荷兰水治理经验对我国雨洪韧性空间规划的启示和战略思考
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浙江省自然科学基金探索青年项目(LQ22E080016);浙江省社会科学界联合会研究课题(2024N087);浙江省应急管理厅应急管理研发攻关科技项目(2024YJ016);浙大城市学院国土空间规划研究院开放课题


The inspirations of Dutch experience in water governance to Chinese spatial planning for rain and flood resilience
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    摘要:

    近年来,我国雨洪灾害频发,给人民生命财产造成了重大损失,反映出我国部分城市仍存在雨洪韧性能力不足的问题。荷兰是世界上海拔最低的国家,在应对气候变化和雨洪风险方面取得了很好的成绩,逐渐形成了富有韧性的水治理新范式。研究介绍了荷兰水治理概况、若干典型水治理项目、水治理行政框架、水治理法规体系等,剖析了荷兰治水理念的不断深化过程,总结了荷兰在水治理方面的主要经验,即坚持更长更广更深的水治理策略、 “国家、省、市”三级协同治理、水利工程和空间规划紧密结合、多层级雨洪风险防控体系、提供更多的韧性空间、水治理和国土空间规划体系从深度合作向一体化转变。借鉴荷兰经验并结合我国国土空间规划实际情况,研究尝试提出坚持底线思维、问题导向、顺应跨尺度的水文自然过程、提升蓝绿网络的连通性、将灰色基础设施改造提升与基于自然的解决方案(Natural -based Solution)相结合、扩大承水缓冲空间、提高有效救灾能力、构建水治理顶层制度框架、将雨洪韧性理念全面融入到各级空间规划体系九点战略思考,旨在为我国雨洪韧性空间规划提供参考。

    Abstract:

    In recent years, China has experienced frequent rain and flood disasters, which result in serious losses of lives and property. The recent heavy rainfall in Beijing from July 29th to August 2nd in 2023 once again highlighted the insufficient capacity of rain and flood resilience in China. The occurrence of rain and flood disasters is influenced by a multitude of factors. For instance, the primary external factor is climate change, which results in an escalation in the duration and frequency of rainstorms, including extreme ones. Additionally, there are internal factors such as unsustainable urban development that leads to fragmented blue-green infrastructures, thereby compromising water regulation and storage capacity. Furthermore, the standards for preventing and controlling urban waterlogging in grey infrastructure have been lowered. With unsustainable urban urbanization coinciding with climate change both temporally and spatially, the number of factors contribute to rain and flood disasters in China increase. In contrast, the Netherlands, known as the world's lowest-lying country with 26% of its land situated below 1m below sea level, experienced numerous devastating rain and floods. Notably, four major rain and floods occurred in 1916, 1953, 1993 and 1995 respectively, resulting in significant losses of life and property. The unique natural conditions compelled the Dutch to embark on an extensive and arduous exploration of water governance. Since the 1990s, the Netherlands has increasingly relied on hydrological processes within its water ecosystem. The Dutch have successfully integrated both grey infrastructure and blue-green infrastructure while employing a combination of engineering and non-engineering measures for water control purposes. Consequently, they have made great achievements in addressing rainfall events and flood occurrences. Over time, the Dutch has experienced a transition process from "working against water" to "working with water" in the concept of water governance. This article firstly introduces the Dutch general situation, typical projects of water governance and the administrative framework of water governance. Secondly, the main experiences of water governance are analysed including a three-level collaborative system, a framework of integrating between water governance and spatial planning, a multi-level rain and flood risk prevention system, strategies of room for more resilient space, etc. Thirdly, drawing from the Dutch experiences and considering the specific conditions in China, the article puts forwards nine suggestions such as adopting a bottom-line thinking approach, enhancing vulnerability awareness and problem-based solutions, scaling hydrological processes, improving blue-green network connectivity, combining grey infrastructure upgrades with nature-based solutions, expanding effective disaster relief support, establishing a top-level system framework for water governance, and integrating rain and flood resilience concepts into spatial planning, etc. This paper can serve as a valuable reference for implementing spatial planning for rain and flood resilience in China.

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戴伟,尹新.荷兰水治理经验对我国雨洪韧性空间规划的启示和战略思考.生态学报,2024,44(24):11484~11496

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