善治视角下的我国农村突发公共卫生事件应急机制研究

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浙江财经学院硕士学位论文

摘要

伴随着改革开放的深入与全面建设小康社会的号角，新农村建设与城镇化正

如火如荼地在我国广大农村地区迅速开展，在取得一些列重大成就的同时，我国

社会也正走向突发事件多发阶段，特别是自 2003 年以来，突发公共卫生事件频繁

暴发，引起政府与学界的高度关注。通过分析,我们了解到目前政府与学界对突发

公共卫生事件的关注主要定位在城市突发公共卫生事件的预警与应急管理，将城

市与农村以同样的视角进行研究，并没有做出严格的区分。然而我国的实际情况

是农村与城市在危机预警与应对方面还存在诸多差异。本文主要研究的是有关农

村突发公共卫生事件应急机制建设。所谓农村突发公共卫生事件是指在广大农村

地区突然发生，造成或者可能造成农村社会公众（主要是农民群众）健康严重损

害的重大传染病疫情（包含人牲或人与植物交叉感染的传染病疫情）、群体性不明

原因疾病、重大食物或者饮水和职业中毒以及其他严重影响公众健康的事件。农

村突发公共卫生事件具有不同于一般意义上的突发公共卫生事件的特性，需要我

们进行创造性的具体分析。完善农村突发公共卫生事件应急机制，有助于我们拓

展现有研究的范围，促进城市与农村的平衡发展，完善政府职能，提升政府的形

象。

由于农村突发公共卫生事件的独特特性，需要我们打破传统思维定势，摆脱

传统的应急管理理论、系统理论、公共管理理论的约束，运用新的规范性理论来

指导农村突发公共卫生事件应急机制建设，指出存在的问题，提出新的对策。政

府治理与村民自治的未来目标都是善治，因此运用善治理论对农村突发公共卫生

事件应急机制建设现状进行分析，将有利于我们更好地发现问题，少走弯路，实

现和谐社会治理。笔者在研究过程中，紧紧围绕善治的七个要素，即法治性、协

作性、服务性、有效性、透明性、民众制约性和责任性，大量搜集资料，以某县

为例并结合典型案例，对我国农村突发公共卫生事件应急机制的建设现状进行分

析，发现问题及探究问题背后的深层原因。通过分析，笔者认为我国农村突发公

共卫生事件应急机制在应急法治、社会参与机制、应急机制建设的透明性、应急

责任追究机制等方面存在着诸多的缺陷。导致这些问题存在的原因也是多方面的，

既是因为农村思想观念存在严重偏差与物质基础薄弱，又有基层应急管理组织系

统涣散与应急管理教育滞后的原因等。

西方发达国家在突发公共卫生事件应急机制建设中已经形成了一套完整的理

论和积累了丰富的实践经验，对发达国家的应急机制建设经验作一个综述显得十

分必要。洋为中用，借鉴西方的先进应急机制建设经验，结合我国的实际，以实

浙江财经学院硕士学位论文

现善治为目标，提出几点针对性的建议，如：以法治为导向，健全农村公共卫生

应急法律保障机制；以协作性为理念，完善农村公共卫生应急的社会参与机制；

倡导服务精神，培育农村公共卫生应急主体的服务意识；以有效性为根本，完善

农村公共卫生应急处理与救援机制；以透明为基准，完善农村公共卫生应急信息

披露机制；强化民众制约性，完善农村公共卫生应急的社会监督机制；以责任为

驱动力，加强农村公共卫生应急责任追究机制建设。

关键词：公共卫生；农村突发公共卫生事件；应急机制；政府；善治

浙江财经学院硕士学位论文

III

ABSTRACT

With the deepening of reform and the horn of building a well-off society in an

all-round way, the new rural development and urbanization in China are underway in

the vast rural areas. Making some significant achievements, our society is heading for

emergencies multiple stage, especially since 2003, frequent outbreaks of public health

emergencies causing great concerns in government and academia.Through analysis, we

know that the current government and academia on the concerns of public health

emergencies mainly locate in public health emergencies, and urban and rural areas will

be at the same angle, not making a strict distinction. However,the actual situation of

China's rural and urban in crisis early warning and responses still exists many

differences. This paper mainly studies the emergency mechanism of rural public health

emergencies. The so-called rural public health emergencies refers to major

epidemic(human sacrifice or human cross-infection with epidemic diseases of plants),

group of unknown causes diseases, major food or drink and occupational poisoning and

other serious events that affect public health, which suddenly break out in the vast rural

areas, causing or may causing the public in rural areas (mainly peasants) serious harm to

the health. With rural public health emergencies different from the general sense of the

characteristics of public health emergencies, we need to be creative specific analysis. To

improve the emergency mechanism of rural public health emergencies is to help us to

expand the scope of existing research, to promote balanced urban and rural development,

to improve government functions, and government's image.

With rural public health emergencies unique characteristics, we need to break the

traditional mindset, away from the constraints of traditional emergency management

theory, systems theory and public management theory, instand to use the new theory to

analyse the current construction situation and possible problems about emergency

mechanism of rural public health emergencies, proposing new measures.Governance

Autonomy and Village Autonomy are good governance. Therefore the use of good

governance theory of rural public health emergency response mechanism to analyze the

situation building will help us to better identify problems and detours, to achieve a

harmonious society governance. In the process of research, closely around the seven

elements of good governance, namely the rule of law, collaboration, service,

浙江财经学院硕士学位论文

effectiveness, transparency, restriction of the people and accountability, the author

collects a large number of data,combined with a county as an example and typical cases,

analyses the current situation of rural public health emergencies emergency mechanism,

identify problems and explore the underlying causes behind the problem.. Through the

analysis, the author believe that our country's rural public health emergencies response

mechanism in emergency rule of law, social participation mechanism, transparency of

the construction of the emergency mechanism, emergency management accountability

mechanisms are defects.To these problems, the reasons are various, both for rural

ideology is serious deviation and material foundation is weak, and for emergency

management system lax and emergency management education lags.

In my considering,the western developed countries, in the public health

emergencies, have been a complete set of theoretical support and has accumulated rich

experience, the emergency mechanism in the developed countries for a review is

necessary. With reference to the advanced experience of western emergency

management, combined with chines reality, in order to achieve the goal of good

governance,I put forward several proposals, such as: objectives of the rule of law,

perfecting the legal protection system of rural public health emergency mechanism; to

be collaboration as a idea,improving social participation mechanism of the rural public

health emergency; to advocate service spirit,cultivating the subject of rural public health

emergency with public service consciousness;with the effectiveness-oriented, improving

the effective mechanisms of emergency and rescue of rural public health emergency;to

be a transparent as a basis, improving the rural public emergency information disclosure

mechanisms;with responsibility for reading, improving the social supervision

mechanism of rural public health emergency ; take responsibility as the driving force ,to

strengthen the accountability mechanisms of rural public health emergency.

Keywords: public health;rural public health emergencies ;emergency mechanism;

government;good governance.

浙江财经学院硕士学位论文

第一章绪论 ..........................................................1

第一节选题背景及研究意义 .........................................1

第二节核心概念和理论阐释 .........................................3

第三节本领域国内外研究现状的评述 ................................12

第四节研究方法、思路及创新点 ....................................19

第二章我国农村突发公共卫生事件应急机制的现状 .......................22

第一节农村公共卫生应急法制建设 ..................................22

第二节农村公共卫生应急预警、救援与恢复重建机制建设 ..............24

第三节农村公共卫生应急中的社会参与、责任追究及后勤保障机制建设 ..28

第三章我国农村突发公共卫生事件应急机制的问题及原因分析 .............31

第一节农村公共卫生应急法律保障机制不完善 ........................31

第二节非政府部门及人员在农村公共卫生应急中的协作参与度低 ........32

第三节农村公共卫生应急主体公共服务意识较弱 ......................34

第四节农村公共卫生应急机制建设的有效性不强 ......................35

第五节农村公共卫生应急预警、救援及恢复重建工作透明度低 ..........39

第六节缺乏民众制约性、农村公共卫生应急中的社会监督机制失效 ......40

第七节农村公共卫生应急责任追究机制不完善 ........................42

第四章西方国家突发公共卫生事件应急机制建设的经验 ...................44

第一节注重公共卫生应急法律保障机制建设 ..........................44

第二节强化公共卫生应急监测预警机制建设 ..........................45

第三节良好的公共卫生应急组织管理体系 ............................47

第四节完备的公共卫生应急后勤保障系统 ............................49

第五节精良的公共卫生应急管理教育 ................................50

第五章完善我国农村突发公共卫生事件应急机制的对策 ...................53

第一节以法治为导向，健全农村公共卫生应急法律保障机制 ............53

第二节以协作性为理念，完善农村公共卫生应急的社会参与机制 ........54

第三节倡导服务精神，培育农村公共卫生应急主体的服务意识 ..........56

第四节以有效性为根本，完善农村公共卫生应急处理与救援机制 ........57

第五节以透明为基准，完善农村公共卫生应急信息披露机制 ............62

第六节强化民众制约性，完善农村公共卫生应急的社会监督机制 ........63

第七节以责任为驱动力，加强农村公共卫生应急责任追究机制建设 ......65

结语 ...............................................................67

参考文献 ............................................................68

附录 ...............................................................71

结语 ...............................................................72

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摘要：

浙江财经学院硕士学位论文I摘要伴随着改革开放的深入与全面建设小康社会的号角，新农村建设与城镇化正如火如荼地在我国广大农村地区迅速开展，在取得一些列重大成就的同时，我国社会也正走向突发事件多发阶段，特别是自2003年以来，突发公共卫生事件频繁暴发，引起政府与学界的高度关注。通过分析,我们了解到目前政府与学界对突发公共卫生事件的关注主要定位在城市突发公共卫生事件的预警与应急管理，将城市与农村以同样的视角进行研究，并没有做出严格的区分。然而我国的实际情况是农村与城市在危机预警与应对方面还存在诸多差异。本文主要研究的是有关农村突发公共卫生事件应急机制建设。所谓农村突发公共卫生事件是指在广大农村地区突然...

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