中国自然灾害应急管理问责特点、逻辑及优化——基于1998-2018年的实证研究  

Characteristics,Logic and Optimization of Accountability for Natural Disaster Emergency Management in China——Based on the Empirical Research from 1998 to 2018

作　　者：成海燕[1] CHENG Haiyan(School of Public Administration,Beihang University,Beijing 100191,China)

机构地区：[1]北京航空航天大学公共管理学院,北京100191

出　　处：《北京理工大学学报（社会科学版）》2021年第5期122-132,共11页Journal of Beijing Institute of Technology：Social Sciences Edition

基　　金：国家自然科学基金项目“面向国家安全问题的若干社会经济问题智库研究”(71642001);河北省科技厅软科学重点项目“后疫情时期提升河北省企业技术创新能力的科技政策研究”(21557610D)。

摘　　要：自然灾害应急管理过程中的问责对于提高应急管理效率、维持和提升政府公信力至关重要。从声誉视角建立问责分析模型,对1998-2018年中国自然灾害问责事件进行实证分析发现:公众关注度/争议性、问责主体的问责职能强度、事件案发所处应急阶段、强调的核心能力声誉和问责客体职级/层级对问责结果起到不同程度的显著的正向作用。特点有:个人问责为主而集体问责为辅、问责客体集中于基层和中层且越往上层越递减;重应急救援与重建、轻预警、忽视预防问责;重道德和程序能力问责,轻绩效、忽视技术能力问责等。内在逻辑为:高度关注民声与舆情,优先考虑道德能力(捍卫人民生命安全)和程序能力(遵从社会制度与规则)声誉进行问责,通过不同问责职能强度的问责主体,采取“上下分治”的问责策略,以最大激发中层动员力和基层执行力以合力抗灾;这也正是中国自然灾害应急管理体制优势与短板的主要根源所在。优化建议:以公共利益为准绳判断问责正当性、重视预防预警和技术能力问责、健全和落实问责及监督与纠错机制等。Accountability in the process of emergency management of natural disaster is essential to improve the efficiency and to maintain and enhance the integrity and legitimacy of governments.Building accountability analyzing model in reputation respective,based on the empirical analysis of the accountability events of natural disasters in China in the past 21 years,it is found that:the attention and controversy of the audience,intensity of accountability function for the account-holders,emergency stage of the incidents,the core competence reputation concerned and the rank of the account-givers had different level of positive impacts on the accountability results.Its characteristics include:individual accountability is primary and collective accountability is secondary;account-givers were the grass-roots and middle level,dwindling upwards,with lack of the top;the stage of tackling relief and reconstruction were more focused than on prevention and early warning;the competence of moral and procedural were emphasized while performance was underrated and technical ability was ignored.The internal logic is:the response to the public voice is highly valued,and reputation of moral competence of protecting the people’s life safety and procedural competence of complying with social systems and rules is given priority.Meanwhile,through the account-holders with different intensity of accountability function,the divide-and-conquer strategy is used,so that it fully stimulate mobilization of middle-ranking governments and execution of grass-roots governments to mitigate disaster,which is the main logical root of the advantages and disadvantages of China’s natural disaster emergency management.It is suggested that we should take the public interest as the criterion to judge accountability rightness,attach more importance to accountability on prevention and early warning,emphasis on accountability for technical capacity,improve and implement mechanism for accountability,supervision and correction,etc.

关 键 词：自然灾害应急管理 核心能力声誉 公众关注度 事发所处应急管理阶段 问责客体职级或层级 问责主体的问责职能强度 

分 类 号：D632.5[政治法律—政治学]