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全球变暖背景下多发频发重发的暴雨洪涝灾害影响着中国城乡区域。应急管理是保障人民生命财产安全的最后一道防线，碎片化现象严峻制约了应急管理效能的发挥。2021年河南郑州“7·20”特大暴雨洪涝灾害应对暴露了应急管理碎片化问题。为此，研究了“7·20”特大暴雨灾害中各应急主体碎片化行动的表现与负面影响，并提出了暴雨洪涝应急综合治理的建议，以期提高中国暴雨洪涝应急管理的效力，为其他城市地区提供借鉴与经验。研究发现：(1)应急管理碎片化是由应急制度碎片化、应急组织设计碎片化、应急信息碎片化、应急意识碎片化、应急主客体碎片化等多方面原因组成，尤其应急制度碎片化影响着其他四个方面。(2)应急制度碎片化导致郑州市各应急主体应急行动缺乏协同、应急职责履行失败；应急权责碎片化导致应急管理错位、缺位；应急信息碎片化导致紧急应急决策与灾后学习的难度大；应急意识碎片化加剧灾害风险与管理难度；应急客体碎片化导致弱势地区及弱势人群的受灾脆弱性高。(3)暴雨洪涝灾害应急管理碎片化的综合治理措施包括促进防汛应急制度衔接整合，落实防汛演练，实现全过程应急管理；优化防汛应急组织设计，完善统筹协调机制，促进权责匹配，建立防汛信息共享平台，利用先进科技获取更全面的灾害信息，加强应急培训，转变领导思路促进应急防汛意识文化整合，以实现均等化为目标，打破应急服务的二元观念与体制。
Abstract：Under the background of global warming, frequent rainstorms and floods affect urban and rural areas in China. Emergency management is the last defence line to ensure the safety of people′s lives and property. Fragmentation severely restricts the effectiveness of emergency management.The problem of fragmentation of emergency management exposes during dealing with the “7-20” extreme rainstorm flood in Zhengzhou of Henan Province. Therefore, the performances and negative impacts from the fragmented actions of all the emergency subjects during the “7-20” extreme rainstorm flood disaster are studied herein, and then the relevant suggestions on the emergency comprehensive treatment of the rainstorm flood are proposed as well, so as to enhance the effectiveness of the storm-flooding emergency management in China and provide some references and experiences for the other cities and regions. The study finds out that(1) the fragmentation of emergency management is composed of the causations in several aspects, such as fragmentation of emergency system, fragmentation of emergency organization design, fragmentation of emergency information, fragmentation of emergency awareness, fragmentation of emergency subject and object, etc., especially the fragmentation of emergency system affects all the other four aspects;(2) the fragmentation of emergency system leads to the lack of the coordination among the emergency actions of all the emergency subjects in Zhengzhou and the failure of the performances of their emergency duties; the fragmentation of emergency authority and responsibility leads to the management dislocation and omission; the fragmentation of emergency information leads to the difficulty of emergency decision-making and post-disaster learning; the fragmentation of emergency perception exacerbates the difficulty of disaster risk and management; the fragmentation of emergency information leads to the difficulty of emergency decision-making and post-disaster learning; the fragmentation of emergency awareness intensifies disaster risk and management difficulty; the fragmentation of emergency objects leads to high disaster-bearing vulnerability of the vulnerable areas and vulnerable groups;(3) the comprehensive treatment measures for the fragmentation of the emergency management of storm-flooding disaster include promoting the connection and integration of flood control emergency systems, implementing flood control drilling, realizing the whole process of emergency management, optimizing the organizational design of flood control emergency response, improving overall coordination mechanism, promoting the matchment of authorities with responsibilities, establishing a flood control information sharing platform and obtaining more comprehensive disaster information with advanced techniques, strengthening emergency training and changing leadership thinking to promote the culture integration of the emergency flood control awareness, so as to break the dual concept and system of emergency service with the goal of achieving equalization.
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基本信息:
DOI：10.13928/j.cnki.wrahe.2022.08.001
中图分类号:TV87
引用信息:
[1]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],2022,53(08):1-14.DOI:10.13928/j.cnki.wrahe.2022.08.001.
基金信息:
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);; 中央高校基本科研业务费专项资金项目(2021TC062);; 国家自然科学基金项目(41801064,71790611)