国家应急指挥体制的“变”与“不变”--基于“非典”、甲流感、新冠肺炎疫情的案例比较研究

Development of the National Emergency Command System: Comparative Case Studies of the SARS, H1N1 and COVID-19

应急指挥体制是指国家应对突发事件的组织领导模式。根据党政之间权责配置和部门之间权责配置这两个维度,可以把国家应急指挥体制分为"党委间接领导、部门联防联控"(模式I)、"党委间接领导、政府统一指挥"(模式II)、"党委直接领导、部门联防联控"(模式III)、"党委直接领导、政府统一指挥"(模式IV)四种模式。本文选取2003年抗击"非典"、2009年防控甲流感、2020年应对新冠肺炎疫情三个案例进行比较研究,来揭示我国国家应急指挥体制的演变过程。研究发现,我国国家应急指挥体制在动态发展过程中呈现"变"与"不变"相互交织的特点:党在突发事件应对中的领导方式从"间接领导"转为"直接领导",跨部门联防联控机制取代政府应急指挥部成为常用模式;不过,党始终处在领导核心地位,跨部门协调联动始终在不断强化。

The national emergency command system reflects the organizational structure in emergency management.According to the power and responsibility allocations between the Party and the government and between different agencies, the national emergency command system can be divided into four modes: "indirect leadership of the Party, joint prevention and control of the agencies "(mode I), "indirect leadership of the Party, unified command of the government"(mode II),"direct leadership of the Party, joint prevention and control of the agencies"(mode III),"direct leadership of the Party, unified command of the government"(mode IV).The comparative studies of the 2003 SARS epidemic, 2009 H1 N1 pandemic and the 2003 SARS, 2009 H1 N1 and the COVID-19 outbreak found that, the national emergency command system in China presents the characteristics of "changing"and "unchanging" in the dynamic development process: the role of the Party has changed from "indirect leadership" to "direct leadership", and the joint prevention and control mechanism has replaced the national headquarters of emergency management as the common mode;however, the Party always occupies the core position of leadership, and departmental coordination has been constantly strengthened.