中国应急预案体系的优化——基于公共政策的视角

The Optimization of Chinese Public Emergency System: A Perspective of Public Policy

从公共政策的视角看,应急预案体系的功能发挥不仅取决于单项预案的功能发挥,也取决于单项预案之间的合作,还取决于应急预案体系与应急体制、机制和法制之间的契合,甚至受制于社会认知和治理机构,以此可以建构中国应急预案体系的公共政策分析框架。在这一框架之下,以交通应急预案体系在2008年"南方雪灾"中的实际应用为案例的经验观察显示,中国应急预案体系在公共政策层面的制度缺失是一个共性问题,因此,中国应急预案体系的优化不仅需要从技术层面解决,还需要从公共政策层面解决,亟待建立健全应急预案管理制度,重整应急预案体系的隶属关系,建立和完善危险与应急资源数据库,加快相关应急体制、机制与法制的配套建设,提升应急预案综合演练实效,改善公众认知,优化治理结构。

Chinese Public Emergency Response Plans is not only a technique problem, but also a public policy issue. In this perspective, the function of Chinese Public Emergency plans depends on the cooperation of different plans, and the fit of emergency organi- zation, mechanism, legislation, even the support of social cognition and governance structure, besides individual plan. Based on all these factors, it can construct a theoretical framework. In this framework, an empirical observation to the implication of transportation emergency plans in the Southern Snowstorm in 2008 shows that public policy is the major and common problem. Therefore, for better operation of Chinese public emergency response plans, it should make efforts in public policy besides in technique, such as to establish the emergency plans management system, reconstruct the structure of the plans, set up risk and resource database, make the organization, mechanism, legislation fit better, and carry more comprehensive exercise, even concern social cognition and governance basically in the long run.