In view of the problems in the evaluation of urban emergency response capability, based on the whole process concept of emergency management, the evaluation index system of urban emergency response capability is established in accordance with the three aspects of pre prevention, in-process disposal and post recovery.Five-element connection number based on set pair analysis is introduced to construct the similarities and differences evaluation model to analyze the current situation of urban emergency response capability, and the potential development trend is predicted through the partial connection coefficient of the five-element connection number.The effective combination of static and dynamic analysis is realized, and it is pointed out the direction for improving the city's ability to address weak links. The model is applied to a city for empirical analysis, and the evaluation results are compared with the actual situation to verify the feasibility of the model in the evaluation of urban emergency response capacity, which can provide reference for the evaluation of other cities' emergency response capacity.