中国应急管理效能的生成机制

The Generative Mechanisms for the Effectiveness of Emergency Management in China

应急管理效能是一个新议题,可以在面向中国实践开展理论创新的范式转换中发挥牵引作用。应急管理效能可视为应急管理功能和绩效的复合,是应急管理目标、结构、过程共同作用形成的积极结果。在中国的实践中,应急管理效能主要生成于三种机制:一是目标上的“安全优先”,在政策注意力配置和政策执行力监督上均高度重视应急管理工作;二是结构上的“一体多元”,不断发展既能一致行动又可资源互补的多主体协同机制;三是过程上的“计划适应”,在推动全过程均衡中既强调以计划性促进适应性,也重视以适应性改进计划性。依此建构中国应急管理效能的因果机制模型,相应的案例研究证明,这一模型在不同时空条件下均具有适用性。与既有四种主流理论的对话显示:这一模型不仅具有集成性,更重置了应急管理的逻辑起点,可为中国应急管理效能的生成提供更具解释力的理论表达。进一步提升中国的应急管理效能,还需拓展和丰富这一模型,在三个关键议题上展开探索:“安全优先”可持续方法、“一体多元”最佳均衡点、“计划适应”一致性效应。

The new theme of the effectiveness of emergency management can drive the paradigm shift of theoretical innovation in Chinese practice.It can be seen as a composite of emergency management functioning and performance;apositive result of the combined effect of emergency management objectives,structures and processes.In China’s case,emergency management effectiveness is generated by three main strategies.The first is the objective of“safety first,”which places a high priority on emergency management in terms of the allocation of policy attention and monitoring of policy implementation;the second is the structural“unity and diversity,”or the continuous development of multi-actor synergy mechanisms that can act in concert and complement resources;and the third is“planned adaptation,”which emphasizes both planning for adaptation and adaptation to improve planning in driving a balanced total process. The cause-and-effect model of emergency management effectiveness in China has been developed accordingly,and the corresponding case studies have demonstrated its applicability under different spatial and temporal conditions.Dialogue with the four existing mainstream theories not only demonstrates the integration of this model but also resets the logical starting point of emergency management and provides a more powerful explanatory theoretical representation of the generation of emergency management effectiveness in China.To further improve the effectiveness of emergency management in China,the model needs to be expanded and enriched by exploring three key issues:the“safety first”sustainable approach,the “unity and diversity” optimal equilibrium,and the consistency effect of“planned adaptation.”