The General Office of the State Council has issued the revised Measures for the Administration of Emergency Response Plans for Sudden Incidents.

General Office of the State Council on Issuing
Notice on the Measures for the Administration of Emergency Response Plans for Sudden Incidents
General Office Document No. 5 [2024]

To the People’s Governments of all provinces, autonomous regions, and municipalities directly under the central government; to all ministries and commissions of the State Council, and to all institutions directly affiliated with the State Council:

With the approval of the State Council, the revised Measures for the Administration of Emergency Response Plans for Sudden Incidents are hereby issued to you. Please implement them conscientiously in light of your specific circumstances. The Measures for the Administration of Emergency Response Plans for Sudden Incidents, promulgated by the General Office of the State Council on October 25, 2013, with the approval of the State Council, are hereby repealed.

General Office of the State Council

January 31, 2024

(This document is publicly released.)

Administrative Measures for Emergency Response Plans for Sudden Incidents

Chapter 1 General Provisions

Article 1 　In order to strengthen the development of the emergency response plan system (hereinafter referred to as “emergency plans”), standardize their management, and enhance their relevance, practicality, and operability, these Measures are hereby formulated in accordance with the Law of the People’s Republic of China on the Response to Emergencies and other relevant laws and administrative regulations.

Article 2 　For the purposes of these Measures, an emergency response plan refers to a pre‑formulated plan developed by people’s governments at all levels and their departments, grassroots organizations, enterprises and public institutions, social organizations, and other entities, with the aim of responding to emergencies in a lawful, swift, scientific, and orderly manner, thereby minimizing such emergencies and the harm they cause.

Article 3 　The planning, preparation, approval, promulgation, filing, training, public awareness‑raising, drills, evaluation, and revision of emergency response plans shall be governed by these Measures.

Article 4 　Emergency preparedness plan management adheres to the principles of unified planning, comprehensive coordination, category-specific guidance, tiered responsibility, and dynamic management.

Article 5 　The State Council provides unified leadership over the development and management of the national emergency preparedness system, while people’s governments at or above the county level are responsible for leading the development and management of the emergency preparedness system within their respective administrative areas.

Relevant departments responsible for responding to emergencies shall, within the scope of their respective duties, oversee emergency preparedness plan management within their own departments (industries or sectors). Emergency management departments of people’s governments at or above the county level shall provide guidance on emergency preparedness plan management and coordinate the alignment of such plans in a comprehensive manner.

Article 6 　The emergency management department of the State Council coordinates and manages the emergency preparedness plan databases across all regions and departments, promoting data sharing and joint utilization of such plans. Each region and department is responsible for managing the emergency preparedness plan data within its own administrative area and sector (industry or field).

People’s governments at or above the county level and their relevant departments shall emphasize the application of information, digital, and intelligent technologies to advance innovation in the concepts, models, tools, and methods of emergency plan management, thereby fully leveraging the role of emergency plans in guiding preparedness and directing response and rescue operations.

Chapter 2: Classification and Content

Article 7 　Based on the entity that develops them, emergency response plans are categorized into two main types: government and departmental emergency response plans, and emergency response plans for organizations and grassroots-level entities.

The government and its departments’ emergency response plans include the general emergency plan, specific emergency plans, and departmental emergency plans, among others.

Emergency response plans of organizations and grassroots entities include those developed by enterprises and public institutions, village committees, residents’ committees, social organizations, and other such entities.

Article 8 　The General Emergency Response Plan is the overarching institutional framework established by the people’s government for responding to emergencies.

The overarching emergency response plan covers the entire lifecycle of emergencies—before, during, and after an incident—and primarily sets out the overall requirements for response efforts, the classification and grading of incidents, the structure of the planning system, the organizational command framework and associated responsibilities, as well as provisions for risk prevention and control, monitoring and early warning, incident management and rescue operations, emergency support, recovery and reconstruction, and plan management.

Article 9 　A specialized emergency response plan is a pre‑formulated document developed by the people’s government to address a specific type of emergency or several types of emergencies, or to support critical specialized tasks such as the protection of key targets, the assurance of major events, and emergency preparedness, and it delineates the responsibilities of multiple departments.

A departmental emergency response plan is a pre‑developed scheme formulated by the relevant departments of the people’s government, based on the general emergency response plan, specific emergency response plans, and the departments’ respective responsibilities, to address emergencies within the department (industry or field), or to support critical infrastructure protection, major event security, emergency preparedness, and other tasks falling under the department’s purview.

Article 10 　Specialized and departmental emergency response plans for handling sudden incidents primarily establish the organizational and command structure and specific operational arrangements for responding to such incidents at or above the county level, as well as within relevant departments. The content of plans at different levels shall emphasize distinct priorities, and where tasks involve neighboring or related local people’s governments, departments, or entities, these shall be clearly defined after ensuring coordination and consistency.

At the national level, specialized and departmental emergency response plans focus on clarifying the principles for responding to emergencies, the organizational and command mechanisms, the tiered early‑warning and incident classification criteria, the tiered response levels, information reporting requirements, and emergency support measures. These plans primarily standardize response actions at the national level while also reflecting policy orientation and providing guidance.

Provincial-level special plans and departmental emergency response plans focus on clarifying the organizational and command mechanisms for emergencies, monitoring and early warning systems, tiered response protocols and corresponding actions, logistical and resource support, as well as the responsibilities of municipal and county-level people’s governments. They are designed to standardize response measures at the provincial level while ensuring both guidance and practical applicability.

City- and county-level special‑purpose and departmental emergency response plans focus on defining the organizational and command mechanisms for emergencies, risk management and control, monitoring and early warning, information reporting, self‑rescue and mutual assistance, emergency response measures, on‑site management, and logistical and resource support. These plans prioritize standardizing response actions at the city (prefecture) and county levels, ensuring the implementation of relevant tasks, refining work procedures, and clearly articulating the primary responsibilities, specificity, and operational feasibility of emergency response efforts.

Article 11 　Specialized and departmental emergency response plans that provide support for handling emergencies—covering communications, transportation, medical rescue, supplies and equipment, energy, funding, as well as public information and publicity, public order maintenance, charitable donations, and disaster relief—focus on clearly defining the organizational command structure, key tasks, resource allocation, procedures for mobilizing resources or initiating emergency responses, and specific measures.

Specialized and departmental emergency response plans for the protection of critical infrastructure, lifeline projects, and other vital targets focus on clearly defining key functions and facilities, identifying risks and potential hazards along with corresponding preventive measures, establishing monitoring and early warning systems, outlining information reporting procedures, detailing emergency response and rapid recovery protocols, and coordinating inter‑agency emergency operations.

Article 12 　Organizations hosting or undertaking major events shall, in light of their specific circumstances, develop emergency response plans for event security, with particular emphasis on defining the organizational command structure, key tasks, safety risks and mitigation measures, inter‑agency coordination, monitoring and early warning systems, information reporting procedures, emergency response protocols, as well as arrangements and routes for personnel evacuation and relocation.

Article 13 　The people’s governments of adjacent or related localities and their relevant departments may jointly formulate joint emergency response plans for regional and basin‑wide emergencies, with a focus on clarifying such matters as information sharing among local people’s governments and their departments, the alignment of organizational and command structures, the coordination of response measures, and the assurance of emergency resources.

Article 14 　Relevant state departments and the people’s governments of megacities and super‑large cities may, in light of the actual conditions of industry‑specific (or regional) risk assessments, formulate contingency plans for catastrophic disasters and coordinate disaster response efforts within their respective departments (industries or sectors) and regions.

Article 15 　Township (subdistrict) emergency response plans primarily standardize response actions at the township (subdistrict) level, focusing on clarifying procedures for disseminating early warning information, assigning tasks, implementing response measures, collecting and reporting information, managing on-site operations, and evacuating and accommodating personnel.

Village (community) emergency response plans focus on clearly defining risk locations, assigning responsibility for emergency response, establishing procedures for disseminating early warning information and coordinating responses, organizing the evacuation of personnel to safe areas, outlining emergency response measures, and specifying the mobilization of emergency resources.

The format, components, and content of emergency response plans at the township (subdistrict) and village (community) levels may be tailored to local conditions, striving for simplicity and practicality, with a strong emphasis on evacuating and safeguarding personnel and reflecting the characteristics of initial response measures.

Article 16 　The unit’s emergency response plan focuses on clearly defining the persons responsible for emergency response, risk and hazard monitoring, key tasks, information reporting, early warning and emergency response procedures, emergency handling measures, personnel evacuation and relocation, and the mobilization of emergency resources.

Large enterprise groups may, in accordance with relevant standards and specifications and based on actual operational needs, establish their own emergency response plan system.

Production and business entities with single, low‑risk hazards may, based on their specific circumstances, simplify the elements and content of their emergency response plans.

Article 17 　Relevant departments and entities involved in the emergency response plan may, based on actual conditions, prepare an emergency operations manual. Such a manual typically includes emergency response measures, procedures for handling incidents, emergency rescue teams, available materials and equipment, contact persons, and relevant telephone numbers.

Emergency rescue teams and support units shall, in light of actual conditions, develop operational plans tailored to the specific tasks they are required to undertake in responding to emergencies, with a focus on clearly defining emergency response procedures, command and coordination mechanisms, force organization, operational concepts, comprehensive logistical support, and other relevant measures.

Chapter 3 Planning and Preparation

Article 18 　The emergency management department of the State Council, in coordination with relevant departments, shall formulate a work plan for the preparation and revision of emergency response plans, which shall be implemented upon approval by the State Council. The emergency management departments of local people’s governments at or above the county level shall, in conjunction with relevant departments, develop a work plan for the preparation and revision of emergency response plans specific to their administrative areas, taking into account frequently occurring emergencies and major risks. Such plans shall be submitted to the people’s government at the same level for approval before implementation, with a copy forwarded to the emergency management department of the next higher-level people’s government.

Relevant departments of people’s governments at or above the county level may, in light of actual conditions, formulate emergency response plan‑development plans for their respective departments (industries or sectors) and forward copies to the emergency management department at the same level. For local people’s governments at or above the county level, the emergency response plan‑development plans of relevant departments shall also be copied to the corresponding higher‑level department.

The plan for developing emergency response plans shall be adjusted as appropriate in accordance with the national economic and social development plans and the actual needs of responding to emergencies.

Article 19 　The general emergency response plan of people’s governments at or above the county level shall be drafted under the auspices of the emergency management department of the respective government, while specialized emergency response plans shall be drafted by the leading department responsible for responding to the relevant category of emergencies within that government. Emergency response plans of government departments at or above the county level, as well as those of township-level people’s governments, organizations, and grassroots entities, shall be drafted by the respective drafting units.

Article 20 　The department or unit responsible for drafting the emergency plan shall, as needed, establish an emergency‑plan drafting working group, which shall include personnel from relevant departments and units, pertinent experts, and individuals with experience in emergency response. The head of the drafting working group shall be a designated official from the department or unit tasked with preparing the emergency plan.

Article 21 　The preparation of emergency response plans shall be based on relevant laws, regulations, rules, and standards, closely aligned with actual conditions, and conducted on the basis of risk assessments, resource inventories, and case studies.

Risk assessment primarily involves identifying risks associated with emergencies, as well as their potential consequences and secondary (derived) disaster events, and evaluating the likely severity of harm and the scope of impact.

Resource surveys primarily involve a comprehensive assessment of the emergency response teams, supplies and equipment, facilities, and other emergency resources within the local area and organization that can be mobilized in the event of an emergency, as well as the status of emergency resources available for assistance from partner regions. They also cover disaster‑resilience safeguards and backup capacities of critical infrastructure, and the potential to convert existing capabilities into emergency resources, thereby providing a basis for developing effective emergency response measures. When necessary, surveys may also be conducted to ascertain the emergency resource holdings of relevant local entities and residents, in accordance with the specific needs of responding to emergencies.

Case analysis primarily involves retrospective examination of the occurrence and evolution patterns of typical emergencies, their resulting consequences, and the response and rescue efforts. When necessary, emergency scenarios are constructed to distill lessons learned, clarify response procedures, delineate roles and responsibilities, and identify appropriate measures, thereby providing valuable guidance for the development of emergency preparedness plans.

Article 22 　In the course of developing emergency response plans, the government and its relevant departments shall extensively solicit opinions, convene expert reviews, and ensure proper coordination with related emergency response plans and national defense mobilization implementation plans. Where the plans involve the responsibilities of other entities, written consultations shall be conducted. When necessary, public consultation shall also be carried out.

During the development of emergency response plans, organizations and grassroots entities shall, in accordance with legal and regulatory requirements or actual needs, solicit the views of relevant citizens, legal persons, or other organizations.

Chapter IV Approval, Publication, and Filing

Article 23 　The working group or lead agency responsible for drafting the emergency plan shall submit to the approving authority the draft of the emergency plan, records of public consultation, explanatory notes on its preparation, and other relevant materials. Where a summary version of the emergency plan is required for reasons such as confidentiality, the summary version shall also be submitted for approval.

Article 24 　The main contents of the emergency plan review include:

(1) Whether the contingency plan complies with relevant laws, regulations, rules, and standards;

(2) Whether the plan complies with the requirements of higher-level plans and is effectively aligned with relevant plans;

(3) Whether the framework is clear and well-structured, and whether the main content is comprehensive;

(4) Whether the organizational command structure and division of responsibilities are reasonable and clearly defined, whether the emergency response levels are appropriately designed, and whether the response measures are specific, concise, effective, and feasible;

(5) Whether there is consensus among all parties;

(6) Other matters requiring review.

Article 25 　The National General Emergency Response Plan is submitted, in accordance with established procedures, to the CPC Central Committee and the State Council for approval and is issued in the name of the CPC Central Committee and the State Council. Specialized emergency response plans are first submitted by the lead drafting department to the Ministry of Emergency Management for coordination and alignment, then forwarded to the State Council for approval, and issued either in the name of the General Office of the State Council or of the relevant emergency command agency. Departmental emergency response plans are deliberated and adopted at departmental meetings and issued in the name of the respective department; where they involve the responsibilities of other departments, they may be jointly issued with those departments. When necessary, such plans may also be circulated by the General Office of the State Council.

The general emergency response plans of people’s governments at all local levels shall, in accordance with prescribed procedures, be submitted to the respective Party committees and governments for approval and issued in the name of those committees and governments. Specialized emergency response plans shall, following due procedures, be forwarded to the local emergency management authorities for coordination and alignment, then submitted to the local people’s government for approval and issued in the name of the local people’s government’s general office (or equivalent) or the relevant emergency command agency. The approval and issuance procedures for departmental emergency response plans shall be implemented in accordance with the emergency response plan management regulations of the local people’s government and the competent higher-level authorities.

Emergency response plans for major events and catastrophic disaster response plans shall be approved by the people’s government at the corresponding level or its relevant departments. For joint emergency response plans spanning multiple administrative regions, approval shall be determined through consultation among the relevant people’s governments or their authorized departments, and such plans shall be managed in accordance with the provisions governing special‑purpose emergency response plans or departmental emergency response plans.

Emergency response plans of organizations and grassroots units shall be signed by the principal person in charge of the respective organization or unit and issued in the name of that organization or unit. The approval procedure shall be determined in accordance with the regulations of the local people’s government and the relevant industry supervisory authorities, as well as the actual circumstances.

Article 26 　The approving authority for the emergency plan shall, within 20 working days after the plan is issued, file the official printed version of the emergency plan (including an electronic copy) and the preparation notes with the relevant entities and forward copies to the pertinent departments in accordance with the following provisions:

(1) The general emergency response plan of local people’s governments at or above the county level shall be filed with the next higher-level people’s government, submitted directly to the emergency management department of that higher-level government, and concurrently copied to the relevant departments of the same higher-level government.

(2) Special emergency response plans of local people’s governments at or above the county level shall be filed with the corresponding lead department of the next higher-level people’s government, and a copy shall simultaneously be sent to the emergency management department and relevant departments of the next higher-level people’s government.

(3) Departmental emergency response plans shall be filed with the people’s government at the same level, submitted directly to the emergency management department at that level, and concurrently copied to the relevant departments at the same level.

(4) Joint emergency response plans shall, in accordance with the relevant provisions of the specific emergency response plans or departmental emergency response plans, be filed with the competent authorities based on the areas involved, and a copy shall simultaneously be sent to the emergency management department and relevant departments of the next higher-level or jointly designated higher-level people’s government in the respective region.

(5) Emergency response plans of central government agencies that require joint emergency response with the local people’s government shall be filed with the county-level people’s government of the locality, with a copy simultaneously sent to the local emergency management department and the lead department for responding to emergencies.

(6) Emergency response plans of townships (subdistricts) shall be filed with the next higher-level people’s government and submitted directly to the emergency management department of that higher-level government, with a copy concurrently sent to the relevant departments of the same higher-level government. Emergency response plans of villages (communities) shall be filed with the township (subdistrict) authorities.

(7) The overall emergency response plan of a central enterprise group shall be filed with the Ministry of Emergency Management and copied to the enterprise’s supervisory authority, the industry‑specific competent department, and the regulatory authorities. Relevant specialized emergency response plans shall be filed with the national lead agency for responding to emergencies and copied to the Ministry of Emergency Management, the enterprise’s supervisory authority, the industry‑specific competent department, the regulatory authorities, and other relevant entities. The overall emergency response plans of units under the central enterprise group and its subsidiaries shall, in accordance with their respective management hierarchies, be filed with the local people’s government’s emergency management department and copied to the enterprise’s supervisory authority, the industry‑specific competent department, and the regulatory authorities; specialized emergency response plans shall, in accordance with their respective management hierarchies, be filed with the local industry‑specific regulatory authority and copied to the emergency management department as well as the relevant enterprise supervisory authorities and industry‑specific competent departments.

Article 27 　The departments of the State Council responsible for the filing and management of emergency response plans, as well as the people’s governments at the provincial level, shall establish a system for the filing and management of such plans. Relevant departments of local people’s governments at or above the county level shall implement the pertinent provisions and provide guidance and oversight to ensure that relevant entities properly carry out the filing of their emergency response plans.

Article 28 　Government and departmental emergency response plans shall be made public within 20 working days of their official issuance. Emergency response plans of organizations and grassroots entities shall, within 20 working days of their official issuance, be disclosed to their own organization as well as to other organizations and regions that may be affected.

Chapter 5: Training, Public Awareness, and Drills

Article 29 　Following the issuance of the emergency response plan, the drafting entity shall ensure its effective implementation and provide clear explanations, while also monitoring the plan’s execution and soliciting feedback and recommendations from relevant stakeholders and the general public.

Article 30 　The entity responsible for developing the emergency response plan shall provide training to management personnel, specialized rescue teams, and other relevant stakeholders through methods such as preparing and distributing training materials, organizing training courses, and conducting working seminars.

People’s governments at all levels and their relevant departments shall incorporate emergency response plan training as an essential component of pertinent professional training, integrating it into the routine training programs for leading cadres, civil servants, and other personnel.

Article 31 　For non-classified emergency response plans that require broad public participation, the drafting agencies shall make full use of various media, including the internet, radio, television, and newspapers, to conduct extensive publicity. They shall also develop clear, easy-to-understand, memorable, and practical informational materials and distribute them to the public free of charge.

Article 32 　The entity responsible for developing the emergency response plan shall establish a drill‑and‑exercise regime, conducting exercises—using diverse formats and approaches—targeting the entities, personnel, equipment, facilities, and other resources covered by the plan. Such exercises shall identify and address any deficiencies, thereby facilitating the ongoing revision and enhancement of the emergency response plan.

Specialized emergency response plans and departmental emergency response plans shall be exercised at least once every three years.

People’s governments in areas prone to natural disasters such as earthquakes, typhoons, storm surges, floods, flash floods, landslides, debris flows, and forest and grassland fires; the entities responsible for the operation and management of critical infrastructure and lifeline systems—including urban water supply, power supply, gas supply, oil supply, and heating; mining, metallurgical, and construction enterprises; and organizations engaged in the production, handling, use, storage, transportation, or disposal of hazardous materials such as flammable and explosive substances, chemicals, and radioactive materials; as well as operators or managers of public transportation, public venues, and densely populated facilities like hospitals and schools—shall, on a targeted basis, organize and conduct emergency preparedness drills.

Article 33 　The organization responsible for conducting emergency response plan drills shall strengthen the evaluation process, with key areas of assessment including: the implementation of the drill; the practicality and operability of the emergency response plan; the functioning of command-and‑coordination and inter‑agency coordination mechanisms; the performance of emergency responders; the suitability of the equipment and resources used during the drill; as well as opinions and recommendations for improving the emergency response plan, emergency preparedness, emergency response mechanisms, and emergency measures.

All regions and relevant departments shall strengthen the evaluation and guidance of emergency response plan drills conducted within their respective administrative areas and by their own departments (industries or sectors). As necessary, the emergency management authorities, in coordination with relevant departments, shall organize evaluations and provide guidance on the implementation of emergency response plan drills undertaken by lower-level people’s governments and their affiliated departments.

Encourage the commissioning of third-party professional organizations to conduct emergency response plan drills and assessments.

Chapter 6: Evaluation and Revision

Article 34 　The entity responsible for developing the emergency response plan shall establish a system for regular evaluation, assessing the plan’s relevance, practicality, and operability, thereby achieving dynamic optimization and scientifically sound, standardized management.

In principle, the emergency response plans of local people’s governments at or above the county level and their relevant departments shall be reviewed every three years. The review of these emergency response plans may be entrusted to third-party professional organizations for implementation.

Article 35 　An emergency response plan shall be promptly revised if any of the following circumstances apply:

(1) Where significant changes have occurred in the relevant provisions of applicable laws, regulations, rules, standards, or higher-level contingency plans;

(2) Where there have been significant adjustments to the emergency command structure and its responsibilities;

(3) Where the risks faced have undergone significant changes;

(4) Where significant changes occur in critical emergency resources;

(5) Where issues are identified during actual responses to emergencies or emergency drills that necessitate substantial adjustments;

(6) Other circumstances that the entity responsible for developing the emergency plan deems warrant revision.

Article 36 　When revisions to an emergency response plan involve key elements such as the organizational command structure and responsibilities, emergency response procedures, principal response measures, or classification criteria for emergencies, the revision process shall be conducted in accordance with the procedures for drafting, approving, filing, and issuing emergency response plans set forth in these Measures. If the revisions pertain solely to other matters, the revision procedure may be appropriately streamlined depending on the circumstances.

Article 37 　People’s governments at all levels and their departments, enterprises and public institutions, social organizations, and citizens may submit revision proposals to the relevant units responsible for drafting emergency response plans.

Chapter 7: Safeguard Measures

Article 38 　People’s governments at all levels, together with their relevant departments and related entities, shall designate specialized agencies and personnel to oversee the pertinent tasks, and shall incorporate into the budgetary plan the funds required for emergency preparedness planning, drafting, approval, promulgation, filing, training, public awareness‑raising, drills, evaluation, and revision.

Article 39 　Relevant departments of the State Council shall strengthen guidance and oversight over emergency preparedness plan management within their respective sectors (industries or fields), and, as necessary, develop guidelines for the preparation of such plans. People’s governments at or above the county level and their relevant departments shall likewise enhance guidance and oversight of emergency preparedness plan management within their administrative jurisdictions and in their respective sectors (industries or fields).

Chapter VIII Supplementary Provisions

Article 40 　Relevant departments of the State Council, people’s governments at all levels and their respective departments, as well as large enterprise groups, may, in light of actual conditions, formulate implementing measures for the management of relevant emergency response plans.

Article 41 　Where laws, regulations, or rules provide otherwise, such provisions shall prevail. Emergency response plans that are required to be kept confidential shall be implemented in accordance with the relevant provisions.

Article 42 　This Measures shall be interpreted by the emergency management department of the State Council.

Article 43 　These Measures shall enter into force as of the date of their issuance.