| 摘要: |
| 随着国土空间规划体系改革与重构，
水环境安全、适灾空间规划、韧性城市建设等
内容成为保障国土空间安全的热点，对空间规
划与风险管理提出持续不断的调整与学习、有
效适应灾害等新的要求。文章基于应对洪涝灾
害的规划趋势，围绕洪水资源、洪泛土地与社
会行动方面，梳理了洪涝灾害的风险学习与资
源管理、洪泛区的情景模拟与用地管制、管理
体系优化与社区治理等国际规划经验。在此基
础上，面向国土空间总体规划的流域专项、省
级层面、市县层面，分别提出洪涝情景模拟与
淹没范围划定、生态单元规划与重大防洪设施
布局、国土承灾风险等级划分与功能管控、绿
色空间适灾配置、项目选址避灾引导、分阶段
社区应灾体系构建等洪涝适应性策略，形成国
土空间安全语境下的洪涝适应性规划框架。以
期强化各层级国土空间总体规划之间的纵向传
导与横向衔接，为开展适应洪涝灾害的规划实
践工作提供思路借鉴。 |
| 关键词: 国土空间安全 洪涝适应性 空间规划 风险管理 |
| DOI： |
| 分类号: |
| 基金项目:国家自然科学基金面上项目资助（51778253）；中
央高校基本科研业务费资助（2019WKZDJC010） |
|
| Flood Adaptation Experience and Planning Response in the Context of Territorial SpaceSecurity |
|
WU Yutong,PENG Chong,SHU Jianfeng
|
| Abstract: |
| In the context of the establishment of a spatial planning system, water environment
safety, disaster-resilient space design, resilient city construction have all become hotspots for
assuring territorial security, necessitating constant adjustments and learning in spatial planning
and risk management. Different levels of territorial spatial master plans have presented relevant
requirements, aims, and measures in response to flooding, according to the most recent guidelines
for the production of territorial spatial master plans and related practices. Flood disaster response
in cities and regions is no longer limited to controlling rivers and coasts by constructing a large
number of engineering measures, but rather involves collaborating with water management,
transportation, regional planning, and other departments, implementing various non-engineering
measures, and planning for flood prevention and mitigation with risk management thinking.
However, these measures are still in the status of a current situation assessment, and specific
disaster response planning measures essentially continue the content of infrastructure and disaster
prevention planning. How to reflect the conduct and continuity of planning measures in the
master plan of land space at various levels must be considered and improved.
The paper firstly discusses the planning trends in response to flooding: 1) the concept of planning
shifts from “technical strength” to “active adaptation”; 2) the planning scope extends from “intra-city”
to “inter-city”; 3) the content of planning ranges from “space planning” to “space governance”; 4) the
planning technology improves from “current state analysis” to “future foresight”; 5) the participating
parties change from “government organization” to “multi-agency collaboration”. Furthermore,
the paper focuses on flood resources, floodplains, and social actions, combing out international
experiences with flood risk learning and resources management, scenario simulation of floodplain
and land use control, management optimization, community governance, and so on. In-depth analysis
of flood risk management, flood scenario simulation techniques, and collaborative management of a
variety of issues is conducted.
By further integrating the international experience into territorial spatial planning, the
concept of adaptability is introduced in this paper and incorporated into flood risk planning,
which can be understood as follows: cities and regions efficiently respond to changes in flood
dangers by making preventive measures, buffer responses, and timely adjustments based on
the existing or potential flood hazard, while providing room for future planning adjustments. A
framework of flood adaptive planning and some strategies are proposed for linking up with the
river basin-level, provincial-level, city and county-level of spatial planning, e.g., flood scenario simulation and submerged area delineation, major ecological unit and flood prevention project planning, risk level division and land use control, the
disaster-resistant configuration of green space, project site selection guidance, the establishment of community organization system to phased response
disaster, etc. This framework of flood adaptation planning encompasses the three elements of water, land, and people, enhances the vertical coordination
between various levels of overall territorial spatial planning and the horizontal articulation of various aspects within the overall planning, and improves
the importance of planning for dynamic changes of flood disasters. Simultaneously, it is obvious that each approach can serve certain linkages in the
overall territorial spatial plan preparation process at each level, as well as the exact planning of territorial spatial development and protection patterns.
Furthermore, it is highlighted that multi-organizational forms such as government, communities, and individuals engage in constant adjustment and
learning in order to enhance effective transmission of action strategies at various levels of territorial spatial master plans.
There is greater complexity and relevance in carrying out adaptive planning and management of floods, due to the geographical and climatic
diversity of China and the frequent occurrence of floods. The flood response planning strategies proposed in this paper are supplemented and improved
as much as possible based on existing preparation guidelines and planning practices, to enhance the active role of spatial planning tools in urban and
regional efforts to cope with natural disasters, as well as provide ideas for carrying out practical work of planning adapted to flood disasters. |
| Key words: Territorial Space Security Flood Adaptation Spatial Planning Risk Management |
