中国应急管理体制的演化轨迹:一个分析框架  

The Evolution of China’s Emergency Management System:An Analytic Framework

作　　者：钟开斌 ZHONG Kai-bin(National Institute of Emergency Management,Central Party School of the Central Committee of CPC/Chinese Academy of Governance,Beijing 100089;Center for Crisis Management Research,Tsinghua University,Beijing 100084)

机构地区：[1]中共中央党校(国家行政学院)应急管理教研部,北京100089 [2]清华大学中国应急管理研究基地,北京100084

出　　处：《新疆师范大学学报（哲学社会科学版）》2020年第6期73-89,F0002,共18页Journal of Xinjiang Normal University(Philosophy and Social Sciences)

基　　金：国家社科基金项目“基于‘情景—应对’的城市综合风险治理体系研究”(17BZZ038);国家自然科学基金项目“突发事件情境下组织间协同研判行为分析与模式优化研究”(71774098)的阶段性成果。

摘　　要：应急管理是国家治理的重要组成部分,应急管理体制是应急管理体系的核心。文本基于复杂系统理论,从政府与社会之间、横向不同权力系统之间、纵向不同层级政府之间、横向不同政府部门之间,构建一个四维应急管理体制分析框架,并采取“结构—时间”的叙事方法,刻画新中国成立以来中国应急管理体制的发展轨迹。研究发现,以20世纪70年代末启动改革开放、2003年抗击非典疫情、2012年召开党的十八大为标志,中国应急管理体制的发展演变可分为四个阶段:改革开放前为第一阶段,以一元化领导为基本特点;改革开放后至2003年抗击非典为第二阶段,以控制性放权为基本特点;2003年非典疫情后至2012年党的十八大为第三阶段,以赋能型协调为基本特点;2012年党的十八大以来为第四阶段,以政党型收权为基本特点。总体而言,新中国成立以来,中国应急管理体制的发展变化以控制性放权和赋能型协调为主线,但整个过程具有非线性动态演化的特征。中国应急管理体制的发展过程,与中国国家治理变迁的轨迹总体保持一致,表明中国共产党和中国政府具有很强的学习和适应能力。The organizational structure is the core of emergency management system.Based on the theory of complex system,this paper constructs a four-dimensional analytical framework of emergency management organizational structure from four aspects:between government and society,between different power systems,between different levels of government,and between different government departments.By adopting the narrative method of“structure-time”,this article finds that,marked by the start of reform and opening up in the late 1970s,the fighting against the SARS epidemic in 2003 and the 18th national congress of the Party in 2012,China’s emergency management organizational structure shows dynamic development of four stages,that is,unified leadership(before the reform and opening up era),controlled decentralization(from the reform and opening up to 2003),enabling coordination(from 2003 to 2018),and Party-centered centralization(after 2012).Controlled decentralization and enabling coordination have been the main trend of the development of China’s emergency management organizational structure,but the whole evolution process has nonlinear dynamic characteristics.The development of China’s emergency management organizational structure is generally consistent with the track of China’s state governance evolution,which shows that the CPC and the Chinese government have strong learning ability and adaptability.

关 键 词：应急管理体制 一元化领导 控制性放权 赋能型协调 政党型收权 

分 类 号：D63[政治法律—政治学]