应急预案可操作性欠缺的内生逻辑——基于西部B县的参与观察

The Logic Behind the Lack of Operability of Emergency Plans——Based on the Participant Observation of B County

应急预案是应急管理实践与理论研究长期关注的议题,已有研究大多从外部视角解释应急预案的可操作性缺乏问题。为何应急预案会缺乏可操作性?作为一个极具实践性的应急管理环节,回应亦需从“内部”视角展开。本文首先根据亲身参与的西部B县应急预案编制过程,展示在前期准备、实地调研、修改评审三个阶段的田野经历。随后,本文归纳构建了分析应急预案操作性的“文本—实情—行动”三维框架。研究表明,文本规范性、实情复杂性和行动有效性三者间存在契合张力和转化张力;双重张力使得应急预案文本与实际应对行动之间逐渐背离,构成了推动应急预案可操作性欠缺问题形成的现实逻辑;应急预案编制是提升应急管理能力的重要抓手。本文通过置身事内的参与观察式案例研究,有助于理解和分析应急预案存在的功能局限,也为探讨未来应急预案编制优化方向提供了一手资料。

Emergency plans have long been a focal point of emergency management practice and research in China.Despite extensive work in this area,most studies approach the issue of emergency plansinoperability from an external and normative perspective,often overlooking the practical challenges of implementation.Thus,understanding why emergency plans frequently lack operability necessitates a rather internal perspective,focusing on the intricate processes and real-world applications in their creation and deployment.This article fills this gap by providing the authorsparticipant observation during the emergency plan revision process in B County.This article spans three critical stages:preliminary preparation,field investigation,and revision and review.During the initial stage,the authors engaged in the groundwork to understand existing frameworks and the specific needs of B County.This was followed by a thorough field investigation to gather firsthand data and insights from local stakeholders.The final stage involved revising and reviewing the drafted plans to align them more closely with realities.Building on these experiences,this article constructs a three-dimensional framework of“Text-Fact-Action”to analyze the mechanisms determining the operability of emergency plans.This framework highlights the dual tensions—fit tension and transformation tension—that exist between the textual content of emergency plans,the complex realities they address,and the effectiveness of proposed actions.Fit tension refers to the challenge of ensuring that the normative texts of emergency plans accurately reflect the diverse and unpredictable factual complexities of real-world scenarios.Transformation tension pertains to the difficulties in translating these texts into effective,actionable measures during emergencies.These dual tensions create significant challenges,resulting in a gradual divergence between emergency plan documents and actual responses.This divergence forms a theoretical logic explaining the persistent issue of inoperability in emergency plans.This article underscores that preparing emergency plans is crucial for improving emergency management capabilities and emphasizes the need for an integrated approach that considers textual accuracy,real-world complexities,and actionable effectiveness.Through this participant observation case study,the article provides a deeper understanding and critical analysis of the functional limitations inherent in emergency plans.The firsthand data offers valuable insights into specific areas where these plans fall short and suggest practical directions for their future optimization.The findings contribute to the broader discourse on emergency management by offering a grounded and practical perspective on the challenges and potential solutions for enhancing the operability of emergency plans.