“刚柔并济”:应急工作组的运作逻辑——基于新冠肺炎疫情防控的案例研究

Pressure and Empower:The Operational Mechanism of the Working Group in Disaster Management in China: A Case Study of China’s Fight against the COVID-19 Pandemic

科学界定中央与地方权责,理顺中央和地方关系,是世界各国在重大突发事件应对中共同面临的重大难题。作为中央集中统一领导的单一制大国和重大突发事件多发易发国家,中国更需要在地方主责与中央协调之间取得适度平衡,充分发挥中央和地方两个积极性,确保地方有强烈的意愿和足够的能力开展应急响应。作为一种刚柔并济的特殊组织形式,应急工作组为中央调节地方的应急响应行为提供了重要的政策工具。根据性质特点和措施强度的不同,可以把应急工作组的职责分为督导、调查、指导、协调四个方面。应急工作组以中央对地方进行施压和赋能为基本特征,通过纠正地方的行为偏差,增强地方的应对能力,从而确保地方愿意并能够完成应急响应任务。对中国防控新冠肺炎疫情的案例分析,展示了应急工作组施压与赋能并存、央地刚柔并济互动的组织特征和运作机理。

The allocation and coordination of the powers and responsibilities between the central and local governments has been a major challenge that all countries all over the world will face in dealing with major disasters.As a centralized unitary nation under the leadership of the Communist Party of China and a large country vulnerable to disasters,China needs to strike a delicate balance between local responsibility and central coordination,give full play to the enthusiasm of the central and local governments,and ensure that local governments have strong willingness and enough ability to respond to disasters.As a unique organizational form of combining hardness and flexibility,the working group in disaster management provides an important policy tool for the central government to regulate the responses of local governments.According to the nature and intensity of measures,the responsibilities of the working group in disaster management can be divided into four aspects:supervision,investigation,guidance and coordination.Characterized by both a pressure and an empowerment of the central government to the local authorities,the working group aims to correct local behavior deviations,enhance local response capacity,supplement emergency forces and resources,ensuring that the local authorities responded to disasters quickly and efficiently under the guidance and assistance of the central government.By describing the co-existence of pressure and empowerment,and the interaction between the central and local governments,the case analysis of China’s fight against the Covid-19 pandemic has shown the organizational characteristics and operational mechanism of the working group in disaster management.