Opinions of the General Office of the CPC Central Committee and the General Office of the State Council on Further Improving the Emergency Management Capacity at the Grassroots Level

The General Office of the Central Committee of the Communist Party of China and the General Office of the State Council on further

Opinions on improving the capacity of grassroots emergency management

(September 21, 2024)

Strengthening the capacity building of grassroots emergency management is a solid strategy to prevent and resolve major safety risks, respond to and deal with various disasters and accidents in a timely manner, and is an important part of promoting the modernization of emergency management system and capacity. The following opinions are hereby put forward with the consent of the Party Central Committee and the State Council, so as to thoroughly implement the spirit of the 20th National Congress of the Communist Party of China and the 20th Central Committee and the 20th Central Committee of the Communist Party of China, earnestly implement General Secretary Xi Jinping's important expositions on emergency management and grassroots governance, strengthen the foundation and strength of grassroots emergency response, further enhance grassroots emergency management capabilities, build a solid safety base, and guard the bottom line of safety.

1. Enhance the command capacity of grassroots emergency management organizations

(1) Strengthen the Party's overall leadership. Under the centralized and unified leadership of the Party Central Committee, improve the organizational system of grassroots emergency management, and implement the Party's leadership in all aspects of the entire process of grassroots emergency management. Under the leadership of county-level Party committees and government organizations, townships (streets) (including development zones, industrial parks and other functional areas, the same below) and villages (communities) are to carry out emergency management work such as inspections and patrols, hidden danger investigations, information transmission, early disposal, mass evacuation and evacuation, and publicity and popularization of emergency knowledge in accordance with laws and regulations, so that prevention is first, detection is early, and disposal is small. Give full play to the role of grass-roots party organizations as a fighting fortress and the vanguard and exemplary role of party members, mobilize the enthusiasm of the majority of party members to participate in emergency management, organize group services in peacetime, and enter the ranks on the spot in case of emergency.

(2) Straighten out the emergency management system. Adhere to the overall planning of resources, the integration of counties and townships, the linkage between the upper and lower levels, and the combination of various departments, and the county-level party committees and governments should integrate the relevant responsibilities of production safety supervision, fire protection, disaster prevention, mitigation and relief, and emergency rescue according to local conditions, and unify the comprehensive management of the emergency management department. Give full play to the comprehensive advantages of emergency management departments and the professional advantages of relevant departments and relevant parties, connect the responsibility chain of "prevention" and "rescue", and promote the formation of closed-loop management of hidden danger investigation, risk identification, monitoring and early warning, and timely disposal. In terms of talents, science and technology, equipment, professional training, business guidance, etc., township (street) support is given. Townships (streets) have clarified special work forces, coordinated and strengthened emergency management and fire protection work, and incorporated them into the content of grassroots grid management services.

(3) Establish an emergency command mechanism. Improve the emergency command mechanism under the framework of county (city, district, banner) and township (street) major safety and emergency response, and uniformly organize, command, and coordinate emergency response work. Clarify the responsibilities of members of the party and government leadership groups and relevant units, improve facilities and equipment such as dispatch and command, consultation, research and judgment, and business support, and ensure that the upper and lower levels are connected and responded to in an integrated manner.

(4) Complete mechanisms for the implementation of responsibilities. Adhere to the same responsibility of the party and the government, one post and two responsibilities, joint management, and accountability for dereliction of duty. Implement the principle of hierarchical responsibility and territorial management, and county-level party committees and governments are responsible for the local emergency management system and capacity building, and direct and coordinate disaster and accident rescue work. The main responsible comrades of the party and government are the first responsible persons for the local emergency management work, and regularly organize and study the emergency management work; Other members of the party and government leadership groups shall bear leadership responsibility for the emergency management work within the scope of their responsibility, and shall deploy, promote, and inspect the same work as the operational work. The county-level emergency management and fire rescue departments are responsible for taking the lead in coordinating relevant departments, organizing and carrying out emergency management and fire protection work, and rationally distributing emergency resources and personnel. In accordance with the relevant provisions, in accordance with the principle of consistency of responsibilities and powers, and consistency of responsibilities and abilities, in the list of township (street) performance of duties, clarify the basic performance matters related to emergency management and fire protection and the performance of duties of the emergency management department at the higher level and the township (street) as the auxiliary work, and accordingly sink the work force and resources, and establish and improve the relevant work system. Matters that do not fall within the scope of the township (street) responsibilities or that the township (street) cannot effectively undertake shall not be undertaken by the township (street). Improve the mechanism for investigation and rectification of safety production risks and responsibility back-checking.

2. Improve the ability to prevent security risks at the grassroots level

(5) Strengthen intelligent monitoring and early warning. Promote the transformation of the public security governance model to pre-prevention, promote the deep integration of professional monitoring and group detection and group prevention, further improve monitoring methods, improve the accuracy of early warning, and realize the improvement from civil air defense and technical defense to intelligent defense. Improve the system of comprehensive risk survey of natural disasters and the dynamic update of data results, and strengthen the analysis and application of results. Strengthen the construction of natural disasters such as floods and debris flows, as well as production safety and fire safety risk monitoring networks, establish a system of full-time or part-time information reporters, promote the extension of system applications to the grassroots level, and strengthen data aggregation and sharing and comprehensive risk research and assessment. Carry out hazard identification and assessment on a regular basis, actively use advanced technologies such as the Internet of Things and big data, strengthen real-time risk monitoring in high-risk areas such as aging gas pipelines, bridges and culverts, and sick reservoirs, and formulate safety precautionary measures. Under the guidance of relevant departments, townships (streets) and villages (communities) are to establish a "one map" of risks and hidden dangers, unblock the channels for the release and dissemination of early warning information, implement an early warning "call and response" mechanism that directly reaches the person responsible for the grid, and comprehensively use emergency broadcasting, SMS WeChat, intelligent outbound calls, gongs and whistles, knocking on doors and other means to timely convey them to households and people.

(6) Do a solid job of investigation and management of hidden dangers. At the city and county levels, strengthen operational and technical guidance for the investigation and management of hidden dangers at the grassroots level, and promote the application of easy-to-use risk and hidden danger information reporting systems. Townships (streets) and villages (communities) cooperate with relevant departments to carry out key inspections on a regular basis, do a good job in daily inspections, promote the implementation of production and business operation units to take the initiative to self-inspect and other systems, highlight the key points of defense, keep an eye on the end of the grassroots, and focus on the investigation of risks and hidden dangers such as "nine small places", farmhouses, commercial self-built houses, construction sites under construction, gas, low-lying waterlogging points and urban underground spaces, river embankments, mountain pond reservoirs, tailings ponds, flash floods and geological disaster risk areas, forest and grassland fire danger areas, etc., and improve the professionalism of investigation. Enterprises are equipped with full-time or part-time safety production management personnel in accordance with the law. Encourage the public to discover and report risks and hidden dangers and give rewards in accordance with regulations. Implement the practice of "whistle-blowing in townships and reporting to departments", and improve the system of discovering problems, transferring them to the office, and supervising and supervising them. Establish hidden danger investigation and management ledgers in different regions, disaster types, and industries, and adopt methods such as engineering governance, risk avoidance and relocation, and risk removal and reinforcement to eliminate major hidden dangers in a timely manner.

(7) Carry out supervision and inspection in accordance with law. Comprehensively use methods such as stationed law enforcement, joint law enforcement, collaborative law enforcement, and "four noes and two straights" to improve the efficiency of township (street) law enforcement. Strengthen the allocation of law enforcement equipment, strengthen "Internet + law enforcement", and promote the whole process of law enforcement to go online and online. Give play to the role of technical inspectors and social supervisors in comprehensive administrative law enforcement of emergency management, and strengthen expert guidance services.

(8) Widely carry out popular science publicity. Carry out activities such as National Disaster Prevention and Mitigation Day, Safety Production Month, and Fire Protection Publicity Month. Strengthen the development and push of public education products such as popular science books, animation games, and short videos, and adopt forms such as case warnings, simulations, experiential interactions, and literary and artistic works, to further promote safety publicity into enterprises, rural areas, communities, schools, and families, popularize emergency management laws and regulations, and knowledge of disaster prevention, mitigation and relief, and cultivate a safety culture. Localities with the capacity are to rely on public venues, venues, and other venues to build disaster prevention and mitigation experience venues in accordance with local conditions, carry out popular science publicity and skills training on a regular basis, strengthen education and training for grassroots cadres, and increase the public's awareness of risk prevention and their ability to help themselves and each other.

3. Enhance the actual combat ability of grassroots emergency rescue teams

(9) Improve the rescue force system. At the city and county levels, according to factors such as the number of local population, economic scale, characteristics of disasters and accidents, and the degree of safety risks, the city and county levels shall complete and strengthen emergency rescue forces in accordance with regulations, optimize the layout of the team, and build a "comprehensive + professional + social" grassroots emergency rescue force system, promote the sinking of forces and the downward tilt of guarantees, and under the leadership of the party committee and government, the emergency management department shall be under unified command and dispatch for use. Give full play to the role of full-time rescue forces of territorial enterprises, miniature fire stations, militia, reservists, property management personnel, security guards, medical personnel, etc., and strengthen the construction of full-time and part-time grassroots emergency rescue forces. Counties (cities, districts, banners) with prominent risks such as flood and drought disasters, earthquake and geological disasters, forest and grassland fires, or production and business units in high-risk industries such as mines (including tailings ponds) and hazardous chemicals, should strengthen the construction of relevant professional rescue forces.

(10) Encourage and support the development of social emergency response forces. Give play to the role of relevant departments, mass organizations, and volunteer service organizations to promote the establishment of social emergency response forces. Strengthen political guidance, policy guidance, and standardized management of social emergency response forces. Carry out training in political theory, business knowledge and rescue skills, hold skills competitions, and organize and implement grading and categorical evaluations. Include social emergency response forces in the scope of resource statistics, management training, and docking and mobilization, and actively build platforms for task docking, skill improvement, and incentives, and provide appropriate support in training and other areas. Improve the guiding catalogue for government procurement of services in the field of emergency management.

(11) Strengthen integrated management and actual combat training. The national comprehensive fire and rescue team should give full play to its role as the main force, and establish and improve the mechanism of joint training, joint exercises and joint operations with grassroots emergency rescue forces. Optimize the formation of forces, systematically organize grassroots emergency rescue forces, unify management and command, and strengthen rescue coordination. Adhere to the actual combat-oriented preparation of training plans, and adopt methods such as theoretical training, case teaching, on-the-job training, martial arts competitions, and joint drills to improve emergency rescue capabilities.

(12) Strengthen the standardization of the team. On the basis of making full use of existing resources, the city and county levels should scientifically plan and build emergency rescue training sites with complete functions, complete supporting facilities, and economic and practical resources, and promote the joint construction and sharing of sites and facilities related to national defense mobilization. Standardize the allocation of rescue equipment, purchase advanced and applicable emergency equipment such as demolition, obstacle clearance, protection, and communications, and strengthen sharing and sharing. Strengthen the regularized management of the team, and establish systems for personnel selection, on-duty preparation, emergency response, command and dispatch, training and drills, etc.

Fourth, improve the emergency response capacity of the grassroots level

(13) Strengthen the preparation and rehearsal of emergency plans. Relevant departments should combine the characteristics of local disaster and accident risks, guide the preparation and dynamic revision of the township (street) comprehensive emergency plan, special emergency plan and concise and practical village (community) emergency plan, formulate emergency response cards for key posts, and clarify the responsible persons and response measures for each link. Carry out emergency drills on a regular basis, and towns (streets) and villages (communities) organize at least one comprehensive drill every year with the focus on early disposal, transfer and avoidance, self-help and mutual rescue, and high-risk areas should strengthen special drills such as flood prevention, typhoon prevention, earthquake avoidance and self-rescue, flash flood and geological disaster avoidance, and fire escape.

(14) Strengthen on-duty duty and the release of information reports. Implement the system of leaders leading shifts and being on duty. Clarify the subject, scope, content, time limit, process, and work discipline of information reporting, implement the main responsibility of enterprises, schools, hospitals, villages (communities) and other grassroots units to report information in a timely manner, strengthen multi-channel and multi-departmental information reporting, strengthen information exchange and sharing, and must not be late, falsely reported, concealed, or omitted. Promptly and accurately release information in accordance with relevant provisions, and actively respond to social concerns.

(15) Carry out preliminary disposition. Township (street) emergency response rights are given in accordance with law. Strengthen the linkage between early warning and emergency response to improve the speed of response. After the disaster occurs, the emergency plan should be quickly activated, the on-site command center should be established in accordance with the relevant regulations, and the personnel should be transferred in a timely manner to save the early and small rescues. Activate emergency facilities and shelters nearby, and organize the masses to help themselves and each other. Apply for reinforcements from superiors as needed and cooperate with rescue work. Promote the integration and comprehensive use of emergency shelters and cultural, educational, sports, tourism and other infrastructure.

(16) Make overall plans for post-disaster relief. Local party committees and governments should strengthen disaster statistics and disaster relief, allocate disaster relief funds and materials in a timely manner, organize and coordinate insurance agencies to carry out insurance claims, and ensure the basic livelihood of the people affected by disasters. Townships (streets) and villages (communities) are to assist in the distribution of disaster relief funds and materials, health and epidemic prevention, compensation for bereavement benefits, psychological comfort, and recovery and reconstruction. Organize the masses to carry out production to help themselves and rebuild their homes.

5. Strengthen the support and support capacity of grassroots emergency management

(17) Strengthen talent support. Through the recruitment of civil servants, the implementation of the grassroots emergency management ad hoc post plan, open recruitment, exit firefighters placement, etc., the allocation of professional personnel, enrich the grassroots emergency response professional force. Support colleges and vocational schools that have the capacity to set up emergency management-related disciplines, and strengthen professional training for grassroots emergency management personnel. Encourage grassroots emergency management personnel to obtain professional qualifications such as registered safety engineers, registered fire engineers, and emergency rescuers, and participate in professional skills training such as emergency rescue and rescue, and emergency medical first aid. Safeguard the legitimate rights and interests of retired firefighters, reasonably ensure the treatment of grassroots emergency management personnel, and implement policies such as personal accident insurance and bereavement pension preferential treatment in accordance with regulations.

(18) Guarantee capital investment. In accordance with the principle of commensurate authority and expenditure responsibility, the funds for grassroots emergency management work are included in the local government budget, and multiple funding guarantees are improved. Include the construction of rescue teams and emergency response sites, the allocation of emergency equipment and materials, and emergency informatization projects in local economic and social development plans and related special plans, and improve infrastructure such as disaster prevention and mitigation at the grassroots level and public fire protection.

(19) Strengthen material support. At the city and county levels, the principle of economy and efficiency should be adhered to, and factors such as local disaster characteristics, population distribution, and geographical location should be comprehensively considered, and the layout of emergency material reserve points should be reasonably planned, and necessary materials and equipment such as satellite communication terminals, danger monitoring, and life-saving protection should be equipped in key areas and high-risk towns (streets) and villages (communities). For materials with sufficient market holdings, short shelf life and high maintenance costs, the proportion of agreement reserves will be gradually increased. Encourage and guide enterprises, public institutions, social organizations and families to reserve necessary emergency supplies. Give full play to the role of the working mechanism of transportation and logistics at all levels, and improve the modern emergency logistics deployment system that reaches the grassroots level. Improve compensation mechanisms for emergency requisition of social resources in accordance with provisions. Strengthen the guarantee of emergency rescue vehicles at the grassroots level, and provide convenient passage for emergency rescue personnel and vehicles.

(20) Strengthen the empowerment of science and technology. Promote the organic integration of "smart emergency response" and grassroots governance, and promote the application of scientific and technological means and information systems that meet the actual needs of the grassroots in accordance with the requirements of the overall management of ministries and provinces, the promotion and innovation of cities and counties, and the application of grassroots landing. Strengthen system integration, strengthen data fusion and analysis applications, and provide intelligent services such as auxiliary identification of hidden dangers, early warning and forecasting, and automatic reminders for towns (streets) and villages (communities). Strengthen the capacity building of emergency communication support under extreme conditions such as "circuit breaks, network outages, and power outages". Promote the equipping of new technologies and equipment with "small, fast, light and intelligent" at the grassroots level.

(21) Promote the construction of standardization. Encourage localities to support village (community) comprehensive disaster reduction and other work by substituting awards and subsidies. Accelerate the standardization of the allocation of emergency response forces, site facilities, materials and equipment, and emergency signs at the grassroots level, so that the strength is sufficient, the facilities are complete, the equipment is complete, the signs are consistent, and the management is standardized.

6. Strengthen organization and implementation

In accordance with the work requirements of the province taking overall responsibility and the city and county grasping the implementation, local party committees and governments at all levels should make overall plans and advance the construction of grassroots emergency management capacity and key work, and do a good job in implementing these opinions in light of actual conditions. All provinces (autonomous regions and municipalities directly under the Central Government) may formulate supporting documents in accordance with the principles of categorical guidance, conforming to reality, and clarifying responsibilities. Clarify and refine the responsibilities of relevant departments for emergency management work, give full play to the role of mass organizations, improve relevant policies, and form a joint work force. Take emergency management posts as an important platform for training, training, and inspection and identification of cadres, and pay attention to the performance of duties such as disaster prevention, emergency preparedness, and rescue and disposal by relevant leading cadres in cadre inspection and assessment. Units and individuals that have made outstanding contributions to urgent, difficult, dangerous and heavy tasks such as disaster prevention, emergency rescue and disaster relief shall be commended and rewarded in accordance with regulations; Where dereliction of duty causes losses or a major social impact, the responsibility of relevant units and personnel is to be strictly pursued in accordance with regulations, discipline, and law. Summarize and promote experience and practices, increase publicity, and create a good atmosphere.