省级与国家级应急规划中“职能异构”现象研究  

Research on the“Heterogeneous Function”in Provincial and National Emergency Plans

作　　者：李瑞昌[1] 徐振炀 LI Ruichang;XU Zhenyang(School of International Relations and Public Affairs,Fudan University,Shanghai,200433)

机构地区：[1]复旦大学国际关系与公共事务学院,上海200433

出　　处：《行政论坛》2023年第6期62-71,F0002,共11页Administrative Tribune

基　　金：上海市哲学社会科学基金一般项目“极端情景下上海超大城市安全运行保障机制研究”(2023BZZ003)。

摘　　要：规划是指导未来建设的纲领性文件。“十四五”时期省级应急规划与国家级应急规划是2018年党和国家机构改革以来首次制定的应急专项规划,二者无论从规划名称还是字数体量上均有同有异,并未完全符合学界所言“职责同构”现象,值得从实践和理论上深入研究。在批判和借鉴已有研究的基础上,文章将26个省级应急管理厅(局)与国家应急管理部的职责规范文件、下属机构以及“十四五”应急规划文本作为研究对象,将应急管理部门的职能分解为职责、机构、能力等三个部分,其中,机构是职责和能力的载体,能力是职责实现的前提要求,通过应急规划中的事务建设得到增强,从而建立“规划事务与职能间关系”的分析框架。文章从国家级与26个省级应急管理部门职责文件中提取出24个应急工作领域并进行编码,并与规划事务(能力建设)、部门职责和下属机构进行匹配。研究发现,在14个应急工作领域中,省级与国家级应急管理部门的职责、下属机构和规划事务可以匹配,出现“职能同构”现象;在消防安全、矿山安全监管、国际交流与合作等三个应急工作领域均无法匹配,出现“职能异构”现象。之所以出现这种现象,是因为国家级与省级应急管理部门角色定位不同和应对灾种不同,使二者在职责和下属机构方面有异,围绕部门职责展开的能力建设随之产生差异,这是省级与国家级应急规划事务存在差异的主要原因。Plans are programmatic documents to guide construction in the future.The provincial and national emergency plans during the 14th Five-Year Plan period are the first batch of special emergency plans formulated since the reform of the Party and the State institutions in 2018.There are similarities and differences in the name of the plans and the number of words,which are not fully in line with the phenomenon of“isomorphic function”as said by the academic circle,and it is worthy of in-depth study in practice and theory.Based on the criticism and reference of existing studies,this study takes the responsibility specification documents,subordinate institutions and the text of the 14th Five-Year Plan of 26 provincial emergency management departments and the National Emergency Management Department as the research object,and divides the functions of emergency management departments into three parts including responsibility,institution and capacity.Institution is the carrier of responsibility and capacity,capacity is a prerequisite for the realization of responsibilities,and is enhanced by the construction of affairs in emergency plans,so as to establish an analytical framework of“the relationship between plan affairs and functions”.The paper extracts 24 emergency work areas from the national and 26 provincial emergency management departments'responsibility documents and codes them,and matches them with plan affairs(capacity building),departmental responsibilities and subordinate institutions.It is found that the responsibilities,subordinate institutions and plan affairs of provincial and national emergency management departments can be matched in 14 emergency work areas,and the phenomenon of“isomorphic function”appears.In the three emergency work areas of fire safety,mine safety supervision,international exchange and cooperation,there is no match,and the phenomenon of“heterogeneous function”appears.The reason for this phenomenon is that the different role positioning and different types of disasters to d

关 键 词：应急规划 职责同构 职能异构 应急事务 

分 类 号：D63-31[政治法律—政治学] D630.8[政治法律—中外政治制度]