State policy in the field of prevention and elimination of emergencies, protection of the population and territories. OBZhD

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State policy in the field of prevention and elimination of emergencies, protection of the population and territories. Fundamentals of safe life

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By the end of the 1980s, the existing state system for ensuring the security of the population and territories, focused on civil defense, did not meet the requirements of the time. According to its status, structure, forces and means, it could not provide an effective solution to all the problems generated by emergencies. The question arose about the need for a new state policy and security system aimed at preventing and eliminating the consequences of emergency situations in peacetime and wartime. It was necessary, while maintaining the existing functions of civil defense to protect the population, territories and objects in wartime, to pay priority attention to new approaches and solving problems due to their protection in peacetime conditions. A new department has begun to create such a system - the Ministry of the Russian Federation for Civil Defense, Emergency Situations and Elimination of Consequences of Natural Disasters, which is a federal executive body that manages and coordinates work in the field of civil defense, prevention and elimination of emergencies caused by accidents, catastrophes, natural disasters and the use by the enemy of means of destruction, ensuring the survival of the population in wartime conditions.

The unified state policy in the field of prevention and elimination of emergencies, protection of the population and territories is aimed at preventing and eliminating emergency situations in order to protect the life and health of people, economic facilities and the natural environment. It includes organizational measures taken by administrative, managerial, economic and public structures for the development of long-term targeted programs, action plans and their implementation.

Its main provisions are fixed in the Concept of the state system for the prevention and elimination of emergencies. This concept is a set of scientifically based theoretical provisions, legal and economic norms and defines the specific tasks of the authorities for the prevention and elimination of emergencies throughout Russia, measures for the organization and training of forces and means to protect the population, economic facilities and the environment in emergencies .

In 1992, the Russian system of warning and action in emergency situations was created, the purpose of which was to improve the coordination of the activities of government bodies of the Russian Federation at all levels in the prevention and elimination of emergencies caused by accidents, catastrophes, natural and environmental disasters, epizootics and epiphytoties. This system was intended to prevent emergencies in peacetime and wartime, and in case of their occurrence, to eliminate the consequences, ensure the safety of the population, protect the environment and reduce damage to the national economy.

In 1994, the Federal Law "On the protection of the population and territories from natural and man-made emergencies" was adopted - the fundamental document that regulates and defines the organizational and legal norms common for the Russian Federation in the field of protecting citizens, all land, water, air space, objects production and social purposes, as well as the natural environment. In pursuance of it, and as a result of the implementation of the proposals of the Ministry of Emergency Situations, the Government of the Russian Federation adopted Decree No. 1113 of November 5, 1995, which transformed the Russian system of warning and action in emergency situations into unified state system for the prevention and liquidation of emergency situations(RSChS).

Decree of the Government of the Russian Federation No. 794 dated December 30.12.2003, XNUMX put into effect a new Regulation on this system, according to which it main tasks are:

development and implementation of legal and economic norms related to ensuring the protection of the population and territories from emergencies;
implementation of targeted and scientific and technical programs aimed at preventing emergencies and increasing the sustainability of the functioning of enterprises, institutions and organizations, regardless of their organizational and legal forms, as well as their subordinate production and social facilities in emergencies;
ensuring readiness for actions of command and control bodies, forces and means intended for the prevention and elimination of emergencies;
collection, processing, exchange and issuance of information in the field of protection of the population and territories from emergencies;
preparing the population for actions in emergency situations;
forecasting and assessing the socio-economic consequences of emergencies;
creation of reserves of financial and material resources;
implementation of state expertise, supervision and control in the field of protection of the population and territories from emergencies;
elimination of emergencies;
fire prevention and extinguishing;
implementation of measures for the social protection of the population affected by emergencies, holding humanitarian actions;
implementation of the rights and obligations of the population in the field of protection against emergencies, including persons directly involved in their liquidation;
international cooperation in the field of protection from emergencies.

The RSChS unites the governing bodies, forces and means of federal executive authorities, executive authorities of the constituent entities of the Russian Federation, local self-government and organizations whose powers include addressing issues of protecting the population and territories from emergency situations. It consists of territorial and functional subsystems and has five levels: federal, regional, territorial, local and object.

Territorial subsystems of RSChS are created in the constituent entities of the Russian Federation to prevent and eliminate emergencies within their territories and consist of units corresponding to the administrative-territorial division of these territories. The tasks, organization, composition of forces and means, the procedure for their functioning are determined by the provisions on these subsystems, approved by the relevant state authorities of the constituent entities of the Russian Federation.

Functional subsystems of RSChS are created by federal executive authorities to organize work to protect the population and territories from emergencies in the field of their activities and the sectors of the economy entrusted to them. The organization, composition of forces and means, the procedure for the operation of these subsystems are determined by the provisions on them, approved by the heads of the relevant executive authorities in agreement with the Ministry of Emergency Situations. The exception is the Regulations on the functional subsystem of the RSChS of response and liquidation of the consequences of accidents with nuclear weapons in the Russian Federation, which is approved by the Government of the Russian Federation.

Each level of the RSChS has coordinating bodies, permanent management bodies specially authorized to solve problems in the field of protecting the population and territories from emergencies (OS GOChS), daily management bodies, forces and means, reserves of financial and material resources, communication systems, warning, information security.

RSChS coordinating bodies:

on federal level - the Interdepartmental Commission for the Prevention and Elimination of Emergencies and departmental commissions for emergencies in federal executive bodies;
on regional level, covering the territory of several objects of the Russian Federation - regional centers for civil defense, emergency situations and elimination of consequences of natural disasters of the Ministry of Emergency Situations of Russia (RC GOChS);
on territorial the level covering the territory of the constituent entities of the Russian Federation - commissions on emergency situations of the executive authorities of the constituent entities of the Russian Federation (CoChS);
on local level, covering the territory of the district, city (district in the city), - commissions for emergency situations of local governments (CoES);
on object level covering the territory of an organization or facility - facility commissions for emergencies (CoES).

Regulations on CoES are approved by the heads of the relevant executive authorities and organizations.

The Decree of the Government of the Russian Federation No. 794 of December 30.12.2003, XNUMX "On the unified state system for the prevention and elimination of emergency situations" details the tasks of the coordinating bodies of the RSChS.

Permanent management bodies for civil defense and emergency situations (OU GOChS) are:

on federal level - EMERCOM of Russia;
on regional level - regional centers (RC GOChS);
on territorial level - management bodies for civil defense and emergency situations, created under the executive authorities of the constituent entities of the Russian Federation (OU GOChS);
on local level - management bodies for civil defense and emergency situations, created under local governments (OU GOChS);
on object level - departments (sectors, specially appointed persons) for civil defense and emergency situations.

Bodies of day-to-day management of the RSChS include:

control points (crisis control centers), operational and duty services of the educational institution of civil defense and emergency situations at all levels;
duty dispatch services and specialized subdivisions of federal executive bodies and organizations.

They are located at command posts equipped with appropriate means of communication, warning, collection, processing and transmission of information and maintained in a state of constant combat readiness for use.

Information support for the functioning of the RSChS is carried out information management system, which includes:

crisis management center of the Ministry of Emergency Situations of Russia;
information centers of federal executive bodies;
regional information and control centers;
information and control centers of OU GOChS;
subscriber points of city and regional OS GOChS;
information centers of organizations;
communication and data centers.

The procedure for collecting information in the field of protecting the population and territories from emergencies and the exchange of this information between executive authorities, the OU GOChS is determined by the Government of the Russian Federation.

The basis of the forces and means of the RSChS at all levels are the forces and means of federal executive authorities, executive authorities of the constituent entities of the Russian Federation, local governments, and organizations. All of them are divided into two groups: 1) forces and means of observation and control, 2) forces and means of emergency response.

Forces and means of observation and control include:

services (institutions) and organizations of federal executive bodies that monitor and control the state of the environment, the situation at potentially hazardous facilities, adjacent territories and analyze the impact of harmful factors on public health;
formation of the State Committee for Sanitary and Epidemiological Surveillance of the Russian Federation;
veterinary service of the Ministry of Agriculture and Food of the Russian Federation (MAF RF);
services (institutions) for monitoring and laboratory control over the quality of food raw materials and food products of the Committee for Trade and the Ministry of Agriculture of the Russian Federation;
geophysical services of the Russian Academy of Sciences (RAS), operational groups of permanent readiness of the Russian Federal Service for Hydrometeorology and Environmental Monitoring;
subdivisions of the Ministry of the Russian Federation for Atomic Energy;
establishments of the network of observation and laboratory control of civil defense.

В forces and means of emergency response includes:

paramilitary and non-military firefighting, search, emergency rescue, emergency recovery, recovery and emergency technical formations of the federal executive authorities;
formation and establishment of the All-Russian Service for Disaster Medicine;
formation of the veterinary service and plant protection service of the Ministry of Agriculture of the Russian Federation;
militarized services for active influence on hydrometeorological processes of the Russian Federal Service for Hydrometeorology and Environmental Monitoring;
formation of civil defense at the territorial, local and facility levels;
specially trained forces and means of civil defense troops, other troops and military formations intended to eliminate emergencies;
emergency technical centers of the Ministry of the Russian Federation for Atomic Energy;
search and rescue services for civil aviation flights of the Federal Aviation Service of Russia;
recovery and fire trains of the Ministry of Railways of the Russian Federation;
emergency rescue services and formations of the Federal Marine Service of the Russian Federation (including the State Marine Rescue and Coordination Center and rescue coordination centers), the Federal River Fleet Service and other federal executive authorities.

These forces include forces of constant readiness, including emergency rescue teams, staffed to ensure work offline for at least three days and in a state of constant readiness. These forces can be involved by the Ministry of Emergency Situations of Russia and other management bodies of the Civil Defense and Emergency Situations Ministry in agreement with the federal executive authorities, executive authorities of the constituent entities of the Russian Federation, local governments and organizations for emergency response in the event of an emergency.

Specially trained forces and means of the Armed Forces of the Russian Federation, other troops and military formations involved in the liquidation of emergencies in the manner determined by the President of the Russian Federation.

Forces and means of internal affairs bodies used in elimination of emergencies in accordance with the tasks assigned to them by the laws and other regulatory legal acts of the Russian Federation and the subjects of the Federation.

By decisions of the heads of organizations and facilities, on the basis of existing specialized organizations, services and divisions (construction, medical, chemical, repair, etc.), emergency rescue teams, intended for rescue and other urgent work in case of emergency.

In order to advance carrying out measures to prevent emergency situations and the maximum possible reduction in the amount of damage and losses in the event of their occurrence is carried out action planningwithin the framework of the RSChS on the basis of the federal action plan, regional plans for interaction of the constituent entities of the Russian Federation, as well as action plans of federal executive authorities, constituent entities of the Russian Federation, local governments, organizations and facilities.

Liquidation of emergencies carried out by the forces and means of enterprises, institutions and organizations, regardless of their organizational and legal form, by local governments and executive authorities of the constituent entities of the Russian Federation on whose territory an emergency situation has developed, under the leadership of the relevant commissions for emergencies.

Liquidation of local Emergency situations are carried out by forces and means of organizations: local - local authorities; territorial - executive authorities of the constituent entity of the Russian Federation; regional and federal - by the executive authorities of the subjects in the emergency zone. With a lack of own forces and means to eliminate the above types of emergencies, the heads of the civil defense may apply for help to higher emergency commissions.

Elimination of cross-border Emergency situations are carried out by decision of the Government of the Russian Federation in accordance with the norms of international law and international treaties.

As emphasized earlier, in accordance with the legislation of the Russian Federation, the Armed Forces, civil defense troops, as well as other troops and military formations can be involved in the elimination of emergencies. Public associations may also participate in the elimination of emergencies under the guidance of the relevant governing bodies of the Civil Defense and Emergency Situations if their participants have the appropriate training, confirmed in the attestation procedure. The liquidation of emergency situations is considered completed upon completion of repair, rescue and other urgent work.

An important component of the state system for the prevention and elimination of emergencies are operating modes. Depending on the situation, the scale of the predicted or emerging emergency, by the decision of the relevant executive authorities of the constituent entities of the Russian Federation and local governments within specific territories, one of the following modes of operation is established:

daily activities - under normal industrial, radiation, chemical, biological (bacteriological), seismic and hydrometeorological conditions, in the absence of epidemics, epizootics and epiphytoties;
high availability - in case of deterioration of the above situation and upon receipt of a forecast about the possibility of an emergency;
emergency - in case of occurrence and liquidation of emergencies.

For each mode, a list of activities is defined that are organized in the subsystems of the RSChS and carried out by its units. To carry out priority work during the elimination of emergencies at all levels of the RSChS, reserves of financial and material resources are created at the expense of their budgets.

As already noted, an integral part of the unified state system for the prevention and elimination of emergency situations is civil defense. Civil defense is organically included in the RSChS as a direction for preparing the country for activities in special wartime conditions. According to federal law, civil defense - this is "a system of measures to prepare for the protection and to protect the population, material and cultural values on the territory of the Russian Federation from the dangers arising from the conduct of hostilities or as a result of these actions."

The tasks of the GO are:

teaching the population how to protect themselves from the dangers arising from the conduct of military operations or as a result of these operations;
notification of the dangers arising in these situations;
evacuation of the population, material and cultural values to safe areas;
provision of shelters and personal protective equipment;
carrying out events on light masking and other types of masking;
conducting emergency rescue operations in the event of danger to the population during the conduct of hostilities or as a result of these actions;
priority provision of the population affected by the conduct of hostilities or as a result of them, including medical care, including the provision of first aid, urgent provision of housing and the adoption of other necessary measures;
fighting fires that have arisen during the conduct of hostilities or as a result of them;
detection and designation of areas subjected to radioactive, chemical, biological and other contamination;
disinfection of the population, equipment, buildings, territories and other urgent measures;
restoration and maintenance of order in areas affected by the conduct of hostilities or as a result of them;
urgent restoration of the functioning of the necessary utilities in wartime;
urgent burial of corpses in wartime;
development and implementation of measures aimed at preserving objects that are essential for the sustainable functioning of the economy and the survival of the population in wartime;
ensuring constant combat readiness of forces and means of civil defense.
To implement the above tasks, civil defense services, civil civil defense organizations are created and territories assigned to the civil defense group are determined.

Civil Defense Services designed to carry out civil defense activities, including training the necessary forces and means and ensuring the actions of civilian civil defense organizations in the course of emergency rescue and other urgent work in wartime.

Civilian civil defense organizations - these are formations created on the basis of organizations on the basis of a territorial production principle, which are not part of the Armed Forces of the Russian Federation, own special equipment and property and are trained to protect the population and organizations from the dangers that arise in wartime.

The territory assigned to the civil defense group - This is a territory on which a city or other settlement of great defense and economic importance is located, with objects located in it that pose a high degree of danger of an emergency in wartime and peacetime.

Civil Defense Forces include:

military formations specially designed to solve problems in the field of civil defense, organizationally united in the Civil Defense Troops, as well as civilian civil defense organizations;
Armed forces, other troops and military formations performing tasks in the field of civil defense in accordance with the legislation of the Russian Federation;
emergency rescue services and emergency rescue units involved in solving problems in the field of civil defense in accordance with the legislation of the Russian Federation.

According to Russian law, general leadership of civil defense in the country entrusted to Chairman of the Government of the Russian Federation, who is ex officio Head of the Civil Defense of Russia. The Minister for Civil Defense and Emergency Situations is ex officio First Deputy Head of the Civil Defense of the Russian Federation.

Civil defense leadership in the constituent entities of the Russian Federation, in regions and cities, ministries and departments, institutions and enterprises regardless of ownership assigned to the respective managers who are ex officio heads of civil defense departments of their management structures and are personally responsible for the organization and implementation of civil defense activities, the creation and preservation of the accumulated funds of individual and collective protective equipment and property, as well as for the preparation and training of the population and personnel in emergency situations in the territory and objects under their jurisdiction.

The direct management of the Civil Defense of the Russian Federation is entrusted to the Ministry of Emergency Situations, which is responsible for the overall readiness to fulfill the assigned tasks and develops the main directions for the development and improvement of civil defense.

Thus, the RSChS and GO, as its integral part, were created according to the territorial production principle throughout the territory of the Russian Federation in order to ensure the constant readiness of forces and means, governments at all levels to protect the population and territories from emergencies, as well as early detection and timely elimination their consequences in the most difficult situation of peacetime and wartime.

Authors: Gubanov V.M., Mikhailov L.A., Solomin V.P.

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