国家应对重大突发事件的治理体系:一个分析框架

An Analytical Framework of Responding to Major Public Emergencies Based on China's National Governance System

应对重大突发事件被“证认”是立体透视一个国家制度和治理体系的可靠视角。研究者们从不同角度对此做了诸多富有成效的工作,但鲜有研究从中层视角,将国家应对重大突发事件放置于分析性意义上的“治理体系”框架中考察。整合相关理论,在“治理体系”层面,结构、机制、功能这三个概念之间存在着内在的逻辑关系:结构是体系的关系表征,设定治理体系运行的组织基础和行动框架,机制揭示治理体系运行过程中结构转化功能的方式,功能体现结构寓于机制产生的结果并反哺结构和机制。由此建构的“结构-机制-功能”分析框架可以对“(中国)国家面对重大突发事件,如何通过治理体系进行应对”这一研究问题进行分析,以促进我们理解中国应对重大突发事件的应急管理体系和常规化体系应对非常时期问题的能力或者制度优势,也有助于丰富国家治理体系和治理能力现代化研究的实践样本。

How well a system responds to major public emergencies is once again“certified”as a reliable criterion for examining a national system,especially its governance system.Researchers have conducted numerous effective studies from different perspectives.However,few researchers have placed the national response to major public emergencies within the analytical framework of the“governance system”from a middle-range perspective.This paper aims to construct a theoretical analytical framework for the national governance system to respond to major public emergencies.Positioned from a national governance perspective,it seeks to provide insights into “how the nation( China) responds to major public emergencies through its governance system”.Through an integration of relevant theories,it takes the governance system as an overall concept in an analytical sense,and proposes an analytical framework— “Structure-Mechanism-Function”—for explaining the national governance system in responding to major public emergencies.This framework explores how the interplay of factors at the levels of structure,mechanism and function collectively influences the operation of the governance system.The “structure”symbolizes the relational characterization of the system,establishing the organizational foundation and action framework for governance system operations.The“mechanism”unveils the processes through which “structure ” transforms into “functions ” during governance system operations,while the“function”embodies the outcomes generated by the inherent “structure”in the “mechanism”,feeding back into both“structure”and“mechanism”.Notably,functional outcomes encompass explicit( positive) functions and potential negative functions.The former is showcased in the procedural mechanisms,reflecting the core functions of the governance system,while the latter remains latent in the structure and mechanism,contributing to functional attenuation issues.Specifically:( 1) At the“structure”level,attention is directed towards the foundation and framework of the national response to major public emergencies,encompassing structures of state-society relations,central-local relations,and government-market relations.( 2) The focus at the“mechanism”level is on the ways and processes of the national response to a major epidemic and the( positive) functional outcomes it presents,involving mechanisms of the decision-making process,mechanisms of the implementation process,and mechanisms of the integration process that ensure consistent coherence between the two.( 3) The “function”level is anchored in the negative results and effect toward the national response to major public emergencies.First of all,it is necessary to analyze the negative function results of governance system with weakened functions in response to major public emergencies from the perspective of structure and mechanism.Subsequently,it further explores the “results ” of functionally observable objective results under complex uncertainty risk society:functional requirements.Finally,the governance system is optimized by targeting negative functional results and functional demandoriented feeder structures and mechanisms.This analytical framework systematically addresses three progressively explored inquiries:relational structures,process mechanisms,and functional pathways.Its application enhances our comprehension of China's emergency management system concerning major public emergencies and sheds light on the capabilities or institutional advantages of the routine systems when confronted with extraordinary circumstances.Furthermore,it contributes to enriching practical examples in the ongoing modernization research of national governance systems and governance capabilities.