中国应急预案体系:结构与功能

China's Emergency Plans:Structure and Function

运用结构-功能分析方法,以国家公路应急预案体系为案例,从历史性视角出发,对中国应急预案体系形成过程中的结构约束与功能选择进行了因果分析,揭示了中国应急预案失效的内在原因。本文发现,由于中国的应急预案体系在"立法滞后、预案优先"和"横向到边、纵向到底"形成过程中,受到了"一案三制"综合应急管理体系和应急预案体系内部结构的制约,使得应急预案体系虽然具有加强预防与准备的正功能,也不可避免地具有保持应急行动灵活性、成为应急管理的免责工具的潜功能、反功能。本文建议,要以依法行政和属地管理来破解"立法滞后、预案优先"和"横向到边、纵向到底"过程中的结构约束。与之前从表面问题或技术设计视角出发的研究不同的是,本文首次采用结构—功能分析方法,聚焦于整个应急预案体系,而非单个应急预案,讨论了应急预案在中国情境中失效的结构因素,并且通过中层理论建构了应急预案体系结构与功能之间的一般性命题。

The objective of this paper is to illustrate and examine casual linkage between structure constraints and functional selection in the processing of China's emergency plans.We use the structure-function analysis and case study on the National High Way Emergency Response Plans.The analysis reveals that,dominated by the 'emergency plans prior to legislation' and 'covered all organizations from top to bottom',China's emergen cy response plans were constrained by internal structure,and the relations between emergency plans and comprehensive emergency management system.These two factors which are resulted in China's emergency plans inevitably had latent function like keeping the emergency behavior flexible,and dysfunction like protecting the responder against from being accountable for their failures in emergency management,as well as the anticipat ed function like improving the preparedness.The results suggest that it is necessary to break the structure con straints through law-based and territorial priority administration,driven by the pressure of dysfunction,and pushed the structure change and functional adaptation.The key limitation of the study is that it solely cased on the National High Way Emergency Response Plan,which is an extreme disaster and makes it difficult to exam ine the relation between structures constrain and functional selection overall.The generalized propositions and policy recommendations can assist the practitioners of emergency management to better understand the main reason why the emergency plans failed,and provide them with operational measures to perfect the emergency plans.Differentiated from previous researches which focused on the apparent problems or technical design of e mergency response plan,this study tries to explain the inherent reason why emergency response plan failed in the perspective of public policy.It first applied the structure-function analysis method and found out the structural constraint in the context of China.And it extends the research of China's emergency plans to generalized proposition in terms of middle range theory.