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<section style="box-sizing: border-box;font-style: normal;font-weight: 400;text-align: justify;font-size: 16px;"><section style="margin-top: 10px;margin-bottom: 10px;overflow: hidden;font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;text-align: left;box-sizing: border-box;"><section style="display: inline-block;vertical-align: top;width: 4em;height: 4em;border-radius: 50%;background-position: center center;background-repeat: no-repeat;background-size: cover;background-image: url("http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhbsUAKOpyf4bnsQdGGMYmlcaK9QWhicz8Ojv89aTcwToiaVOUSMzAccCYbo8QYte9zVOtHSibbkpc2Q/640?wx_fmt=png");overflow: hidden;box-sizing: border-box;"><section style="height: 100%;overflow: hidden;line-height: 0;vertical-align: middle;max-width: 100%;box-sizing: border-box;"> <img data-ratio="0.9409091" data-w="220" src="http://mmbiz.qpic.cn/mmbiz_png/j8bTq15u0mhbsUAKOpyf4bnsQdGGMYmlcaK9QWhicz8Ojv89aTcwToiaVOUSMzAccCYbo8QYte9zVOtHSibbkpc2Q/640?wx_fmt=png" style="width: 100%;height: 100%;opacity: 0;box-sizing: border-box;" width="100%" data-type="png"  /></section></section><section style="width: 100%;margin-left: 1.2em;margin-top: -1.2em;box-sizing: border-box;"><section style="float: left;white-space: nowrap;overflow: hidden;display: inline-block;vertical-align: middle;height: 2em;margin-left: 1em;border-bottom-left-radius: 1em;border-left: 1px solid rgb(150, 46, 46);border-bottom: 1px solid rgb(150, 46, 46);max-width: 85% !important;box-sizing: border-box;"><section style="margin-left: 1.5em;line-height: 1.5;padding-right: 0.5em;font-size: 11px;color: rgb(56, 30, 5);box-sizing: border-box;"><p style="clear: none;margin: 0px;padding: 0px;box-sizing: border-box;">点击蓝字关注公众号</p></section></section><section style="float: left;width: 5%;margin-left: -1px;box-sizing: border-box;"><section style="width: 6px;height: 6px;margin-top: 1.82em;border-radius: 100%;background-color: rgb(150, 46, 46);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;padding: 3px 0px;border-top: 1px solid rgb(224, 224, 224);border-bottom: 1px solid rgb(224, 224, 224);border-right-color: rgb(224, 224, 224);border-left-color: rgb(224, 224, 224);box-sizing: border-box;"><section style="padding: 0px 5px;display: inline-block;background-color: rgb(150, 46, 46);color: rgb(255, 255, 255);font-size: 18px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">【专题讨论18】</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">城市规划中的风险管理与应对思考</strong></p></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(218, 107, 107);padding: 10px;box-sizing: border-box;"><section style="text-align: left;color: rgb(56, 30, 5);box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;text-align: justify;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">作者同济大学建筑与城市规划学院教授、博士生导师黄建中，同济大学建筑与城市规划学院硕士研究生马煜箫，同济大学建筑与城市规划学院博士研究生、现任职于上海市规划和自然资源局刘晟在《规划师》2020年第6期撰文，随着城市的不断发展，面临的突发公共卫生事件等重大风险也不断增加，造成的损失亦愈发严重，从城市规划视角思考风险管理的方式方法具有重要的学术意义和社会实践价值。文章结合现有研究和实践提出：在目标层面，规划应树立底线思维，以城市韧性为目标，并将目标细化至具体环节；在空间支撑方面，注重空间留白和设施配置优化；在机制创新方面，着重构建完整的城市风险管理体系，有效组织区域和各部门的工作。</p></section><section style="margin-top: 10px;margin-bottom: 10px;font-size: 13px;box-sizing: border-box;" powered-by="gulangu"><section style="width: 100%;height: 5px;background: -webkit-linear-gradient(left, rgb(150, 46, 46), rgba(255, 247, 234, 0)) white;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="font-size: 12px;color: rgb(0, 0, 0);box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[关键词]城市风险管理；韧性城市；空间策略；机制创新</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[文章编号]1006-0022(2020)06-0033-03　</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[中图分类号]TU984　</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[文献标识码]B</p><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">[引文格式] 黄建中，马煜箫，刘晟．城市规划中的风险管理与应对思考[J]．规划师，2020(6)：33-35.</p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/EjiclXhR4KRG3Pgrqco29CCuM5DCswJwynlfUlqe0RQqUQibBPykbTtKSdg60umRTbeVOvv045icR6ByWkcFcxLOA/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(150, 46, 46);color: rgb(255, 255, 255);font-size: 18px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">一</strong><strong style="box-sizing: border-box;"></strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">目标管理：坚持底线思维和目标</strong><strong style="box-sizing: border-box;">细化</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(150, 46, 46);padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">规划要当好城市“守门人”的角色，<span style="box-sizing: border-box;">守好城市发展的生态和安全底线。在规</span><span style="box-sizing: border-box;">划前、中、后期，都应对城市现状和规</span><span style="box-sizing: border-box;">划实施后的风险抵御能力进行模拟与评</span><span style="box-sizing: border-box;">估。在全面评估的基础上，科学划定各</span><span style="box-sizing: border-box;">类控制线，通过对城市各类空间资源进</span><span style="box-sizing: border-box;">行组合配置，促进城市高质量发展，并</span><span style="box-sizing: border-box;">为城市应对风险预留弹性空间，形成高</span><span style="box-sizing: border-box;">效、健康、舒适及安全的城市环境。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;"></span><span style="box-sizing: border-box;">以上海为例，《上海市城市总体规</span><span style="box-sizing: border-box;">划(2017—2035 年)》将更可持续发展的</span><span style="box-sizing: border-box;">韧性生态之城作为目标之一，这也是城</span><span style="box-sizing: border-box;">市风险管理的总目标。在上海各区总体</span><span style="box-sizing: border-box;">规划及单元层次规划中，又进一步细化</span><span style="box-sizing: border-box;">落实了全市总体规划的要求，提出了相</span><span style="box-sizing: border-box;">应的风险管理目标。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">城市风险管理目标通常体现在前期<span style="box-sizing: border-box;">的风险评估体系上。因为除了设置统一</span><span style="box-sizing: border-box;">的目标，还应将目标细化至风险管理的</span><span style="box-sizing: border-box;">方方面面，这反映在风险管理评估体系</span><span style="box-sizing: border-box;">的构建上，细化的评估体系可在规划初</span><span style="box-sizing: border-box;">期就将韧性的目标分摊至具体环节，以</span><span style="box-sizing: border-box;">细化的目标指导具体实施。常见的风险</span><span style="box-sizing: border-box;">管理评估体系有四种类型——面向问题</span><span style="box-sizing: border-box;">型、面向设施型、面向部门型和面向过</span><span style="box-sizing: border-box;">程型。在构建评价体系时，往往多个类</span><span style="box-sizing: border-box;">型相辅相成。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(1) 面向问题型指全面分析未来城市<span style="box-sizing: border-box;">可能面临的风险，考虑出现可能性、严</span><span style="box-sizing: border-box;">重程度和影响程度，结合现状制度、物</span><span style="box-sizing: border-box;">质环境和风险应对主体展开评估。以英</span><span style="box-sizing: border-box;">国城市应急管理为例，英国中央政府公</span><span style="box-sizing: border-box;">布《全国风险登记册》，并牵头制定《地</span><span style="box-sizing: border-box;">方风险评估指南》，该指南首先结合地</span><span style="box-sizing: border-box;">区实际，考虑了不同类型的风险( 最高等</span><span style="box-sizing: border-box;">级风险包括极端天气、公共卫生事件和</span><span style="box-sizing: border-box;">公用设施损坏)可能出现的情况和严重程</span><span style="box-sizing: border-box;">度，并根据不同的情况判断现有的控制</span><span style="box-sizing: border-box;">措施、周边环境和邻近地区风险等多个</span><span style="box-sizing: border-box;">方面。又如，美国国际开发总署在提</span><span style="box-sizing: border-box;">出的《沿海社区弹性指南》中，也考虑</span><span style="box-sizing: border-box;">了对多种沿海风险如海啸、地震和风暴</span><span style="box-sizing: border-box;">等展开模拟分析。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(2) 面向设施型指在应对不同灾害和<span style="box-sizing: border-box;">突发事件时，评估城市各类设施承受能</span><span style="box-sizing: border-box;">力、破坏水平与恢复速度，并分析政府、</span><span style="box-sizing: border-box;">相关团体和民众在相应情况下的应对能</span><span style="box-sizing: border-box;">力。以《合肥市市政设施韧性提升规划》</span><span style="box-sizing: border-box;">为例，规划在评估时以不同风险事态为</span><span style="box-sizing: border-box;">背景，评估设施的布局情况、重大设施</span><span style="box-sizing: border-box;">的冗余性、行政管理水平、现存应急预</span><span style="box-sizing: border-box;">案和可实施度，以及宣传、教育、训练</span><span style="box-sizing: border-box;">等方面。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(3) 面向部门型指从个人、组织到地<span style="box-sizing: border-box;">方与知识体系的可靠性评估。以美国洛</span><span style="box-sizing: border-box;">克菲勒基金会提出的韧性城市框架指标</span><span style="box-sizing: border-box;">体系CRF/CRI 为例，该评价体系包括4</span><span style="box-sizing: border-box;">类12 个指标。4 类指标包括人的健康与</span><span style="box-sizing: border-box;">福祉、政府的领导力、战略和城市经济</span><span style="box-sizing: border-box;">与社会、城市体系与服务情况。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">(4) 面向过程型强调风险应对的全过<span style="box-sizing: border-box;">程，包含从风险识别、风险评估和能力</span><span style="box-sizing: border-box;">建设到应急评估等步骤，不同步骤则涉</span><span style="box-sizing: border-box;">及多个操作部门的多项评估。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/EjiclXhR4KRG3Pgrqco29CCuM5DCswJwynlfUlqe0RQqUQibBPykbTtKSdg60umRTbeVOvv045icR6ByWkcFcxLOA/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(150, 46, 46);color: rgb(255, 255, 255);font-size: 18px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">二</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;"> 空间支撑：注重空间留白和设施配置优化</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(150, 46, 46);padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">一方面，应强调针对不同的人口规<span style="box-sizing: border-box;">模，做好多情景规划，在空间上做好留白，</span><span style="box-sizing: border-box;">以应对风险给城市发展带来的不确定性。</span><span style="box-sizing: border-box;">现有研究发现，传统城市规划事先制定</span><span style="box-sizing: border-box;">发展目标的工作思路不能使城市在面对</span><span style="box-sizing: border-box;">风险时有效地应对冲击，这是因为工具</span><span style="box-sizing: border-box;">理性无法应对城市未来的不可控性。</span><span style="text-indent: 2em;">无论是从生态缓冲、城市空间发展，还</span><span style="text-indent: 2em;box-sizing: border-box;">是从应对突发风险方面看，规划留白对</span><span style="text-indent: 2em;box-sizing: border-box;">加强城市弹性是积极有效的。在各类</span><span style="text-indent: 2em;box-sizing: border-box;">设施配置上，也应留有10％～ 20％的弹</span><span style="text-indent: 2em;box-sizing: border-box;">性空间，以满足更大范围的服务人口需</span><span style="text-indent: 2em;box-sizing: border-box;">要。此外，在规划留白的同时还应注意</span><span style="text-indent: 2em;box-sizing: border-box;">建设用地的高效集约和复合利用，景观</span><span style="text-indent: 2em;box-sizing: border-box;">的同质化和土地利用的单一性会导致生</span><span style="text-indent: 2em;box-sizing: border-box;">态韧性的降低。在《上海市城市总体规</span><span style="text-indent: 2em;box-sizing: border-box;">划(2017—2035 年)》中就明确提出“留</span><span style="text-indent: 2em;box-sizing: border-box;">白”这一概念，在生态用地方面要求只</span><span style="text-indent: 2em;box-sizing: border-box;">增不减，发挥预控作用，保留和扩展生</span><span style="text-indent: 2em;box-sizing: border-box;">态廊道；在城市开发边界内设置预留规</span><span style="text-indent: 2em;box-sizing: border-box;">划建设用地，为未来城市新的发展需求</span><span style="text-indent: 2em;box-sizing: border-box;">和重大事件预留用地。留白并不意味用</span><span style="text-indent: 2em;box-sizing: border-box;">地的闲置荒废，而是在明确开发导向和</span><span style="text-indent: 2em;box-sizing: border-box;">时序前严格控制范围内的开发建设行为，</span><span style="text-indent: 2em;box-sizing: border-box;">规划期内的留白区域仍可根据现状土地</span><span style="text-indent: 2em;box-sizing: border-box;">用途正常使用。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;"></span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">另一方面，应当依托城镇圈，统筹<span style="box-sizing: border-box;">配置好各类空间资源。以上海当前的医</span><span style="box-sizing: border-box;">疗设施配置为例，近年来上海单个医院</span><span style="box-sizing: border-box;">的运行效率不断提高，加大了对优质资</span><span style="box-sizing: border-box;">源的服务利用，但由于各级各类医疗机</span><span style="box-sizing: border-box;">构的分工协助机制不畅，上下联动、相</span><span style="box-sizing: border-box;">互衔接的分级诊疗服务网络尚未形成，</span><span style="box-sizing: border-box;">人员、技术、设备和信息等资源共享水</span><span style="box-sizing: border-box;">平较低，导致各级医疗机构的功能定位</span><span style="box-sizing: border-box;">未能有效落实，优质医疗资源过度利用，</span><span style="box-sizing: border-box;">居民就医行为缺乏必要约束，造成重复</span><span style="box-sizing: border-box;">就医和资源浪费。同时，部分区域的医</span><span style="box-sizing: border-box;">疗资源配置仍然相对薄弱，中心城区的</span><span style="box-sizing: border-box;">床位资源配置明显高于其他地区，中心</span><span style="box-sizing: border-box;">城区周边地区和郊区交界处的资源配置</span><span style="box-sizing: border-box;">相对不足，如闵行松江交界区域、嘉定</span><span style="box-sizing: border-box;">宝山交界区域、嘉定青浦交界区域，以</span><span style="box-sizing: border-box;">及长兴、横沙岛等区域的千人床位数均</span><span style="box-sizing: border-box;">低于2张。因此，可以依照“主城区—</span><span style="box-sizing: border-box;">新城—新市镇—乡村”的城乡体系，结</span><span style="box-sizing: border-box;">合城镇圈布局，在全市规划设置若干医</span><span style="box-sizing: border-box;">疗服务圈，作为医疗资源配置的基本单</span><span style="box-sizing: border-box;">位，均衡配置各级医疗机构数量和床位</span><span style="box-sizing: border-box;">规模，从而满足本服务圈内居民看病的</span><span style="box-sizing: border-box;">基本需求，这样在风险来临之时，也能</span><span style="box-sizing: border-box;">以“圈”为单位，进行隔离管理，避免</span><span style="box-sizing: border-box;">交叉感染。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/EjiclXhR4KRG3Pgrqco29CCuM5DCswJwynlfUlqe0RQqUQibBPykbTtKSdg60umRTbeVOvv045icR6ByWkcFcxLOA/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 0.5em 0px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;vertical-align: top;box-sizing: border-box;"><section style="background-color: rgb(150, 46, 46);color: rgb(255, 255, 255);font-size: 18px;padding-left: 5px;padding-right: 5px;margin-bottom: 4px;box-sizing: border-box;"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">三</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">机制创新：构建区域和部门协同</strong><strong style="box-sizing: border-box;">的城市风险管理体系</strong></p></section><section style="border-top: 2px dotted rgb(95, 94, 102);width: 100%;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 100%;border-width: 1px;border-style: solid;border-color: rgb(150, 46, 46);padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">从伦敦、东京和纽约的已有实践<span style="box-sizing: border-box;">中都可以发现，区域合作和部门合作是</span><span style="box-sizing: border-box;">城市风险管理的重要组成部分。以伦敦</span><span style="box-sizing: border-box;">为例，其城市风险管理工作由不同性质</span><span style="box-sizing: border-box;">的机构共同负责：伦敦地区复原力论坛</span><span style="box-sizing: border-box;">(London Regional Resilience Forum，简</span><span style="box-sizing: border-box;">称“LRRF”) 为协调机构，下设商业、</span><span style="box-sizing: border-box;">卫生和蓝光等工作小组指导相关工作。</span><span style="box-sizing: border-box;">伦敦地区复原力项目委员会(London </span><span style="box-sizing: border-box;">Regional Resilience Programme Board，</span><span style="text-indent: 2em;">简称“LRRPB”) 和伦敦风险顾问小</span><span style="text-indent: 2em;box-sizing: border-box;">组(London Risk Advisory Group，简称</span><span style="text-indent: 2em;box-sizing: border-box;">“LRAG”) 为辅助机构，LRRPB 负责协</span><span style="text-indent: 2em;box-sizing: border-box;">调区域资源和任务的分配，LRAG 负责风</span><span style="text-indent: 2em;box-sizing: border-box;">险评估工作，编制《地区风险评估指南》</span><span style="text-indent: 2em;box-sizing: border-box;">和研讨审议地区提交的社区风险登记</span><span style="text-indent: 2em;box-sizing: border-box;">册。伦敦复原力小组(London Resilience </span><span style="text-indent: 2em;box-sizing: border-box;">Team，简称“LRT”)、伦敦消防和应急</span><span style="text-indent: 2em;box-sizing: border-box;">管理局是工作枢纽，LRT 为跨部门工作</span><span style="text-indent: 2em;box-sizing: border-box;">小组，负责对工作信息和风险应对进行</span><span style="text-indent: 2em;box-sizing: border-box;">评估、监督和考核；伦敦消防和应急管</span><span style="text-indent: 2em;box-sizing: border-box;">理局不仅承担地方复原力论坛秘书处的</span><span style="text-indent: 2em;box-sizing: border-box;">工作，还负责设定应急预案、组织应急</span><span style="text-indent: 2em;box-sizing: border-box;">演练和应对突发事件。伦敦市风险管理</span><span style="text-indent: 2em;box-sizing: border-box;">工作主体明晰、职能明确，能有效进行</span><span style="text-indent: 2em;box-sizing: border-box;">前期评估，组织区域和部门开展工作，</span><span style="text-indent: 2em;box-sizing: border-box;">中国未来可参考此种形式结合实际进行</span><span style="text-indent: 2em;box-sizing: border-box;">机制创新。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="box-sizing: border-box;"></span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">此次新型冠状病毒肺炎疫情所暴露<span style="box-sizing: border-box;">出的主要问题之一就是体制机制上还存</span><span style="box-sizing: border-box;">在较大的障碍。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">在区域层面，由于区域的协同机制<span style="box-sizing: border-box;">尚未建立，各城市面对疫情需要独自严</span><span style="box-sizing: border-box;">防死守。在缺乏上层级政府统一指挥的</span><span style="box-sizing: border-box;">情况下，各城市之间无法主动建立联防</span><span style="box-sizing: border-box;">联控的机制。而风险是不分行政界线的，</span><span style="box-sizing: border-box;">在风险来临之时，抵御风险的资源无法</span><span style="box-sizing: border-box;">跨行政区划自由流动，对风险的管理与</span><span style="box-sizing: border-box;">应对极为不利。因此，在规划层面可以</span><span style="box-sizing: border-box;">考虑配置一些达到一定规模、跨区域的</span><span style="box-sizing: border-box;">高等级风险应对和管理设施，如区域性</span><span style="box-sizing: border-box;">的物资存储设施、区域性的防灾指挥和</span><span style="box-sizing: border-box;">救助中心等。</span></p><p style="text-indent: 2em;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">在部门层面，以此次新型冠状病毒<span style="box-sizing: border-box;">肺炎疫情为例，在医院的医疗床位数短</span><span style="box-sizing: border-box;">期内难以增加的情况下，如何对体育场</span><span style="box-sizing: border-box;">馆、集体宿舍、会展中心、城市公共绿</span><span style="box-sizing: border-box;">地和地下空间等平时分属于不同部门管</span><span style="box-sizing: border-box;">理的设施进行整体统筹，并快速改造成</span><span style="box-sizing: border-box;">临时性医疗设施，增加床位供给，需要</span><span style="box-sizing: border-box;">各部门之间与规划土地管理部门加强协</span><span style="box-sizing: border-box;">同，在功能上实现快速转换。同时，对</span><span style="box-sizing: border-box;">于这些设施所能提供的床位数，应在规</span><span style="box-sizing: border-box;">划编制研究阶段就进行统筹考虑，作为</span><span style="box-sizing: border-box;">规划弹性应对风险的策略。</span></p></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/EjiclXhR4KRG3Pgrqco29CCuM5DCswJwynlfUlqe0RQqUQibBPykbTtKSdg60umRTbeVOvv045icR6ByWkcFcxLOA/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="text-align: center;margin: 10px 0%;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;min-width: 10%;max-width: 100%;vertical-align: top;background-color: rgb(150, 46, 46);border-bottom: 8px ridge rgb(255, 255, 255);border-bottom-right-radius: 0px;padding: 8px 10px;border-left-width: 0px;box-sizing: border-box;"><section style="text-align: justify;color: rgb(238, 238, 238);padding: 0px 8px;font-size: 18px;box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">四 结语</strong></p></section></section></section><section style="margin-top: 10px;margin-bottom: 10px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 2px 0px;box-sizing: border-box;"><section style="height: 4px;transform: rotate(0deg);float: left;margin-top: -3px;background-color: rgb(255, 255, 255);box-sizing: border-box;"><section style="width: 4px;height: 4px;border-radius: 100%;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="border-top: 1px solid rgb(27, 117, 16);margin-top: -2px;border-right-color: rgb(27, 117, 16);border-bottom-color: rgb(27, 117, 16);border-left-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="width: 100%;padding: 10px;box-sizing: border-box;"><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;">随着城市的不断发展，面临的风险<span style="box-sizing: border-box;">也不断增加，城市规划作为重要的公共</span><span style="box-sizing: border-box;">政策，对于城市合理高效应对突发风险</span><span style="box-sizing: border-box;">意义重大。本文认为，规划应从目标、</span><span style="box-sizing: border-box;">空间和机制三个方面改善</span><span style="box-sizing: border-box;">工作。在目标层面，应牢</span><span style="box-sizing: border-box;">固树立“守门人”的角色意识和底线意识，</span><span style="box-sizing: border-box;">以提升城市韧性为目标，并将目标细化</span><span style="box-sizing: border-box;">至具体的环节，以细化目标指导实施；</span><span style="box-sizing: border-box;">在空间支撑层面，应从空间留白和设施</span><span style="box-sizing: border-box;">合理配置两个方面展开，目前空间留白</span><span style="box-sizing: border-box;">还是更多地考虑生态缓冲和城市发展，</span><span style="box-sizing: border-box;">规划应同时考虑其风险应对功能并制定</span><span style="box-sizing: border-box;">预案，在不同情境下评估设施配置的合</span><span style="box-sizing: border-box;">理性和应用方式；在机制创新方面，还</span><span style="box-sizing: border-box;">存在较多不足，应着重构建完整的城市</span><span style="box-sizing: border-box;">风险管理体系，明晰各方职权，有效组</span><span style="box-sizing: border-box;">织区域和部门开展工作。</span></p></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="text-indent: 2em;clear: none;white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><span style="text-indent: 2em;letter-spacing: 0px;line-height: 1.45;box-sizing: border-box;"></span></p></section></section><section style="width: 100%;text-align: right;box-sizing: border-box;"><section style="height: 4px;margin-top: -2px;float: right;transform: rotate(0deg);background-color: rgb(255, 255, 255);box-sizing: border-box;"><section style="width: 4px;height: 4px;border-radius: 100%;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section><section style="width: 4px;height: 4px;border-radius: 100%;margin-left: 0.5em;float: left;background-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="clear: both;box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section><section style="border-top: 1px solid rgb(27, 117, 16);margin-top: -2px;margin-bottom: 2px;border-right-color: rgb(27, 117, 16);border-bottom-color: rgb(27, 117, 16);border-left-color: rgb(27, 117, 16);box-sizing: border-box;line-height: 0;"><section style="line-height: 0;width: 0px;"><svg viewbox="0 0 1 1" style="vertical-align:top;"></svg></section></section></section></section></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="max-width: 100%;vertical-align: middle;display: inline-block;line-height: 0;box-sizing: border-box;"><img data-ratio="0.03125" data-w="640" src="http://mmbiz.qpic.cn/mmbiz_gif/EjiclXhR4KRG3Pgrqco29CCuM5DCswJwynlfUlqe0RQqUQibBPykbTtKSdg60umRTbeVOvv045icR6ByWkcFcxLOA/640?wx_fmt=gif" style="vertical-align: middle;max-width: 100%;box-sizing: border-box;" data-type="gif"  /></section></section><section style="margin: 10px 0% 20px;text-align: center;box-sizing: border-box;" powered-by="gulangu"><section style="display: inline-block;width: 90%;vertical-align: top;padding: 15px;border-width: 1px;border-radius: 5px;border-style: solid;border-color: rgb(218, 107, 107);box-sizing: border-box;"><section style="font-size: 14px;color: rgb(110, 110, 110);box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">来源：2020年06期《规划师》杂志</p></section><section style="margin: 0.5em 0px;box-sizing: border-box;" powered-by="gulangu"><section style="background-color: rgb(150, 46, 46);height: 1px;box-sizing: border-box;line-height: 0;"><br  /></section></section><section style="font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;">新媒体编辑：刘晓莹</p><p style="margin: 0px;padding: 0px;box-sizing: border-box;">审读：刘芳</p></section></section></section><section style="box-sizing: border-box;" powered-by="gulangu"><p style="white-space: normal;margin: 0px;padding: 0px;box-sizing: border-box;"><br style="box-sizing: border-box;"  /></p></section><section style="margin: 0px;box-sizing: border-box;" powered-by="gulangu"><section style="padding: 0px 1.5em;margin-bottom: -35px;box-sizing: border-box;"><section style="padding: 10px;width: 100%;display: inline-block;background-color: rgb(150, 46, 46);box-sizing: border-box;"><section style="text-align: center;color: rgb(255, 255, 255);font-size: 14px;box-sizing: border-box;" powered-by="gulangu"><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">文章全文详见《规划师》杂志2020年06期</strong></p><p style="margin: 0px;padding: 0px;box-sizing: border-box;"><strong style="box-sizing: border-box;">《</strong><span style="letter-spacing: 0px;box-sizing: border-box;">城市规划中的风险管理与应对思考</span><strong style="letter-spacing: 0px;box-sizing: border-box;"><span style="letter-spacing: 0px;box-sizing: border-box;">》</span></strong></p></section></section></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(150, 46, 46);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(150, 46, 46);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(150, 46, 46);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(150, 46, 46);box-sizing: border-box;line-height: 0;"><br  /></section><section style="height: 5px;margin-bottom: 5px;background-color: rgb(150, 46, 46);box-sizing: 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