公共管理评论

新中国成立后,我国应急管理体系经历了单灾种应对为主、以"一案三制"为核心、以总体国家安全观为统领的三个发展阶段。总体来看,我国现阶段应急管理体系建设还存在顶层设计亟待加强、应急体制有待深度融合、应急能力亟须提高、应急法制与标准建设亟待完善等一系列问题,需要从管理理念、体制架构、机制设计、法制建设、国际合作等多个方面进一步探索解决路径。

The evolution of a nation's emergency management system determines the ability and efficiency of a country to deal with emergencies.After the founding of the People's Republic of China,China's emergency management system underwent three stages of development:the Ad Hoc Model stage,which was appointed related departments to deal with specific emergencies respectively,leading to scattered resources and separate powers in emergency responses;the " One Plan,Three Systems" Model stage,when a comprehensive system was constructed to reduce and respond to emergencies,with the core elements including emergency response plans,an organizational structure,operational mechanisms,and a legal system;and the Holistic National Security Concept Guided Model stage,which integrated emergency resources in an all-round way through the establishment of specific and independent departments.The Resolution of the Fourth Plenary Session of the 18 th Central Committee of CPC laid out the overall direction for China to build a modern emergency management system,and the nation is currently making great efforts to realize this goal.However,problems such as the lack of a top-level design and overall planning,a weak institutional foundation,dispersed resources to treat emergencies,and an imperfect legal system are hindering such efforts.To advance the modernization of a national emergency management capability,China should take measures in five respects:first,further strengthening the concept of comprehensive management to deal with disasters,with the core ideas including taking all kinds of emergencies into consideration,responding to emergencies in a full life-cycle manner,and organizing all related stakeholders and resources both outside and inside the government to deal with emergencies;second,optimizing the organizational structure,that is,perfecting the overall planning of the Central(National) Emergency Management System Framework and the Top-level Design,in particular,establishing a Central Emergency Management Committee(National Comprehensive Emergency Command Center),i.e.,"one Committee,one Center",as soon as possible,on the basis of which multi-department coordination will be improved.Third,taking capacity-building as a breakthrough,so as to strengthen the construction of an emergency management mechanism,especially the top-level design,and to implement the construction of an operational mechanism at different levels of government;fourth,improving the legal and standard system for emergency management;and last,in the complex international environment,an emergency management strategy of "going out" must be established,and international responsibility for disaster prevention,mitigation,and relief should be actively undertaken.