484,000 2. 2000 460 2001 5% 3. 1 (Cover Americ

28、a II,) NFIP 2 3 4 4. 34 NFIP 5. NFIP M.5: 2007 10% M.5.1.- , , : (Federal Insurance Administration ,FIA) (Mitigation ,MT) 1. 26 WY; $22,005,000 2. (underwriting experience) (aggregate and for discrete classes of business.) 3. 2-3 ; NFIP CRS 4. 5. 1 (Verification of savings and cost avoidance) FMA HM

29、GP NEMI NFIP (Actuarial Information System) 2 M.6: (business practices) 35 , M.6.1 : (Federal Insurance Administration ,FIA.) 1. 22 WY; $33,836,000 2. 1 WYO(Write Your Own-WYO) 2 NFIP Cover America II campaign 3. NFIP 1999 WYO FIA NFIP NFIP , 4. 1 NFIP 2 WYO 3 WYO 5. FIA P.1: P.1.1: (Capability Asse

30、ssment for Readiness -CAR) CAR CAR 10% (critical 10 percent of weaknesses) : PT-(FEMA Preparedness,training and Exercises Directorate) 1. : 36 195 WY; $17,861,000 2. CAR 1998 CAR 3. 1 (Emergency Management Institute.) 2 3 4 5 6 7 (Emergency Management Performance Grants -EMPG) 8 CAR (refinements to

31、the CAR.) 9 10 11 12 13 14 (Compendium of Exemplary Practices) 15 4. 1 2000 CAR 2 P.1.2- : 1. 181 WY; $16,801,000 2. 37 3. 1 2 3 EMGP 4. P.2: 2000 25% P.2.1- 5 :PT-(FEMA Preparedness,training and Exercises Directorate) 1. 83 WY; $14,796,000 2. FEMA 3. 1 HAZMAT 2 3 (Executive Orders) EM FEMA 4 5 (Sta

32、fford Act use of Defense Protection Act authorities) 6 FRP CAR (Emergency Management Exercise Reporting System ,EMERS) 7 8 (disaster assistance employees ,DAEs) (“on-call” Disaster Field Training Officers.) 9 10 2000 38 4. CAR EMERS FEMA EM P.3: -5%( : 1000 4.5) P.3.1- 1. 2. : (U.S. Fire Administrat

33、ion ,USFA) 1. 14 WY; $4,269,000 2. 35% (National Fire Incident Reporting System ,NFIRS) 5.0.)( :41 ) NFIRS30% ( :9 ) (World Wide Web.) USFA 4 NFIRS 3. NFIRS NFIRS FEMA USFA(United States Fire Administration) 4. (National Fire Information Council) (National Fire Data Centers annual summary of entitie

34、s) (National Fire Incident Reporting System.) 39 P.3.2- :USFA 1. 10 WY; $6,301,000 2. 1 1998 7% USFA 2 24000 ( :2000) 3. 1 (high-risk groups.) 2 3 4 5 6 / ( Hotel/Motel Fire Safety Act.) 7 4. 1 (National Public Education campaign program statistics) 2 USFA (logs of information requests) P.3.3- :USFA

35、 1. 9 WY; $27,994,000 2. 1998 5%USFA ( :117325) 3. 1 2 40 3 4 5 EMS 6 1998 2% (technological hazard mitigation materials) 7 P.3.4- :USFA 1. 46 WY; $18,268,000 2. 1194 50522 76419(student days) 3. NFA NFA(National Fire Academy) (American Council on Education.) (on-campus and off-campus )NFA (training

36、 materials) (on- and remote-) NFA 32000 (fire departments) 4. 2-6 P.4: SBA (National Emergency Management Information System ,NEMIS) SBA FEMA 41 NEMIS P.4.1- (National Emergency Management Information System) NEMIS 2.0 : (Information Technology Services Directorate ,IT) 1. 21 WY; $10,909,00 2. NEMIS

37、 2.0 (Direct remaining NEMIS development and monitor operations and maintenance of Version 2) NEMIS FEMA NEMIS 3. NEMIS (Enterprise Architecture.) NEMIS 2.0 4. : 1 (Information Technology Services Directorate) 2 P.5: (Continuity of Government) P.5.1- FEMA (National Security Council,NSC) :FEMA (FEMA

38、Office of National Security Affairs,NS) 1. 37 WY; $15,757,000 2. 1 2 5 42 3 3. FEMA (Critical Infrastructure Protection ,CIP). (Continuity of Government ,COG)Continuity of Operations (COOP) FEMA COG COOP CIP COG COOP CIP FEMA FEMA FEMA NSC(National Security Council) 4. 1 FEMA COOP COG CIP 2 P.6: (Sa

39、fety and security services) FEMA FEMA P.6.1- FEMA :OS(FEMA Operation Support Directorate) 1. 20 WY; $7,793,000 2. 1 - FEMA 80% 2 - 3. : 1 FEMA 2 3 FEMA OSH(Occupational Safety and health) 43 4 - 5 6 FEMA (abatement projects) 7 8 9 10 FEMA 11 12 13 4. : 1 ( Automated Deployment Database ,ADD) OSHA 20

40、01FRC 2 (Department of Justice protection standards) FEMA ; ; ; P.7: (National Food and Shelter Program) P.7.1- : 1. 30 2. 1 2 44 3 3. 1 2 MP.1: (State Emergency Management Preparedness and Mitigation Capability.) MP.1.1- EMPG(Emergency Management Performance Grant) : (Preparedness, Training, and Ex

41、ercises Directorate); - (Mitigation Directorate: Office of Financial Management ,PT, MT, FM). 1. 1 EMPG 2 2000 EMPG 2. 1 FEMA EMPG 2 CAR 3. 1 (Regions) 2 (Regions) 3 2 3 5 5 2814 ( DRF-Disaster Relief Fund) 39.2 2 57% 32% 45 2-2 RR.1.- 100% RR.1.1- (Human Services Program,HS) : (Response and Recover

42、y Directorate, RR) 1. 407 WY; $62,391,000 2. 50000 90% 3. 1 12 HS 21 2 - 5-8 3 (stakeholder information.) 4 (Increase timeliness with which disaster declaration packages are prepared.) 21 HS12 (registration intake) (inspections for verification of housing and Individual and Family Grants ,IFG) (Help

43、line services) (housing performance) IFG (IFG Performance) (crisis counseling) (Disaster Unemployment Assistance ,DUA) (disaster legal services) (voluntary agency liaison) (regional office support) (workforce readiness) (overall application processing) 46 5 (Increase senior management effectiveness

44、at Disaster Field Offices.) 4. RR.1.2- (Public Assistance ,PA) programs. : (Response and Recovery Direcorate,RR) 1. 87% 2. 1 80% 180 2 50% 30 3 (Evaluate task order performance of technical assistance contractors.) 4 5 6 2 90% 7 (stakeholder information.) 8 9 3. PA(Public Assistance) RR.1.3- :RR 1.

45、12 72 2. 1 (Catastrophic Disaster Response Group,) ( Emergency Support Function Leaders) (the Regional Interagency Steering Committee.) 2 3 (relations) 47 4 5 6 (stakeholder information.) 7 8 (Disaster Field Office) 9 10 (Increase senior management effectiveness at Disaster Field Offices.) 3. : FEMA

46、 RR.2: FEMA RR.2.1- : Operations Support Directorate (OS). 1. Operations Support Directorate (OS). 2. 2000 97% 2000 DISC(Disaster Information System Clearinghouse) TLC(Territorial Logistics Center) DFO 2000 10% 3. (disaster asset) DFO(Disaster Field Office) (closeouts) DFO 4. 1 (pre-deployment succe

47、ss) 2 3 (Operational feedback) 48 RR.3: (Emergency communications) (National Warning System, NAWAS) (Emergency Alert System ,EAS) (Geographical Information System ,GIS) RR.3.1- : (Information Technology Services Directorate, IT) 1. 1 3 (NAWAS) 2 15 3 24 4 72 2. 1 (NAWAS) NOAA 2 (EAS) 3 (GIS) (territ

48、ories) 3. IT 22 FEMA 3 5 3 691 140 14% 11% 22 1997 9 30 FEMA 5 2 ( ) 49 2-3 E.1- (Meet Documented Efficiency Objectives) 5 E.1.1- 5 2001 : (Office of Financial Management ,OFM) 1. 46 WY; $2,208,000 2. 1 OMB 2 (grants-management improvement initiative) 3 FMS (Treasurys FMS Cross-Servicing Branch) 180

49、 4 (procurement and vendor payment processes;) (Transfers) 5 95% 5 98% 30 24 50 99% 24 (Disbursements and Receivables Branch;) 99% (Integrated Financial Management Information System (IFMIS) SMARKLINK 99% 99% 6 7 2000 (commercial credit card usage above) 10% 8 2000 5% 3. 1 FEMA 2 3 4 5 4. FEMA (tren

50、d data) IFMIS MEMIS FEMA (commercial credit card purchase data.) E.2- FEMA E.2.1- 1. 382 WY; $98,797,000 2. 1 IT A. FEMA 99% 24 FEMA (FEMA Switch Network ,FSN) 51 FSN IT 30 HF FEMA B. FEMA IT FEMA IT (FEMAs enterprise IT architecture.) 2 OS 2000 (Logistics Management Facility ,LMF) 2% 2000 (Logistic