区域综合公共安全管理模式及中国综合公共安全管理对策

Integrated regional public security management mode and strategies of China

中国政府将公共安全事件分为4大类,即自然灾害、事故灾难、公众卫生和社会安全。中国的公共安全管理体制包括在中央一级成立国务院应急管理办公室,以及针对上述4类公共安全问题相应组建的以管理自然灾害为主的国家减灾委员会;以管理事故灾难为主的国家安全生产委员会;以管理公共卫生为主的中国爱卫会和以管理社会治安为主的中央综合治理委员会。在地方政府一级,一般与中央有关公共安全管理体制的机构相对应,也相应组建了地方政府的应急管理办公室和上述4类的公共安全管理的委员会。此外,国家出台了各类公共安全管理的应急预案,并针对一些主要的公共安全因素,相继制定了一系列法律、规定和决定。由此可以认为,中国公共安全的管理体制是“以中央为主,中央与地方政府相互配合”。中国公共安全管理机制是中央与地方政府的相关部门,在灾前、灾中与灾后分别承担相应的责任,至今还没有一个政府部门就某一种公共安全因素承担全部的备灾、应急与恢复和重建任务。国家的公共安全管理战略一直是以“预防为主,防抗救相结合,”2003年SARS事件后,各级政府重视公共安全管理工作中应急管理体系的建设。文章提出了区域综合公共安全管理模式,即灾区政府、企业、社区在灾前备灾、灾中应急、灾后恢复与重建的减灾全过程中,形成一个有机的整体。在此模式的指导下,针对中国公共安全管理体制与机制中存在的问题,提出了进一步改进中国各级政府综合公共安全管理的对策:一是加大公共安全信息的及时公开力度,建立国家和地方公共安全信息共享体系;二是建立公共安全管理的纵向、横向与综合协调机制,全面提高各级政府的综合公共安全管理能力;三是从源头上降低公共安全事件的发生频率,建立发展规划的“风险”评价制度;四是鼓励非政府组织在综合公共安全管理中发挥作用,建立社区综合公共安全管理体系;五是大力提高减灾资源的利用效率与效益,建设区域综合风险防范关键技术示范基地。

The Chinese government divides public security events into four kinds： natural disasters, industry accidents, public health and social security. The Chinese public security management mechanism includes： the establishment of the Emergency Management Office of State Council at the national level and the corresponding organizations with regard to the four public security incidents-the National Committee for Disaster Reduction to manage natural disasters, the National Committee for Work Safety to manage industry accidents, the National Committee for Patriotic Health to manage public health and the National Committee for Integrated Management to manage public security. At the local levels, there are corresponding public security management organizations with accordance to the national level. The local emergency management centre and the committees for the four public security incidents management have been gradually established. The Chinese government has made some emergency plans for all kinds of public security managcment, and worked out some series of laws, rules and decisions with regard to some main public security factors. So it can be regarded that the Chinese public security management system depends mainly on the central management, with the mutual cooperation between the central government and the local governments. The related departments of the central government and the local governments take their corresponding pre-disaster, in-disaster and post-disaster responsibilities, and there＇s no single government department in charge of all the tasks of a single public security factor. The Chinese public security management strategy persists in the principle of ＂give priority to disaster prevention, and combine disaster prevention with disaster resistance and relief＂. Since the breakout of the SARS crisis in 2003, the Chinese governments of all levels have paid more attention to the emergency management system construction in the public security management work. This paper first analyzes the status of public security management mode system of China, then the integrated regional public security management mode is put forward, namely during the whole disaster reduction process, the governments, enterprises and communities should be united as an organic entity. At last, under the guidance of this public security management mode, according to the existing problems in the system and mechanism of the Chinese public security management, this paper puts forward five countermeasures to improve the Chinese public security management of all government levels.