和谐社会视野中的政府公共危机管理

和谐社会视野中的政府公共危机管理【摘要】 社会和谐是中国特色社会主义的本质属性，在我国构建社会主义和谐社会的过程中，一个不容忽视的问题就是对于公共危机事件的管理。应对公共危机，政府要承担应有的责任，应该在危机的管理中发挥积极的作用。本文从分析公共危机的问题开始，针对我国政府在处理应对公共危机时存在的问题，提出亟需改进的方向。 【关键词】 和谐社会 公共危机 公共危机管理 危机应急能力 社会和谐是中国特色社会主义的本质属性，是国家富强、民族振兴、人民幸福的重要保证，构建社会主义和谐社会是我们党的使命。当前影响社会和谐的因素很多，社会出现了前所未有的问题和危机，给构建社会主义和谐社会增加了不少的挑战。最基本的挑战就是政府对于社会公共危机的管理。政府作为社会权威性的管理机关，本身就承担着维护社会稳定和发展的重要使命，对于危机事件的管理则是当今社会政府必须学会面对的一项重要课题。公共危机管理不仅关系广大人民群众的切身利益问题，还关乎到国家的兴旺发展、社会的安定团结。对于一个以广大人民利益作为出发点的执政党和全心全意为人民服务的政府来说，能否有效的应对、处理、解决公共危机不仅是对党和政府执政理念的考核，更是对政府行政能力的考验。随着现代社会公共危机事件的增多，以及公共危机事件的影响力和破坏力增大的特点，有针对性地展开公共危机的预警、处理等工作是有着重要的意义和价值的。 一、公共危机管理的含义 从某种意义上说，危机与灾难是人类生产与社会生活中的一部分。自然灾害与人类活动造成的种种灾难往往给整个社会带来巨大的损失，而面对种种祸及大众的危机，单个个人的力量是微不足道的。因此在面对危机时，只能依靠人类的集体力量才能够有效的应对、化解危机，也就是说，人类只能依靠组织化的力量才能有效地抗击与回应危机与灾难。因此，危机的治理理所当然是重要的公共事务，作为公共事务主要管理者的政府必然要担当起应对、治理各种危机的重任。公共危机管理是现代政府的重要职责之一，尤其在经济全球化、科学技术迅猛发展的今天，公共危机事件具有明显的扩散效应。一个国家和地区的政府如果没有有效的抑制危机的发生，很可能会导致危机的扩大，影响更多的民族和国家。 国际上，公共危机管理通常指发生危机时，政府所采取的有助于公民和环境的一系列措施。政府危机的内涵偏重于紧急事件或灾难，兼有自然灾难和人为破坏的双重因素。公共危机管理的职能通常包括五大块内容。一是提升国家危机管理的能力，确立危机管理的政策和战略，领导全民的预防学习活动，增强抗危机能力。二是降低生命和财产的损失，提供完备信息，减少公共危机的实际的破坏性，减少损失，调动所有力量，确保所有可调用力量已到位，按计划处理灾难，进行良好的风险管理决策，制定并执行全面的培训和教育计划。三是将痛苦和破坏降到最低点：快速、有效的回应，在管理灾难方面职责分明，提供及时有效的协助，支付相应的保险，灾后修复时尽量减少损失。四是筹备恐怖活动后的危机处理，由中央支持地方政府建立管理机构，强化地方政府的回应恐怖活动的能力，在统一的信息平台共享信息。五是成立国家门户网站，提供信息服务。建设单一、便利的危机管理信息门户网站，运用知识管理服务于危机管理的信息，建设全国的沟通和预警系统。政府的公共危机管理必须参照社会公共危机事件发生、发展的客观规律，从而采取有效的应对措施，因而，公共危机管理必然以“循环”的形态出现。与危机做斗争，仅仅寄望于在某个点上“毕其功于一役”是不现实的，成熟的公共危机管理模式必然是一个连续的管理循环。依据美国联邦紧急事务管理局（FEMA）的成功实践经验，完整的公共危机管理体系通常由危机缓和（mitigation）、危机准备（preparedness）、危机回应（response）和危机恢复（recovery）四部分组成。二、我国政府公共危机管理存在的问题分析我国政府的公共危机管理，从总体上说，理念比较落后，不适应当今社会复杂变化的客观实际，不能够有效地采取对应策略，成功的预防和化解危机。“非典”的出现以及其破坏作用就明显的说明这一点。“非典“给中国政府上了重要的一课，使得政府认识到在应对诸如“非典”这样突如其来的公共危机性事件的过程中政府能力的欠缺，没有相对完备的预案、没有行之有效的措施等等。这些都反映了在处理公共危机过程中存在的问题，具体体现在如下几个方面。 1、公共危机发生的非常态性导致政府的预见能力缺失公共危机的非常态性是导致政府预见能力下降的一个重要原因。现代社会由于公共危机事件的突发性、非常态性，决定了对危机的应对和控制无先例可循，对政府处理和应对公共危机的能力提出了更高的要求，不能按部就班地进行，需要有较强的随机应变能力。在危机的始发期，应变能力对于控制危机的蔓延具有重要的作用。但由于我国政府和社会的危机意识淡薄，缺少全面整合的危机管理体系和危机事件应对协调机制。因此，在“非典”危机爆发初期，出现了信息沟通不畅，对危机发展态势判断不准，制度保障、资源保障跟不上，协调机制不健全等一系列问题，错过了对“非典”危机有效快速回应的最佳时期，造成其扩大化的严重后果，暴露出政府公共危机治理应变能力的明显欠缺。2、政府的政策法规不配套，导致处理危机过程中缺少法律依据政府提供政策法规等法制保障能力缺失在这次公共卫生事件的处理过程中也得以体现，行政命令依然发挥了主要作用。法制虽发挥了作用，但还没有成为政府行为和社会行为的主要框架。中华人民共和国传染病防治法虽是在1988年上海甲肝爆发后就制定的，但在“非典”事件发生之前，我国还没有一部专门的突发公共卫生事件方面的法规，直到2003年5月7日国务院才通过了突发公共卫生事件应急条例，这是应急产生的一部行政法规，从酝酿到通过并生效，前后不到1个月，但来得太迟了。该法规在突发公共卫生事件应急方面发挥了重要的作用，但这部出于现实的紧急需要而产生的法规，也有明显的形式缺陷，不仅其合宪性和合法性会受人质疑，而且容易形成不好的立法先例，即遇到危机事态而需要法律时不讲立法根据地应急立法。正是由于政府危机治理缺乏完善的法制保障，才出现这种危机来临时仓促立法以应对的被动局面。而立法的滞后，法律法规的不配套，使得处理危机过程中缺少法律依据。 3、政府应对危机的信息不公开，导致社会的恐慌心理信息化能力是现代政府进行管理和决策时必须具备的一种能力，是对政府现代性、规范性、科学性等方面进行考察的一个重要指标。这次非典危机暴露出政府在危机治理方面缺乏有效的信息支持和信息沟通。由于某些地方政府部门在危机的初始阶段过度垄断信息，以致信息采集、处理和传递的能力不强，没有及时、准确地向外界公布信息，与公众缺乏有效沟通，造成公众的恐慌和猜疑，产生了政府信任危机。一个失信于民的政府，不仅不能动员公众应对各种危机，反而会引发其它社会危机。目前，我国的电子政务建设、政府信息公开状况等还不尽如人意，社会对政府信息的需求与政府的信息供给之间还存在着很大的差距。政府信息化能力整体不高，满足不了应对重大危机事件的需要。在危机发生的时候，正规的信息不公开，导致小道消息泛滥，不仅不能有效的安抚人民群众，还极容易造成人民群众的恐慌心理。例如，2005年11月，吉化爆炸导致松花江水体污染，哈尔滨停水四天但政府并没有向广大市民说明停水的真正原因，引起市民的恐慌，谣传发生地震等小道消息泛滥。4、缺少非政府公共组织对政府处理危机的有效配合与合作公共危机治理是政府的职责，各级政府在危机治理中应当扮演重要的角色。但是，政府也不是万能的，有效的危机治理需要政府、社会公众、企业乃至国际社会等的共同参与。这不仅是市场经济的外在要求，也是政府力量有限性本身的内在需要。在非典危机的应对中，参与主体单一，过分倚重政府，传统的计划经济方式发挥了主要作用。从社会动员到各种资源的提供和组织，政府始终处于绝对主导地位，几乎包揽了一切与危机治理相关的工作。多元主体参与危机治理的机制尚未形成，导致政府治理能力大打折扣，政府治理成本增加。有效避免危机的发生和回应危机，根本上取决于公共治理结构的优化，应当追求一种公私合作、政府与社会力量互动的治理模式，强调公共行政的二元分野，即政府治理公共政策化和事务管理社会化，倡导公民社会同政府合作，共同应对公共危机。 三、我国政府应对公共危机管理的举措探索 所谓“危机”，不但有“危”，还有“机”，即机会、机遇。政府在处理好危机事件之后既不能“忘危”，也要“思机”。借助于自身面临的内部或者是外部的危局，政府应该发现并改进自身的不足之处，使原来不利于政府的事情朝着有利于自身的方向发展，这对更好的构建和谐社会也是有极大的帮助的。 我国政府的公共危机应急管理体系无论从危机意识、应对法规以及信心等多方面的因素都存在着问题，亟需加以解决。要构建适合我国国情的政府公共危机管理的体系，不断适应社会发展的现实要求，应对不同危机给社会生产和生活带来的挑战，就要建立现代公共危机应急管理体系。 首先不断进行理论创新，在理论上澄清公共危机管理的问题，确立新的科学的危机观。1、在现代社会生活中，公共危机不是偶然发生的 危机同人类的历史相伴而生，翻开人类的历史，呈现我们面前的是人与自然和人为等危机斗争的历史。随着人类之间以及人类与自然之间的交往和交流日趋加深，社会生活中不确定性因素日趋增多，社会生活的节奏不断加快，各种公共危机已经越来越频繁的出现在现代社会生活中。这种认识应该成为我们重建公共危机应急管理体系的出发点。在现代社会，危机发生的频率和破坏性都有所增长，可以说公共危机并没有随着人类科技的进步、经济的发展而降低，相反在某种程度上有增加的趋势。 2、现实中的危机不会因为人们的漠视而远离人类 在当今社会，任何社会制度都没有资格声称自己摆脱了危机，危机的发生是不以人的主观意志为转移的。只有在社会环境中不断地认识危机、寻求解决危机的途径才是根本之策。要在制度上建立起公众的信任体系，防止社会公众的恐慌，只有透明的、制度化的危机管理机制以及强大而有效的应急反应能力才能够为社会的安全提供保障，为经济建设保驾护航。 3、危机的意识说到底是一种对于生命的尊重，是一种重要的人文关怀 政府应对公共危机所采取的措施和准备，某种程度上说明了政府的“公共利益”的取向。在新的历史条件下，重新构建诸如生命价值、公民权利、社会安全、经济建设、合法性等重大的价值目标之间的关系，并在应对各种公共危机的过程中谋求这些价值之间的平衡具有重要的现实意义。 其次，现代公共危机应急管理体系的建构要整合于经济、政治体制改革和政府治理模式变革的进程之中。从某种意义来说，现代公共行政可以区分为常态管理和非常态管理两个部分，因此一个负责任的政府要有应对常态危机和非常态危机的意识和能力，应对非常态危机的能力更是一个政府体制是否健全的重要考量指标。然而，构建现代公共危机应急管理体系并不是传统行政管理体制在公共危机管理领域的翻版，更不是从上到下按照条块分割的模式建立一套新的机构体系。重建公共危机应急管理体系必须建立在整个政府管理体制不断变革的基础之上，必须与政府治理模式变革乃至经济、政治体制改革的进程相适应。政府要不断改革自身，寻求面对公共危机的应对之策，这样才能够不断的预知危机、在危机发生之初有效的化解危机。 能否有效的对公共危机做出及时有效地回应不仅关系到社会的和谐发展，更关系到广大人民群众的切身利益。政府的公共危机管理在政府体系的整个运行过程中有着非常重要的意义和价值，尤其是在建设和谐社会的历史背景下。只有具有良好应急能力的政府才能够应对挑战，也只有能有效应对危机的政府才能够真正得到广大人民的拥护和支持。 【参考文献】 1 曹康泰：突发公共卫生事件应急条例释义M.北京：中国法制出版社，2003. 2 载白钢、史为民、陶黎宝、岳经纶：中国公共政策分析年报2004年卷Z.北京：中国社会科学出版社，2004.3 张成福：建完善的公共危机管理体制N.人民日报,2003-06-11. 4 毛飞：危机缓和：一种前瞻性的危机管理行动J.公共行政，2004（2）. 5 王强：公共危机应急反应管理体系：反思与重建J.江海学刊，2004（2）. 6 刘智勇、张志泽：论政府公共危机治理能力的缺失和再造J.公共行政，2005Vision of a harmonious society the governments public crisis management 【Abstract】 social harmony is the essence of socialism with Chinese characteristics and attributes, in our country to build a socialist harmonious society, a problem that can not be ignored is that the public crisis management. To deal with public crisis, the Government should have to bear the responsibility, crisis management should play an active role. This paper analyzes the issue of public crisis, in view of our government in dealing with the public response to the question of the existence of crisis, the urgent need to improve the direction. 【Key Words】 harmonious social crisis crisis management crisis of public emergency response capability Social harmony is the essence of socialism with Chinese characteristics and attributes, is the countrys prosperity, the nations regeneration, an important guarantee for the happiness of the people, building a harmonious socialist society is the mission of our party. That affect social harmony in a number of factors, social problems and an unprecedented crisis, to build a harmonious socialist society has added many challenges. The most basic challenge is the Governments management of public crisis. Authority of the Government, as the management of social institutions, in itself bears the maintenance of social stability and development of an important mission for crisis management is todays society the Government must learn to face an important issue. Crisis management public relations between the majority of the people is not only the interests of the masses, but also about the development of the countrys prosperity, social stability and unity. For the interests of a majority of the people as the starting point of the ruling party and the government serving the people wholeheartedly, is effective in response, processing, settlement of the crisis is not only the public administration concept of the party and the assessment, it is the governments administrative capacity test. With the crisis of modern societys increasing public and public crisis and destructive influence of the characteristics of increased, targeted to launch a public crisis early warning, treatment is of great significance and value. First, the meaning of public crisis management In a sense, crisis and disaster is the human production and part of social life. Natural disasters caused by human activities and all sorts of disasters to society as a whole is often a huge loss, and hurt the public face of the crisis, the strength of a single individual is negligible. So in the face of crisis, can only rely on the collective strength of humanity will be able to effectively respond to and resolve the crisis, that is to say, human can only rely on the strength of organization to effectively fight against and respond to crisis and disaster. Therefore, the crisis of governance, of course, be important in public affairs, as the main manager of public affairs of government must take to deal with the important task of the various crises of governance. Public crisis management is the modern government, one of the important functions, particularly in the economic globalization, the rapid development of science and technology of today, public crises have obvious spillover effects. A country and region if the Government does not effectively inhibit the occurrence of crises, is likely to lead to the expansion of the crisis, the impact of more peoples and nations. Internationally, the public crisis management generally refers to times of crisis, the Government has taken to help citizens and the environment, a series of measures. The connotation of the Government towards the crisis in an emergency incident or disaster, both natural disasters and man-made destruction of the twin factors. The functions of public crisis management usually includes the contents of the five large. First, to enhance the capacity of the national crisis management, the establishment of crisis management policies and strategies, leading the people of the prevention of learning activities to enhance the capacity of anti-crisis. Second is to reduce loss of life and property, to provide complete information and reduce the actual public crisis of devastating and reduce losses, to mobilize all forces to ensure that all the available forces are in place, according to plan to deal with disasters, good risk management decision-making, the development of and implement a comprehensive training and education programs. Third, the suffering and destruction will be reduced to the lowest point: rapid and effective response to disaster in the management of distinct functions, to provide timely and effective assistance to pay the insurance, post-disaster repair to minimize loss. Fourth, the preparation of terrorist activities after the crisis management, to support local governments by the central governing body to establish and strengthen local government capacity to respond to terrorist activities, in a unified information platform to share information. Fifth, the establishment of a national portal to provide information services. Single building to facilitate crisis management information portal, the use of knowledge management services in crisis management information, building the countrys communication and early warning systems. Government to take account of public crisis management crisis in social and public events, the objective laws of development in order to take effective measures, thus, the public is bound to crisis management in order to cycle of the form. Struggle with the crisis, just hope that at some point in the whole task at one stroke is not realistic, mature, public crisis management mode must be a continuous management cycle. Based on the U.S. Federal Emergency Management Agency (FEMA) the success of practical experience, and integrity of public crisis management system is usually to ease crisis (mitigation), crisis preparedness (preparedness), crisis response (response) and the resumption of the crisis (recovery) composed of four parts . Second, Chinas government public crisis management analysis of the problems Our governments crisis management in public, generally speaking, the concept of backward and complex changes in todays society not meet the objective reality, not be able to respond effectively to the strategy, the success of prevention and defuse the crisis. Atypical pneumonia, as well as the emergence of the role of its destruction to illustrate this point clear. Atypical pneumonia to the Chinese Government on an important lesson, the Government is aware that in dealing with such as atypical pneumonia This sudden public crisis, the course of events of the lack of government capacity, there is no comprehensive plan, there is no effective measures and so on. These reflect the crisis in dealing with public problems in the process, specifically in the following aspects. 1, the very public crisis led to state the capacity of the Governments lack of predictable The very state of public crisis is a result of a reduced ability to foresee an important reason. Public crisis of modern society as a result of unexpected events, abnormal, and decided to deal with the crisis and control of no precedent to follow, the Governments handling of and response capacity of public crisis has put forward higher requirements, can not be carried out step by step, the need for have a stronger ability to adapt. Originating in the crisis period, ability to control the spread of the crisis plays an important role. However, due to our government and society, a weak sense of crisis, the lack of fully integrated system of crisis management and crisis response coordination mechanisms. Therefore, in the atypical pneumonia early crisis, there has been poor communication of the crisis are not allowed to judge the trend of development, system security, resources and support can not keep up, coordination mechanisms, such as a range of issues, missed the atypical pneumonia rapid and effective response to the crisis of the best period, resulting in the serious consequences of their expansion, revealing a public crisis of governance apparent lack of ability. 2, the Governments policies and regulations are incomplete, resulting in a lack of crisis management during the legal basis for Government policies and regulations, such as lack of legal protection of the capacity of public health events in this process is also reflected, the Order still played a major role. Although the rule of law played a role, but has not yet become the governments actions and the main framework for social behavior. Peoples Republic of Communicable Disease Prevention Act is in Shanghai in 1988 after the outbreak of the development of hepatitis A, but in the atypical pneumonia before the incident, China has not a specific area of public health emergencies and regulations, until May 7, 2003 before the State Council passed the Emergency Regulations on public health emergencies, which is generated by an emergency administrative rules and regulations, from brewing to the adoption and entry into force, before and after less than a month, but too late. The laws and regulations in regard to public health emergencies has played an important role, but the reality of this for the emergency needs of the laws and regulations, there are obvious defects in the form of not only the constitutionality and legitimacy will be questioned, and easy to form a bad precedent for the legislation, namely the situation of crisis and in need of legal bases, when emergency legislation is not legislation. Crisis of governance that the Governments lack of proper legal protection, before this crisis came a hasty legislation in response to the passive situation. And the delayed legislation, laws and regulations are incomplete, making the process of dealing with the crisis was no legal basis. 3, the Government response to the crisis of information open, leading to social panic Information capacity of the Government of modern management and decision-making must have a capability of the government of modern, standardized and scientific aspects of study such as an important indicator. The SARS crisis exposed the Governments lack of effective crisis management information support and information communication. As some local government departments in the initial stage of the crisis over the monopoly of information, resulting in information collection, processing and transmission capacity is not strong, there is no timely and accurate disclosure of information to the outside world, the lack of effective communication with the public, causing public panic and suspicion created a crisis of confidence in the Government. A government promises to the people, not only can not mobilize the public to cope with various crises, but will lead to other social crisis. At present, Chinas e-government building, government information, such as the public is not entirely satisfactory situation, and social needs of government information and government information exists between the supply of a large gap. The overall capacity of government information is not high, can not cope with a major crisis to meet the needs of the incident. In times of crisis, the formal private information, resulting in the spread of gossip, not only can not be effective to appease the masses, but also very easily lead to panic the masses. For example, in November 2005, Kyrgyzstan led to the explosion of the Songhua River water pollution in Harbin for four days without water but it does not explain to the general public the real cause of water, causing a public panic, an earthquake, such as rumors spread of gossip4, lack of ngos for the governments handling of the crisis effective cooperation and cooperationPublic crisis management is the duty of the government, the government at all levels in the crisis management should play an important role. However, the government also is not everything, effective crisis management needs the government, the social public, business and even the international community participation, etc. This is not only the market economy of the external demand, is also the government power limitation the intrinsic need for itself. In the SARS crisis response, participate in the subject in a single, relies excessively on the government, the traditional planned economy way play an important role. From the social mobilization of resources to provide and organization, the government is always in a dominant position, almost scored the all the work related to the management and crisis. Multiple main body participation mechanism of crisis management has not been formed, lead to government man