全国综合减灾示范社区政策有效吗?——基于湖南省3市社区减灾工作的分析

Is Community Disaster Reduction Policy Really Effective in China?—An Analysis of Residential Communities from 3 Cities in Hunan Province

既有研究大多聚焦于社区减灾的模式比较或影响因素分析,忽略社区减灾行动背后的政策驱动、政策设计与实施有效性。2007年,中国推出“创建全国综合减灾示范社区”政策,为检验政策有效性,研究将其划分为“事实、目标、策略、协调与实施”等五个维度,在湖南省展开了社区问卷调查。量化分析结果表明,执行示范社区政策显著改进了社区的减灾工作。然而,部分参选社区或者基于资源和荣誉,或者基于行政命令,被动地执行政策、消极地完成指标,而忽略了社区实际情况与政策操作化的有机结合。此外,在已建成的示范社区中,社区物质建设的改善普遍优于居民意识、能力和合作关系的建设。该政策有助于提高社区的减灾能力,但从长远来看,社区减灾体系并不因此得到充分发展。

Most of the existing studies focus on the comparison of community disaster reduction models or the analysis of influencing factors,ignoring the policy-driven research behind community disaster reduction actions.China launched the policy of“Creating National Comprehensive Disaster Reduction Demonstration Communities”in 2007,and in order to test the effectiveness of the policy,the study categorized the policy into five dimensions:facts,goals,strategies,coordination,and implementation,and conducted a community questionnaire survey in Hunan Province.Quantitative analyses showed that the implementation of the model community policy significantly improved the community’s disaster reduction efforts.However,some of the participating communities passively implement policies and passively complete targets based on resources and honors,or based on administrative orders,while ignoring the organic combination of the actual situation of the community and the operationalization of policies.In addition,in the established model communities,improvements in the physical construction of the community were generally superior to the construction of residents’awareness,capacity,and cooperative relationships.The policy helps to improve the community’s disaster reduction capacity,but in the long run,the community disaster reduction system is not fully developed.