西部人居环境学刊2024，Vol.39Issue(1)：109-114,6.DOI:10.13791/j.cnki.hsfwest.20240116
中国城市避难场所规划历程回顾和新时代展望
Review and prospect of the urban evacuation shelter planning's development in China
摘要
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 and realized 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.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Key words
Urban Evacuation Shelter Planning/Comprehensive Disaster Prevention and Mitigation/Territorial Planning/Resilient City分类
建筑与水利引用本文复制引用
张威涛,万汉斌,李翔..中国城市避难场所规划历程回顾和新时代展望[J].西部人居环境学刊,2024,39(1):109-114,6.基金项目
教育部人文社会科学研究青年基金项目(23YJC ZH303) （23YJC ZH303）
中国博士后科学基金面上资助项目(2020 M680332) （2020 M680332）
