我国城市社区应急管理政策的注意力变迁及逻辑演绎——基于2003—2022年中央政策文本的实证分析

Focus Evolution and Logical Deduction of Emergency Management Policies in Urban Communities in China:The Textual Empirical Analysis of Central Policy documents from 2003 to 2022

城市社区是开展应急救援和处置工作的“最后一公里”,本文以2003—2022年中央政府出台的131份有关城市社区应急管理政策作为分析样本,运用内容分析法探究城市社区应急管理政策在不同时期的注意力变迁。研究发现,城市社区应急管理政策的注意力可划分为:“非典”疫情影响下的政策初步建设期(2003—2007年)、自然灾害影响下的政策质量提升期(2008—2012年)、总体国家安全观驱动下的政策转型期(2013—2019年)、新冠肺炎疫情影响下的政策发展期(2020年至今)四个阶段。从变迁逻辑来看,社会经济发展促使政策内容与时俱进,推动基层防灾减灾工作不断深化;社会治理重心渐进下移促使政策机制逐步完善,推动建立多元主体协同治理的基层应急管理机制;重大灾害焦点事件频发促使政策体系不断发展,政策适用领域不断宽泛,政策工具综合利用率不断提高。

Urban communities are the"last one mile"for delivering effective emergency rescue and response.In this paper,the 131 urban community emergency management policy documents released by the central government from 2003 to 2022 are used as the sample for analysis,and the content analysis method was applied to explore the changes in the focuses of urban community emergency management in different periods.We can find that the focus of urban community emergency management has roughly gone through the initial policy construction period under the influence of SARS(2003–2007),the policy quality improvement period under the influence of natural disasters(2008–2012),the policy transition period driven by changes in the overall national security concept(2013–2019),and the policy development period under the influence of COVID-19(2020–present).From the perspective of its evolutionary logic,socio-economic development has prompted the policy content to keep pace with the times and promoted the continuous deepening of the disaster prevention and mitigation at the grassroots level;the gradual downward shift of the focus of social governance has led to the gradual improvement of the policy mechanism and promoted the establishment of a grassroots emergency management mechanism with collaborative governance that engages multiple subjects;the frequent occurrence of major disasters has resulted in the continuous development of the policy system,the broadening of the scope of policy application,and the increase in the comprehensive utilization rate of policy tools.