專家觀點|結(jié)構(gòu)-功能：社會組織的應(yīng)急能力及困境改善途徑
Source: Yongkang Zhongyi Manufacture & Trade Co., Ltd.Publication time：2025-07-21
Abstract: The intervention of social organizations in emergency response to sudden incidents is an important supplement to the failure of government and market emergency response. Based on the structural functionalism perspective of sociology, an analytical framework of "organizational subject - emergency function" is constructed to examine the advantages, existing predicaments and improvement strategies of social organizations' intervention in emergency response. Specifically, it can be examined from three aspects: First, from the perspective of "universalism - particularism", the intervention of social organizations in emergency response has special functions, which not only reflect the general organizational functions but also their unique emergency response advantages and characteristics. Second, from the perspective of "subject capacity - process capacity", the composition of the internal emergency response capacity of social organizations involves the capacity of different elements and the capacity of different emergency links. Thirdly, from the perspective of "external empowerment - internal empowerment", externally, it is necessary to empower social organizations to intervene in emergency response capabilities from the perspective of the four-in-one social system, and internally, it is necessary to enhance emergency response capabilities from the perspectives of strengthening concepts, regulations, and professional capabilities.
Key words: Social organization Functional features; Emergency response capability Universal - special Subject - process Empowerment - Empowerment
Chinese Library Classification Number: D632.9 Document Code: A Article Number: 1008-4088(2023)01-0106-09
Author's Profile: Yan Ye is a professor and director of the Institute of Safety and Social Development at the North China Institute of Science and Technology Campus of the University of Emergency Management (in preparation). His main research areas include emergency management, social structure, social construction and governance.
Wang Aijun is an associate professor in the Law Department of Huanghe Science and Technology College, and his main research direction is civil and commercial law.
I. Presentation of the Problem
As one of the major social forces, social organizations are important means for social construction and governance, significant participants and collaborators in government-led social development, and indispensable elements in organizational structure. Therefore, the involvement of social organizations in emergency affairs of sudden incidents has irreplaceable functions and values, which are worthy of in-depth exploration.
Social organizations have played a significant role in the emergency response to many unexpected events, such as the relief efforts for the Wenchuan earthquake, the prevention and control of the novel coronavirus, and the rescue operation for the flood in Zhengzhou. After the Wenchuan earthquake in 2008, over 300 Chinese social organizations promptly intervened in the emergency rescue and post-earthquake recovery and reconstruction. More than 3 million volunteers rushed to the disaster-stricken areas for disaster relief, and over 10 million volunteers were stationed at the rear. The amount of charitable donations after the earthquake exceeded 100 billion yuan. Therefore, 2008 is also known as the "First Year of Chinese Volunteers" (or "First Year of Public Welfare"). During the fight against the COVID-19 pandemic in 2020, numerous social organizations participated in social assistance and support actions. As of May 31 of that year, a total of approximately 38.93 billion yuan in social donations and about 990 million items of materials had been donated, and a total of approximately 32.83 billion yuan in donations and about 940 million items of materials had been allocated. In addition, over 4 million community workers across the country are on duty day and night in 650,000 urban and rural communities to carry out epidemic prevention and control. [5] In 2021, severe rainstorms and floods occurred in Zhengzhou, Xinxiang and other places in Henan Province. According to incomplete statistics, nearly 800 civilian rescue teams and over 30,000 volunteer rescue members participated in the rescue of the severe flood in Henan. Among them, many rescue teams from other places went to Henan voluntarily and at their own expense. [6]
Meanwhile, through the "National Social Organization Credit Information Publicity Platform", we can find the overall situation of the development of emergency-related social organizations (as of December 31, 2020)[7] : using the name "emergency" for search, 1,103 organizations were found; Using the terms "rescue" and "emergency" for the search, 1,995 organizations were found. When searching for the name "Fire protection", 766 organizations were found. The name was searched using "disaster" and "disaster", and 46 organizations were found. You can also click to view "National Charity Organizations", with a total of 9,909.
With the continuous occurrence of high-risk social disasters, the emergency response capacity building of social organizations is particularly important, and it has become necessary to strengthen "emergency social organizations". So, compared with other social forces, what are the characteristic functions of social organizations' involvement in emergency affairs? What special emergency response capabilities should be possessed? In contemporary China, what constraints and challenges do social organizations face when getting involved in emergency response and enhancing their emergency response capabilities? From which aspects should their emergency response capabilities be improved and enhanced? These are issues that urgently need to be discussed.
Ii. Concept Definition and Theoretical Perspective
(1) Definition of Social organizations
The definition of social organizations varies among different disciplines. In sociology, there are two definitions: In a broad sense, social organizations refer to all group forms in which people engage in common activities, including ethnic groups, families, secret groups, governments, the military, schools, etc. In a narrow sense, social organizations refer to social groups that are consciously combined to achieve specific common goals, such as enterprises, governments, schools, hospitals, and social groups. [8](P218) The latter is actually a formally defined social organization. American scholar Salamon holds that a social organization is a social group with organizational, non-governmental, non-profit, autonomous and voluntary characteristics [9](P3-4), and it is a public welfare organization between government organizations and social individuals. Wang Ming, a domestic scholar of social organizations, focuses on the national, economic and social tripartite classification of human activities (corresponding to the state, market and social system), and defines social organizations as social organizations within the social system to distinguish them from government organizations in the national system and enterprise organizations in the market system. He believes that such social organizations are the sum total of various organizational forms and network patterns spontaneously established by citizens from all social strata, featuring non-profit, non-governmental, voluntary public welfare or mutual benefit. [10](P7) In practical discourse, such social organizations are truly "social" social organizations, and some people call them "social forces". [11] What this article aims to study is precisely this type of social organization, which refers to a social group established voluntarily and independently in accordance with certain self-regulations to achieve certain social goals (but not for profit or public administration). It is also commonly referred to as civil organizations, non-governmental organizations (ngos), non-profit organizations, the third sector, new social organizations, and even some social networks (such as bloodline and local ethical groups), etc. (this does not include social settlement organizations like "communities"), including non-public welfare social groups, foundations, and private non-enterprise units included in China's civil affairs system.
Both domestic and foreign scholars have made certain explorations regarding the intervention of social organizations in emergency response. Some scholars have analyzed and believed that the research on the involvement of social organizations in emergency affairs abroad is reflected in three aspects: First, the basic information of social organizations related to disaster relief and the introduction of rescue projects; The second is the research on the relationship and functional role between social organizations and emergency rescue social organizations, as well as the research on the relationship between social organizations and international organizations in humanitarian rescue. The third is the research on the role of social organizations in emergency management. [12]
(II) Analytical Perspective and Framework
To analyze the functional roles, challenges and capacity building of various social organizations, we can, from the perspective of structural functionalism, construct an analytical framework of "organizational subject - emergency function" (as shown in Figure 1), and conduct a specific analysis of the characteristic functions, internal capabilities, internal and external predicaments and capacity strengthening of social organizations as emergency subjects. Structural functionalism holds that structure determines function: different structures lead to different functions. Conversely, abnormal performance of functions will inevitably promote structural improvement and optimization. [13](P321-323) This will involve three specific analytical (small) perspectives: First, in order to analyze the functional characteristics of social organizations, it is necessary to think about their general social functions and special emergency affairs functions, thereby observing their advantages and characteristics in emergency affairs, that is, to select the relationship perspective of what is called "universalism - particularity" in sociology. [14](P54-76) Secondly, in order to analyze the inherent and unique emergency response capacity structure of social organizations, it is necessary to personify them, that is, as one of the emergency response social subjects, what basic and special capabilities should they possess in each link of emergency response? Therefore, it is necessary to construct an analytical perspective of "subject ability - process ability"; Thirdly, in light of the current situation of contemporary Chinese social organizations' involvement in emergency response practices, it is necessary to analyze the internal and external influences that affect their emergency actions and capacity building, so as to construct an analytical perspective of "external empowerment - internal empowerment". These three aspects have a certain logical evolution relationship, which will be elaborated and demonstrated in the subsequent sections.
Figure 1 shows the relationship composition between the analytical framework and the three specific analytical perspectives within it
Iii. The Characteristic functions and Internal Capabilities of Social Organizations' intervention in emergency Response
The reason why social organizations exist and develop is that they have certain social (positive) functions. The theoretical basis of its positive function is the theory of government-social relations and enterprise-social relations. Social organizations, on the one hand, make up for "government failure", and on the other hand, make up for "market failure". Here, we mainly focus on the specific functions of social organizations' intervention in emergency response to sudden incidents for analysis. Due to the different service function characteristics and scales of various social organizations, they have different emergency functions in emergency affairs. Moreover, there is another type of specialized emergency social organization whose emergency response functions are comprehensive. [15] Unlike general social functions, the emergency response function of social organizations often emerges during the process of social services, especially when they are involved in an emergency activity. Here, from the perspectives of "universalism" and "particularism" [14], we will elaborate on the emergency functions and characteristics of social organizations.
(1) Special functions of social organizations in emergency response
Universalism of social responsibility: Emergency intervention and collaboration functions
Any organization has certain social responsibilities, which are universalist responsibilities, and social organizations are no exception. Under the leadership of the government, social organizations get involved in and participate in emergency events or the emergency collaboration and coordination of the parties involved, regardless of the type of disaster. This is a universal social responsibility. It is possible that their property or premises may be temporarily requisitioned, or they may need to temporarily form teams to participate in transportation, material connection, and post-disaster recovery and reconstruction work. Despite being passive, in the face of major disasters (such as the relief efforts for the Wenchuan earthquake in 2008 and the prevention and control of the COVID-19 pandemic in 2020), some social organizations, including charitable organizations, social work institutions, psychological counseling organizations, and emergency rescue associations, have taken the initiative, voluntarily and consciously intervened and participated in providing services. There are also some social organizations oriented towards economic functions that voluntarily donate money and materials. Wait a moment. All these embody the spirit of universal love and responsibility of taking the initiative.
2. Particularism of specific activities: Emergency planning and full responsibility functions
In modern society, any social organization conducting social service activities, especially large-scale events, generally needs to proactively formulate emergency plans and action plans in accordance with government requirements or regulatory standards, report them to relevant departments, and assume all-round and full-process emergency and safety guarantee responsibilities for the entire event from preparation to implementation and conclusion. This is a special requirement for the special event. Comprehensive emergency (safety guarantee) responsibilities covering personnel, equipment and facilities, sites or the environment; The entire process includes prevention, preparation, response, and post-incident emergency (safety guarantee) responsibilities.
3. Hybrid of universal and special: The full-process functions of emergency organizations
This mainly refers to all the emergency functions that specialized emergency social organizations such as civilian emergency rescue teams, charitable institutions, and emergency volunteer organizations should possess. They are both universal and special emergency functions tailored to specific disaster scenarios. However, they do not distinguish between different types of disasters and perform emergency response functions throughout the entire process and for all types of disasters. That is, they respond to their professional emergency response, including professional disaster reduction and prevention, professional emergency preparedness, professional emergency response, and professional post-disaster emergency (safety guarantee) functions.
(2) Characteristics and Advantages of social organizations' involvement in emergency response
1. Professional advantages and emergency precision
From the very beginning, any social organization regards professionalism, occupation and specialization as the foundation of its existence and the value of its "life", and thus it has more professional advantages than government agencies. Focusing on one's profession has become a trendy phrase for the prosperous development of contemporary social organizations. Social psychological organizations, social work institutions, charitable professional organizations, medical and health organizations, technical intermediary service organizations, etc., with expertise. This determines that they can quickly enter the emergency scene and participate in emergency affairs, playing a role that other government departments and social organizations cannot. Because the causes of emergencies are complex and the means to deal with and solve problems are diverse, emergency response lies entirely in "urgency". These specialized social organizations can target their efforts precisely, adopt "precise measures" to hit the nail on the head, and achieve "immediate cure" and "immediate results", rather than being inconsistent and failing to identify the "root cause", thus missing the rescue opportunity.
2. Flexibility in advance and retreat and high efficiency in emergency response
Modern social organizations do not have a hierarchical operation model like governments or enterprises. They are basically of a light scale, with dozens of people being the majority. Even large-scale organizations have branches in various places, and these branches are mainly focused on local activities. Moreover, the vast majority of them have a flat management structure, with emergency decision-making information reaching up and down directly. Therefore, for emergency affairs, the focus is generally on the organization's own professional capabilities. If capable, it advances; if not, it retreats. It is flexible in both advance and retreat, highly efficient, and is suitable for emergency response links and operation modes.
3. People-friendly capital and emergency convenience
Social organizations mainly originate from the people and are spontaneously organized and established by citizens. Therefore, they are inherently grassroots in nature, without the numerous approval procedures of the government or the awkwardness of enterprises' profit-making. They can easily communicate and interact directly with the parties involved or disaster victims, which is more convenient for emergency problem-solving. Furthermore, social organizations have long been in close contact with local parties involved or disaster victims, forming a network of mutual trust. They are relatively familiar with the local situation. That is to say, the people-friendly "social capital" is a natural "element" for prompt and emergency response. They can work together with disaster victims to collect information nearby, quickly and efficiently, and quickly identify the causes and risk points (locations or directions) of incidents and accidents. It is convenient to quickly defuse risks, prevent the further deterioration of disaster consequences, implement self-rescue by the masses, and reflect the interactive characteristics of "emergency response" and "convenience".
4. Public Welfare Principles and Emergency compliance
Social organizations themselves are voluntary and dedicated public welfare or mutual benefit organizations that serve society based on the principle of altruism. This kind of public welfare principle and idealized action is reasonable and compliant. Moreover, in China, all kinds of social organizations are basically registered legal organizations. Therefore, their moral emergency service actions are undoubtedly legal. Even if they sometimes participate in an unregulated manner, their moral integrity and legality are beyond doubt.
(3) The internal composition of the emergency response capacity of social organizations
1. Capability system of "composite bearing model" based on subject-process
Here, we borrow Parsons' social system theory [16](P37-62) to construct the four subsystems of the social organization system - economic, political, social and cultural - and their emergency response capabilities, that is, the "four-in-one" "subject capacity". At the same time, drawing on the practice in the field of emergency management that divides the emergency management process into four links: disaster prevention, emergency preparedness, emergency response, and post-disaster recovery [17](P2-23)[18](P342), a "process capability" for social organizations to intervene in emergency affairs is constructed. In this way, based on the framework of "subject capacity - process capacity", we designed the internal emergency response capacity system and content of social organizations as a "composite bearing model", as shown in Figure 2.
This model encompasses four capabilities (functions) of the main elements (four-in-one) and 16 detailed capabilities in the four links of emergency management. The capacity based on the main elements is the basic condition capacity, while the capacity based on the emergency management links is the capacity to undertake specific matters. These two are interrelated. The basic conditions and capabilities determine the specific capacity of social organizations to undertake emergency response matters.