基层应急管理是国家应急管理体系建设的重要基石和前沿阵地,基层应急预案则是应急管理先期处置工作的核心。目前,我国应急管理下沉的需要与基层应急预案的缺乏,迫切要求对基层应急预案的编制与管理进行规制,从而适应应急新形势。本文从应急预案的政策过程视角出发,基于多元行政观理论构建“认知-过程”框架,厘清其由于认知而产生的预案管理过程中的实践困境,发现我国基层应急预案存在定位偏差、内容同质化、演练形式化的问题,并从编制、执行与演练三个环节对基层应急预案管理的优化路径进行探索,重塑对基层应急预案的认知,以期更好地指导我国基层应急预案的实践,提升基层应急能力。

Grassroots emergency management is an important cornerstone and front position of the construction of national emergency management system. Grassroots emergency plan is the core of emergency management in advance.At present, the need of emergency management and the lack of emergency plan at the grass-roots level urgently require the regulation of the preparation and management of emergency plan at the grass-roots level, so as to adapt to the new situation of emergency.From the perspective of the policy process of emergency plan, this paper builds a "cognition-process" framework based on the theory of multiple administrative perspective, clarifies the practical difficulties in the process of emergency plan management caused by cognition, and finds that there are problems such as positioning deviation, content homogenization, and formalization of drills in China"s grass-roots emergency plan.And from the formulation, implementation and exercise of the three links of the grass-roots emergency plan preparation and management optimization path to explore, reshape the understanding of grass-roots emergency plan, in order to better guide the practice of China"s grass-roots emergency plan, improve the capacity of grass-roots emergency response.