危机学习视角下预案修订及其政策启示——以汶川地震后成都和阿坝为例  

Revision of Emergency Plan and Its Policy Enlightenment from the Perspective of Crisis Learning——Take Chengdu and Aba Earthquake Emergency Plans as Examples

作　　者：张美莲 Zhang Meilian

机构地区：[1]暨南大学应急管理学院,广州510632

出　　处：《政府管理评论》2022年第1期45-69,共25页Public Management Review

基　　金：国家自科基金青年项目“凤凰何以涅槃?公共部门危机学习行动过程、影响机理及优化策略研究”(项目编号:72004079);国家自然科学基金重大项目“重大国家安全事件管理机制研究”(项目编号:71790611);广东省基础与应用基础研究基金项目“后疫情时代广东省地方政府跨组织危机学习过程、影响机理及优化策略研究”(项目编号:2020A1515110381)

摘　　要：随着应急管理部机构改革的推进,突发事件应急预案修订成为新时期应急管理工作的重要内容。已有预案修订研究多将其作为预案管理环节进行优化研究,侧重技术视角;应急预案本质上是政府规范性文件,灾后政府组织学习往往引起预案内容调整,但现有研究较少着眼于公共政策视角,鲜有危机学习视角下的应急预案修订分析,针对地方政府及有关部门灾后究竟从危机中学习了什么、如何更好地学等问题尚未有明确回答。为此,本文首先在预案修订研究阶段演变和主题回顾基础上构建危机学习视角下预案修订研究的分析框架;其次,以汶川地震前后成都和阿坝四份地震应急预案为分析对象,运用文本比较从“面”上指出灾后两地政府应急预案修订的着力点及其特征,采用社会网络分析(SNA)从“点”上呈现两地地震应急预案组织任务网络结构图及网络指标;最后,基于分析框架通过点面结合的预案修订分析与灾时经验教训对比,揭示两地预案修订的共性和差异,进而揭示地方政府灾后危机学习的知识来源、学习类型、学习差异及其潜在原因,为进一步促进地方政府部门危机学习提供智力支持。With the advancement of the institutional reform of the Emergency Managemnent Department,the revision of emergeney response plans has become an important part of emergency management in the new era.Existing plan revision studies mostly use it as a plan management link for optimization research,focusing on technical perspectives;emergency plans are essentially government normative documents,and government organization learning after disasters often leads to adjustments to the plan content,but existing research seldorm focuses on public policies From the perspective,there is lttle analysis of the revision of emergency plans from the perspective of crisis learning.Questions such as what local govermments and relevant departments have learned from the crisis after the disaster and how to learn better have not yet been clearly answered.To this end,the article firstly builds an analysis framework for the study of the emergency plan revision from the perspective of crisis learning based on the evolution of the research phase of the plan revision and the theme review.The“face”points out the focus and characteristics of the revision of the emergency plans of the two governments after the disaster,and the social network analysis(SNA)is used to present the network structure diagram and network indicators of the organization and task of the earthquake emergency plan of the two places from the“point”;again,based on the analysis The frame-work reveals the similarities and differences of the plan revisions of the two places through a point-to-face analysis of the plan revision and the comparison of the disaster experience and lessons,and then reveals the knowledge sources,learming types,learming differences and potential reasons of the local govermment’s post-disaster crisis learning,in order to further promote Local govermment departments provide intelletual support for crisis leaming.

关 键 词：危机学习 应急预案 预案修订 

分 类 号：D63[政治法律—政治学]