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| 中国城市避难场所规划历程回顾和新时代展望 |
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张威涛1, 万汉斌2, 李 翔3
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1.（通讯作者）：北京交通大学建筑与艺术学
院，讲师，zhangwt2015@outlook.com;2.北京清华同衡规划设计研究院，高级工程师;3.北京市城市规划设计研究院，工程师
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| 摘要: |
| 在多种灾害形势愈加严峻和城市化持
续推进的双重驱动下，城市避难场所规划作为
我国城市规划和防灾减灾工作的重要交集，经
历了从试点规划引领的“起步”，到国家标准
支撑的“普及”，再到综合防灾减灾主导的“升
级”3个发展阶段。在国土空间规划和韧性城市
建设交叉融合的新时代，避难场所规划在新的
上位规划体系下，又迎来上接安全发展战略、下
落社会生态系统、分级空间规划响应、落实空间
治理现代化等新要求。通过政府文件和实践案
例的梳理研究，划分我国城市避难场所规划历
程和特点，提出新时代发展方向，为未来避难
场所规划研究与实践提供借鉴。 |
| 关键词: 城市避难场所规划 综合防灾减灾 国
土空间规划 韧性城市 |
| DOI：10.13791/j.cnki.hsfwest.20240116 |
| 分类号: |
| 基金项目:教育部人文社会科学研究青年基金项目（23YJC
ZH303）；中国博士后科学基金面上资助项目（2020
M680332） |
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| Review and prospect of the urban evacuation shelter planning’s development in China |
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ZHANG Weitao,WAN Hanbin,LI Xiang
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| Abstract: |
| With the intensification of global climate change and active crustal movement, many
kinds of natural disasters occur frequently and catastrophic events increase. At the same time, the
rapid urbanization in China makes the urban population continue to grow, and the threat of natural
disasters to the urban population is increasing. Urban emergency shelter is a public place set up
to help urban population avoid the direct and indirect damage of disasters, which is for life safety,
refuge living, and emergency rescue. Thus, in order to cope with the threat of natural disasters to
population, Urban Evacuation Shelter Planning (UESP) has long been an important intersection of
Urban Planning and Disaster Prevention and Mitigation Work in China.
Throughout the deepening and expansion of UESP study in China, it has been guided by
relevant laws, regulations, standards and practices, conversely it has also formed positive feedback.
Based on these policy provisions and practical cases, this paper divides the 3 stages of UESP’s
development in China.
Firstly, the Starting Stage which focuses on earthquake and is leaded by pilot project. From the
1990s, Urban Planning Law and Earthquake Prevention and Disaster Reduction Law have become
the necessary legal basis for the subsequent planning and construction of emergency shelter. Beijing,
as the capital of China, has become a forerunner in quickly promoting the local implementation
of the national Earthquake Prevention and Disaster Reduction Law. In 2002, Beijing implemented
the Measures for the Implementation of the Law and put forward specific arrangements for the
establishment, use, management and maintenance of emergency shelters in Beijing. Then according
to the idea of combining disaster with peace, the project of transforming Yuandadu City Park to
an emergency shelter was completed in 2003, which was the first emergency shelter with the first
set of evacuation signs and by the first set of emergency shelter design standards in China. In the
same year, China implemented the Management Regulations on Urban Earthquake Prevention
Planning, therein officially expanded the shelter planning from a spatial site to a spatial system
covering the evacuation ways and shelter sites (such as green space, square, etc.) and shelter center
in both city level and district level. Once again, Beijing took the lead in compiling Beijing Central
City Earthquake and Other Disaster Emergency Shelter Planning Outline in 2006, which provides a
valuable model for other cities to start the UESP in China.
Secondly, the popularization stage which is guided by national standards and shows more
systematic. In 2007, the Urban Earthquake Prevention Planning Standards and the Emergency
Response Law were implemented, pushing UESP to develop and popularize nationwide. The former
one provides the national standard for the special compiling of UESP, the latter one has laid an
important legal foundation to transform the UESP from a single goal of earthquake prevention to
multiple disasters’ prevention in future. In the following year, China issued Earthquake Emergency
Shelter Site and Supporting Facilities, which put forward refined national standards on the
classification, location, construction, support, and design of shelters. During this period, Beijing,
Chongqing, Hangzhou, Shenzhen and lots of other cities have successively obtained good planning
results and practical experiences under the guidance of national standards and combined with local
actual conditions. But there are obvious gaps in the breadth and depth of UESP among these cities,
which shows the imbalance of planning technological development around China.
Thirdly, the upgrading stage led by comprehensive disaster prevention and mitigation idea andrealized multiple upgrades. The Wenchuan Earthquake happened in 2008 gave a heavy warning bell for China’s disaster prevention and mitigation work.
Meanwhile, in recent years, different kinds of disasters such as extreme high temperature, typhoons, heavy rainfalls, and fires have occurred frequently.
Under this background, in 2011 China issued the Twelfth Five-Year Plan for national comprehensive disaster prevention and mitigation. In it, vigorously
promoting the construction or transformation of emergency shelters in large and medium-sized cities, urban agglomerations, densely populated areas,
economic concentration areas and economic development belts has been included in its main tasks. Comprehensive disaster mitigation community and
emergency shelter construction has also been in its major projects. The connotation of “comprehensive” refers to the further refined and upgraded in aspects
of multi-disasters, multi-scales, multi-subjects, multi-functions, multi-periods and multi-scenarios. In 2016, the Code for the Design of the emergency shelter
is implemented. In 2018, the Urban Comprehensive Disaster Prevention Planning Standard is implemented. They provide the new national standards for
UESP under “comprehensive” connotation. At this point, the shelter has undergone a technological transformation from solely carrying evacuation activities
and playing refuge living function to joining the emergency rescue system, thus realized the close connection and efficient collaboration between refuge,
living and rescue. In addition, the new standards also propose to use a more comprehensive disaster risk assessment, divide disaster prevention zones and
distinguish emergency response capacity levels, and develop differentiated strategies in different disaster scenarios.
In the new era of overlapping integration of territorial planning and resilient city construction, UESP is under a new superior planning system, and
faces new challenges from various dimensions, namely, up to safe-development strategy, down to social-ecosystem, to classify spatial planning scale, and to
implement the modernization of spatial governance. It is hoped that by reviewing the development of China’s UESP and looking forward to its development
direction in the new era, to provide useful references for the future research and practice. |
| Key words: Urban Evacuation Shelter Planning Comprehensive Disaster Prevention and Mitigation Territorial Planning Resilient City |
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