透视突发事件应急管理碎片化及其综合治理

Perspectives on the fragmentation of emergency management and holistic governance

【目的】随着风险社会和“人类世”的到来,突发事件的发生概率大大增加,应急管理服务水平正变得愈发重要。应急管理服务水平关乎着人民群众的切身利益,然而普遍存在的应急管理碎片化问题严重制约着应急管理效力的发挥,因此,亟待对应急管理碎片化问题开展系统化研究。【方法】采用文献研究法,综述了已有碎片化研究成果,梳理分析了应急管理碎片化的表现及原因,提出了突发事件应急管理碎片化理论框架及治理路径。【结果】研究发现:(1)应急碎片化是多方面原因构成的,包括应急组织设计碎片化、应急制度碎片化、应急主客体碎片化、应急信息碎片化、应急资源碎片化与应急价值文化碎片化。(2)应急权责部门化与分离化、应急制度断裂、缺乏衔接是应急碎片化根源,资源和信息传递滞后及失败是直接原因。【结论】解决应急碎片化的路径包括机构重组、高位协调、构建多元应急治理模式、应急沟通协调制度精细化及激励制度协作化、加强应急培训、搭建应急信息指挥平台等。研究成果对促进应急碎片化研究具有重要意义,可为应急管理机构和决策职能改革提供参考。

[Objective] With the advent of the risk society and the Anthropocene, the probability of emergencies has greatly increased and the world is becoming increasingly insecure. The level of emergency management services is of vital interest to the people, yet the prevalent problem of emergency management fragmentation seriously undermines the effectiveness of emergency management, and there is an urgent need to study emergency management fragmentation to guide emergency fragmentation governance. [Methods] A literature research method is adopted to review existing fragmentation studies. The manifestations and causes of emergency management fragmentation are sorted out and analyzed, and a theoretical framework for emergency management fragmentation is proposed. [Results] It is found that emergency fragmentation is caused by multiple factors, including fragmentation of emergency organization design, fragmentation of emergency systems, fragmentation of emergency subjects and objects, fragmentation of emergency information, fragmentation of emergency resources, and fragmentation of emergency value culture. Among them, the sectionalization and separation of emergency powers and responsibilities and the fractured and missing emergency system are the root causes of emergency fragmentation, while the scattering and difficult transmission of resources and information are the direct causes. [Conclusion] The ways to solve the fragmentation of emergency response include institutional restructuring, top-down style hierarchical coordination, building a polycentric emergency governance model, improving the emergency communication and coordination institution, and building an emergency information command platform. The research findings is of great significance for promoting the theory of emergency fragmentation research, and can provide a reference for the reform of emergency management institutions and decision-making functions.