超大城市突发环境事件管理碎片化及整体性治理研究

Fragmentation and holistic governance of environment emergency incident in megacities

自然和人为因素的双重扰动使超大城市面临着难以规避的环境风险,碎片化的突发环境事件治理模式已经不能有效应对超大城市环境风险来源多样化、风险因素复杂化和破坏程度规模化带来的挑战。整体性治理在扬弃韦伯式官僚制和新公共管理理论的过程中,主张重塑政府在公共管理中的价值和责任,通过对治理层级、功能、公共部门和私人部门的关系以及信息系统的碎片化进行整合,以跨界、协调与合作的方式为公民提供无缝隙且非分离的整体性服务高度契合了超大城市危机治理对政府管理公共性、责任性,协同和整合的需要,是对碎片化危机治理体制的一个有力回应。文章梳理了突发事件治理和整体性治理的国内外文献,试图通过整体性治理理论和"天津港8·12瑞海公司危险品仓库特别重大火灾爆炸事故",解剖中国超大城市突发环境事件治理的各种碎片化问题。研究发现,现行超大城市突发环境事件治理的碎片化主要表现为:在治理理念上,预防意识不强,公共利益和公共责任观念淡薄;在治理主体上,市场和社会主体参与不足,政府一元化治理色彩突出;在治理信息上,信息危机放大危机事件的社会风险;在治理机制上,政府部门职责不清,协调沟通不畅。从整体性治理理论和超大城市突发环境事件治理的碎片化的现实出发,文章提出超大城市突发环境事件治理必须进行整体性改革和创新,从培育危机文化,强化危机预防和政府公共责任意识;完善社会资本,加强社会参与;建立统一的治理信息中心及推进组织结构调整与改革等方面构建突发环境事件整体性治理模式。

Due to double disturbance caused by natural and human factors,megacities will have increasing environmental risks. It is hard to deal with challenges such as diversification of sources of environmental risks,complexity of risk factors,and scale of damage to the megacities,through the way of fragmentation governance of environmental emergencies. In the process of abandoning Weber 's bureaucracy and taking the new public management theory,it holds the view of reestablishing government's value and responsibility in public governance. By clarifying governance level,function,as well as the relations between public and private sectors,and integrating the fragmentation of information system,we can provide non-separated integrated service to citizens in the ways of cross-border,coordination and cooperation. The paper reviews the incident management and holistic governance of the domestic and foreign literature,and discusses various fragmentation problems in the current environmental governance of megacities through holistic governance theory and based on the example of Tianjin Port Massive Blast. The research shows that the fragmentation problems are mainly manifested as:in terms of the idea of governance,we have weak prevention awareness and little consideration on public interests and public responsibility. In terms of the subject of governance,market and social participation are insufficient,while governments play a strong role of centralized leading in governance. In terms of the information of governance,the information crisis enlarges social risks of these incidents. In terms of governance mechanism,government departments have not clarified their responsibilities and have not established good communication and negotiation. Therefore,based on status quo of fragmentation of holistic governance,this paper puts forward following suggestions: conducting the comprehensive reform and innovation; cultivating the awareness of preventing crisis and the public responsibility of governments; improving the development of social capital and the social participation; establishing unified governance information center; promoting the adjustment of organizational structure.