中国重大自然灾害应急物资保障体系建设:实现逻辑与提升路径OACHSSCD

In recent years,the global frequency of natural disasters has increased,accompanied by more pronounced compound and cascading characteristics.The importance of emergency material support in disaster emergency management has therefore become increasingly prominent.When confronted with complex disaster scenarios,the compound,cascading,and cross-regional features of disasters create diversified,dynamic,and holistic demands for emergency material support.However,China's existing emergency material support system still faces several challenges,including a low level of marketization in reserves,suboptimal spatial distribution of warehousing facilities,and insufficient coordination in dispatching.Although existing studies have made progress in technical issues—such as optimizing material reserves and selecting supply paths—most of them focus on modeling and optimization.Less attention has been paid to the policy supply and governance needs of emergency material support under complex disaster scenarios and within the bureaucratic emergency management system.Against this background,this study draws on adaptive governance theory and,oriented toward China's hierarchical emergency management system and complex natural disaster scenarios,constructs an analytical framework of"scenario triggering-systemic adjustment".Based on China's past experiences in responding to major natural disasters and a review of relevant laws,policy plans,and administrative agreements,the paper identifies the adaptive governance logic underlying emergency material support,and proposes targeted improvement pathways accordingly. The results indicate that China's emergency material support system demonstrates a distinct adaptive governance logic.(1)At the organizational level,"Hierarchical coordination"is achieved through issuance of instructions,upward flow of demands,and stratified management from the central government to counties and townships."Government-society coordination"emerges through social and market participation in material reserves."Interdepartmental coordination"is promoted by organizational and contingency plan adaptation among agencies responsible for reserve,dispatch,and transportation."Regional coordination"is advanced through high-level authorization and resource integration in regions exploring integrated development.Together,these elements constitute an organizational system capable of meeting the demands of major natural disasters.(2)At the operational level,bureaucratic norms establish a stable material management system that ensures an institutionalized and standardized foundation for implementation,while task-oriented temporary organizations provide flexible resource allocation,reflecting a logic of"rigid normalization and flexible dispatch".Emergency tasks are refined according to the temporal evolution of disasters,integrating routine and non-routine tasks,thus exemplifying a logic of"process decomposition and task orientation".The principle of"distributed resource deployment and centralized information sharing"supports cross-departmental,cross-regional,and cross-level coordination,elucidating the logic of"distributed linkage and transboundary execution". To enhance the emergency material support system,this study proposes strengthening the system's adaptive capacity to diverse disaster scenarios,improving multi-stakeholder collaboration mechanisms,optimizing dynamic management capabilities across the entire emergency material supply chain,and fostering an institutional environment conducive to adaptive governance.