Preface

Complexity issues are the core issues of the 21st century.Currently，our country is in a period where strategic opportunities and risks and challenges coexist，and uncertain and unpredictable factors are increasing.Various emergencies may occur at any time，and different risks are coupled，superimposed，and evolved with each other.Intertwined with each other，a risk synthesis is formed through non-linear relationships.To this end，it is necessary to promote the transformation of emergency management，transform from post-remediation to source governance，break through from local control to systemic governance，and put the focus of emergency management on source governance.A basic sign of the modernization of public security governance levels and governance capabilities is the transformation from institutionalized and standardized post-event remedial punishment to institutionalized，standardized，scientific and advanced prevention beforehand.

In 2018，the decision to establish the Emergency Management Department was an exploration and practice of the concept of great security and great emergency response，and broke the dilemma of multiple branches of government，overlapping functions，and segregation of responsibilities.Nowadays，in the face of complex security situations，higher requirements are put forward for major security emergencies.Under the unprecedented changes in a century，the establishment of a comprehensive security and emergency response framework is a theoretical framework and practical guide to adapt to the domestic and international situations in the new era and respond to complex risk challenges in the new era.The comprehensive security and emergency response framework integrates emergency resources to form a more comprehensive Strong governance synergy.

The report of the 20th National Congress of the Communist Party of China requires promoting the transformation of public security governance to pre-emptive prevention.Safety first and prevention first.This is the proper meaning of the in-depth implementation of the overall national security concept and the connotation of the modernization of the national governance system and governance capabilities.Enriched and clarified the direction and principles for the construction of public security system in the new era.The relevant contents of the report of the 20th National Congress of the Communist Party of China not only fully affirmed the establishment of emergency management departments and national comprehensive fire rescue teams，but also further pointed out that the reform of emergency management departments should continue to deepen along the direction of great security and great emergency；improve the public security system，to strengthen the emergency management system and capacity building，we must start from the perspectives of ideas，systems and mechanisms，comprehensively apply systematic science and systematic thinking，and face complex problems，so as to promote the transformation of emergency management into pre-emptive prevention.As an important part of the modernization of the national governance system and governance capabilities，emergency management assumes the important responsibility of preventing and resolving major safety risks and promptly responding to various disasters and accidents.

The report of the 20th National Congress of the Communist Party of China highlights the important position and prominent role of emergency management in maintaining public safety and national security.From the perspective of the national emergency management system，problems such as blurred boundaries of responsibilities of relevant departments and poor vertical leadership and horizontal coordination still exist to a certain extent；from the perspective of the rule of law and policy system，regulations are lagging behind and not scientific enough，and even conflict with each other.Exist；from the perspective of the risk monitoring and early warning system，the advancement of technical means and the accuracy of forecasts need to be enhanced.There are still shortcomings and weaknesses in some aspects of safety and emergency work.For example，the responsibility system for natural disaster prevention and control still needs to be improved.In the prevention and response to various emergencies，unified leadership，unified command，comprehensive coordination，information sharing，support and cooperation，etc.There are still weak links.It is necessary to rely on the existing monitoring systems of various industry departments to build and improve intelligent platforms and promote the construction of smart emergency projects；strengthen cross-background discipline construction and talent training.To strengthen the construction of national regional emergency response capabilities，it is necessary to further increase social participation in emergency management while strengthening professional emergency response capabilities.Under the leadership，various entities such as social organizations，production and business units，and the public jointly participate to integrate multiple resources and forces into disaster prevention，reduction，and relief work，and promote the realization of joint construction，joint governance，and sharing of emergency management.

In response to the above problems，this book attempts to use the complexity issues in emergency management as a starting point for research based on the theory of complex systems and complex networks.On the basis of complex system theory，complex network theory，and governance theory，a structure-function-goal framework was proposed to systematically demonstrate the complexity characteristics of emergency management.Emergency management itself is a complex system，which has the characteristics of suddenness，openness，complexity，variability，and nonlinearity，and is in line with the connotation of systems and complex systems.For the various subsystems that make up the complex emergency management system，including subsystems，governance subject subsystems，and governance object subsystems，information technology has also become an important variable in promoting the continuous increase in complexity，making the various subsystems of emergency management more efficient.Complexity is also rising.

In public health emergencies in my country，the network structure formed by the embedding of party organizations represented by the“floor chief system”has become an important measure to respond to public health emergencies.This case examines the structure-function-goal framework proposed in this book，the study found that the party organization formed a network structure by embedding the emergency management system，which was supplemented by volunteers to form a network of rules，and then by eliminating structural holes，a fully connected structure with efficient information transmission，orders and prohibitions，and uploading and declaring was formed，which provided the basis for emergency management.It provides an important guarantee for the performance of system functions.The embedding of party organizations also introduces their organizational capabilities，culture，rules and regulations into the network structure，realizing various functions of the emergency management system led by party building，including emergency prevention，improving emergency response efficiency，accurate emergency response and rescue，etc.From the perspective of goal achievement，trust is the basic factor in the operation and effectiveness of the“floor chief system”.Based on trust，multiple subjects can more easily reach goal consensus.Based on the field of public health emergencies，governance synergies are formed，and the achievement of governance goals is still difficult.It depends on the network scale and network capability requirements.

To a certain extent，the“building director system”in colleges and universities shows that it is easier to achieve governance goals in a field with a high level of trust，and based on this，a goal consensus can be formed to achieve the goal of network governance.However，in a general sense，most fields do not have this the level of trust in colleges and universities based on the relationship between teachers and students.To this end，the approach of the emergency management system for public health emergencies towards complex issues is discussed in a general sense.The evolution of the network has its own characteristics，including small-world characteristics and scale-free characteristics，community structure characteristics，robustness and vulnerability characteristics，and preferential connection characteristics.The above characteristics provide a theoretical basis for the evolution of the emergency management system network.Accordingly，the construction of the governance subject network should pay attention to its own complexity，eliminate structural holes within the network，and promote efficiency improvement；for community structures that are conducive to conflict，during this period，the interest demands of multiple subjects must be integrated through party building；the network tends to preferential connections，that is，a very small number of people often have a large number of connections，so artificial design must be used to ease the response of the governance subjects.The formation of the structure is an important basis for function realization.On the basis of grasping the structure，it is possible to promote party building to lead the realization of the full function of emergency management，form an emergency management network system with multiple subjects，and form an internal information and knowledge sharing system，thereby realizing emergency management.It has a series of functions such as prevention，monitoring and early warning，disposal and rescue，recovery and reconstruction.The realization of functions not only requires the improvement of the structure，but also requires the discussion of the effectiveness of network governance，that is，responding to the theoretical problems of network governance.Trust is the cornerstone of a multi-subject network.A network lacking trust is difficult to form a synergistic governance force.Therefore，it is necessary to strengthen the cultivation of trust among multiple governance subjects and form a consensus on the goals of multiple governance subjects.In addition，the scale of the network and the demand for capabilities must be comprehensively considered to achieve governance goals.