谌舟颖,孔锋

• 1:中国人民大学公共管理学院
• 2:中国农业大学人文与发展学院
• 3:清华大学应急管理研究基地

摘要(Abstract)：

【目的】随着风险社会和“人类世”的到来，突发事件的发生概率大大增加，应急管理服务水平正变得愈发重要。应急管理服务水平关乎着人民群众的切身利益，然而普遍存在的应急管理碎片化问题严重制约着应急管理效力的发挥，因此，亟待对应急管理碎片化问题开展系统化研究。【方法】采用文献研究法，综述了已有碎片化研究成果，梳理分析了应急管理碎片化的表现及原因，提出了突发事件应急管理碎片化理论框架及治理路径。【结果】研究发现：(1)应急碎片化是多方面原因构成的，包括应急组织设计碎片化、应急制度碎片化、应急主客体碎片化、应急信息碎片化、应急资源碎片化与应急价值文化碎片化。(2)应急权责部门化与分离化、应急制度断裂、缺乏衔接是应急碎片化根源，资源和信息传递滞后及失败是直接原因。【结论】解决应急碎片化的路径包括机构重组、高位协调、构建多元应急治理模式、应急沟通协调制度精细化及激励制度协作化、加强应急培训、搭建应急信息指挥平台等。研究成果对促进应急碎片化研究具有重要意义，可为应急管理机构和决策职能改革提供参考。

关键词(KeyWords)： 自然灾害;碎片化;应急管理;突发事件;整体性治理;应急管理效力;气候变化;暴雨内涝

Abstract:

Keywords:

基金项目(Foundation): 中国高等教育学会2022年度高等教育科学研究规划课题(22DL0302);; 中国气象局气象干部培训学院重点项目(2022CMATCZD05);; 国家重点研发计划政府间/港澳台重点专项项目(2018YFE0109600);; 北京市社科基金研究基地项目(19JDGLA008);; 国家自然科学基金项目(42077441,61901471,41801064)

作者(Author): 谌舟颖,孔锋

DOI: 10.13928/j.cnki.wrahe.2023.01.001

参考文献(References)：

• [1] CHRISTENSEN T,PERL?GREID P,张丽娜，等.后新公共管理改革：作为一种新趋势的整体政府[J].中国行政管理，2006(9):83-90.CHRISTENSENT T,PERL?GREID P,ZHANG L N,et al.Post-new public management reform:whole government as a new trend [J].Chinese Administration,2006(9):83-90.
• [2] 钟开斌.国家应急管理体系：框架构建、演进历程与完善策略[J].改革，2020(6):5-18.ZHONG K B.National emergency management system:Framework construction,evolution and improvement strategy [J].Reform,2020(6):5-18.
• [3] 林鸿潮.公共应急“一案三制”反思：以年初雪灾为切入点[J].中国改革，2008(8):65-68.LIN H C.Reflection on “One Case and Three Systems” in public emergency:taking the snow disaster at the beginning of the year as an entry point [J].China Reform,2008(8):65-68.
• [4] 马红.公共安全应急管理谨防“碎片化”[J].人民论坛，2017(33):84-85.MA H.Beware of “fragmentation” in public security emergency management [J].People′s Forum,2017(33):84-85.
• [5] SIX P.Towards holistic governance:the new reform agenda[M].Houndmills,Basingstoke,Hampshire?New York:Palgrave,2002.
• [6] 谭海波，蔡立辉.论“碎片化”政府管理模式及其改革路径：“整体型政府”的分析视角[J].社会科学，2010(8):12-18.TAN H B,CAI L H.On the “Fragmented” government management model and its reform path:the analytical perspective of “Integrated Government” [J].Social Science,2010(8):12-18.
• [7] 唐兴盛.政府“碎片化”:问题、根源与治理路径[J].北京行政学院学报，2014(5):52-56.TANG X S.Government fragmentation:problems,root causes and the path to governance[J].Journal of Beijing Administrative College,2014(5):52-56.
• [8] L?GREID P,RYKKJA L H.Accountability and inter-organizational collaboration within the state[J].Public Management Review,2021,24(5):1-21.
• [9] VINCENT I.Collaboration and integrated services in the NSW public sector[J].Australian Journal of Public Administration,1999,58(3):50-54.
• [10] POLLITT C.Joined-up government:a survey[J].Political Studies Review,2003,1(1):34-49.
• [11] DUNLEAVY P.New public management is dead:long live digital-era governance[J].Journal of Public Administration Research and Theory,2005,16(3):467-494.
• [12] 陈科霖.“应急管理碎片化”的成因及其消解：基于常规与应急两种治理机制的比较分析[J].广西师范大学学报(哲学社会科学版),2020,56(6):45-58.CHEN K L.The causes of “fragmentation of emergency management” and its dissolution:a comparative analysis based on two governance mechanisms:conventional and emergency[J].Journal of Guangxi Normal University (Philosophy and Social Science Edition),2020,56(6):45-58.
• [13] 周伟.地方政府间跨域治理碎片化：问题、根源与解决路径[J].行政论坛，2018,25(1):74-80.ZHOU W.Fragmentation of cross-domain governance among local governments:problems,causes and solutions [J].Administrative Forum,2018,25(1):74-80.
• [14] 王莹，王义保.基于整体性治理理论的城市应急管理体系优化[J].城市发展研究，2016,23(2):98-104.WANG Y,WANG Y B.Optimization of urban emergency management system based on holistic governance theory [J].Urban Development Research,2016,23(2):98-104.
• [15] 陈伟珂，高双，张煜珠.城市内涝治理碎片化困境及其突破：基于整体性治理理论[J].城市发展研究，2019,26(8):84-90.CHEN W K,GAO S,ZHANG Y Z.The fragmented dilemma of urban waterlogging control and its breakthrough:based on the theory of holistic governance [J].Urban Development Research,2019,26(8):84-90.
• [16] 高小平，刘一弘.应急管理部成立：背景、特点与导向[J].行政法学研究，2018(5):29-38.GAO X P,LIU Y H.The establishment of emergency management department:background,characteristics and orientation [J].Administrative Law Research,2018(5):29-38.
• [17] 李胜.超大城市突发环境事件管理碎片化及整体性治理研究[J].中国人口·资源与环境，2017,27(12):88-96.LI S.Research on fragmentation and overall governance of environmental emergency management in megacities [J].China Population,Resources and Environment,2017,27(12):88-96.
• [18] SCHNEIDER S K.Governmental response to disasters:the conflict between bureaucratic procedures and emergent norms[J].Public Administration Review,1992,52(2):135.
• [19] 袁莉，姚乐野.政府应急管理信息化困境及解决之道[J].西南民族大学学报(人文社科版),2016,37(1):147-151.YUAN L,YAO L Y.The dilemma of government emergency management information and solutions [J].Journal of Southwest Minzu University(Humanities and Social Sciences Edition),2016,37(1):147-151.
• [20] 李胜，卢俊.从“碎片化”困境看跨域性突发环境事件治理的目标取向[J].经济地理，2018,38(11):191-195+240.LI S,LU J.From the “fragmentation” dilemma to see the goal orientation of governance of cross-domain environmental emergencies [J].Economic Geography,2018,38(11):191-195+240.
• [21] 郭雪松，朱正威.跨域危机整体性治理中的组织协调问题研究：基于组织间网络视角[J].公共管理学报，2011,8(4):50-60+124-125.GUO X S,ZHU Z W.Research on organizational coordination in the holistic governance of cross-domain crises:From the perspective of inter-organizational networks [J].Journal of Public Administration,2011,8(4):50-60+124-125.
• [22] FAN C Y.Study on the construction of urban emergency capacity in the context of emergencies[J].Advances in Social Sciences,2021,10(1):20-26.
• [23] 任喜荣，樊英.突发事件信息机制碎片化的多元整合[J].广西社会科学，2021(4):114-120.REN X R,FAN Y.Multiple integration of fragmented emergency information mechanism [J].Guangxi Social Sciences,2021(4):114-120.
• [24] 陆继锋.应急管理“碎片化”:危害、成因与应对之道[J].山东行政学院学报，2017(3):1-7.LU J F.“Fragmentation” of emergency management hazards,causes and countermeasures [J].Journal of Shandong University of Administration,2017(3):1-7.
• [25] 王薇.跨域突发事件府际合作应急联动机制研究[J].中国行政管理，2016(12):113-117.WANG W.Research on intergovernmental cooperation and emergency linkage mechanism for cross-domain emergencies [J].China Administration,2016(12):113-117.
• [26] 任敏.我国流域公共治理的碎片化现象及成因分析[J].武汉大学学报(哲学社会科学版),2008(4):580-584.REN M.The fragmentation phenomenon and causes of public governance of watersheds in China[J].Journal of Wuhan University (Philosophy and Social Sciences Edition),2008(4):580-584.
• [27] 徐灿清.我国政府应急管理精细化转型路径研究[J].安徽行政学院学报，2018(6):17-21.XU C Q.Research on the refinement transformation path of Chinese government emergency management [J].Journal of Anhui Administration Institute,2018(6):17-21.
• [28] 任博，孙涛.整体性治理视阈下我国城市政府公共服务职责划分问题研究[J].东岳论丛，2018,39(3):165-172.REN B,SUN T.Research on the division of public service responsibilities of urban governments in my country from the perspective of overall governance [J].Dongyue Lun Cong,2018,39(3):165-172.
• [29] 徐元善，金华.跨界公共危机碎片化治理的困境与路径选择[J].理论探讨，2015(5):31-34.XU Y S,JIN H.The dilemma and path choice of fragmented governance of cross-border public crisis [J].Theoretical Discussion,2015(5):31-34.
• [30] CAMPANELLA T J.Urban resilience and the recovery of new orleans[J].Journal of the American Planning Association,2006,72(2):141-146.
• [31] 薛澜，钟开斌.突发公共事件分类、分级与分期：应急体制的管理基础[J].中国行政管理，2005(2):102-107.XUE L,ZHONG K B.Classification,grading and staging of public emergencies:the management basis of emergency system [J].China Administration,2005(2):102-107.
• [32] 张玉磊.公共危机治理：从碎片化到整体性[J].理论探索，2012(6):117-120.ZHANG Y L.Public crisis governance:from fragmentation to wholeness [J].Theoretical Exploration,2012(6):117-120.
• [33] 董泽宇，宋劲松.我国应急预案体系建设与完善的思考[J].中国应急管理，2014(11):17-21.DONG Z Y,SONG J S.Reflections on the construction and improvement of China′s emergency plan system [J].China Emergency Management,2014(11):17-21.
• [34] 赵杨.县级政府应急管理体系碎片化问题及其整合规制[J].商，2016(1):68.ZHAO Y.The fragmentation of county-level government emergency management system and its integration regulation [J].Shang,2016(1):68.
• [35] 盛明科，郭群英.公共突发事件联动应急的部门利益梗阻及治理研究[J].中国行政管理，2014(3):38-42.SHENG M K,GUO Q Y.Research on departmental interest obstruction and governance of joint emergency response in public emergencies [J].China Administration,2014(3):38-42.
• [36] 杨月巧，董昭锐，李丹.从应急办到应急管理部：中国应急管理体制改革成效研究[J].中国安全生产，2021,16(12):42-43.YANG Y Q,DONG Z R,LI D.From the ministry of emergency management to the ministry of emergency management:a study on the effectiveness of China′s emergency management system reform [J].Safety in Work in China,2021,16(12):42-43.
• [37] 陈第华.突发公共卫生事件中医疗驰援的整体性治理：以抗击新冠肺炎疫情为例[J].太原理工大学学报(社会科学版),2021,39(4):56-61.CHEN D H.The overall governance of medical assistance in public health emergencies:Taking the fight against the new crown pneumonia epidemic as an example [J].Journal of Taiyuan University of Technology (Social Science Edition),2021,39(4):56-61.
• [38] 赵军锋，金太军.政府协调治理：我国突发事件应急管理创新探讨[J].青海社会科学，2011(6):6-10.ZHAO J F,JIN T J.Government coordination governance:A Discussion on the innovation of emergency management in China[J].Qinghai Social Sciences,2011(6):6-10.
• [39] 程晓陶.2021年郑州“7·20”特大暴雨洪涝灾害郭家咀水库案例的教训与反思[J].中国防汛抗旱，2022,32(3):32-36.CHENG X T.Lessons and reflections on the case of Guojiazui Reservoir,a severe rainstorm and flood disaster in Zhengzhou in 2021 [J].China Flood Control and Drought Relief,2022,32(3):32-36.
• [40] 谌舟颖，孔锋.河南郑州“7·20”特大暴雨洪涝灾害应急管理碎片化及综合治理研究[J].水利水电技术(中英文),2022,53(8):1-14.CHEN Z Y,KONG F.Research on fragmentation and comprehensive treatment of emergency management of “7·20” heavy rainstorm and flood disaster in Zhengzhou,Henan[J/OL].Water Conservancy and Hydropower Technology (Chinese and English),2022,53(8):1-14.
• [41] 牛惊雷，付立柱.突发公共卫生事件社会治理从碎片化到整体性演进分析：以新冠肺炎疫情防控为例[J].武警学院学报，2020,36(3):44-49.NIU J L,FU L Z.Analysis on the evolution of social governance of public health emergencies from fragmentation to wholeness:taking the prevention and control of New Coronary Pneumonia as an example [J].Journal of the Armed Police Academy,2020,36(3):44-49.
• [42] 安东尼·唐斯.官僚制内幕(中文修订版)[M].郭小聪，译.北京：中国人民大学出版社，2017.Anthony Downs.Inside the Bureaucracy (Chinese Revised Edition) [M].GUO Xiaocong,translated.Beijing:Renmin University of China Press,2017.
• [43] ZHOU X,LIEBERTHAL K G,LAMPTON D M.Bureaucracy,politics,and decision-making in post-Mao China[J].Contemporary Sociology,1993,22(2):186.
• [44] HART O,MOORE J.Incomplete contracts and renegotiation[J].Working papers,1985.
• [45] 央广网.海口变“九龙治水”为“一龙治水”[EB/OL].(2019-04-04)[2022-08-10].https://www.cnr.cn/hn/jrhn/20190404/t20190404_524567726.shtml.cnr.cn.Water control by multiple administrative departments was changed to water control by one dministrative department in Haikou[EB/OL].(2019-04-04)[2022-08-10].https://www.cnr.cn/hn/jrhn/20190404/t20190404_524567726.shtml.
• [46] 南锐，陈静.从碎片化转向整体性：特大城市重大公共卫生事件应急治理的路径选择[J].广东行政学院学报，2021,33(3):29-36.NAN R,CHEN J.From fragmentation to wholeness:path selection for emergency management of major public health events in megacities [J].Journal of Guangdong Administration Institute,2021,33(3):29-36.
• [47] 张煜珠，陈伟珂.基于整体性治理理论的城市暴雨内涝韧性治理模式研究[D].天津：天津理工大学，2019.ZHANG Y Z.Research on urban storm waterlogging resilience governance model based on holistic governance theory [D].Tianjin:Tianjin University of Technology,2019.
• [48] 网易.是什么影响海口排涝?“下雨看海”问题如何解决?解答来了[EB/OL].(2021-09-10)[2022-08-10].https://www.163.com/dy/article/GJIHOELC053469JX.html.NetEase.What affects the drainage of Haikou?How to solve the problem of “seeing the sea when it rains”?The answer is coming [EB/OL].(2021-09-10)[2022-08-10].https://www.163.com/dy/article/GJIHOELC053469JX.html.
• [49] 孔锋.我国城市暴雨内涝灾害风险综合治理初探[J].中国减灾，2021(17):23-27.KONG Feng.A preliminary study on comprehensive management of urban rainstorm and waterlogging disaster risk in my country [J].China Disaster Reduction,2021(17):23-27.
• [50] 陶鹏，童星.从碎片到整合：灾害公共预警管理模式的嬗变[J].中州学刊，2013(6):60-65.TAO P,TONG X.From fragmentation to integration:the evolution of disaster public early warning management model [J].Zhongzhou Academic Journal,2013(6):60-65.
• [51] 新京报电子报.疫情信息发布，需从“碎片化”走向系统化[EB/OL].(2020-01-27)[2022-08-10].http://epaper.bjnews.com.cn/html/2020-01/27/content_777782.htm.Beijing News E-Newsletter.The release of epidemic information needs to move from “fragmentation” to systematization [EB/OL].(2020-01-27)[2022-08-10].http://epaper.bjnews.com.cn/html/2020-01/27/content_777782.htm.
• [52] GUTTELING J M,DE VRIES P W.Determinants of seeking and avoiding risk-related information in times of crisis:determinants of seeking and avoiding risk-related information[J].Risk Analysis,2017,37(1):27-39.
• [53] 中华人民共和国应急管理部.河南郑州“7·20”特大暴雨灾害调查报告公布[EB/OL].(2022-01-21)[2022-04-17].https://www.mem.gov.cn/xw/bndt/202201/t20220121_407106.shtml.Ministry of Emergency Management of the People′s Republic of China.Announcement of the investigation report on the “7.20” heavy rainstorm disaster in Zhengzhou,Henan [EB/OL].(2022-01-21)[2022-04-17].https://www.mem.gov.cn/xw/bndt/202201/t20220121_407106.shtml.
• [54] ZHAO X,LI H,QI Y.Are Chinese Cities Prepared to Manage the Risks of Extreme Weather Events?Evidence from the 2021.07.20 Zhengzhou Flood in Henan Province[J/OL].SSRN Electronic Journal,2022[2022-05-10].https://www.ssrn.com/abstract=4043303.
• [55] 吴雪.从碎片化到整体性：重大突发公共卫生事件治理模式重塑[J].领导科学，2020(16):44-47.WU X.From fragmentation to wholeness:reshaping the management model of major public health emergencies [J].Leadership Science,2020(16):44-47.
• [56] 李墨舒.我国突发事件应急管理中政府协调问题研究[J].三门峡职业技术学院学报，2015,14(1):131-134.LI M S.Research on government coordination in emergency management of China′s emergencies [J].Journal of Sanmenxia Vocational and Technical College,2015,14(1):131-134.
• [57] 中国政府网.天津港“8·12”瑞海公司危险品仓库特别重大火灾爆炸事故调查报告[EB/OL].(2016-02-05)[2022-08-10].http://www.gov.cn/foot/2016-02/05/content_5039788.htm.China Government Network.“8·12” Tianjin Port “8·12” Ruihai Company Dangerous Goods Warehouse Special Serious Fire and Explosion Investigation Report [EB/OL].(2016-02-05)[2022-08-10].http://www.gov.cn/foot/2016-02/05/content_5039788.htm.