Facts have also proved that the comprehensive forecasting and medium-and long-term forecasting capabilities of the existing meteorological departments in China do not meet the requirements. Especially after the meteorological department issued an early warning, the central competent departments and departments such as railways, civil aviation, highways, electric power, public security, commerce, labor, and the military failed to do their work in their respective fields in time, not to mention the horizontal early warning, communication, and cooperation between these departments and relevant places, and there is still considerable room for improvement. Typhoon, mine disaster, earthquake, epidemic and other disasters may trigger public emergencies at any time, threatening people's lives and property. Whether there is a perfect emergency mechanism is an important criterion for testing a country's government to perform its functions, and it is also an important symbol of social harmony.
(1) Relevant theories and authoritative explanations
At the critical stage of reform and development, the report of the 17th National Congress of the Communist Party of China gave strategic answers to a series of major issues concerning the governance of our country and the development and progress of our country. Emergency management is an important task re-emphasized by the 17th National Congress of the Communist Party of China, an important duty that governments at all levels must perform well, and an important skill that leading cadres at all levels must master.
1. Emergency management is related to the overall work of the party and the state.
In a sense, the history of mankind is the history of human growth in the struggle against various disasters. The Chinese nation has accumulated rich experience in the long-term practice of dealing with various emergencies. The old adages of "be safe without forgetting danger, live without forgetting death, and govern without forgetting chaos" and "be prepared for danger in times of peace" have given us valuable enlightenment. In modern society, due to the advancement of industrialization and urbanization, industry, population and wealth are concentrated in cities, and risks are also concentrated in cities. The harm and influence of emergencies have increased significantly. All countries in the world regard emergency management as an important function of the government and strive to improve their ability to deal with emergencies.
Since the founding of New China, especially since the reform and opening up, our party and government have attached great importance to emergency management, persisted in safeguarding the fundamental interests of the people, and actively prevented and worked hard to reduce all kinds of public emergencies and their losses. The fight against SARS in 2003 gave us profound enlightenment: we must establish Scientific Outlook on Development and focus on solving the problems of long legs in economic development and short legs in social development; It is necessary to establish an emergency mechanism to deal with various emergencies in the whole society to ensure the safety of people's lives and property. On the basis of profoundly summing up historical experience and scientifically analyzing the public security situation, the CPC Central Committee and the State Council made a major decision to comprehensively strengthen emergency management, and clearly put forward the annual key work and objectives and tasks.
After several years' efforts, remarkable progress has been made in emergency management with the construction of "one case, three systems" (namely, emergency plan, emergency management system, mechanism and legal system). First, the national emergency plan system has been basically established. More than 6,543,800 emergency plans at all levels have been formulated nationwide, covering all kinds of common emergencies. All provincial governments, 97.9% municipal governments and 92.8% county governments have formulated overall emergency plans. Second, the emergency management system was initially formed. All provincial and municipal governments and 92% county-level governments have established or defined emergency management leading institutions; All provincial governments, 96% municipal governments and 8 1% county governments have established or defined emergency management offices. The emergency command and coordination functions of national professional institutions such as flood control and drought relief, earthquake prevention and disaster reduction, forest fire prevention, emergency rescue and disaster relief, production safety, public health, communications and public security have been further strengthened. Third, the emergency management mechanism has been continuously improved. The disaster monitoring network and early warning system are becoming more and more perfect, information reports and information releases are more timely, emergency response is rapid and effective, and the affected people are properly resettled, so that they have food, shelter, clean water and medical staff to treat them. Fourth, the legal system of emergency management is more complete. China has successively formulated the Emergency Response Law and more than 60 laws and regulations to deal with natural disasters, accidents, public health incidents and social security incidents, and basically established an emergency management legal system with the Constitution as the foundation, the Emergency Response Law as the core, and relevant separate laws and regulations as the support, and the emergency work has entered the track of institutionalization, standardization and legalization. Fifth, the emergency team system was initially formed. It has basically formed an emergency team system with public security, armed police and army as the backbone and assault force, professional teams for flood control and drought relief, earthquake relief, forest fire fighting, maritime search and rescue, railway accident rescue, mine rescue, nuclear emergency, medical rescue and animal epidemic disposal as the basic force, and full-time and part-time teams of enterprises and institutions and emergency volunteers as the auxiliary force. Sixth, the emergency support capability has been effectively improved. The central government has invested tens of billions, focusing on strengthening emergency material reserves and emergency team equipment. The ability of monitoring and early warning of natural disasters, accidents and public health emergencies has been continuously improved. The ability of post-disaster recovery and reconstruction was significantly enhanced, and the damaged houses were basically rebuilt in the same year.
At present and in the future, China's development faces many favorable conditions, but also faces a complex and severe public security situation. Major natural disasters occur frequently and major accidents and disasters occur from time to time. Some public health emergencies are difficult to prevent and control, and there are many factors that affect social stability. In this regard, we should always keep a clear head and deeply realize that doing a good job in emergency management is an inevitable requirement for thoroughly implementing Scientific Outlook on Development, achieving sound and rapid economic and social development, building a socialist harmonious society, ensuring the safety of people's lives and property, improving the party's ruling ability and building a contingent of high-quality cadres, fully performing government functions, and building a government that people are satisfied with.
2. The overall national emergency plan for public emergencies.
The purpose of the national overall emergency plan for public emergencies is to improve the government's ability to ensure public safety and deal with public emergencies, prevent and mitigate public emergencies and their harm to the maximum extent, ensure the safety of public life and property, safeguard national security and social stability, and promote comprehensive, coordinated and sustainable economic and social development.
The term "public emergencies" as mentioned in this plan refers to emergencies that occur suddenly, cause or may cause heavy casualties, property losses, ecological environment damage and serious social harm, and endanger public safety. According to the occurrence process, nature and mechanism of public emergencies, public emergencies are mainly divided into the following four categories:
(1) Natural disasters. It mainly includes flood and drought disasters, meteorological disasters, earthquake disasters, geological disasters, marine disasters, biological disasters and forest and grassland fires. (2) accidents and disasters. It mainly includes all kinds of safety accidents, traffic accidents, public facilities and equipment accidents, environmental pollution and ecological destruction events in industrial, mining, trading and other enterprises. (3) Public health events. It mainly includes infectious diseases, mass unexplained diseases, food safety and occupational hazards, animal epidemics and other events that seriously affect public health and life safety. (4) Social security incidents. It mainly includes terrorist attacks, economic security incidents and foreign-related emergencies. According to the nature, severity, controllability and scope of influence, all kinds of public emergencies are generally divided into Grade I (particularly significant), Grade II (significant), Grade III (significant) and Grade IV (general).
The national emergency plan system for public emergencies includes: (1) the overall emergency plan for public emergencies. The overall emergency plan is the general outline of the national emergency plan system, and it is a normative document for the State Council to deal with particularly serious public emergencies. (2) Special emergency plan for public emergencies. The special emergency plan is mainly formulated by the State Council and its relevant departments to deal with one or several kinds of public emergencies. (3) Emergency plan for public emergencies. The departmental emergency plan is a plan for dealing with public emergencies formulated by the relevant departments of the State Council according to the overall emergency plan, special emergency plan and departmental responsibilities. (4) Emergency plan for local public emergencies. Specifically, it includes: the overall emergency plan, special emergency plan and departmental emergency plan of the provincial people's government; City (prefecture), county (city) people's government and its grass-roots political power to organize emergency plans for public emergencies. Under the leadership of the provincial people's government, the above plans are formulated by the local people's government and its relevant departments respectively in accordance with the principle of classified management and graded responsibility. (five) emergency plans formulated by enterprises and institutions in accordance with relevant laws and regulations. (6) For holding large-scale exhibitions, cultural and sports activities, the organizer shall formulate emergency plans.
All localities and departments should improve the forecasting and early warning mechanism, establish a forecasting and early warning system, carry out risk analysis for various possible public emergencies, and achieve early detection, early reporting and early disposal. After the occurrence of public emergencies, the people's government at the provincial level or the relevant departments of the State Council in the place where the incidents occurred shall, while reporting the information of particularly serious and major public emergencies, start relevant emergency plans in accordance with their duties and prescribed authority, handle them in a timely and effective manner, and control the development of the situation. In case of emergencies involving China citizens and overseas institutions, our embassies and consulates abroad, relevant departments of the State Council and relevant local people's governments should take measures to control the development of the situation and organize emergency rescue work. For the early disposal of particularly serious public emergencies that fail to effectively control the situation, it is necessary to start relevant plans in time, and the relevant emergency command institutions in the State Council or the the State Council Working Group will uniformly command or guide relevant regions and departments to carry out disposal work. Public emergencies that need to be handled jointly by several relevant departments in the State Council shall be led by the competent departments of such public emergencies and assisted by other departments.
We must actively and steadily do a good job in the aftermath. For the casualties of relevant units and individuals, emergency handling staff and emergency mobilization and requisition of materials in public emergencies, pensions, subsidies or compensation shall be given in accordance with the regulations, and psychological and judicial assistance shall be provided. Relevant departments should do a good job in epidemic prevention and control and eliminate environmental pollution. Insurance regulatory agencies urge relevant insurance institutions to make timely claims for losses of relevant units and individuals. Investigate and evaluate the causes, nature, impact, responsibilities, experiences and lessons, recovery and reconstruction of particularly serious public emergencies. According to the recovery and reconstruction plan of the affected areas, organize and implement the recovery and reconstruction work. The information release of public emergencies should be timely, accurate, objective and comprehensive. Brief information should be released to the public at the first time of the incident, followed by preliminary verification, government response measures and public preventive measures, and follow-up release should be made according to the handling of the incident. The forms of information release mainly include authorized release, issuing press releases, organizing reports, accepting interviews with reporters, and holding press conferences.
All relevant departments should do a good job in responding to public emergencies in accordance with the division of responsibilities and relevant plans, and at the same time do a good job in safeguarding public emergencies in accordance with the overall plan to ensure the smooth progress of emergency rescue work and the basic needs of the people in the disaster areas, as well as recovery and reconstruction. Security includes human resources, financial resources, material resources, basic living security, medical and health security, traffic security, public security, personnel security, communication security, public facilities and scientific and technological support.
3. The main contents and effects of the national emergency management system
The core content of China's emergency management system is "one case, three systems". An emergency refers to an emergency that occurs suddenly and causes or may cause heavy casualties, property losses, ecological environment damage and serious social harm, endangering public safety. According to the process, nature and mechanism of emergencies, they can be divided into four categories: natural disasters, accidents, public health incidents and social security incidents. According to the degree of social harm, controllability and scope of influence, emergencies are divided into four levels: particularly significant, significant, large and general.
The formulation of the emergency plan is to standardize and institutionalize the successful practices in dealing with emergencies according to the Constitution and relevant laws and administrative regulations, and to clarify how to prevent and handle emergencies in the future. According to the different responsible subjects, China's planning system includes five levels: national master plan, special plan, departmental plan, local plan and enterprise plan.
China implements an emergency management system of unified leadership, comprehensive coordination, classified management, graded responsibility and territorial management. The organizational system includes leading institutions, offices, working institutions, local institutions and expert groups. These institutions carry out emergency management according to laws, regulations and plans, and form an emergency linkage system with unified command, graded responsibility and coordinated and orderly operation.
Dealing with emergencies is a complex systematic project, which needs to make overall arrangements for all aspects of work before, during and after the event. The national overall emergency plan clearly stipulates the operation mechanism of emergency management, which mainly includes six links: prevention, prediction and early warning, information reporting, information release, emergency response and disposal, recovery and reconstruction.
To effectively prevent and respond to emergencies, we must give full play to the leading role of the government and widely mobilize citizens, legal persons and other organizations to actively participate. In order to clearly define the rights, responsibilities and obligations of all parties, we must improve the legal system of emergency management in accordance with the requirements of administration according to law and building a government ruled by law, and standardize the response to various emergencies according to law.
By establishing and improving the "one case, three systems" of emergency management, the ability of governments at all levels to deal with emergencies has been greatly enhanced, which has guaranteed the safety of people's lives and property, safeguarded the overall situation of social stability and promoted sound and rapid economic and social development. First, with more and more natural disasters, casualties and property losses have been greatly reduced. Last year was the second worst year since 1998. While the number of people affected by disasters increased by 23.4% compared with 1998, the number of deaths decreased by 42.2%, the area where crops were not harvested decreased by 29%, the number of collapsed houses decreased by 76.5%, and the economic loss decreased by 15.9%. Second, with the steady and rapid development of the national economy and the rapid development of energy, transportation and other industries, the situation of safe production has continued to improve. The two "tough battles" of coal mine rectification and closure and gas control and utilization have achieved remarkable results. Compared with 2002, the national coal output in 2006 was about 900 million tons, and the number of coal mine accidents and deaths decreased by more than 30%. The death rate per million tons decreased from 4.94 in 2002, 3.72 in 2003, 3.02 in 2004 and 2.8/kloc-0 in 2005 to 2.04 in 2006, a decrease of 58.7%. With the rapid growth of people flow, logistics, traffic flow and the number of drivers, road traffic safety has continuously achieved a "three-drop" in the number of accidents, the number of deaths and the death rate per 10,000 vehicles since 2003. Third, in the case of frequent business contacts and personnel movements and intensified virus mutation, the spread and spread of various major epidemics and infectious diseases have been effectively prevented, and the number of deaths caused by public health emergencies has dropped significantly. Fourth, in the case of prominent social contradictions, the total number of letters and visits, the number of mass incidents and the number of participants in the country continued to decline, and the overall social situation remained stable.
Practice has proved that the decision-making arrangements of the CPC Central Committee and the State Council on strengthening emergency management are feasible and completely correct. The five years since the 16th National Congress of the Communist Party of China have been five years in which Party committees and governments at all levels have attached great importance to and strengthened emergency management, five years in which the emergency management system has been improved day by day and the ability to deal with emergencies has been greatly improved, five years in which emergencies and their losses have been significantly reduced and the social security situation has been continuously improved. Looking back on the course of emergency management in recent years, we realize more deeply that we must adhere to the guidance of Deng Xiaoping Theory and Theory of Three Represents to promote scientific development and social harmony; We must adhere to the people-oriented principle, take the protection of public health and the safety of life and property as the primary task, and minimize emergencies and their casualties, property losses and social harm; We must insist on strengthening emergency management as an important aspect of fully performing government functions, and take the level of emergency management as an important symbol to test the administrative ability of the government; It is necessary to adhere to the work pattern of party Committee leadership, government-led, military-civilian cooperation, compartmentalization and participation of the whole society, and deepen and improve the construction of emergency plan system and institutional mechanism; We must persist in relying on the legal system, science and technology and the masses, and strive to improve the legal, scientific and popular level of emergency management; We must constantly explore the laws of emergency management, pay equal attention to prevention and emergency, combine normality with abnormality, act in strict accordance with objective laws, and firmly grasp the initiative in work.
4. Comprehensively and deeply promote emergency management.
We must be soberly aware that there are still many weak links in emergency management in China. Compared with the grim public security situation, there is still a lot of hard and meticulous work to be done. In accordance with the spirit of the 17th National Congress of the Communist Party of China and the deployment of the Central Emergency Management Committee, we should further enhance our sense of responsibility and urgency, consolidate our achievements, blaze new trails, and push emergency management to a new level.
(1) Continue to further promote the construction of "one case, three systems". The first is to deepen the plan. Continue to further promote the planning work, strive to achieve full coverage of the field, high quality content, dynamic management, and constantly test and improve in practice. The second is to improve the system. Actively integrate various emergency forces and resources, give full play to the respective functions of emergency management headquarters, offices and working institutions, and establish an emergency management performance evaluation system and accountability system. The third is to improve the mechanism. Improve mechanisms such as command and coordination, information reporting and notification, response and disposal linkage, information release and public opinion guidance, performance appraisal, and social mobilization. The fourth is to strengthen the legal system. Conscientiously implement the provisions of the emergency response law, so that laws must be followed, law enforcement must be strict, and offenders must be prosecuted.
(2) Deepen the construction of emergency plan system. Must enter the community, factories, mines, schools, rural areas; Risk analysis must be done well; It is necessary to do a good job in the survey and integration of emergency resources; We must strengthen the operability of the emergency plan. It is necessary to establish and improve a scientific emergency plan and emergency capability evaluation system; We must strengthen the training and drills of emergency plans.
(3) Fully implement the emergency system construction plan and promote the construction of emergency platform. Coordinate the allocation of emergency resources between the central and local governments, departments, governments and society, make a good connection with urban and rural construction and other related plans, and focus on strengthening the construction of monitoring and early warning systems, information command systems, emergency teams and material support. Establish a unified emergency platform system, realize the mutual docking, interconnection and information sharing of emergency information platforms at all levels, and accelerate the formation of a unified and efficient national emergency decision-making command network. All localities, departments and units should conduct a general survey of all kinds of emergency resources, including manpower, financial resources and material resources, find out the family property, and establish a call plan for data such as manpower, financial resources, material security, basic living security, medical and health security, traffic security, public security, personnel maintenance, communication security, public facilities and scientific and technological support.
(4) The operability of the emergency plan must be enhanced. Clearly answer who will do it, how to do it, what to do, when to do it, and what resources to use before, during and after the emergency.
(5) Establish a system for risk assessment and hidden danger investigation of major emergencies. First of all, we must strengthen risk assessment. Investigate, register and evaluate disaster and dangerous areas, establish a comprehensive disaster risk database and a disaster prevention and mitigation zoning system, and improve the dynamic supervision mechanism of disaster risk. Second, we must implement hidden dangers. Resolutely rectify every hidden danger found, so as to achieve the "five implementation" of rectification responsibilities, measures, funds, deadlines and plans, and at the same time establish a classification management system for major hidden dangers and a classification monitoring system for major hazard sources. Thirdly, we must promote capacity assessment. Accelerate the construction of evaluation index system, comprehensively grasp and scientifically judge the emergency management ability of a region or city, and take the existing weak links as the focus of strengthening construction.
(6) Do a good job in emergency plan drills. Carrying out emergency drills is an effective way to improve comprehensive emergency response capability and actual combat level, which can achieve the purposes of testing plans, training teams, running-in mechanism and publicity and education. To do a good job in emergency drills, we should focus on key points, pay attention to actual results, and find and correct exposed problems in time. Don't be afraid of problems in the drill, but pay attention to finding and solving problems in the drill.
(7) Building a national emergency material support system in an all-round way. First, do a good job in the construction of emergency material monitoring network and early warning system, and realize the comprehensive summary of all kinds of emergency material reserve information and demand forecast and early warning in China. Second, do a good job in the construction of emergency materials capacity reserve, and implement capacity reserve for emergency materials with strong professionalism, large peak demand and short production start-up cycle. The third is to do a good job in the capacity building of emergency materials storage and distribution, optimize the layout of national emergency materials storage sites, and improve the storage and transportation system of emergency materials allocation and distribution.
(8) Establish a national comprehensive disaster reduction system under the unified management of ministries and commissions, so as to avoid the overlapping of government functions and multi-door and multi-head management to the maximum extent, thus improving the administrative efficiency of disaster prevention and reduction and reducing the cost caused by redundant construction. First of all, the national "Department of Homeland Security" can be established on the basis of the State Council Emergency Office, so that the coordination system can become a unified command organization for substantive emergency safety. No matter what disaster happens, no matter where it happens, all matters related to emergency rescue and rescue activities will be arranged by the Ministry under the guidance of the State Council, which will improve work efficiency. Only this kind of substantive organization can strengthen the normal construction of comprehensive disaster reduction and realize the comprehensive management of national disaster reduction while grasping emergency. Second, we call on the National People's Congress and the China People's Political Consultative Conference to consider adjusting and changing the names of the new working committees of NPC and CPPCC, for example, whether the existing "population-resources-environment" committee can be renamed "population-resources-environment-security" committee. The addition of the word "safety" is not formal, but a perfection and enrichment of the concept of sustainable development. It is the essence of national policy to embody an overall security concept in line with the current situation of disaster prevention and mitigation, and at the same time advocate the concept of sustainable development of population, resources, environment and security, so as to implement the scientific concept of sustainable development.
(9) to carry out publicity and education for the whole society. First, we should extensively carry out emergency management activities in communities, rural areas and grass-roots units, especially to further promote public safety education in classrooms and textbooks, and cultivate students' safety awareness and self-protection ability from an early age. Second, we should do a good job in pre-job and on-the-job education and training of production personnel in high-risk industries and fields, and improve their skills in safe operation and emergency handling in the first place. Third, through radio, television, newspapers, the Internet and other mass media, as well as picture books, wall newspapers, blackboard newspapers and other carriers, we will vigorously publicize and popularize the knowledge of prevention, hedging, self-help, mutual rescue and disaster reduction.
To further improve the emergency organization mechanism and coordination mechanism in various places, and truly and effectively run emergency plans, management departments at all levels need to have the awareness of guiding practice with scientific emergency management mechanisms. In the past, our emergency work was still used to surprise and collective mobilization. To further improve people's understanding of emergency mechanism, the most important thing is to strengthen the education of local officials engaged in administrative work. For example, whether to sweep the snow first or to ensure the smooth communication network of emergency command first requires a scientific and operable emergency management mechanism to guide.
How to establish a broader coordination organization and emergency response system is a problem worthy of discussion. In addition, in the face of major emergencies, how to establish a scientific risk assessment system requires the efforts of all parties. In addition, how to establish social mobilization mechanism, information release and public opinion guidance mechanism for urban management emergencies also needs further discussion.