自然和人為因素的雙重擾動使超大城市面臨著難以規避的環境風險,碎片化的突發環境事件治理模式已經不能有效應對超大城市環境風險來源多樣化、風險因素復雜化和破壞程度規模化帶來的挑戰。整體性治理在揚棄韋伯式官僚制和新公共管理理論的過程中,主張重塑政府在公共管理中的價值和責任,通過對治理層級、功能、公共部門和私人部門的關系以及信息系統的碎片化進行整合,以跨界、協調與合作的方式為公民提供無縫隙且非分離的整體性服務高度契合了超大城市危機治理對政府管理公共性、責任性,協同和整合的需要,是對碎片化危機治理體制的一個有力回應。文章梳理了突發事件治理和整體性治理的國內外文獻,試圖通過整體性治理理論和"天津港8·12瑞海公司危險品倉庫特別重大火災爆炸事故",解剖中國超大城市突發環境事件治理的各種碎片化問題。研究發現,現行超大城市突發環境事件治理的碎片化主要表現為:在治理理念上,預防意識不強,公共利益和公共責任觀念淡薄;在治理主體上,市場和社會主體參與不足,政府一元化治理色彩突出;在治理信息上,信息危機放大危機事件的社會風險;在治理機制上,政府部門職責不清,協調溝通不暢。從整體性治理理論和超大城市突發環境事件治理的碎片化的現實出發,文章提出超大城市突發環境事件治理必須進行整體性改革和創新,從培育危機文化,強化危機預防和政府公共責任意識;完善社會資本,加強社會參與;建立統一的治理信息中心及推進組織結構調整與改革等方面構建突發環境事件整體性治理模式。

Due to double disturbance caused by natural and human factors,megacities will have increasing environmental risks. It is hard to deal with challenges such as diversification of sources of environmental risks,complexity of risk factors,and scale of damage to the megacities,through the way of fragmentation governance of environmental emergencies. In the process of abandoning Weber ’s bureaucracy and taking the new public management theory,it holds the view of reestablishing government’s value and responsibility in public governance. By clarifying governance level,function,as well as the relations between public and private sectors,and integrating the fragmentation of information system,we can provide non-separated integrated service to citizens in the ways of cross-border,coordination and cooperation. The paper reviews the incident management and holistic governance of the domestic and foreign literature,and discusses various fragmentation problems in the current environmental governance of megacities through holistic governance theory and based on the example of Tianjin Port Massive Blast. The research shows that the fragmentation problems are mainly manifested as:in terms of the idea of governance,we have weak prevention awareness and little consideration on public interests and public responsibility. In terms of the subject of governance,market and social participation are insufficient,while governments play a strong role of centralized leading in governance. In terms of the information of governance,the information crisis enlarges social risks of these incidents. In terms of governance mechanism,government departments have not clarified their responsibilities and have not established good communication and negotiation. Therefore,based on status quo of fragmentation of holistic governance,this paper puts forward following suggestions: conducting the comprehensive reform and innovation; cultivating the awareness of preventing crisis and the public responsibility of governments; improving the development of social capital and the social participation; establishing unified governance information center; promoting the adjustment of organizational structure.