应急管理的全过程均衡:一个新议题

The Full Process Balance of Emergency Management

如何实现全过程均衡是当前中国应急管理实践亟待解决的新问题。以《突发事件应对法》为参照的实践回顾显示:中国应急管理的全过程机制存在的主要问题是不均衡,具体有五大表现:一是忽视风险预防与减缓;二是削弱监测的动态性、持续性与跨阶段特征;三是割裂预警与其他响应机制的衔接关系;四是低估社交媒体条件下的舆情回应;五是缺乏有效的学习机制。既有的理论研究虽然厘清了应急管理全过程机制的构成与运行,但均未特别强调全过程的均衡。面向中国实践,兼顾理论知识的积累与沉淀,中国应急管理的全过程均衡可同时强调准备、预防、减缓、响应、恢复、学习6项分阶段机制和监测1项跨阶段机制。这一"6+1"理论框架可为公共卫生应急管理体系"补短板"、应急管理"促整合"和应急管理体系和能力现代化"强基础"提供一种共同的知识基础。

How governments balance the full process and different stages of emergency management is a new challenge in practice.Using the Chinese Emergency Management Law as a referenced framework,this article identifies five major defects.First,ignorance of risk prevention.Second,lack of dynamic,non-stop and cross-stage monitoring.Third,disconnection between early warning and other forms of response strategies.Fourth,insufficient response to public perception in the social media.Fifth,lack of lesson learning mechanism.Existing studies have explored the composition and operation of full process of emergency management but have not yet shed lights on the balance of full process.This article proposes a new framework including preparedness,prevention,mitigation,response,recovery and lessons learning by emphasizing the balance of these six stages and the necessity to design monitoring as a cross-stage mechanism in China.Emergency management should be reframed as complex adaptive systems seeking for collective performance,relying on coordination between diverse participants and balance of full process.The lack of any key stages will reduce collective performance.This new framework can provide a reference for achieving a common knowledge base for the improvement of public health emergency management system,the integration of the four parallel emergency management systems and the modernization of the whole emergency management system and capacity in China.