摘要
廓清不同灾害应对理念在规划应用中的逻辑与特点,对防灾减灾规划框架的建立与实施意义重大。回顾总结了综合防灾减灾、灾害风险管理、韧性、安全等4种理念的内涵,从系统认识角度将其归纳为“行为导向”与“功能导向”两类。不同理念指导下的规划在目标、对象、内容及实施效益方面存在差异,但也具有风险“识别—分析—评价—处置”的潜在规划编制逻辑。遵循城市系统中存在的“结构—涨落—功能”作用关系,建立了“功能需求整合—风险评价衔接—空间系统组织—规划实施控制”的防灾减灾整合框架,提出了防灾减灾规划应满足的多功能目标、风险评价路径、空间系统组织思路以及规划实施的建议。
The traditional disaster prevention planning is oriented to resist disasters,which aims at the determined types of disasters.In the new era,the concept of disaster prevention and mitigation has gradually changed from single disaster types to comprehensive disaster mitigation,from disaster loss reduction to disaster risk mitigation,and its goal is to build resilient and safe cities.Comprehensive disaster prevention and mitigation,disaster risk management,resilience and safety have become the hot content and important trend in the research of disaster prevention and mitigation.However,the research results have focused on the study of a single theoretical framework or strategy for disaster prevention,and there is no clear understanding of the relevance and difference between different disaster prevention and mitigation plans.These problems lead to duplication of programming,poor coordination of planning implementation and more fragmented management.Firstly,this paper summarizes the connotation and characteristics of different disaster response concepts and classifies them from the perspective of system theory.The concepts of comprehensive disaster prevention and disaster risk management have the attribute of systematic“behavior oriented”,which takes disaster as the starting point for disaster prevention action deployment and emphasizes the systematic behavior that cities need to make in the face of disaster.The concepts of resilience and safety have the attribute of“function oriented”of the system,which emphasizes the utility generated by behavior,so as to realize the dynamic balance between the system and disaster risk.Secondly,the paper analyzes the programming procedures of different disaster response plans,and finds that all kinds of plans have the same potential programming logic,including risk identification,analysis,evaluation and disposal.Risk disposal strategy is the main part of various plans for disaster prevention and mitigation deployment.Thirdly,the paper compares and analyzes the objectives,objects,contents and implementation benefits of different disaster response plans in detail.Comprehensive disaster prevention planning,disaster risk management and safety planning have similar types of disaster response.It includes natural disaster,accident disaster,public health disaster and social security disaster.According to the redundancy,connectivity,adaptability,robustness and other attributes of the system,resilient urban planning formulates specific action plans,involving urban system,economy,society and other aspects.Comprehensive disaster prevention planning focuses on setting disaster prevention standards,facility scale,and spatial layout of facilities.Risk management pays more attention to the overall process control of uncertain factors.Safety planning and comprehensive disaster prevention are similar in planning content,but the former has a broader object.Comprehensive disaster prevention planning can quickly improve urban disaster prevention capacity in a short time.Resilient urban planning can not only reduce the adverse effects of disasters on cities,but also focus on the optimization and improvement of the city’s own capacity.Based on the understanding of the concept and planning implementation path,and following the relationship of“structure-fluctuation-function”in the urban system,the paper constructs an integrated framework of disaster prevention and mitigation planning,which includes four contents:functional demand integration,risk assessment convergence,spatial system organization,and planning implementation control.The purpose of this framework is to expand and enrich the functional objectives of disaster prevention and mitigation planning,and to explore the influence of disaster risk on the structure and function of urban spatial system.On the basis of risk management strategy,the requirements of resilient city construction are considered,and the implementation framework is ensured by multiple operational paths.The urban space system for disaster prevention and mitigation needs to have multiple functional objectives,including comprehensive disaster prevention,risk prevention,safety governance and resilience development.In order to establish the correlation between risk assessment and urban spatial system,a method of risk and vulnerability analysis is proposed based on the common planning logic.At the same time,it is necessary to change the way of demarcating regions based on static risks in the past,and risk assessment should be carried out in the stages of daily pre-disaster,emergency response and post-disaster recovery.Combined with the results of risk assessment,the organization of space system not only needs to put forward disposal measures for disaster risk,but also needs to optimize the multi-functional attributes of space system(redundancy,diversity,dependence,connectivity and adaptability).The key solution is to compare multiple schemes and establish a decision support system.Finally,the previous disaster prevention and mitigation planning mainly exists in the form of“special planning”or“special research”.The paper points out that disaster prevention and mitigation planning should be adjusted to the content of urban legal planning or main planning.The specific implementation path can be explored from three aspects:planning source guidance,content connection evaluation and implementation of action plan,so as to ensure the occurrence of disaster prevention and mitigation.
作者
史斌
刘弘涛
SHI Bin;LIU Hongtao
出处
《西部人居环境学刊》
CSCD
2022年第2期100-106,共7页
Journal of Human Settlements in West China
基金
四川省重点研发计划资助项目(2021YFS0367)。
关键词
防灾减灾规划
综合防灾减灾
灾害风险管理
韧性
安全
Disaster Prevention and Mitigation Planning
Comprehensive Disaster Prevention and Mitigation
Disaster Risk Management
Resilience
Safety
