State Council Opinions concerning Completely Strengthening Emergency Response Management Work

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GF No. (2006)24

All provincial, autonomous region and municipal People’s Governments, all State Council Ministries and Commissions, all directly subordinate organs:

Strengthening emergency response management, is a large matter relating to the overall picture national economic and social development, and the security of people’s lives and property, it is an important content in completely implementing the scientific development view, building Socialism and a harmonious society, and is an important reflection of all levels of government persisting in taking people at the core, governing for the people and completely implementing government functions. At present, our country’s modernization construction enters a new phase, reform and development is at a key juncture, increasingly many factors influence public security, all sorts of sudden public incidents happen from time to time. But, our country’s emergency response management work is basically still relatively weak, structures, mechanisms and the legal system are not yet perfect, prevention and management capacity of sudden public events remain to be raised. In order to deeply implement the “National Sudden Public Incident  General Emergency Response Preparation Plan” (hereafter simply named “National General Emergency Response Management Plan”), completely strengthen emergency response management work, the following opinions are put forward:

I, Clarifying guiding ideology and work objectives

(1) Guiding ideology. With Deng Xiaoping Theory and the important “Three Represents” thoughts as guidance, completely implement the scientific development view, persist in taking people at the core, giving first place to prevention, fully rely on the legal system, science, technology and the popular masses, take guaranteeing the security of the masses’ lives and property as the root, take implementing and perfecting the emergency response preparation plan as basis, take raising capacity to prevent and deal with sudden public incidents as the focus point, completely strengthen emergency response management work, reduce as much as possible sudden public incidents and resulting personal casualties and harm, safeguard national security and social stability, stimulate comprehensive, coordinated and sustainable development in economy and society.

(2) Work objectives. During the “11th Five-Year Plan” period, establish an emergency response advance planning structure covering all localities, all sectors and all work units; complete an emergency response management structure with categorized management, hierarchical responsibilities, horizontal and vertical integration and with localized management at the core, implement administrative leadership responsibility systems under the leadership of Party Committee, strengthen emergency response management organ and emergency response rescue team construction; build emergency response management mechanisms with uniform command, acute response, ordered coordination and high-efficiency operations; perfect emergency response management laws and regulations, construct sudden public incident forecast and information systems and emergency response management guarantee systems integrating specialization with socialization, shape emergency response management work structures with government in the lead, departmental coordination, integrating the army and localities, and joint participation from the entire society.

II, Strengthen emergency response management plan and system construction

(3) Formulating and implementing sudden public incident emergency response system construction plans. On the basis of the “11th Five-Year Plan for National Economic and Social Development” (hereafter simply named Five-Year Plan”), formulate, organize and implement the “National Sudden Public Incident Emergency Response System Construction Plan for the ’11th Five-Year’ Period” as soon as possible, optimize and integrate all sorts of resources, uniformly plan for programmes and infrastructure for sudden public incident prevention and advance warning, emergency response handling, recovery and rebuilding, and other areas, scientifically guide all emergency response system construction matters. All localities and all departments must, under the leadership of the National Sudden Public Incident Emergency Response System Construction Plan for the ’11th Five-Year’ Period”, work out sudden public incident emergency response system construction plans for their localities and their sectors, and bring them into economic and social development plans. Formulation of town and country construction and other relevant special planning must link up with emergency response system construction, focus construction plans must be reasonably deployed, comprehensively plan construction of infrastructure necessary to deal with sudden public incidents.

(4) Completing emergency response management laws and regulations. It is necessary to strengthen emergency response management legal system construction, progressively shape and standardize a legal structure for sudden public incident prevention and handling work. Grasp the completion of the legislative preparatory work and implementation work after promulgation of counter-laws for sudden public incidents, research and formulate complementary laws, regulations and policy measures. All State Council ministries and commissions must, on the basis of the requirements of preventing and handling natural disasters, accidents, calamities, public health incidents, social security incidents an all other kinds of sudden public incidents, grasp the completion of drafting work of relevant legal or regulatory drafts and revision drafts, as well as the revision work of relevant rules and standards. All localities must, on the basis of relevant laws and administrative regulations, integrate reality in formulating and perfecting localized emergency response management regulations and rules.

(5) Strengthen emergency response preparation structure construction and management. All localities and all departments must, on the basis of the National Plan, grasp the organization and revision of all sorts of preparatory plans in their regions, sectors and areas, and strengthen leadership, supervision and inspection of advance planning organization work. All grass-roots work units must, on the basis of their real situation, formulate and perfect preparatory plans for themselves, and clarify all kinds of prevention measures and handling procedures for sudden public incidents. Build a preparatory plan structure covering all localities, all sectors and all work units as soon as possible, and do all levels’ and all categories’ corresponding linkage work well. It is necessary to strengthen management over planning management, and to incessantly strengthen the focus and effectiveness of plans. Ruthlessly grasp plan implementation work, regularly launch plan exercises, especially where plans involve many regions and departments, It is necessary to stimulate all work units to cooperate, coordinate and implement their duties through methods such as launching joint exercises, etc.

(6) Strengthening emergency response management system and mechanism construction. The State Council is the highest leading administration organ for emergency response management work nationwide, all relevant State Council ministries and commissions are responsible for emergency response management work of corresponding categories of sudden public incidents on the basis of relevant laws and administrative regulations, and the responsibilities of each. All levels’ of local People’s governments are the administrative leading organs for emergency response management work in their administrative regions, and must, on the basis of the requirements of the National Plan and the needs of dealing with all sorts of sudden public incidents, and integrating reality, clarify the commanding organs, working bodies and their responsibilities in relation to emergency response management. All special emergency response command organs must further strengthen their duties, and fully give rein to their function in areas related to responding to sudden public incidents. Strengthen coordination and communication between all localities, all departments as well as all levels and kinds of emergency response management organs, vigorously move resource integration and information sharing forward. Accelerate the construction of advance warning, information reporting, emergency response handling, reconstruction, investigation, appraisal and other mechanisms concerning sudden public incidents. Research the establishment of insurance mechanisms, social donations and other methods to participate in, and support emergency response management work, fully give rein to their function in areas such as sudden public incident prevention, handling, etc.

III, Doing all sorts of sudden public incident guard work well

(7) Launching investigation, inspection and control over all sort of sudden public incident risks and hidden dangers. All localities and all relevant department must organize forces to earnestly  launch risk and hidden danger investigation work, completely grasp all sorts of risks and hidden dangers within their administrative areas, sectors and spheres, establish hierarchical and categorized management systems, implement comprehensive look-out and handling measures, implement dynamic management and supervision, strengthen coordination and cooperation between regions and departments. It is necessary to organize forces to deal with risks and hidden dangers that may trigger sudden public incidents within a limited time, and especially where high-risk enterprises within cities and densely populated areas are concerned,  where these do not conform to the requirement of safety arrangements and safety distances are not met, measures such as cessation of production, cessation of business, relocation, etc. must be adopted according to the law, and the hidden dangers eliminated as soon as possible. It is necessary to strengthen investigation and mediation of factors influencing social stability, and earnestly do advance warning reporting and rapid handling work well. Communities, villages, enterprises, schools and other grass-roots work units must regularly launch inspection of risks and hidden dangers, and timely resolve existing problems.

(8) Stimulating all sectors and all spheres to implement security protection measures. All local People’s Governments and relevant departments must further strengthen supervision and inspection over safety management in all work units, and all places in their administrative areas, strictly guard against all sorts of safety accidents; It is necessary to strengthen supervision, management and control team construction, provide the necessary personnel, and complete supervision and management methods. All relevant departments must  strengthen supervision and inspection over safety in systems, sectors and spheres, according to relevant laws and regulations, and the division of responsibilities, strictly implement all security licensing systems, regularly launch supervision and inspection, expand punishment strength according to the law; It is necessary to raise supervision and management efficiency, further clarify supervision and management responsibilities over sectors and spheres where many accidents occur, and implement joint law enforcement. Higher-level controlling departments and relevant supervision organs must make supervision of the risk and hidden danger  rectification situation into an important content to measure whether or not supervision organs have satisfactorily implemented their duties, expand supervision, inspection and appraisal strength. All enterprise and undertaking work units must realistically implement their primary safety management responsibilities, establish and complete safety management regulatory systems, expand safety input, and completely implement safety protection measures.

(9) Strengthening sudden public incident information reporting and early warning work. After especially major or major sudden public incidents occur, the provincial-level People’s Government of the location where the incident occurred and the relevant State Council department must timely and correctly report matters to the State Council according to regulations, and communicate with the relevant localities, departments and emergency response management organs. It is necessary to further establish and complete information reporting work systems, clarify information reporting responsibility bodies, and the responsibility for late reporting, incomplete reporting or even false reporting or mendacious reporting must be prosecuted according to the law. At the same time as strengthening information reporting work in all levels’ People’s Governments and relevant departments, incessantly expand information reporting channels through establishing social public reporting or informing reward systems, establishing grass-roots information personnel and other methods. Establish all sorts of sudden public incident early warning systems organized and coordinated by all level’s People’s Governments, and division of work and responsibilities of relevant departments, establish early warning information reporting and dissemination systems, fully utilize radio, television, the Internet, mobile short messages, telephone, propaganda vehicles and all other sorts of media and methods, to timely disseminate early warning information.

(10) Vigorously launching emergency response management training. All localities and all relevant departments must formulate emergency response management training plans and training schemes, clarify training content, standards and methods, fully utilize many kinds of methods and means, do emergency response management training work well, and strengthen training qualification management. Vigorously launch training for all levels’ leading cadres in localities and departments on emergency response guidance hand handling capacity, and bring it into training content for all levels’ Party schools and administrative academies. Strengthen training for all work units’ employees on training knowledge and operation processes, departments that are responsible for security supervision and management must strengthen training and assessment, work units not launching safety training according to requirements must be ordered to rectify within a limited time, management personnel and workers not meeting assessment requirements are not allowed to take up position without exception. All levels’ emergency response management organs must strengthen organization and guidance over emergency response management training work.

IV, Strengthen construction of capacity to deal with sudden public incidents

(11) Moving the construction of state emergency response platforms and systems forward. It is necessary to comprehensively plan and construct a State emergency response platform having functions such as monitoring and supervision, forecast and early warning, information reporting, assistance to policymaking, dispatching and command, and general assessment. Accelerate the construction of the State emergency response platform, perfect the function of corresponding specialist emergency response platforms, move the construction of comprehensive emergency response platforms of local People’s Governments forward, shape uniform and high-efficiency emergency response platforms and systems linking up all localities and all specialist emergency response command organs. Ext platform construction must integrate reality, rely on government systems to handle professional resource networks, standardize technological standards and fully integrate and use existing specialized system resources, realize interaction, communication and information sharing, avoid duplicate construction. Vigorously move urgent information reporting receipt platform integration forward, establish uniform work mechanisms to receive reports, and handle them in a hierarchical and categorized manner.

(12) Raise grass-roots emergency response management capacity. It is necessary to completely strengthen emergency response management work with communities, villages, schools, enterprises and other grass-roots work unit as focus points. Fully give rein to the function of grass-roots organization in emergency response management, further clarify the duties of administrative responsible persons, legal representatives, community or village-level organizations’ responsible persons in emergency response management, determine full (part) time work personnel or organs, strengthen grass-roots emergency response input, integrate reality to formulate all sorts of emergency response planning, strengthen capacities concerning primary prevention and handling of all sorts of sudden public incidents. Communities must target sudden public incidents that may occur in the life of the masses, formulate emergency response plans with a strong operational nature, regularly launch emergency response knowledge propaganda, achieving that this becomes a household word; villages must integrate the construction of a new Socialist countryside, and suiting measures to local conditions, must strengthen emergency response infrastructure construction, strive to raise masses’ self-help and mutual help capacity, and fully give rein to the radiating function of cities and towns’ emergency response and rescue forces; schools must, at the same time as strengthening campus safety work, vigorously launch education and dissemination of public security knowledge and emergency response prevention knowledge, strengthen the safety consciousness of teachers, students and the public; enterprises, and especially high-risk sector enterprises must realistically implement the legal representative responsibility system and safe production subject responsibilities, achieving that there are plans, there are rescue teams, there are  joint operating mechanisms and there are aftermath arrangements. All local level People’s Governments and relevant departments must strengthen guidance over and inspection of grass-roots emergency response management work, timely coordinate and resolve issues in areas such as human resources, materiel, finance, etc., and stimulate the complete rise of grass-roots emergency response management capacity.

(13) Strengthen emergency response and rescue team construction. Implement the focus projects of the Five-Year Plan concerning safe production, emergency response and rescue, national disaster emergency response and rescue system construction. Establish and fully give rein to the backbone function of public security, fire services, special police as well as the Armed Police, the Liberation Army and the reserve militia, all specialist emergency response and rescue teams all have their responsibility, and must mutually supplement each other, enterprise specialist rescue teams and social volunteers jointly participate in emergency response and rescue systems. Strengthen the construction of all sorts of quick-response emergency response and rescue teams, improve technological equipment, strengthen training and exercise, raise emergency response and rescue capacity. Establish emergency response and rescue expert teams, fully give rein to the specialities and technological superiority of experts. Progressively establish socialized emergency response and rescue mechanisms, large and mid-size enterprises and especially enterprises in high-risk sectors must establish specialized or part-time emergency response and rescue teams, and vigorously participate in social emergency response and rescue; research and formulate methods to mobilize and encourage volunteers to participate in emergency response and rescue, strengthen  recruitment, organization and training of volunteer teams.

(14) Strengthening management of all sorts of emergency response resources. Establish State, local and grass-roots work unit emergency response resource reserve systems, on the basis of all sorts of existing emergency response resource surveys and effective integration, comprehensively plan materials such as goods, equipment, communications tools, daily use articles, etc., needed in emergency response handling and emergency refuge venues, as well as transportation capacity, communications capacity, production capacity and relevant technological and information storage. Strengthen dynamic management over storage of materials, guarantee their timely replenishment and renewal. It is necessary to establish  national and local important material supervision networks and emergency response material production, storage, allocation and emergency response distribution structures , guaranteeing the needs of emergency response disposition, recovery and rebuilding work. Rationally plan and construct important State emergency response material warehouses, according to the principle of hierarchical responsibility, strengthen local emergency response warehouse construction. Fully give rein to the function of all areas of society in the production and storage of emergency response material, realize the organic integration of social storage and specialist storage. Strengthen basic emergency response management database construction, collection of and management over relevant technological data, historical data, etc., realize resource sharing, provide reliable basic data to appropriately respond to all sorts of sudden public incidents.

(15) Wholeheartedly doing emergency response disposition and aftermath work well. After sudden public incidents occur, the work unit where it happened and the work units directly affected by its influence must immediately adopt effective measures according to plan, speedily launch early management work and timely report it according to regulations. All local levels’ People’s Governments and relevant State Council departments must, according to advance plans, timely adopt corresponding emergency response measures. According to the principle of putting localized management first, the People’s Government of the locality of the incident is responsible to uniformly organize and lead emergency response handling work, and must vigorously muster relevant rescue teams and forces to launch rescue work, adopt necessary measures, prevent occurrence, re-occurrence and derivative occurrence of disasters and incidents, and take care of the basic life guarantees of the affected masses and appraisal work of the scene of the incident. After emergency response handling is concluded, it is necessary to timely organize the affected region to resume regular production, life and social order. Post-disaster recovery and rebuilding must be integrated with disaster prevention and reduction, persist in uniform leadership, scientific planning and accelerating implementation. Complete social donation, mutual assistance and other social mobilization mechanisms, mobilize social forces to participate in major disaster emergency response and rescue, and post-disaster recovery and rebuilding. All levels’ People’s Governments and relevant departments must timely launch accident investigation and prosecution work according to relevant laws and regulations, ascertain causes, and punish responsible persons according to the law and according to discipline, summarize lessons from accidents, formulate rectification measures and supervise their implementation.

(16) Strengthen appraisal and statistical analysis work. Establish and complete sudden public incident appraisal systems, research and formulate objective and scientific appraisal plans. All levels’ People’s Governments and relevant departments must, at the same time as investigating dealing with all sorts of sudden public incidents, conduct appraisal of the incident processing and corresponding prevention work, and conduct a complete appraisal of the annual emergency response management work situation. All localities and all relevant departments must strengthen emergency response management statistics analysis work, perfect categorized and hierarchical standards, clarify responsibilities of departments and personnel, timely, completely and correctly count the number of occurrences of all sorts of sudden public incidents, casualty numbers, economic damaged caused and other relevant matters, and bring this into economic and social development statistical indicator structures. A monthly, quarterly and annual report system is implemented for sudden public incident statistical information. It is necessary to research the establishment of post-sudden public incident statistical system rapid response mechanisms, timely survey and grasp the influence of sudden public incidents on national economic development and the life of urban and rural residents, and forecast development trends.

V, Formulating and perfecting complete policy measures to strengthen emergency response management

(17) Expand financial input strength into emergency response management. According to the provisions of the “National General Emergency Response Plan”, all levels’ financial departments must, according to the existing principle of dividing duties and responsibilities, and financial powers, bear hierarchical responsibility for government-borne expenses for public security work as well as prevention and handling of sudden public incidents, bring this into the financial budget calculations for that level, and complete emergency response appropriation systems. Give focus support to major construction programmes within the planned distribution. Support local emergency response management work, establish and perfect financial earmark transfer payment systems. Establish and complete emergency response guarantee funding input mechanisms uniting national, local, enterprise and society, suitable to the requirements to safeguard funding for construction and renewal of emergency response teams, equipment, communication, transportation, spare material and other aspects. Establish long-term input mechanisms for enterprise safe production mechanisms, strengthen high-risk sector safety guarantees and emergency response and relief capacity. Research the establishment of lawful requisitioning and compensation mechanisms for resources of society concerning meeting sudden public incidents.

(18) Forcefully developing public security technology and products. During moving industrial restructuring forward, it is necessary to list public security craft, technology and products with a relatively high technology content into the encouraged category of development programmes in the “National Industrial Structural Adjustment Guidance Catalogue”, and vigorously grant policy support. The government is to provide direct investment or investment subsidies, credit discount and other support to major public security or emergency response programmes and technological development or industrialization demonstration programmes. Adopt government procurement and other methods to promote the research, development and production of State public security and emergency response equipment sets and prevention appliances. Strengthen quality supervision and management of public security products, implement strict market access systems, guarantee product quality, safety and reliability.

(19) Establishing public security science and technology support systems. According to the requirements of the “State Middle and Long-Term Science and Technology Development Plan”, give high regard to using scientific and technological means to raise the capacity to deal with sudden public incidents, through State science and technology plans and scientific funding, etc., give support to sudden public incident response and management basic theoretical, applied and key technological research, and strengthen public security and emergency response management course and specialization construction in universities, colleges and research institutes, forcefully foster public security science and technology talents. Persist in integrating indigenous innovation and importing, digesting and absorbing, shaping public security science and technology innovation mechanisms and emergency response management technology support systems. Support a batch of focus enterprises in the public security sphere that have indigenous intellectual property rights and core technologies, realize a complete set of core technologies and breakthroughs in major equipment, strengthen security technology guarantee capacity.

VI, Strengthening leadership, coordination and cooperation, striving to shape joint forces with participation from the entire people

(20) Further strengthening leadership over emergency response management work. All local levels’ Peoples Governments must, under the leadership of the Party, establish and perfect sudden public incident emergency response processing work responsibility systems, and bring the implementation situation into the content of the cadre career achievement assessment, especially, the implementation of leading cadre responsibility in the two levels of city (district) and county (region) must be grasped. All localities and all departments must strengthen communication and coordination, smoothen relationships, clarify duties and responsibilities, and link up and coordinate the horizontal and the vertical. Establish and complete inter-departmental joint conference systems to deal with sudden public incidents, strengthen coordination and cooperation between departments, regularly research and resolve relevant problems. All levels’ leading cadres must incessantly strengthen their capacity to deal with sudden public incidents, deepen the lines and strengthen organizational leadership. It is necessary to establish and implement responsibility investigation systems, and where neglect of duty, dereliction of duty, misconduct or malpractice occur, responsibility must be investigated according to laws and regulations.

(21) Building emergency response management work structures with joint participation from the whole society. To completely strengthen emergency response management work, it is necessary to closely rely on the masses, integrate the military regions, and mobilize the forces from all sides of society to vigorously participate. It is necessary to realistically give rein to the functions of labour unions, the Communist Youth League, the Women’s Federation and other people’s organizations in mobilizing the masses, propaganda and education, social supervision and other aspects, give high regard to fostering and developing social emergency response management intermediary organizations. Encourage citizens, legal persons and other social organizations to provide financial and material donations and technological support to meet with sudden public incidents. Vigorously launch grass-roots public security foundation activities, establish a batch of advanced emergency response management work models, award and commend work units and individuals having made great achievements, shape a picture with common participation from society, to make concerted efforts in performing emergency response management work.

(22) Vigorously propagating and disseminating public security and emergency response prevention knowledge. Strengthen emergency response management science popularization, propaganda and education work, raise the knowledge of the social masses to safeguard public security and its capacity to meet with sudden public incidents. Deeply propagate all sorts of emergency response preparation plants, completely disseminate prevention, risk avoidance, self-help, mutual-help, disaster relief and other knowledge and skills, progressively roll out emergency response recognition systems. As soon as possible bring public security and emergency response and prevention knowledge into school education content, compile education guidance outlines on public security education in secondary and primary schools and public security education textbooks adapted to the needs of all levels and all sort of education in the full-time system, arrange for corresponding courses or classes. It is necessary to progressively increase public security content in entry examinations and qualification assessment exams. Fully utilize all sorts of modern dissemination methods to expand emergency response management science popularization, propaganda and education work coverage. News media shall, without compensation, launch public interest propaganda on sudden public incident prevention and handling, self-help and mutual help knowledge, and support all walks of society to give rein to an emergency response management dissemination and propaganda function.

(23) Doing information distribution and public opinion guidance work well. It is necessary to give high regard to information distribution, public opinion guidance and public emotion analysis work, strengthen verification, inspection and management of corresponding information, create good public opinion environments in order to vigorously and appropriately deal with sudden public incidents. Persist in the principles of timeliness, correctness and active guidance, and the principle of giving first place to positive propaganda, perfect government information distribution systems and news spokesperson systems, establish and complete major sudden public incident news report rapid response systems, public opinion collection and analysis mechanisms, and grasp the correct public opinion orientation. Strengthen organizational coordination and specialized management over information distribution and news reporting work, carefully arrange and meticulously organize information dissemination structures, fully give rein to the public opinion guidance function of Central and provincial-level main news media. News work units must strictly abide by relevant State laws and regulations and news and propaganda discipline, incessantly raise news reporting levels, and consciously safeguard the larger picture of reform, development and stability.

(24) Launching international exchange and cooperation. Strengthen cooperation and communication between relevant national, local and international organizations in the emergency response area, participate in relevant international organizations and vigorously give rein to their functions, jointly meet with all sorts of transnational and global sudden public incidents. Forcefully propagate policy measures and successful measures of our country in meeting sudden public incidents and strengthening emergency response management, vigorously participate in international emergency response and rescue activities, display our good image to international society. Closely follow and research international emergency response management development trends and tendencies, participate in major international programme research and cooperation in the area of public security, study and learn from the beneficial experience of relevant countries in disaster prevention, urgent handling and emergency response system construction, etc., stimulate the rise of our country’s emergency response management work levels

State Council

15 June 2006

国务院关于全面加强应急管理工作的意见
国发〔2006〕24号
各省、自治区、直辖市人民政府,国务院各部委、各直属机构:
加强应急管理,是关系国家经济社会发展全局和人民群众生命财产安全的大事,是全面落实科学发展观、构建社会主义和谐社会的重要内容,是各级政府坚持以人为本、执政为民、全面履行政府职能的重要体现。当前,我国现代化建设进入新的阶段,改革和发展处于关键时期,影响公共安全的因素增多,各类突发公共事件时有发生。但是,我国应急管理工作基础仍然比较薄弱,体制、机制、法制尚不完善,预防和处置突发公共事件的能力有待提高。为深入贯彻实施《国家突发公共事件总体应急预案》(以下简称《国家总体应急预案》),全面加强应急管理工作,提出以下意见:
一、明确指导思想和工作目标
(一)指导思想。以邓小平理论和“三个代表”重要思想为指导,全面落实科学发展观,坚持以人为本、预防为主,充分依靠法制、科技和人民群众,以保障公众生命财产安全为根本,以落实和完善应急预案为基础,以提高预防和处置突发公共事件能力为重点,全面加强应急管理工作,最大程度地减少突发公共事件及其造成的人员伤亡和危害,维护国家安全和社会稳定,促进经济社会全面、协调、可持续发展。
(二)工作目标。在“十一五”期间,建成覆盖各地区、各行业、各单位的应急预案体系;健全分类管理、分级负责、条块结合、属地为主的应急管理体制,落实党委领导下的行政领导责任制,加强应急管理机构和应急救援队伍建设;构建统一指挥、反应灵敏、协调有序、运转高效的应急管理机制;完善应急管理法律法规,建设突发公共事件预警预报信息系统和专业化、社会化相结合的应急管理保障体系,形成政府主导、部门协调、军地结合、全社会共同参与的应急管理工作格局。
二、加强应急管理规划和制度建设
(三)编制并实施突发公共事件应急体系建设规划。依据《国民经济和社会发展第十一个五年规划纲要》(以下简称“十一五”规划),编制并尽快组织实施《“十一五”期间国家突发公共事件应急体系建设规划》,优化、整合各类资源,统一规划突发公共事件预防预警、应急处置、恢复重建等方面的项目和基础设施,科学指导各项应急管理体系建设。各地区、各部门要在《“十一五”期间国家突发公共事件应急体系建设规划》指导下,编制本地区和本行业突发公共事件应急体系建设规划并纳入国民经济和社会发展规划。城乡建设等有关专项规划的编制要与应急体系建设规划相衔接,合理布局重点建设项目,统筹规划应对突发公共事件所必需的基础设施建设。
(四)健全应急管理法律法规。要加强应急管理的法制建设,逐步形成规范各类突发公共事件预防和处置工作的法律体系。抓紧做好突发事件应对法的立法准备工作和公布后的贯彻实施工作,研究制定配套法规和政策措施。国务院各有关部门要根据预防和处置自然灾害、事故灾难、公共卫生事件、社会安全事件等各类突发公共事件的需要,抓紧做好有关法律法规草案和修订草案的起草工作,以及有关规章、标准的修订工作。各地区要依据有关法律、行政法规,结合实际制定并完善应急管理的地方性法规和规章。
(五)加强应急预案体系建设和管理。各地区、各部门要根据《国家总体应急预案》,抓紧编制修订本地区、本行业和领域的各类预案,并加强对预案编制工作的领导和督促检查。各基层单位要根据实际情况制订和完善本单位预案,明确各类突发公共事件的防范措施和处置程序。尽快构建覆盖各地区、各行业、各单位的预案体系,并做好各级、各类相关预案的衔接工作。要加强对预案的动态管理,不断增强预案的针对性和实效性。狠抓预案落实工作,经常性地开展预案演练,特别是涉及多个地区和部门的预案,要通过开展联合演练等方式,促进各单位的协调配合和职责落实。
(六)加强应急管理体制和机制建设。国务院是全国应急管理工作的最高行政领导机关,国务院各有关部门依据有关法律、行政法规和各自职责,负责相关类别突发公共事件的应急管理工作。地方各级人民政府是本行政区域应急管理工作的行政领导机关,要根据《国家总体应急预案》的要求和应对各类突发公共事件的需要,结合实际明确应急管理的指挥机构、办事机构及其职责。各专项应急指挥机构要进一步强化职责,充分发挥在相关领域应对突发公共事件的作用。加强各地区、各部门以及各级各类应急管理机构的协调联动,积极推进资源整合和信息共享。加快突发公共事件预测预警、信息报告、应急响应、恢复重建及调查评估等机制建设。研究建立保险、社会捐赠等方面参与、支持应急管理工作的机制,充分发挥其在突发公共事件预防与处置等方面的作用。
三、做好各类突发公共事件的防范工作
(七)开展对各类突发公共事件风险隐患的普查和监控。各地区、各有关部门要组织力量认真开展风险隐患普查工作,全面掌握本行政区域、本行业和领域各类风险隐患情况,建立分级、分类管理制度,落实综合防范和处置措施,实行动态管理和监控,加强地区、部门之间的协调配合。对可能引发突发公共事件的风险隐患,要组织力量限期治理,特别是对位于城市和人口密集地区的高危企业,不符合安全布局要求、达不到安全防护距离的,要依法采取停产、停业、搬迁等措施,尽快消除隐患。要加强对影响社会稳定因素的排查调处,认真做好预警报告和快速处置工作。社区、乡村、企业、学校等基层单位要经常开展风险隐患的排查,及时解决存在的问题。
(八)促进各行业和领域安全防范措施的落实。地方各级人民政府及有关部门要进一步加强对本行政区域各单位、各重点部位安全管理的监督检查,严密防范各类安全事故;要加强监管监察队伍建设,充实必要的人员,完善监管手段。各有关部门要按照有关法律法规和职责分工,加强对本系统、本行业和领域的安全监管监察,严格执行安全许可制度,经常性开展监督检查,依法加大处罚力度;要提高监管效率,对事故多发的行业和领域进一步明确监管职责,实施联合执法。上级主管部门和有关监察机构要把督促风险隐患整改情况作为衡量监管机构履行职责是否到位的重要内容,加大监督检查和考核力度。各企业、事业单位要切实落实安全管理的主体责任,建立健全安全管理的规章制度,加大安全投入,全面落实安全防范措施。
(九)加强突发公共事件的信息报告和预警工作。特别重大、重大突发公共事件发生后,事发地省级人民政府、国务院有关部门要按规定及时、准确地向国务院报告,并向有关地方、部门和应急管理机构通报。要进一步建立健全信息报告工作制度,明确信息报告的责任主体,对迟报、漏报甚至瞒报、谎报行为要依法追究责任。在加强地方各级人民政府和有关部门信息报告工作的同时,通过建立社会公众报告、举报奖励制度,设立基层信息员等多种方式,不断拓宽信息报告渠道。建设各级人民政府组织协调、有关部门分工负责的各类突发公共事件预警系统,建立预警信息通报与发布制度,充分利用广播、电视、互联网、手机短信息、电话、宣传车等各种媒体和手段,及时发布预警信息。
(十)积极开展应急管理培训。各地区、各有关部门要制订应急管理的培训规划和培训大纲,明确培训内容、标准和方式,充分运用多种方法和手段,做好应急管理培训工作,并加强培训资质管理。积极开展对地方和部门各级领导干部应急指挥和处置能力的培训,并纳入各级党校和行政学院培训内容。加强各单位从业人员安全知识和操作规程培训,负有安全监管职责的部门要强化培训考核,对未按要求开展安全培训的单位要责令其限期整改,达不到考核要求的管理人员和职工一律不准上岗。各级应急管理机构要加强对应急管理培训工作的组织和指导。
四、加强应对突发公共事件的能力建设
(十一)推进国家应急平台体系建设。要统筹规划建设具备监测监控、预测预警、信息报告、辅助决策、调度指挥和总结评估等功能的国家应急平台。加快国务院应急平台建设,完善有关专业应急平台功能,推进地方人民政府综合应急平台建设,形成连接各地区和各专业应急指挥机构、统一高效的应急平台体系。应急平台建设要结合实际,依托政府系统办公业务资源网络,规范技术标准,充分整合利用现有专业系统资源,实现互联互通和信息共享,避免重复建设。积极推进紧急信息接报平台整合,建立统一接报、分类分级处置的工作机制。
(十二)提高基层应急管理能力。要以社区、乡村、学校、企业等基层单位为重点,全面加强应急管理工作。充分发挥基层组织在应急管理中的作用,进一步明确行政负责人、法定代表人、社区或村级组织负责人在应急管理中的职责,确定专(兼)职的工作人员或机构,加强基层应急投入,结合实际制订各类应急预案,增强第一时间预防和处置各类突发公共事件的能力。社区要针对群众生活中可能遇到的突发公共事件,制订操作性强的应急预案,经常性地开展应急知识宣传,做到家喻户晓;乡村要结合社会主义新农村建设,因地制宜加强应急基础设施建设,努力提高群众自救、互救能力,并充分发挥城镇应急救援力量的辐射作用;学校要在加强校园安全工作的同时,积极开展公共安全知识和应急防护知识的教育和普及,增强师生公共安全意识;企业特别是高危行业企业要切实落实法定代表人负责制和安全生产主体责任,做到有预案、有救援队伍、有联动机制、有善后措施。地方各级人民政府和有关部门要加强对基层应急管理工作的指导和检查,及时协调解决人力、物力、财力等方面的问题,促进基层应急管理能力的全面提高。
(十三)加强应急救援队伍建设。落实“十一五”规划有关安全生产应急救援、国家灾害应急救援体系建设的重点工程。建立充分发挥公安消防、特警以及武警、解放军、预备役民兵的骨干作用,各专业应急救援队伍各负其责、互为补充,企业专兼职救援队伍和社会志愿者共同参与的应急救援体系。加强各类应急抢险救援队伍建设,改善技术装备,强化培训演练,提高应急救援能力。建立应急救援专家队伍,充分发挥专家学者的专业特长和技术优势。逐步建立社会化的应急救援机制,大中型企业特别是高危行业企业要建立专职或者兼职应急救援队伍,并积极参与社会应急救援;研究制订动员和鼓励志愿者参与应急救援工作的办法,加强对志愿者队伍的招募、组织和培训。
(十四)加强各类应急资源的管理。建立国家、地方和基层单位应急资源储备制度,在对现有各类应急资源普查和有效整合的基础上,统筹规划应急处置所需物料、装备、通信器材、生活用品等物资和紧急避难场所,以及运输能力、通信能力、生产能力和有关技术、信息的储备。加强对储备物资的动态管理,保证及时补充和更新。要建立国家和地方重要物资监测网络及应急物资生产、储备、调拨和紧急配送体系,保障应急处置和恢复重建工作的需要。合理规划建设国家重要应急物资储备库,按照分级负责的原则,加强地方应急物资储备库建设。充分发挥社会各方面在应急物资的生产和储备方面的作用,实现社会储备与专业储备的有机结合。加强应急管理基础数据库建设和对有关技术资料、历史资料等的收集管理,实现资源共享,为妥善应对各类突发公共事件提供可靠的基础数据。
(十五)全力做好应急处置和善后工作。突发公共事件发生后,事发单位及直接受其影响的单位要根据预案立即采取有效措施,迅速开展先期处置工作,并按规定及时报告。地方各级人民政府和国务院有关部门要依照预案规定及时采取相关应急响应措施。按照属地管理为主的原则,事发地人民政府负有统一组织领导应急处置工作的职责,要积极调动有关救援队伍和力量开展救援工作,采取必要措施,防止发生次生、衍生灾害事件,并做好受影响群众的基本生活保障和事故现场环境评估工作。应急处置结束后,要及时组织受影响地区恢复正常的生产、生活和社会秩序。灾后恢复重建要与防灾减灾相结合,坚持统一领导、科学规划、加快实施。健全社会捐助和对口支援等社会动员机制,动员社会力量参与重大灾害应急救助和灾后恢复重建。各级人民政府及有关部门要依照有关法律法规及时开展事故调查处理工作,查明原因,依法依纪处理责任人员,总结事故教训,制订整改措施并督促落实。
(十六)加强评估和统计分析工作。建立健全突发公共事件的评估制度,研究制订客观、科学的评估方法。各级人民政府及有关部门在对各类突发公共事件调查处理的同时,要对事件的处置及相关防范工作做出评估,并对年度应急管理工作情况进行全面评估。各地区、各有关部门要加强应急管理统计分析工作,完善分类分级标准,明确责任部门和人员,及时、全面、准确地统计各类突发公共事件发生起数、伤亡人数、造成的经济损失等相关情况,并纳入经济和社会发展统计指标体系。突发公共事件的统计信息实行月度、季度和年度报告制度。要研究建立突发公共事件发生后统计系统快速应急机制,及时调查掌握突发公共事件对国民经济发展和城乡居民生活的影响并预测发展趋势。
五、制定和完善全面加强应急管理的政策措施
(十七)加大对应急管理的资金投入力度。根据《国家总体应急预案》的规定,各级财政部门要按照现行事权、财权划分原则,分级负担公共安全工作以及预防与处置突发公共事件中需由政府负担的经费,并纳入本级财政年度预算,健全应急资金拨付制度。对规划布局内的重大建设项目给予重点支持。支持地方应急管理工作,建立完善财政专项转移支付制度。建立健全国家、地方、企业、社会相结合的应急保障资金投入机制,适应应急队伍、装备、交通、通信、物资储备等方面建设与更新维护资金的要求。建立企业安全生产的长效投入机制,增强高危行业企业安全保障和应急救援能力。研究建立应对突发公共事件社会资源依法征用与补偿办法。
(十八)大力发展公共安全技术和产品。在推进产业结构调整中,要将具有较高技术含量的公共安全工艺、技术和产品列入《国家产业结构调整指导目录》的鼓励类发展项目,在政策上积极予以支持。对公共安全、应急处置重大项目和技术开发、产业化示范项目,政府给予直接投资或资金补助、贷款贴息等支持。采取政府采购等办法,推动国家公共安全应急成套设备及防护用品的研发和生产。加强对公共安全产品的质量监督管理,实行严格的市场准入制度,确保产品质量安全可靠。
(十九)建立公共安全科技支撑体系。按照《国家中长期科学和技术发展规划纲要》的要求,高度重视利用科技手段提高应对突发公共事件的能力,通过国家科技计划和科学基金等,对突发公共事件应急管理的基础理论、应用和关键技术研究给予支持,并在大专院校、科研院所加强公共安全与应急管理学科、专业建设,大力培养公共安全科技人才。坚持自主创新和引进消化吸收相结合,形成公共安全科技创新机制和应急管理技术支撑体系。扶持一批在公共安全领域拥有自主知识产权和核心技术的重点企业,实现成套核心技术与重大装备的突破,增强安全技术保障能力。
六、加强领导和协调配合,努力形成全民参与的合力
(二十)进一步加强对应急管理工作的领导。地方各级人民政府要在党委领导下,建立和完善突发公共事件应急处置工作责任制,并将落实情况纳入干部政绩考核的内容,特别要抓好市(地)、县(区)两级领导干部责任的落实。各地区、各部门要加强沟通协调,理顺关系,明确职责,搞好条块之间的衔接和配合。建立和完善应对突发公共事件部际联席会议制度,加强部门之间的协调配合,定期研究解决有关问题。各级领导干部要不断增强处置突发公共事件的能力,深入一线,加强组织指挥。要建立并落实责任追究制度,对有失职、渎职、玩忽职守等行为的,要依照法律法规追究责任。
(二十一)构建全社会共同参与的应急管理工作格局。全面加强应急管理工作,需要紧紧依靠群众,军地结合,动员社会各方面力量积极参与。要切实发挥工会、共青团、妇联等人民团体在动员群众、宣传教育、社会监督等方面的作用,重视培育和发展社会应急管理中介组织。鼓励公民、法人和其他社会组织为应对突发公共事件提供资金、物资捐赠和技术支持。积极开展基层公共安全创建活动,树立一批应急管理工作先进典型,表彰奖励取得显著成绩的单位和个人,形成全社会共同参与、齐心协力做好应急管理工作的局面。
(二十二)大力宣传普及公共安全和应急防护知识。加强应急管理科普宣教工作,提高社会公众维护公共安全意识和应对突发公共事件能力。深入宣传各类应急预案,全面普及预防、避险、自救、互救、减灾等知识和技能,逐步推广应急识别系统。尽快把公共安全和应急防护知识纳入学校教学内容,编制中小学公共安全教育指导纲要和适应全日制各级各类教育需要的公共安全教育读本,安排相应的课程或课时。要在各种招考和资格认证考试中逐步增加公共安全内容。充分运用各种现代传播手段,扩大应急管理科普宣教工作覆盖面。新闻媒体应无偿开展突发公共事件预防与处置、自救与互救知识的公益宣传,并支持社会各界发挥应急管理科普宣传作用。
(二十三)做好信息发布和舆论引导工作。要高度重视突发公共事件的信息发布、舆论引导和舆情分析工作,加强对相关信息的核实、审查和管理,为积极稳妥地处置突发公共事件营造良好的舆论环境。坚持及时准确、主动引导的原则和正面宣传为主的方针,完善政府信息发布制度和新闻发言人制度,建立健全重大突发公共事件新闻报道快速反应机制、舆情收集和分析机制,把握正确的舆论导向。加强对信息发布、新闻报道工作的组织协调和归口管理,周密安排、精心组织信息发布工作,充分发挥中央和省级主要新闻媒体的舆论引导作用。新闻单位要严格遵守国家有关法律法规和新闻宣传纪律,不断提高新闻报道水平,自觉维护改革发展稳定的大局。
(二十四)开展国际交流与合作。加强与有关国家、地区及国际组织在应急管理领域的沟通与合作,参与有关国际组织并积极发挥作用,共同应对各类跨国或世界性突发公共事件。大力宣传我国在应对突发公共事件、加强应急管理方面的政策措施和成功做法,积极参与国际应急救援活动,向国际社会展示我国的良好形象。密切跟踪研究国际应急管理发展的动态和趋势,参与公共安全领域重大国际项目研究与合作,学习、借鉴有关国家在灾害预防、紧急处置和应急体系建设等方面的有益经验,促进我国应急管理工作水平的提高。
国务院
二○○六年六月十五日

One thought on “State Council Opinions concerning Completely Strengthening Emergency Response Management Work

    Latest Updates | China Copyright and Media said:
    December 8, 2012 at 10:41 am

    […] State Council Opinions concerning Completely Strengthening Emergency Response Management Work (2006) […]

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