| 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。 |
| 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 |
| DOI：10.13791/j.cnki.hsfwest.20220214 |
| 分类号: |
| 基金项目:四川省重点研发计划资助项目（2021YFS0367） |
|
| Comparison of Concepts and Path Integration of Urban Disaster Prevention and MitigationPlanning |
|
SHI Bin,LIU Hongtao
|
| Abstract: |
| 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. Riskmanagement 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. |
| Key words: Disaster Prevention and Mitigation Planning Comprehensive Disaster Prevention and Mitigation Disaster Risk Management Resilience Safety |
