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1、中国韧性城市发展报告China Resilient Cities Report 决策者摘要Summary for Policymakers 编写背景该摘要内容基于宜可城东亚秘书处 2023 年发布的中国韧性城市发展报告（以下简称“报告”）编写而成。报告结合国际韧性城市建设和发展现状以及宜可城全球韧性城市项目经验，对中国城市所推进的相关项目和经验进行了对比分析，重点从“气候韧性”角度出发，探讨在中国的语境下如何打造韧性城市。2019-2021 年间，宜可城东亚秘书处和联合国减灾署及其他关键全球合作伙伴一起，与四个中国项目城市开展了“让城市更具韧性 2020”倡议（自 2021 年起为“创建韧性城

2、市 2030”项目）框架下的城市灾害韧性系列培训。培训针对项目城市防灾减灾工作，围绕气候变化、气候减缓和适应、气候投融资和基于自然的解决方案等核心议题，为项目城市提供了全面立体的“韧性城市”概念解读和全球典型案例分享学习。基于“灾害韧性计分卡”工具，我们和项目城市一同对城市韧性相关的工作进行了全面梳理回顾，提出相关行动建议。该中国韧性城市发展报告为宜可城在“创建韧性城市2030”项目框架下的产出。编写成员该决策者摘要根据中国韧性城市发展报告修订。报告由宜可城-地方可持续发展协会东亚秘书处和中国社会科学院可持续发展研究中心联合撰写。核心团队和主要作者有歹谷羽（宜可城-地方可持续发展协会东亚秘书处

3、）、郑艳（中国社会科学院可持续发展研究中心）、袁媛（中国社会科学院可持续发展研究中心）和刘敏智（宜可城-地方可持续发展协会东亚秘书处）。陈加信（宁波诺丁汉大学地理学院）亦为本报告撰写了案例研究。中国韧性城市发展报告得到多方专家和学者的支持和审阅，为修订提供了诸多宝贵建议。在此感谢以下专家和个人对本次报告的修订和发布的大力支持（按姓氏首字母排序）：Daria Mokhnacheva（联合国减灾署）、Sunisa Soodrak（联合国减灾署）、许吟隆（中国农业科学院农业环境与可持续发展研究所）、杨秀（清华大学气候变化与可持续发展研究院、叶祖达（新加坡南洋理工大学能源研究院）、翟国方（南京大学城市

4、安全发展研究中心）、赵丹（北京市城市规划设计研究院）。审校（宜可城-地方可持续发展协会东亚秘书处）：马育辰，周筱芊，郑欢，王英中英文翻译和校对：汤征版式设计：岳霞免责声明 DisclaimerThis publication was originally produced as part of the UN-DRR-funded project“Engaging four cities in China towards achieving target E of the Sendai Framework”(2019-2021).The designations employed and the

5、 presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country,territory,city or area,or of its authorities,or concerning the delimitation of its frontiers or boun

6、daries.Views expressed in this publication are those of the authors and do not nec-essarily reflect those of the United Nations or its Member States.Citation 引用目录（APA7）ICLEI East Asia Secretariat 宜可城-地方可持续发展协会东亚 秘 书 处.(2023).China Resilient Cities Report:Summary for Policymakers 中国韧性城市发展报告：决策者摘要(Chi

7、na Resilient Cities Report 中国韧性城市发展报告).BackgroundThis Summary for Policymakers(SPMs)is based on the Chi-na Resilient Cities Report(2023).This report integrates the in-troduction to international and ICLEI experience of building resilient cities,analysis of practices conducted in Chinese cities,and e

8、xploration on how to build resilient cities in Chi-na with a focus on climate resilience.In partnership with United Nations Office for Disaster Risk Reduction(UNDRR)and other distinguished actors,during year 2019 to 2021,ICLEI East Asia Secretariat closely worked with four project cities in China,to

9、 implement a series of training workshops promoting the Making Cities Resilient 2020 Campaign(followed by the Making Cities Resilient 2030 initiative since 2021).Training workshops root in the practical work in China around urban disaster risk reduction and emer-gency management,covering topics like

10、 climate change,climate mitigation and adaptation,climate investment and financing,and Nature-based Solutions.For which,we hope to provide a systematic presentation of what resilient cities are,and to showcase best practices across the world.Via applying the tool Disaster Resilience Scorecard,we col

11、labo-rated with cities to understand and reflect on their existing resilient cities practices,to navigate next steps.The China Resilient Cities Report(2023)is a contribution of ICLEI to Making Cities Resilient 2030(MCR2030).Working Group This Summary for Policymakers(SPMs)is based on the con-tent of

12、 the China Resilient Cities Report.The report is jointly prepared by ICLEI-Local Governments for Sustainability East Asia Secretariat(ICLEI East Asia)and Research Centre for Sustainable Development of Chinese Academy of Social Sciences(CASS-RCSD).The coordination team and authors are Kelly Guyu Dai(

13、ICLEI East Asia),Yan Zheng(CASS-RCSD),Yuan Yuan(CASS-RCSD),and Merlin Min Chi Lao(ICLEI East Asia).Faith Ka Shun Chan(School of Geographical Sciences,University of Nottingham Ningbo)contributed to the writ-ing of a case study.We would like to express our greatest gratitude to review-ers for taking t

14、ime and effort necessary to review the China Resilient Cities Report(2023),which provides many valuable comments and suggestions.Here we would like to thank the following experts and scholars support(in alphabetical order):Daria Mokhnacheva(United Nations Office for Disaster Risk Reduction),Sunisa S

15、oodrak(United Nations Office for Di-saster Risk Reduction),Yinlong Xu(Institute of Environment and Sustainable Development in Agriculture,China Acade-my of Agricultural Sciences),Xiu Yang(Tsinghua University Institute of Climate Change and Sustainable Development),Stanley Yip(Energy Research Institu

16、te of Nanyang Tech-nological University,Singapore),Guofang Zhai(Centre for Urban Safety Development Research at Nanjing University),and Dan Zhao(Beijing Municipal Institute of City planning and Design).Edition(ICLEI East Asia):Yuchen Ma,Xiaoqian Zhou,Huan Zheng,Ying WangTranslation:Zheng TangDesign

17、and Layout:Xia Yue目录/Contents序言 iForeword ii1.为什么要建设韧性城市 1Why Building Resilient Cities 22.如何理解韧性城市 7How to Understand Resilient Cities 83.如何规划和建设韧性城市 19How to Plan and Develop Resilient Cities 204.打造中国韧性城市：从构建气候韧性城市入手 35Building Resilient Cities in China:Start with Building Climate-resilient Cities

18、 36参考文献和资料 43Reference 43iiiForeword序言序一过去 30 年来，90%的灾害都与气候变化和极端天气事件有关。气候变化是世界上许多城市面临的最大风险驱动因素。当人类的生命和生计还有整体经济遭受灾害时，气候变化使灾害损失进一步扩大。令人遗憾的是，大部分损失越来越集中在城市地区。我们都认识到，人类决策是造成灾害风险的最大因素。最近发布的2015-2030 年仙台减少灾害风险框架实施情况中期审查报告显示我们取得了重大进展，但这份报告仍然指出了需要我们深思的地方。为了预防和减轻与灾害相关的负面影响和损失，需要极具挑战性的重大“方向调整”。来自城市的案例表明，重回正轨是可

19、能的。2022 年全球评估报告强调：当国家政府和地方政府为了预防灾害而做出决定性转变时，就能获得巨大的“韧性红利”。通过将气候和灾害风险预测纳入关键基础设施规划，能够变现红利。通过修改预算规划以应对风险和不确定性，能够累积红利。通过重新配置法律和金融体系，旨在对降低风险进行激励，能够成就红利。上述所有措施可以结合起来，以预防未来气候和灾害风险升级所造成的重大损失。为了帮助地方政府将韧性红利变现，联合国减灾署与宜可城-地方可持续发展协会等合作伙伴携手发起了“创建韧性城市 2030”全球项目。该项目致力于不让任何一个城市掉队，支持城市增强气候和灾害韧性的雄心。在此背景下，中国韧性城市发展报告 重新

20、审视了一些城市为减少灾害和气候风险而采取的积极措施，以及它们如何充分发挥韧性红利的作用。我借此机会向宜可城-地方可持续发展协会及本报告的作者以及有关案例城市表示祝贺，他们所贡献的知识用在了这一重要主题上，宜可城-地方可持续发展协会成绩斐然。我祝愿本报告能够成功传播，使世界其他城市能够学习、受益并受到启发。Sanjaya Bhatia 联合国减灾署仁川东北亚办事处和全球 教育培训学院(ONEA-GETI)负责人Foreword Over the past 30 years,90%of all disasters have been related to climate change and ex

21、treme weather events.Climate change is the greatest risk driver for so many cities across the world.It amplifies disaster losses,both in terms of human lives and livelihoods as well as the overall economy.Unfortunately,most of these losses are in-creasingly concentrated in urban areas.We all realise

22、 that human decisions are the largest contributors to disaster risk.Despite significant progress,the recent Report of the Midterm Review of the Implementation of the Sendai Framework for Disaster Risk Reduction 2015-2030 makes for sober reading.It calls for a major course correction that will be dee

23、ply challenging in order to prevent and reduce the negative impacts and losses associated with disasters.Stories from cities demonstrate that such a course correction is possible.The Global Assessment Report of 2022 highlights a significant resilience dividend for those local and national gov-ernmen

24、ts that make a decisive shift towards disaster prevention.This dividend can be realised through incorpo-rating projected climate and disaster risks into critical infrastructure planning.It can be accrued through revising budget planning so that it considers risk and uncertainty.It can be achieved th

25、rough a reconfiguration of legal and financial systems to incentivize risk reduction.All these measures can combine to prevent significant future losses associated with escalating climate and disaster risk.Helping local governments to realise this resilience dividend is why UNDRR along with our part

26、ners including ICLEI launched the Making Cities Resilient 2030 global initiative.MCR2030 aims to Leave No Municipality Behind in their ambition to strengthen climate and disaster resilience.In this context,the China Resilient Cities Report is a fresh look at proactive steps that some cities are taki

27、ng to reduce disaster and climate risks and at how they are utilising the full power of the resilience dividend.I take this opportunity to congratulate ICLEI and the authors of this report,and the cities whose cases are reflected,for contributing to the knowledge available on this important topic.We

28、ll done to ICLEI.I wish this publication a very successful dissemination so that other cities around the world can learn,benefit and be inspired.Sanjaya Bhatia,Head of the UNDRR Office in Incheon for Northeast Asia and Global Education and Train-ing Institute(ONEA-GETI)iiiivForeword序言Foreword Today,

29、about 56%of the worlds population lives in cities,and urbanization has become a key driving force for eco-nomic transformation and development.However,cities consume more than three-quarters of the worlds energy and emit more than 70%of greenhouse gases,becoming the main cause of human induced clima

30、te change.At the same time,as a complex system,cities are extremely vulnerable to the intrusion and impact of climate and other disasters due to their high population density and large scale,resulting in heavy economic,social,environmental and health costs.Therefore,improving urban disaster risk red

31、uction and climate adaptation capability,and building resilient cities are one of the core priorities for sustainable urban development.How to plan,build and manage a city determines the citys ability to cope with disaster risks and the possible price it will pay in the future development process.It

32、 can be said that if cities are not resilient,they will not be prosperous and liveable,and they will not be able to achieve the goals of sustainable development.The“Recommendations of the Central Committee of the Communist Party of China on Formulating the 14th Five-Year Plan for National Economic a

33、nd Social Development and the Long-term Goals for 2035”proposed for the first time in China the need to“build resilient cities.”The report of the 20th National Congress of the Communist Party of China further called for“building liveable,resilient,smart cities”.The“National Strategy for Adapting to

34、Climate Change 2035”and the“National Comprehensive Disaster Risk Reduction Plan for the 14th Five-Year Plan”released in 2022 also emphasized the importance of resilience building.At present,many Chinese cities have developed strategies for building resilient cities,incorporating resilience goals int

35、o their key plans,actively carrying out rele-vant resilience actions,and improving disaster risk management to a new level.In order to support cities in disaster risk reduction and resilience building,the UNDRR in close cooperation with ICLEI and other partners,launched the“Making Cities Resilient 2

36、020”and“Making Cities Resilient 2030”to support participating local governments in terms of capacity building,exchange and cooperation,knowledge dissemination and promotion.The initiative helps cities to take resilience actions,and build more prosperous,inclusive and sus-tainable cities and communit

37、ies.Since 2018,many Chinese cities have benefited from training activities organized by ICLEI and UNDRR.They have learned the experience,cases and tools of international resilient cities,to improve understanding of concepts such as disaster risks and urban resilience,to further coordinate across dep

38、artments and with different stakeholders,and to lay the foundation for further deepening resilience actions.Against the background of the above projects,this report attempts to outline the relevant policies and practices of Chinas resilient city construction and provide references for more cities by

39、 analysing the cases of the project cities,so as to facilitate the in-depth development of Chinas urban resilience actions.The“Making Cities Resilient 2030”initiative has been launched in China.ICLEI and UNDRR will select a group of Chinese pilot cities to provide contin-ued technical and capacity s

40、upport,and help them explore resilience solutions and strategies that fit the needs of Chinese cities.We look forward to the active participation of more local governments in the initiative,starting local resilience actions,preparing for rainy days,and jointly building resilient and liveable cities.

41、Shu Zhu,Regional Director,ICLEI East Asia Secretariat and Chief Representative to China序二如今，全球约 56%的人口居住在城市，城市化是驱动经济转型和发展的关键力量。但是，城市消耗着全球四分之三以上的能源，排放了 70%以上的温室气体，成为人类活动导致气候变化的主要因素。同时，城市作为复杂的系统，由于其人口密度高、规模大，极易受到气候等灾害的侵扰和冲击，付出沉重的经济、社会、环境和健康等方面的代价。因此，提升城市减灾防灾和气候适应能力，建设韧性城市，是城市可持续发展的核心要务之一。如何规划、建设和管理城市，

42、决定着未来的发展过程中，城市应对灾害风险能力的高低和可能付出的代价。可以说，如果城市不具备韧性，就没有繁荣宜居可言，也无法实现可持续发展的各项目标。中共中央关于制定国民经济和社会发展第十四个五年规划和二三五年远景目标的建议中首次提出要“建设韧性城市”，党的二十大报告进一步要求“打造宜居、韧性、智慧城市”。2022 年发布的国家适应气候变化战略 2035和“十四五”国家综合防灾减灾规划也分别强调了韧性建设的重要性。目前，许多中国城市已提出了建设韧性城市的战略，将韧性目标纳入主要规划，积极开展相关韧性建设行动，提升灾害风险管理水平。为了支持城市提高减灾防灾和韧性建设水平，联合国减灾署与宜可城-地方

43、可持续发展协会（宜可城）等合作先后发起了“创建韧性城市 2020”和“创建韧性城市 2030”倡议，为地方政府组织能力建设培训，搭建合作交流平台，促进知识传播与分享，推动城市开展韧性行动，建设更加繁荣、包容和可持续的城市和社区。2018 年至今，多个中国城市在宜可城和联合国减灾署合作组织的培训活动中获益，学习了国际韧性城市建设的经验、案例和工具，提高了对灾害风险、城市韧性等概念的认知，促进了跨部门和不同利益相关方的合作，为进一步深化城市韧性行动打下基础。在上述项目背景下，本报告试图梳理中国韧性城市建设的有关政策和实践，通过分析项目城市的案例，为更多城市提供参考，以助力中国城市韧性行动的深入开展

44、。“创建韧性城市 2030”项目已在中国启动，宜可城和联合国减灾署将选择一批中国试点城市，继续提供能力建设、交流合作等方面的支持，开发规划和评估工具，探索符合中国城市需求的韧性解决方案和战略。我们期待着更多地方政府的积极参与，开启韧性行动，未雨绸缪，共建韧性宜居之城。朱澍 宜可城-地方可持续发展协会东亚秘书处 主任兼中国首席代表1为什么要建设韧性城市 Why Building Resilient Cities341 Why Building Resilient Cities1 为什么要建设韧性城市City,as a complex human settlement system,is an i

45、m-portant administrative and geographic unit to address various global risks and challenges.Its playing a more and more important role especially in addressing Sys-temic Risk and improving Generic Resilience.The Sixth Assessment Report of the IPCC points out that cities are not only hotspots of impa

46、cts and risks,but also a key part of the solution.On the one hand,increasing urbanisation and climate change will bring compound risks,and on the other hand,cities can also provide climate action opportunities and reduce climate risk(IPCC,2022).In 2010,ICLEI launched the Resilient Cities Congress se

47、ries(now Daring Cities)focusing on the latest prog-ress and challenges of city resilience in local practice level.In the past ten years,reviewing many key issues of the“Resilient Cities Conference”,it can be found that there are weak links in some of the key issues that global cities focus on in imp

48、roving resilience.For example,the improvement of climate resilience in key areas,socially vulnerable groups,comprehensive cross-sectoral and multi-level urban risk management,climate resilience investment and climate financing mechanisms,opportunities and challenges brought by the digital age to urb

49、an resilience,etc.In terms of urban crops/food systems,climate change poses a serious risk to the security of food sys-tems in urban areas.Building food system resilience that can resist the risk of climate change and extreme climate events has become an important issue.In terms of urban water resou

50、rces,climate change,especially the increased frequency and intensity of ex-treme events such as heat waves,extreme rainfall and drought,will exacerbate the situation in areas current-ly water-scarce and cause water stress in areas where water resources are still abundant today.Elevated concentration

51、s of pollutants during floods or droughts lead to increased risks of water contamination and pathogen contamination,potentially threatening billions of peoples human rights to meaningful enjoy-ment of water and sanitation(UN Water,2020).There-fore,it is urgently needed for cities to improve their re

52、-silience towards flood and drought,to strengthen the effective management of water resources especially transboundary water management,to implement ap-propriate water management strategies,and to build stable funding schemes and form regional coopera-tion.Climate change will exacerbate existing hea

53、lth risks in urban areas.Climate change has direct or indirect impacts on human health.Among them,direct impacts are reflected in the health effects caused by extreme weather and climate events such as high tem-perature and heat waves,extreme low temperatures,floods,storms,and fires;indirect impacts

54、 are on the one hand mediated through natural ecosystems such as insect vectors,pathogens,air and water pollution and on the other hand mediated through human social systems,such as mental illness or psycholog-ical stress caused by frequent extreme weather that leads to peoples displacement or prope

55、rty loss (IPCC,2022).It is necessary to improve the living environ-ment and build a health system with strong resilience and climate adaptability.In terms of urban transportation systems,a reli-able transportation system is crucial to the econ-omy and well-being of urban communities.With the increas

56、e of the scale and complexity of the trans-portation system,so too do the risks of a disruption to the flow of goods,services and people.However,com-pared with sustainable,low-carbon transportation and mitigation actions,climate change adaptation actions have received less attention and funding in t

57、he trans-portation sector.Long-term investments in measures of comprehensive adaptation and mitigation should also be considered.作为复杂的人居环境系统，城市是应对各种全球性风险和挑战的重要行政和地理单元，在应对系统性风险（Systemic Risk）、提 升 系 统 韧 性（Generic Resil-ience）方面发挥着越来越重要的作用。政府间气候变化专门委员会（IPCC）第六次评估报告指出城市既是影响和风险的热点，也是解决方案的关键部分，一方面，日益增长的城市

58、化和加剧的气候变化将带来复合风险，另一方面，城市也可为气候行动提供机遇、降低气候风险(IPCC,2022)。自 2010 年起，宜可城启动了全球韧性城市大会（Resilient Cities Congress series，现更名为”Daring Cities”雄心城市峰会），助力与提升城市应对全球气候变化等不确定性风险的韧性和能力。回顾十年来“韧性城市大会”的诸多关键议题，我们发现全球城市在提升韧性所关注的一些重点内容上存在薄弱环节。例如，关键领域的气候韧性提升、社会脆弱性群体、跨部门和多层级的城市风险综合治理、气候韧性投资及气候融资机制、数字化时代给韧性城市带来的机遇和挑战等。在城市粮食/

59、食物系统方面，气候变化对城市粮食系统的安全构成严重风险。因而，如何构建能够应对气候变化及极端气候事件风险的韧性粮食系统成为一个重要议题。在城市水资源方面，气候变化，尤其是热浪、极端强降雨和干旱等极端事件发生的频率和强度增加，将加剧当前缺水地区的形势，并对当今水资源仍然丰富的地区造成压力，洪水或干旱期间污染物浓度升高导致水污染和病原体污染的风险增加，潜在地威胁数十亿人切实享有水和卫生设施的权利(UN Water,2020)。这些问题亟需城市提升应对洪涝和干旱灾害的韧性、加强水资源特别是跨界水资源的有效管理、执行适当的水管理战略、建立稳定的资金和区域合作机制。气候变化将加剧城市地区现有的健康风险。

60、气候变化对人类健康产生直接或间接影响，其中，直接影响体现在高温热浪、极端低温以及洪水、风暴、火灾等极端天气气候事件造成的健康效应；间接影响一方面通过昆虫传播媒介、病原体、空气和水污染等自然生态系统为中介因素，另一方面通过人类社会系统为中介因素，如极端天气频发导致人们流离失所或财产损失而产生的精神疾病或心理压力等（IPCC,2022）。这需要城市积极改善人居环境，并构建具有较强韧性和气候适应性的卫生健康系统。在城市交通系统方面，可靠的交通系统对城市社区的经济和福祉至关重要。随着交通系统的规模和复杂性增加，商品、服务和人员流动中断的风险也在增加，然而，相对于可持续、低碳运输和气候减缓行动，气候适应

61、行动在运输部门中获得的关注和投入较少。因此，地方政府也应当考虑对综合适应和减缓措施进行长期投资。561 Why Building Resilient Cities1 为什么要建设韧性城市构建韧性城市特别需要充分考量以下核心议题：在韧性城市的社会维度着重关注公平和包容性。韧性城市的社会维度更加关注城市边缘群体和贫困人口，包括那些生活在非正式居住区和在非正式部门工作的人。由此，通过构建社区韧性（Community Resilience）来增强当地社区的能力，能够推动社区制定因地制宜的解决方案 (ICLEI,2016)。构建和形成多层级风险治理与多利益相关者合作架构。国家、区域、地方政府、社区和私营

62、企业之间需要构建多层级治理机制和多利益相关者合作机制。地方政府、捐助者、私营部门和社区成员之间的充分沟通和深入交流，能促成地方决策者多角度和全方位地考虑相关困难。如在重视环境风险和社会影响的同时，也切实讨论和解决财务可行性和风险等操作层面的重要问题。此外，城市间需要加强合作，让各个城市和网络成员之间能够相互学习，并共同探索建立韧性城市的创新方法。积极探索气候韧性投融资与城市保险创新。地方政府和投资者之间建立有效的沟通和合作机制，发掘气候韧性投资潜力。在应对风险中，充分发挥气候风险保险等风险转移和金融工具对于应对灾害冲击的重要作用。以可靠的决策依据为基础，坚持证据导向原则，保障韧性城市规划制定的

63、科学性与合理性。为达成这个目标，地方政府、学界和私营部门已逐渐加强合作与伙伴关系，通过将数据转化为可运用于决策、公众传播的信息，建立环境分析、预测模型和规划系统，能大大提升决策效率，进而发展出基于实证依据、可复制的案例，以及易于传达和沟通韧性计划进程的方案。Thus,to build resilient cities,there are several key points:Pay attention to the social dimension of urban re-silience,especially equitable and inclusive devel-opment.It p

64、ays more attention to the marginalised group,including those living in informal settlements and working in the informal sector.Thus,building Community Resilience is about empowering the local communities to be able to develop solutions by them-selves and for themselves within their neighbourhood (Wo

65、rld Bank,2018).Form multi-level risk governance and multi-stake-holder cooperation framework.Multi-level gover-nance mechanisms and multi-stakeholder coopera-tion mechanisms need to be built among national,regional,local governments,communities and private enterprises.Effective communication among l

66、ocal governments,donors,the private sector and com-munity members,can bring multi-dimensional and comprehensive perspectives to cope with develop-mental challenges.For instance,it can help to cope with environmental-social issues,while addressing funding feasibility and other core operational topics

67、.In addition,cities need to strengthen cooperation so that cities and network members can learn from each other and jointly explore innovative ways to build city resilience.Explore climate resilience financing and city insurance innovation.It is required to establish effective communication and coop

68、eration mecha-nisms between local governments and investors and explore the investment potential of climate resilience.Risk transfer and financial instruments such as climate risk insurance play an important role in addressing catastrophes.Make evidence-base,science-informed,rational,and reliable de

69、cisions.To achieve this goal,local and regional governments,academia and the private sector have gradually strengthened cooperation and partnership.This cooperation contributes to establish environmental analysis,forecasting models and plan-ning systems t by transforming data into information that c

70、an be used for decision-making and public dissemination,which can greatly improve the efficien-cy of decision-making and lead to the development of evidence-based,replicable cases and programmes that can easily communicate and communicate the resilience planning process.2 如何理解韧性城市 How to Understand

71、Resilient Cities9102 How to Understand Resilient Cities2 如何理解韧性城市基于中国行政管理和社会治理特色，结合生态文明建设、适应气候变化和碳达峰、碳中和战略，具有韧性的城市应当从以下五个维度重点开展相关工作：生态韧性：保障城市生态红线，充分调动生态系统服务功能，积极在多尺度上推广和运用基于自然的解决方案。城市生态韧性对城市生态服务系统起着至关重要的作用，是韧性城市规划、建设和管理的基本载体，与城市未来是否健康发展息息相关。城市生态系统服务为探索向更可持续的城市转型的规划、管理和治理实践提供了关键纽带，并在构建城市系统韧性方面发挥重要作用，

72、城市应优先保障生态系统服务供应的韧性，以确保城 市 的 宜 居 性 和 可 持 续 性（McPhearson et al，2015）。案例:地区生物多样性协同行动项目（Integrated action on biodiver-sity，INTERACT-Bio）由宜可城领导的“地区生物多样性协同行动项目（INTERACT-Bio）”，旨在改善快速发展的城市及其周边地区对自然的利用和管理，为全球南方不断扩大的城市社区提供基于自然的解决方案和长远效益。该项目使各级政府将生物多样性和生态系统服务主流化的努力整合到地方政府的核心职能中，如空间规划、土地利用管理、地方经济发展和基础设施设计。该项目支持

73、城市区域在其特定背景下，了解与加强生态系统服务能力以及新的或增强的经济机会的潜力，同时保护和加强这些服务和机会所依赖的生物多样性和生态系统，使城市走上更具韧性和可持续发展的道路。中国作为二期项目试点，项目将开展一系列科学研究、对话交流及能力建设培训工作，包括支持地方政府开展生物多样性评估，编制和实施城市生物多样性战略和行动计划，开展生物多样性金融工具培训活动等。在地区生物多样性协同行动项目（INTERACT-Bio）城市区域开展的活动：与项目外的国家和地方政府合作，将生物多样性纳入城市区域规划和决策；将生物多样性和“基于自然的解决方案”（NbS）纳入土地利用、基础设施和发展规划，并制定支持性政

74、策工具；将跨部门的生物多样性纳入城市规划、管理、实施的主流；“基于自然的解决方案”（NbS）作为经济合理且可持续的投资选择加以推广；通过试点项目展示基于自然的发展的有效性；通过点对点交流将基于自然的方法相结合，并提高人们对自然在城市环境中提供的价值的认识。Considering the administration and governance nature of China,and visions of ecological civilisation,climate adaptation,carbon peak and neutrality,the five dimensions are s

75、uggested to take actions for building resilient cities:Ecological resilience:secure urban ecological red-lines,utilise ecosystem services,and proactively apply and promote nature-based solutions.Urban ecological resilience plays a vital role in the urban ecological service system.It is the basic car

76、rier of plan-ning,construction and management of a resilient city,and is closely related to the healthy development of the city in the future.Urban ecosystem services pro-vide key links for bridging planning,management and governance practices seeking transitions to more sus-tainable cities and serv

77、e an important role in building resilience in urban systems.Cities need to prioritise safeguarding of a resilient supply of ecosystem ser-vices to ensure livable,sustainable cities(McPhearson et al.,2015).BOX:Integrated action on biodiversity,INTERACT-BioINTERACT-Bio,led by ICLEI,is designed to impr

78、ove the utilisation and management of nature within fast-growing cities and the regions surrounding them.It aims to provide expanding urban communities in the Global South with nature-based solutions and associated long-term benefits.The project enables gov-ernments at all levels to integrate their

79、efforts for mainstreaming biodiversity and ecosystem services into core subnational government functions such as spatial planning,land-use management,local economic development and infrastructure design.The project supports city-regions to understand and unlock,within their specific local context,th

80、e potential of nature to provide essential services and new or enhanced eco-nomic opportunities,while simultaneously protecting and enhancing the biodiversity and ecosystems on which these series and opportunities depend.In doing so,these actions will place the participating city-re-gions on a more

81、resilient and sustainable development path.As a pilot for the second phase of the project in China,the project is carrying out a series of scientific research,dialogue exchanges and capacity-build-ing training,including support for local governments to carry out biodiversity assessments,prepare and

82、implement urban biodiversity strategies and action plans,and carry out training activities on biodiversity financial instruments.Activities carried out in the INTERACT-Bio urban area:Cooperate with other subnational and national governments,including biodiversity into urban regional planning and dec

83、ision-making;Incorporate biodiversity and Nature-based Solutions into land use,infrastructure and development planning,and formulate supporting policy tools;Mainstream cross-sectional biodiversity at the aspects of city planning,management and implementa-tion;Promote Nature-based Solutions as econom

84、ic,reasonable and sustainable investment options;Demonstrate the effectiveness of nature-based development through pilot projects;Combine nature-based methods with point-to-point communication,and improve peoples awareness of the value of nature in the urban environment11122 How to Understand Resili

85、ent Cities2 如何理解韧性城市基础设施韧性：可持续出行等城市网络基础设施。基础设施韧性是基础设施在遭受自然冲击期间和之后为用户提供所需服务的能力。加强电力、水、环境卫生、交通和通讯等基础设施对系统的韧性至关重要，这不仅是为了避免昂贵的维修费用，也是为了尽量减少自然灾害对人民生计和福祉的广泛影响(the World Bank Group&Global Facility for Disaster Reduction and Recovery,2020)。以人为中心的城市规划，可能使各项服务规模缩小且分散在市区各地。碎片化服务虽与经济效率理念相悖，却是部分地区功能失灵时能够维持城市整体系统

86、运作的一种必要的冗余性，更是韧性的一项核心支柱（ICLEI，2019）。经济韧性：深入挖掘和发挥绿色经济潜力，城市新产业/就业，竞争力提升。具有韧性的经济系统不仅可以抵御外来冲击对区域经济造成的损失，还可以在复杂多变的发展环境中及时调整经济运行模式，消除外部冲击带来的干扰，及时实现产业转型升级，转向全新的经济增长模式。构建经济韧性的一个主要路径是促进经济转型升级，发展绿色经济。其中，循环经济是一种绿色生产和消费模式，涉及共享、租赁、再利用、修复、翻新和回收，在一个（近乎）闭环系统中，产品及其所包含的材料具有很高的价值(European Union,2016)。此外，经济韧性很大程度上依赖于强大

87、的制度韧性。案例：西咸新区创新融资机制2014 年 1 月设立的西咸新区是中国 19 个国家级新区之一。西咸新区将海绵城市、气候适应型城市试点建设作为中国西部地区落实生态文明理念、探索新型城镇化范式的突破口之一。2019 年，沣西新城海绵城市试点建设通过国家专家组考核验收，并成功获批联合国教科文组织全球生态水文示范点。西咸新区通过制度创新提高韧性城市，被作为“转型适应”的典型范例，被编入IPCC 第六次评估报告第二工作组报告。西咸新区在试点中积极推进气候适应融资机制创新：以试点专项补助资金为基础，放大财政资金杠杆作用，促进绿色产业金融体系创新，以股权和债权两种方式投资于新区海绵城市建设。通过与

88、商业银行合作，建立陕西首支绿色海绵发展基金 12 亿元；成立城镇化建设发展基金 60 亿元，其中海绵专项 26.42 亿元；与政策性金融机构成立专项建设基金 6000 万元，创新引导金融机构共同服务海绵城市建设。采用 PPP 模式，将纯公益性管网、片区海绵城市建设与可经营污水处理设施捆绑打包，引入资金 12.37 亿元。这些气候融资创新机制为建设“适应气候变化的现代田园城市”奠定了基础。Photo by geng zhang on UnsplashInfrastructure resilience:urban network infra-structure such as sustainabl

89、e mobility.The resil-ience of infrastructure is the ability of infrastructure to provide the service users need during and after a natural shock.Strengthening infrastructure such as electricity,water,environmental sanitation,trans-portation,and communications makes the systems resilience vital,not o

90、nly to avoid costly repairs,but also to minimise the widespread impact of natural disas-ters on peoples livelihoods and well-being(the World Bank Group&Global Facility for Disaster Reduction and Recovery,2020).People-centred urban planning may cause various services to shrink and be scattered throug

91、hout the urban area.Such fragmented services are contrary to the concept of economic efficiency,but when some areas fail to function,they are a manifes-tation of necessary redundancy to maintain the over-all system,as well as a core pillar of resilience(ICLEI,2019)Economic resilience:potential for g

92、reen econ-omy,new industries/employments in cities,enhanced competitiveness.A resilient economic system can not only withstand the losses caused by external shocks to the regional economy,but also adjust the economic operation mode in time in the complex and changeable development environment,elimin

93、ate the interference caused by external shocks,and realise industrial transformation and upgrading in time,and turn to a new economic growth model.One of the main ways to build economic resilience is to promote economic transformation and upgrade and develop a green economy.Among them,the circular e

94、conomy is a production and consumption model involving sharing,leasing,reuse,repair,renovation and recycling.In a(near)closed loop system,products and the materials they contain have high value(Euro-pean Union,2016).Importantly,economic resilience is greatly relying on strong institutional resilienc

95、e.BOX:Xixian New Area Innovative Financing MechanismXixian New Area,established in January 2014,is one of Chinas 19 national-level new areas.The Xixian New Area regards the construction of sponge cities and climate-adaptive cities as one of the breakthroughs for implementing the concept of ecologica

96、l civilization and exploring new urbanisation paradigms in western China.In 2019,the pilot construction of the sponge city in Fengxi New City passed the assessment and acceptance of the national expert panel,and was successfully approved as a UNESCO Global Eco-hydrolo-gy Demonstration Site.The impro

97、vement of urban resilience through institutional innovation in Xixian New Area is regarded as a typical example of“transformation and adaptation”and is included in the“IPCC Sixth Assessment Report Working Group II Report”.Xixian New Area is actively promoting the innovation of climate adaptation fin

98、ancing mechanism in the pilot program:based on the special subsidy funds for the pilot program,the leverage of fiscal funds is amplified,the innovation of the green industry financial system is promoted,and the sponge city construc-tion in the new area is invested in two ways:equity and debt.Through

99、 cooperation with commercial banks,establish the first green sponge development fund in Shaanxi of 1.2 billion yuan;establish an urbanisation construction development fund of 6 billion yuan,of which 2.642 billion yuan is dedicated to sponge;set up a special construction fund of 60 million yuan with

100、policy-oriented financial institutions,and innovate and guide financial institutions to jointly serve the construction of sponge cities.Using the PPP model,the pure public welfare pipe network,the construction of the sponge city in the area,and the operational sewage treatment facilities are bundled

101、 and packaged,and 1.237 billion yuan of funds have been introduced.These climate financing innovation mechanisms have laid the foundation for the construction of“modern garden cities adapting to climate change”.13142 How to Understand Resilient Cities2 如何理解韧性城市制度韧性：构建风险治理体系与机制创新。韧性城市建设涉及风险预警、综合减灾、韧性

102、融资、跨部门和多层次治理等方面，科学合理的机制设计和制度环境有利于提升城市应对各种不确定性风险的能力。城市风险治理的主体日趋多元化，国家、政府、企业、民间组织和公众等多元主体的共同参与和有效沟通，能够形成对风险治理和韧性城市建设的统一认识，明确各方的利益诉求和职责。例如，在韧性融资方面，需要加强政府与私营部门、保险业的交流合作，明确双方需求，缩小投资差距；政府需要加强对各种金融工具及其要求的认识，提升政府获取和管理适应资金的能力，制定有吸引力的融资项目，运用风险分析工具，提供可靠的气候风险数据，向潜在投资者、捐助者、保险公司和利益相关者清楚地证明项目的价值和可行性；同时，投资者也应重视地方政府

103、的特定需求和特性，促进双方合作，投资更具韧性的基础设施、服务和风险降低战略（ICLEI，2016）。案例:巴西利亚气候融资机制2019 年巴西利亚成功筹集了超过 4.5 亿美元的气候资金，用于 2021 年气候战略的实施。该气候资金围绕以下四个方面开展相关工作：将可持续发展目标纳入城市发展战略规划。巴西利亚将可持续发展目标纳入联邦区战略规划（2019-2060），为获得国家或国际适应资金提供有力支撑。将融资建立在数据收集和分析的基础上。支撑巴西利亚 CITinova 项目的数据收集和分析不仅可以支持地方和区域政府为社区制定综合气候变化战略和监测成果，还可以支持建立信任和增加投资者的信心。调动社

104、会和公众参与。巴西利亚鼓励各类受众（如学校、私营和社会部门）参与废物管理、可再生能源、水资源保护、气候治理、性别平等、减贫等主题，提高社会对城市可持续发展需求的认识。这些因素加强了项目的变革性影响，大多数投资者也要求和衡量这些因素。提高投资项目的可扩展性和可复制性。项目的可扩展性和可复制性通常非常受潜在投资者的欢迎，CITinova 项目的成果技术也被复制到其他项目中，如在 CITinova 项目中的“流域机械化农林业系统”，也可用于“流域恢复和生物多样性保护项目”。Brasilia-Photo by Richard Chiang on UnsplashInstitutional resili

105、ence:risk governance and mechanism innovation.The construction of resilient cities involves early risk warning,comprehensive disas-ter reduction,resilient financing,cross-departmental and multi-level governance.A scientific and reasonable mechanism design and institutional environment are conducive

106、to improving the ability of cities to address various uncertain risks.The subjects of urban risk governance are becoming increasingly diversified.The joint participation and effective communication of multiple subjects such as the state,government,enterprises,non-governmental organisations,and the p

107、ublic can form a unified understanding of risk gov-ernance and resilient city construction and clarify the interests and responsibilities of all parties.For exam-ple,in terms of resilience financing,it is necessary to strengthen exchanges and cooperation between the government,the private sector,and

108、 the insur-ance industry,clarify the needs of both parties,and narrow the investment gap;the government needs to strengthen its understanding of various financial instruments and their requirements,enhance the governments ability to acquire and manage adaptive funds,formulate attractive financing pr

109、ojects,use risk analysis tools to provide reliable climate risk data,and clearly prove the value and feasibility of projects to potential investors,donors,insurance companies,and stakeholders.At the same time,investors should also pay attention to the specific needs and characteristics of local gove

110、rnments,promote cooperation between the two parties,and invest in more resilient infrastruc-ture,services and risk reduction strategies(ICLEI,2016).BOX:Brasilia Climate Finance FacilityIn 2019,Brasilia successfully raised more than US$450 million in climate funds for the implementation of the 2021 c

111、limate strategy.Four focuses of the fund are:Incorporate sustainable development goals into urban development strategy planning.Brasilia incor-porated the Sustainable Development Goals into the Federal District Strategic Plan(2019-2060),provid-ing strong support for accessing national or internation

112、al adaptation funding.Based financing on data collection and analysis.The data collection and analysis underpinning the CITi-nova project in Brasilia can not only support local and regional governments in developing comprehen-sive climate change strategies and monitoring outcomes for communities,but

113、 also support building trust and increasing investor confidence.Mobilise social and public participation.Brasilia encourages various audiences(such as schools,private and social sectors)to engage in topics such as waste management,renewable energy,water conser-vation,climate governance,gender equali

114、ty,poverty alleviation,etc.,and raises societys awareness of the need for sustainable urban development.These factors reinforce the transformative impact of a project and are also requested and measured by most investors.Improve the scalability and replicability of investment projects.The scalabilit

115、y and replicability of proj-ects are usually very popular with potential investors,and the resulting technology of the CITinova project has also been replicated in other projects,such as the“watershed mechanised agroforestry system”in the CITinova project,which can also be used in the“Watershed Rest

116、oration and Biodiver-sity Conservation Project”.15162 How to Understand Resilient Cities2 如何理解韧性城市社会韧性：铺垫适应性社会保障、调动公众参与社区自治。韧性城市必须确保包括边缘化和弱势群体在内的所有居民平等获得基本服务(World Bank,2018)。适 应 性 社 会 保 障 体 系（adaptive social protection，ASP），是通过政府提供的正式的机制设计，如保证金、灵活的金融工具、再保险和国际援助等，弥补贫困群体在储蓄、借贷和保险等方面薄弱和欠缺的适应能力，在遭遇气候灾害

117、侵袭时发挥社会安全网的兜底作用（IPCC，2022）。社会保障通过确保弱势群体免受一系列冲击造成的福祉下降的影响，增强弱势群体的韧性。安全网可以提供现金、食物、保险和其他手段。通过最大限度地减少经济冲击和自然灾害对个人和家庭的负面影响来提高韧性(World Bank,2018)。另一方面，构建社会韧性需要通过包容性治理和相关财政预算，保障城市贫困人口享有基本的居住条件和公共服务，为此地方政府应确保城市规划有效纳入边缘化群体的需求（ICLEI，2019）。基层社区是城市风险应对的基本单元，也是韧性城市网络的联结纽带。风险易发地区的非正式定居点和边缘社区通常有丰富的应对气候变化和灾害的经验和方案，

118、以更强的适应能力来降低自身风险（international institute for environment and development，2016）。研究表明，在地方政府的支持下，凝聚力强、参与度高的社区更能共同面对未预见的冲击和压力，且不至于出现社会动荡和冲突局面(Arup&Siemens,n.d.)。案例:加拿大蒙特里尔韧性城市战略2017 年加拿大蒙特利尔市根据自身面临的风险和社会经济情况，制定了2018-2022 年韧性城市战略，确定了四个主要方向：构建安全的社区、保护居民生活环境、创造多元化和创新经济、综合改进治理结构，并制定了相应的具体措施。首先，为构建安全的社区，要加强社区

119、应对风险的能力，如举办应急或社区韧性能力讲习班、促进公民参与和志愿者培训；加强弱势群体的住房存量和应急服务、提升粮食系统韧性；建立互助和包容机制，促进公民之间的团结。第二，为保护居民生活环境，要确保在土地使用和基础设施规划中更好地考虑风险，如完善与韧性建筑、绿色基础设施相关的标准和法规，规范固定地点的危险品管理；分析减灾措施的成本效益。第三，为创造多元化和创新经济，促进公司和商业机构的良好准备状态，以应对干扰；确保人员和货物的有效和安全流动；利用知识和创造力应对挑战。第四，为综合改进治理结构，要确保城市做好应对风险的充分准备，如培训市政雇员、建立多风险监控、评估社会经济脆弱性、发展韧性指标、分

120、享韧性城市知识、在政府和公民之间建立有效共同方式。Montral-Photo by Jackie Hutchinson on UnsplashSocial resilience:Paving the way for adaptive so-cial security and mobilizing public participation in community.Resilient cities must ensure that all residents,including marginalised and disadvantaged groups,have equal access to

121、basic services(World Bank,2018).The adaptive social protection system(ASP)through the design of formal mechanisms pro-vided by the government,such as deposits,flexible financial instruments,reinsurance,and international aid,etc.,makes up for the weak and lacking adaptabili-ty of poor groups in savin

122、g,borrowing,and insurance,and plays a social safety net in the face of climate disasters(IPCC,2022).Social protection builds the re-silience of the vulnerable through insuring against the impact of drops in well-being from a range of shocks.Safety nets can provide cash,food,insurance,and oth-er mean

123、s.Resilience is promoted through programs that minimise the negative effect of economic shocks and natural disasters on individuals and families(World Bank,2018).On the other hand,building social resil-ience requires inclusive governance and related fiscal budgets to ensure that the urban poor enjoy

124、 basic living conditions and public services.Therefore,local and regional governments should ensure that urban planning effectively incorporates the needs of margin-alised groups(ICLEI,2019).The grass-roots communi-ty is the basic unit of urban risk response,and it is also the connecting link of the

125、 resilient city network.Infor-mal settlements and marginal communities in risk-prone areas usually have experience in responding to climate change and disasters and can provide local solutions to adapt to these changes and reduce risks(International Institute for Environment and Develop-ment,2016).S

126、tudies have shown that with the support of local governments,communities with strong cohe-sion and participation are more able to face unfore-seen shocks and pressures together,without social turmoil and conflict(Arup&Siemens,n.d.).BOX:The Resilient City Strategy of Montral,CanadaIn 2017,the City of

127、 Montral,Canada,based on its own risks and socio-economic conditions,formulated the“2018-2022 Resilience City Strategy”,which identified four main directions:building a safe community,protecting the living environment of residents,creating a diversified and innovative economy,comprehen-sively improv

128、ing the governance structure and formulating corresponding specific measures.First,in order to build a safe community,it is necessary to strengthen the communitys ability to respond to risks,such as holding emergency or community resilience workshops,promoting citizen participation and volunteer tra

129、ining;strengthening the housing stock and emergency services for vulnerable groups,and improving the resilience of the food system;establish mutual assistance and inclusive mechanisms to promote unity among citizens.Second,to protect the living environment of residents,we must ensure that risks are

130、better considered in land use and infrastructure planning,such as improving the standards and regulations related to resilient buildings and green infrastructure,regulating the management of hazardous materials in fixed locations,and analysing disaster reduction cost-effectiveness of measures.Third,

131、to create a diversified and innovative economy,promote the well-prepared state of companies and commercial institutions to deal with interference;ensure the effective and safe flow of people and goods;and use knowledge and creativity to meet challenges.Fourth,to comprehensively improve the governanc

132、e structure,it is necessary to ensure that cities are fully prepared to deal with risks,such as training municipal employees,establishing multi-risk monitoring,as-sessing social and economic vulnerabilities,developing resilience indicators,sharing knowledge of urban resilience,and establishing an ef

133、fective common way between the government and citizens.17182 How to Understand Resilient Cities2 如何理解韧性城市中国目前的韧性城市实践主要有政府部门主导推进和参与国际项目两种途径，包括国际韧性城市、海绵城市、气候适应型城市、安全示范城市和地下管廊综合试点等类型。其中以应对气候变化为主的三类，如韧性城市注重城市系统应对经济风险、灾害风险等各种内外部风险冲击的能力；海绵城市主要针对暴雨和水资源的单一风险要素；气候适应型城市主要针对气候变化引发的多种短期和长期灾害风险。从建设理念来看，国际韧性城市、海绵

134、城市、气候适应型城市、安全示范城市、地下管廊综合试点的本质都是提升城市应对各种灾害风险的能力。案例：中国气候韧性城市探索山东济南自古以“泉城”为名，然而快速的城市发展带来水资源枯竭、水污染和洪涝灾害等诸多问题。济南以气候适应型城市、海绵城市试点建设为契机，切实增强城市防洪排涝减灾等综合能力，增强气候适应能力，提高“泉城”水韧性。2021 年在联合国生物多样性公约缔约方大会第十五次会议（COP15）上获得国家生态文明建设示范区和“绿水青山就是金山银山”实践创新基地授牌和命名。在试点建设中，编制适应气候变化行动方案，建立城市适应性规划体系，强化建筑、交通、能源、水资源等领域的适应能力，完善适应工作

135、管理体系、提升气象监测预警能力、提高人群健康领域适应气候变化能力。构建山、泉、湖、河、城相融合的城市水生态系统，出台海绵城市政策制度 40 余项，完成建设项目 391 项，累计投资 72.33 亿元，建成海绵城市面积 52.91 平方公里。Photo by Sherlock Lau on UnsplashThe current practice of resilient cities in China is main-ly through government-led pilot and participation in international projects,including typ

136、ical types of pilot projects:international resilient cities,sponge cities,climate-adaptive cities,safety demonstration cities,and comprehensive pilot projects for underground pipe corridors.Among them,there are three catego-ries that mainly deal with climate change.For example,resilient cities focus

137、 on the ability of urban systems to respond to various internal and external risk shocks such as economic risks and disaster risks;sponge cities mainly target the single risk factor of heavy rain and water resources;climate-adapted cities mainly target a variety of short-term and long-term disasters

138、 caused by climate change risk.From the perspective of construction concepts,the essence of global resilient cities,sponge cities,climate-adaptive cities and safety demonstration cities is to improve the ability of cities to address various disaster risks.BOX:Case Study of Chinas Climate-resilient C

139、itiesJinan,Shandong has been named“Spring City”since ancient times.Rapid urban development has brought about many problems such as water resource depletion,water pollution,and floods.Taking the opportu-nity of pilot construction of climate-adaptive cities and sponge cities,Jinan effectively enhanced

140、 the citys comprehensive capabilities in flood control,drainage and disaster reduction,enhance climate adaptability,and improve the water resilience of the“spring city”.In 2021,at the 15th meeting of the Conference of the Parties to the United Nations Convention on Biological Diversity(COP15),it was

141、 awarded and named as a National Ecological Civilization Construction Demonstration Zone and a practice and innovation base of“Lucid waters and lush mountains are invaluable assets”.In the pilot construction,it has prepared action plans to adapt to climate change,established an urban adaptive planni

142、ng system,strengthened the adapt-ability in the fields of construction,transportation,energy,water resources,etc.,improved the adaptation work management system,improved the ability of meteorological monitoring and early warning,and im-proved the ability to adapt to climate change in the field of po

143、pulation health.It has built an urban water ecosystem integrating mountains,springs,lakes,rivers,and cities.More than 40 sponge city policies and systems have been issued,391 construction projects have been completed,and a cumulative investment of 7.233 billion yuan has been built.Sponge city covers

144、 an area of 52.91 square kilometres.3 如何规划和建设韧性城市 How to Plan and Develop Resilient Cities21223 How to Plan and Develop Resilient Cities3 如何规划和建设韧性城市 可持续发展Sustainable Development气候韧性发展Climate Resilient Development防灾减灾Disaster Risk Reduction图 3.1 可持续发展三圈层(改编自 IPCC,2022;Morchain&Robrecht,2012)Fig 3.1

145、Three layers of sustainable development(adapted from IPCC,2022;Morchain&Robrecht,2012)1 Climate resilient development:in IPCC the Sixth Assessment Report prepared by Working Group Two,climate resilient development is referred to as the process of implementing greenhouse gas mitigation and adaptation

146、 measures to support sustainable development for all(IPCC,2022).防灾减灾工作和韧性城市的早期评估是城市迈向结合中长期规划、探索自身可持续发展路径的重要基石。宜可城欧洲秘书处在 2012 年提交欧盟委员会的关于韧性城市建设的背景研究中，便提出了关于防灾减灾、韧性和可持续发展等关键理念的层级框架。2022 年联合国政府间气候变化专门委员会在第六次评估报告（AR6）第二组工作报告中，则着力强调气候韧性发展（Climate resilient development，亦称“具有气候韧性的发展”）的紧迫性和必要性，气候韧性发展理念强调气候适

147、应与减缓的举措并重，从而优化和推动可持续发展这一全球目标和进程。防灾减灾工作和气候韧性发展相辅相成，一方面，防灾减灾工作中形成的应对气候灾害相关的机制和经验能够为更为整合的气候韧性发展路径提供有效支撑；另一方面，气候韧性发展中的气候适应行动也能够为防灾减灾工作提供更为长期的多维度的保障。Early assessment of disaster risk reduction and urban resilience is an important cornerstone for cities to combine medium and long-term planning and explore

148、 their own sustainable development paths.In the back-ground study on resilient city construction submitted to the European Commission in 2012 by the European Secretariat of ICLEI,a hierarchical framework of key concepts such as disaster risk reduction,resilience,and sustainable development was propo

149、sed.In 2022,the United Nations Intergovernmental Panel on Cli-mate Change focused on the urgency and necessity of climate resilient development(Climate resilient development1)in the second group work report of the sixth assessment report(AR6).The concept of climate resilient development emphasises b

150、oth climate ad-aptation and mitigation measures,to optimise and promote the global goal and process of sustainable development.Disaster risk reduction and climate resilience development complement each other.On the one hand,the mechanisms and experience related to climate disasters formed in disaste

151、r risk reduction work can provide effective support for a more inte-grated climate resilience development path;On the other hand,climate adaptation actions in the climate resilience development can also provide a longer-term multi-dimensional guarantee for disaster risk reduc-tion.可持续发展Sustainable D

152、evelopment气候韧性发展Climate Resilient Development防灾减灾Disaster Risk Reduction社会韧性Social resilience制度韧性Institutional resilience经济韧性Economic resilience生态韧性Ecological resilience基础设施韧性Infrastructure resilience图 3.2 可持续发展三圈层和韧性城市五维度Fig 3.2 Three layers of sustainable development and five dimensions of resilie

153、nt cities 结合上述层级框架，在五个韧性维度中开展的工作能够在更广泛的意义上助力地方防灾减灾、气候韧性发展和可持续发展的工作（图 3.2）。编制因地制宜制定韧性城市规划。韧性城市规划涉及自然、经济、社会等各个领域，将韧性理念与综合性防灾减灾、气候变化应对、可持续发展相结合，纳入城市发展战略规划之中，针对城市面临的风险与挑战，制定综合、有效的行动计划。多目标协同的韧性发展途径。城市在制定适应战略或规划时，不仅关注极端天气气候事件及其灾害风险，还将视野拓展到与产业经济、粮食安全、居民生活、城市运行等密切相关的领域，强化韧性城市与综合防灾、气候变化适应、可持续发展等多目标的衔接与协同。参与全

154、球城市网络，积极采取行动，应对气候变化、提升城市韧性。Thus,five dimensions of resilient cities can great-ly contribute to local actions on disaster risk reduction,climate resilient development,and sustainable development(see figure 3.2).Develop resilient city plans based on local con-text.Resilience city planning involves var

155、ious fields such as nature,economy,and society.It combines the concept of resilience with comprehensive disaster risk reduction,climate change response,and sustainable development,and incorporates it into the urban devel-opment strategy plan,and formulates a comprehen-sive and effective action plan

156、addressing the citys risks and challenges.Resilience development pathway with multi-goal synergy.When formulating adaptation strategies or plans,cities not only pay attention to extreme weath-er and climate events and their disaster risks,but also expand their horizons to areas closely related to in

157、dustrial economy,food security,residents lives,and city operations,strengthen the connection and syner-gy between resilient cities and multiple goals such as comprehensive disaster prevention,climate change adaptation,and sustainable development.Cities should also join global city networks,to take p

158、roac-tive actions,to cope with climate change,and to build resilient cities.23243 How to Plan and Develop Resilient Cities3 如何规划和建设韧性城市 案例：多目标韧性发展提升社区韧性：泰国北革市（Pakkret）有着较为完善的灾前准备工作和社区参与经验，危机发生前就已经建立了防洪基础设施，并设有一个防洪援助中心和参与计划，让社区成员参与减轻灾害风险的活动，比如用沙袋建造临时路堤。较强的社区韧性使得北革市在 2011 年历史性的洪水中基本上保障了城市安全，市政当局的计划是继续

159、加强其社会资本的引入，并绘制洪水风险地图。包容性规划：埃及开罗城市地区参与式发展计划等项目的成功表明，包容性规划是可行的。大开罗地区超过 60%的人生活在非正式定居点，极易受到日益恶化的热浪的影响，参与式发展计划旨在通过屋顶园艺和绿色基础设施措施等参与性项目改善条件，将非正式住区的边缘群体和地方当局联系起来，提供培训课程、社区讲习班和咨询服务，促进城市内更广泛的社会经济变化。发展绿色经济：荷兰阿姆斯特丹市是全球首个为进一步推进循环经济模式，就当地循环经济工作的数量、类型和所需技能开展评估的城市，评估结果显示，阿姆斯特丹全市的工作岗位中有11%（14万）与循环经济相关，而循环设计、维修服务和数字

160、科技被认为是循环经济工作的主要领域。综合考量成本效益，城市应运用基于韧性和适应性的规划方法。通过系统的评估、监测和规划，可以制定节约成本和资源的解决方案。同时，解决方案是否成功取决于利益相关方是否积极参与，以避免未来的资源浪费和基础设施建设中的债务重叠。数字化的发展为城市带来了机遇和挑战。通过数据基础设施和分析工具，数字化转型有相当的潜力可协助城市提高规划效率，基于数字科技以及信息和通信技术（ICT）的解决方案，可促进城市改善基础设施，应对诸如减少废弃物、提高能源效率和防灾等挑战。在城市风险与不确定性日益常态化的后疫情时代，城市需要构建常态与应急相结合的韧性治理体系，增强城市治理体系的稳健性和

161、反思性，将韧性城市建设融入预案编制与演练、风险监测预警、应急处置、灾后恢复与重建等各项城市治理工作中（朱正威等，2021）。最重要的是，决策者和实践者应重新考虑发展城市生态韧性的潜力。为此，城市需要重新引入和评估自然和生态系统服务。基于自然的解决方案（NbS）被广泛认为是具有成本效益和轻维护的选择。作为一个总括性概念，在城市中已经有不同的做法，如基于自然的基础设施（NBI）和基于生态系统的适应（EbA）。虽然这些实施方法的目标不同，但都侧重于升级城市基础设施或气候适应方面。通过恢复、保护和维持自然所产生的生态系统服务，能够极大地促进城市的可持续性。目前，生态系统服务价值评估和融资机制的发展，为

162、这些实践在当前情况下的运用和推广提供了可能性。BOX:Multi-target resilience development caseEnhancing community resilience:Thailands Pakkret city has comprehensive pre-disaster preparation work and community participation experience.Flood control infrastructure has been established before the crisis,and there is also a floo

163、d control assistance center and participation plan to allow community members to participate in disaster risk reduction activities,such as building temporary embankments with sandbags.The strong community resilience allowed Pakkret City to basically maintain urban safety during the historic flood in

164、 2011.The municipalitys plan is to continue to strengthen introducing social capital and draw a flood risk map.Inclusive Planning:The success of projects such as the Participatory Development Program in Urban Areas in Cairo,Egypt,shows that inclusive planning is possible.More than 60%of people in th

165、e Greater Cairo area live in informal settlements and are highly vulnerable to worsening heat waves.The participato-ry development program aims to improve conditions through participatory projects such as rooftop gar-dening and green infrastructure measures,therefore connects marginalized groups in

166、informal settlement with local authorities to provide training courses,community workshops and advisory services to promote wider socio-economic change within the city.Developing a green economy:Amsterdam,the Netherlands,is the first city in the world to evaluate the number,types and skills required

167、 for local circular economy jobs to further promote the circular econo-my model.The evaluation results show that 11%of the jobs(140,000)in the whole city of Amsterdam are related to circular economy,and circular design,maintenance services and digital technology are the main areas of circular econom

168、y work.Cost-effectively,cities should take resilience-in-formed and adaptiveness-considered approach-es.Systematic assessing,monitoring,and planning could bring solutions both cost and resource effective.Meanwhile,dealing with these dilemmas depends on proactive stakeholder involvement and engagemen

169、t,to avoid future resource waste or overlapping debt during infrastructure construction.The development of digitalization has brought both opportunities and challenges to cities.Through data infrastructure and analysis tools,digital transformation has considerable potential to assist cities in impro

170、ving planning efficiency.Solutions based on digital technology and information and communi-cation technology(ICT)can promote cities to improve infrastructure and cope with challenges such as reduc-ing waste and improving energy efficiency and disas-ter preparedness.In the post-pandemic era when urba

171、n risks and uncertainties are becoming more and more normalised,cities need to build a resilient gover-nance system that combines normality and emergen-cy,enhance the robustness and reflection of the urban governance system,integrate urban resilience con-struction into various urban governance tasks

172、 such as plan preparation and drills,risk monitoring and early warning,emergency response,post-disaster recovery and reconstruction.Most importantly,decision-makers and practi-tioners should reconsider the potential of de-veloping urban ecological resilience.This action demands reintroducing and re-

173、evaluating nature and ecosystem services.Nature-based Solutions(NbS)are widely seen as cost-effective and light-maintenance options.As an umbrella concept,there are differ-ent practices applied in cities already,such as Na-ture-based Infrastructure(NBI),and Ecosystem-based Adaptation(EbA).While thes

174、e implementations target differently,they all focus on either upgrading urban infrastructure or climate adaptation.Generating eco-system services through restoration,protection,and sustaining nature,can significantly contribute to urban sustainability.Currently,the development of valuation on ecosys

175、tem services and financing mechanisms brings possibilities for applying and promoting these practices under the status quo.25263 How to Plan and Develop Resilient Cities3 如何规划和建设韧性城市 The integration of infrastructure,water cycle,and ecological system of urban master plan-ning in Ningbo Associate Pro

176、f Faith Chan(School of Geographical Sciences,University of Nottingham Ningbo China)Indeed,Ningbo suffered from cyclone(typhoon)enhanced storm surges and intensive rainfall from the West Pacific frequently during the summer season(from June to October),which led to urban surface flooding(Tang et al.,

177、2015).For example,the city was flooded heavily by waterlogging and the flood depth reached about 1 metre during Typhoon Fitow(during the middle of October 2013).More than 10,000 households were affected in the Yuyao district(Chan et al.,2021).Ningbo was ranked among the top 10 global coastal port ci

178、ties that were exposed to flood risk by the OECD(Nicholls.R et al.,2008).The municipal government is committed to improving urban flood resilience practices,the city was includ-ed in one of the 30 pilot“Sponge Cities”in 2015(Griffiths et al.,2020).The“Sponge City Program”(SCP)was proposed in 2013,wh

179、ich takes the practices of Nature-Based Solutions and relevant Blue-Green Infra-structure to tackle urban stormwater management and climate change issues.The overarching idea is that cities absorb excess stormwater from rainstorms,and restore the urban hydrological cycle by improving soil-water infi

180、ltration,which enhances the reuse of absorbed water via urban lakes,wetlands,ponds and streams(Li et al.,2019).The Sponge City practice is largely increasing the urban stormwater protection standard up to 1-in-30 years return period,which aligns with other major Asian cities such as Singapore,Hong K

181、ong Special Administrative Region(HKSAR)and Tokyo(Chan et al.,2021).The practice co-benefits the urban ecosystem services by increasing blue-green infrastructure(BGI)(e.g.bio-swales,urban green parks,ponds,wetlands,forests,gardens,etc.)(see figure 3.3 and 3.4),which offers better amenity value,and r

182、ecreational functions,cutting carbon emissions,carbon neutralisation and reducing urban heat island effects in China.The SCP aimed to achieve about 20%of the urban areas(i.e.municipal districts)of the pilot Sponge Cities should absorb,retain and reuse about 80%of the urban stormwater by the 2030s(Zh

183、eng et al.,2021).图 3.4 作为海绵城市措施的宁波慈城新城路边的生物沼泽（图源：李蕾、陈加信）Figure 3.4:Bioswale at the roadside of Cicheng New Town,Ningbo as the Sponge City measures(Source:Lei Li and Faith Chan)宁波城市总体规划中基础设施、水循环和生态系统的整合-陈加信，副教授（宁波诺丁汉大学地理科学学院）宁波在夏季（6 月至 10 月）经常遭受来自西太平洋的气旋（台风）引发的风暴潮和密集的降雨，导致城市内涝问题(Tang et al.,2015)。例如，

184、在台风“菲特“期间（2013 年 10 月中旬），该市遭受了严重的内涝，水深一度达到约 1 米，余姚地区受到影响的家庭超过 10,000 个(Chan et al.,2021)。因此，宁波被经合组织列为全球十大面临洪水风险的沿海港口城市之一(Nicholls.R et al.,2008)。宁波市市政府致力于提高城市防洪能力，2015 年该市被列入 30 个“海绵城市”试点之一(Griffiths et al.,2020)。“海绵城市”于 2013 年提出，采用“基于自然的解决方案”和相关蓝绿基础设施的实践来解决城市雨水管理和气候变化问题。总体思路是使城市吸收暴雨中多余的雨水，并通过改善土壤-水

185、渗透来恢复城市水文循环，从而通过城市湖泊、湿地、池塘和溪流的吸收增强水的再利用（Li et al.,2019）。海绵城市实践在很大程度上将城市雨水保护标准提高到 30 年一遇，这与新加坡、香港特别行政区和东京等其他亚洲主要城市的做法一致(Chan et al.,2021)。这种做法通过增加蓝绿基础设施（例如生物沼泽、城市绿色公园、池塘、湿地、森林、花园等）来共同惠及城市生态系统服务（见图 3.3 和 3.4），从而提供更好的舒适价值、休闲功能、减碳、碳中和，并同时减少中国城市热岛效应。海绵城市的目标是到 2030 年代，试点海绵城市约 20%的城区（即市辖区）吸收、保留和再利用约 80%的城市

186、雨水（Zheng et al.,2021）。图 3.3：慈城中心湖，位于宁波慈城新城的人工湿地项目（图源：李蕾、陈加信）Figure 3.3:Cicheng Central Lake,an artificial wetland project in Cicheng New Town,Ningbo(Source:Lei Li and Faith Chan)27283 How to Plan and Develop Resilient Cities3 如何规划和建设韧性城市 宁波市政建设融入了许多蓝绿基础设施的建设，如利用路边生物植草沟在暴雨期间吸收和净化城区雨水及道路冲洗材料（如悬浮物），雨水经

187、过海绵系统滞留、收集、存储之后，可为旱季（即冬季）再利用。此后，宁波市政府按照中央政府的要求，执行了多部门政府机构协作的相关指导意见，这是中国城市规划实践中的一个突破和转变，因为城市防洪和水务通常是由地方水利部门或水务局单独管理的。例如，宁波市政府对国家标准中的城市雨水排放导则进行解释，并应用于宁波（即宁波城市排水工程规划规范（2017 年 7 月）。这些标准的制定在提高排水标准、水环境和雨水收集能力，并减少洪涝风险，达到硬性指标的同时，也遵循国家海绵城市建设导则中的立法和相关的法律程序（Griffiths et al,，2020）。而宁波将”基于自然的解决方案“纳入当前海绵城市计划的另一个成

188、功案例是位于东部新城的“生态走廊”，由当地工业区的城市棕地改造（图 3.5）。该海绵城市措施与生态友好的蓝绿景观设计相结合，用于生物滞留处理城市径流污染物（例如，通过芦苇床等当地湿地植被降低城市径流和排放中的营养水平）。生态走廊项目显著改善了当地水质，从以前的五类或劣五类，现在恢复到符合娱乐用途的三类，为生境（鸟类和昆虫）和当地社区提供了有吸引力的城市绿色空间。这些成功案例清楚地表明：宁波地方政府致力于按照中央政府制定的到 2030 年及以后的目标来实现海绵城市实践。The Ningbo authority adopted various BGI measures,such as road-s

189、ide bioswales to absorb and purify the urban stormwater during rainstorms and road wash materials(e.g.suspended solids),the collected rainwater after going through the Sponge system that ultimately encourages the urban stormwater storage and prepara-tion for the reuse during the dry season(i.e.winte

190、r period).Since then,Ningbo municipal authorities followed national government to implement relevant guidelines that collaborate at multi-sectoral governmental institutions,which is a breakthrough and transforma-tion in urban planning practice in China,as because urban flood and water management are

191、 normally solely managed by the Local Minis-try of Water(or Water Bureau).For example,the Ningbo authorities translated and adopted the urban stormwater drainage guideline from the National Standard in Ningbo(i.e.,The Ningbo city centre drainage and stormwater drainage planning guidelines(July 2017)

192、.These standards are set to improve the drainage standard,water environment,and rainwater collection and reduce flood risk up to the mandatory standard.They also follow legislation in the SCP guide-lines and affiliated legal protocols(Griffiths et al.,2020).Whilst,another case in Ningbo that success

193、fully adopted the NbS into the current SCP,is the“Eco-Corridor”that locates in the New East Town by transforming the urban brownfield from the local industrial area(Figure 3.5).This SCP measure combined with the eco-friendly blue-green landscape design for bio-retention for treating urban run-off po

194、llutants(e.g.,reducing nutrients level in urban runoff and dis-charge via local wetland vegetation such as reed bed).The Eco-cor-ridor project has demonstrated the positive outcomes in improving the local water quality from previous Grade V or above,now back to Grade III that is qualified for recrea

195、tional use,and providing attractive urban green space for habitats(i.e.birds and insects)and the local communities.These successful cases have evidently illustrated that the Ningbo local authorities are committed to delivering the Sponge City practices by following the target set by nNational gGover

196、nment by the 2030s and beyond.图 3.5：宁波东部新城生态走廊人工湿地（图源：刘思彤、陈加信）Figure 3.5:Artificial wetland,Eco-corridor,Ningbo New East Town (Source:Sitong Liu and Faith Chan)29303 How to Plan and Develop Resilient Cities3 如何规划和建设韧性城市 Cies KNOW beer意识提升Stage A1.Awareness raising on Disaster Risk Reducon and resili

197、ence1.关于防灾减灾和韧性建设的意识提升Cies PLAN beer开展韧性规划Stage B2.Improving risk analysis2.增强风险分析能力3.Improving diagnosc skills for planning3.提升在规划中的分析诊断能力4.Improving strategies and plans4.优化战略和规划制定Cies IMPLEMENT beer推行和主流化韧性建设工作Stage C 5.Increasing access to finance5.拓宽融资渠道6.Ensuring resilient infrastructure6.保障韧性

198、基础设施建设7.Adopng nature-based soluons7.采用基于自然的解决方案8.Ensuring inclusion8.确保工作中的包容性9.Integrang climate risks into strategies and plans9.在战略规划中综合考虑气候风险图 3.6“韧性城市建设路径”三阶段(Making Cities Resilient 2030,2023)Fig 3.6 The Resilience Roadmap(Making Cities Resilient 2030,2023)在“创建韧性城市 2030”项目中（图 3.6），我们建议城市将在韧性城

199、市建设和防灾减灾行动划分为”意识提升-韧性规划-推行和主流化”三个阶段。第一阶段：意识提升阶段。城市正处于提高对韧性和防灾减灾能力的认识阶段，这一阶段将致力于制定和实施韧性和防灾减灾战略路径。第二阶段：韧性规划阶段。进入这一阶段的城市，其相关活动应围绕着提升风险分析能力、提高规划诊断和分析技能、改进战略和计划展开，如建立健全“城市体检”和“城市评估”制度，整合城市“韧性数据”，并充分发挥智慧城市的优势来完善对韧性元素的追踪机制，为韧性指标体系和规划工作的开展奠定基础。在这一阶段，城市应致力于探索防灾减灾和韧性建设战略的发展方向，并确保发展规划中充分考量风险因素。第三阶段：韧性推行和主流化阶段。

200、即韧性理念和行动深入于城市发展的整个过程和方方面面。城市的韧性行动更多围绕着具体领域和实施方法开展，韧性成为制度和机制设计的基本原则。例如在拓宽融资渠道的基础上形成了成熟、可持续、充足且灵活的韧性融资机制；在传统基础设施的灾害韧性建设基础上，加强城市各个子系统的韧性网络设计；采用基于自然的解决方案，将气候风险纳入战略和计划，以及确保规划的包容性等。这一阶段的工作重点是确保防灾减灾和韧性建设在所有部门得到推行和主流化，促进经验分享和交流。在中国城市已开展的相关实践中，防灾减灾规划、安全城市试点项目、海绵城市试点项目和气候适应型城市试点项目等方面的工作，已经在一定程度上为“第二阶段”所阐述的风险分

201、析和诊断搜集了详尽数据，提供了韧性建设所必须的基础性数据、政策和工作计划支撑。“灾害韧性记分卡”则可以在不同阶段和工作环节中得以运用：在“第一阶段”让相关政府部门和城市代表能在对具体工作的讨论和评估中建立对“韧性”概念的基本认识，并在“第二、三阶段”中对逐步开展的各项行动进行反馈，及时调整行动方向。基于几十年来与世界各地城市合作的经验，宜可城总结了韧性城市规划框架（图3.7）。该概括性方法基于“绿色气候城市项目”的实践经验，并在项目推行过程中得到不断完善和发展。它通过分步骤的呈现，对如何分析、评估、实施、监测、整合、提升和推广韧性规划提供了可供借鉴的范本。In the Making Citie

202、s Resilient 2030 initiative(figure 3.6),we suggest there should be three stages as a resilience roadmap for cities acting on urban resilience and disaster risk reduction namely cities know better,cities plan better,cities implement better.Cities at stage A are in the period of raising awareness on D

203、RR and resilience,which are to develop the commitment to move along a pathway to develop and implement a DRR and resilience strategy;Moving to stage B cities,activities are around improvising risk analysis,im-proving diagnostic skills for planning,and improving strategies and plans.For instance,citi

204、es can regularly conduct city scan and city assessment,integrate re-silience data,utilise smart cities for tracking resilience elements,and future development of local resilience indicators and plannings.At this stage,cities commit-ment is to move towards the development of a DRR and resilience stra

205、tegy,and ensure development plans are risk-informed.After that,activities for stage C cities are around implemental approaches like increasing access to finance,ensuring resilient infrastructure,adopting nature-based solutions,integrating climate risks into strategies and plans,as well as ensuring i

206、nclusion.The work focuses on implementing and mainstreaming DRR and resilience across all sectors to share experiences.In the relevant practices that have been carried out in Chinese cities,disaster risk reduction planning,safe city pilot projects,sponge city pilot projects,and climate-adaptive city

207、 pilot projects have collected detailed data for the risk analysis and diagnosis de-scribed in Stage B to a certain extent,providing basic data,policy and work plan support necessary for resil-ience building.The“Disaster Resilience Scorecard”can be used in different stages and work links:in Stage A,

208、relevant government departments and city repre-sentatives can establish a basic understanding of the concept of“resilience”in the discussion and evaluation of specific work,and in Stage B&C to give feedback on various actions carried out gradually and adjust the direction of action in a timely manne

209、r.Based on decades of experience working with cities across the world,ICLEI has summarised the urban resilience planning cycle methodology(figure 3.7).This outlining method has a basic and hands-on experi-ence through the Green Climate Cities Program,and has been improved.It takes several steps furt

210、her,with guiding procedures on how to analyse,assess,imple-ment,monitor,integrate,upgrade,and upscale resil-ience planning.Photo by Chongming Liu on Unsplash3132ACT分析加速行动ANALYZEACCELERATEb)Research and assessb)研究和评估a)承诺和动员a)Commit and mobilizei)报告 启发 提倡 i)Report,inspire,advocateh)Review and upscaleh

211、)回顾和升级g)Integrate and collaborateg)整合与协作d)制定整合气候行动计划d)Develop integrated climate action planc)Analyze and set baselinec)分析和设定基线f)实施和监控f)Implement and monitore)项目设计和融资e)Detail and financeprojects第三阶段：加速推广。为加速和推广城市的韧性规划行动，需要更为广泛的合作和适应性调整。作为规划框架中的第七步，整合和协作这一步骤鼓励城市同时采取横向和纵向行动，以及与全球有类似经验的城市建立联系，从而获得直接知识和

212、经验交流及分享。进而，在第八步评估和规模化这一步骤中，需要对城市已有数据和工作成果进行不断更新、回顾分析和评估；在此基础上对已有的韧性战略再次评估，并更新其中的内涵和相关工作计划。加速和推广环节的最后一步（即第九步）是报告、分享和推广。借助“创建韧性城市”项目或宜可城“韧性城市”等全球性交流协作项目平台，城市能够将自身的韧性建设历程在国际舞台上展示，并通过城市间、国家间、全球倡议和地方行动等多种形式的交流，推广自身经验。第二阶段：采取行动。该环节涵盖了战略制定、项目设计和融资以及边实施边监测这三个关键步骤。制定可行的战略，包括制定潜在风险的减缓措施，筛选潜在措施并确定其优先级，以及设定目标和关

213、键绩效指标并批准战略。之后，项目设计和融资的步骤也由三个行动组成，包括设计韧性方案和项目，测试和示范，以及选择融资模式并确保资金到位。在地方实施韧性项目过程中，需要实时监测程序，包括审查相关机制架构和能力，以及监测和报告。第一阶段：分析评估。分析城市现状和为构建韧性城市开展相关计划，包括确保地方做出初始承诺、建立相关体制架构以及确定并纳入各利益相关方。然后，进行调查与评估，了解政府和当地情况，并进行风险评估。在前两步的基础上，进入第三步基线设定，即在充分了解风险和脆弱性的情况下，研究可能受到的影响和应对方案，进行综合报告。图 3.7 韧性规划九步骤(ICLEI,n.d.)这个规划框架包括三个主

214、要的方面：分析评估、采取行动和加速推广。ACT分析加速行动ANALYZEACCELERATEb)Research and assessb)研究和评估a)承诺和动员a)Commit and mobilizei)报告 启发 提倡 i)Report,inspire,advocateh)Review and upscaleh)回顾和升级g)Integrate and collaborateg)整合与协作d)制定整合气候行动计划d)Develop integrated climate action planc)Analyze and set baselinec)分析和设定基线f)实施和监控f)Imple

215、ment and monitore)项目设计和融资e)Detail and financeprojectsAccelerating urban resilience actions requires more col-laboration and adaptation.The integrate and collaborate step encourages cities to take both horizontal and ver-tical actions,as well as builds connections with similar cities worldwide which

216、can provide direct knowledge and experience exchange and sharing.Then there comes the step of reviewing and upscaling,containing pro-cedures of refreshing data,reviewing assess-ments and analysis;evaluating urban resilience strategy;and updating re-silience strategy and action plan.The accelerated p

217、hase finalises with the reporting,inspir-ing and advocating.This step includes work like showcasing cities expe-riences in international platforms through Making Cities Resil-ient initiative and other ICLEI resilient programs.Through exchanges among cities,countries,global initiatives and local acti

218、ons,cities can further report,in-spire,and advocate on the journey forwarding to resilience.Secondly,to act on urban resilience planning,developing strategy,designing and financing projects,and implementing while monitoring,are three critical steps.Developing feasible strategies include generating p

219、otential risk mitigation actions,to screening and prioritising potential actions,as well as to set targets and KPIs and approve strategy.After that,the de-sign and finance projects steps are also made up of three ac-tions,designing resilience programs and projects,testing and demonstrating,and selec

220、ting financing models and securing funding.Once resilience projects are implemented,local monitoring procedures are needed,varying from reviewing institutional arrangements and capacity,and monitoring and reporting.Firstly,to analyse the status quo of cities and planning for urban resilience,actions

221、 include securing initial commitment,setting up an institutional structure and identifying and engaging stakeholders.Then,research and assessment are to be conducted,grasping the un-derstanding of government and local context,and un-dertaking risk assessments.Based on the previous two steps,it leads

222、 to step three of setting a baseline,to develop impact and scenarios with an adequate under-standing of vulnerabilities and risks for synthesis reporting.Fig 3.7 Nine steps of planning for resilient cities(ICLEI,n.d.)The cycle consists of three main pillars:analyse,act,and accelerate.33343 How to Pl

223、an and Develop Resilient Cities3 如何规划和建设韧性城市?Stage A?Stage B?Stage C?ACT?ANALYZEACCELERATEb)Research and assessb)?a)?a)Commit and mobilizei)?i)Report,inspire,advocateh)Review and upscaleh)?g)Integrate and collaborateg)?d)?d)Develop integrated climate action planc)Analyze and set baselinec)?f)?f)Impl

224、ement and monitore)?e)Detail and financeprojects图 3.8 韧性城市建设路径的三阶段和韧性规划九步骤Fig 3.8 The three stages of making cities resilient and nine steps of planning for resilient cities如图 3.8 所示，即使这些步骤的结构是有顺序和方向的，它也可以根据当地的情况进行进一步调整。在实践中，一些步骤的顺序可能会被交换或不断重复。例如，所进行的环境治理、生态修复、基础设施升级和减灾项目在很大程度上是提高韧性城市的关键做法。然而，由于缺乏对韧

225、性城市的系统性理解，可能无法在一开始就将其与韧性城市的战略规划联系起来。因此，关键是要进行一轮或几轮的项目回顾、报告和更新战略，并寻求政策和实践上的结合。As presented in figure 3.8,even if these steps are structured with order and direction,they can be further adjusted to meet the local context.In practice,several steps might be exchanged and replicated a few times.For insta

226、nce,undertaken environmental and ecological restoration,infrastructure upgradation,and DRR projects largely serve as critical practices for enhancing urban resilience.However,the lack of understanding of urban resilience systematically might fail to link them with strategic urban resilience plan-nin

227、g at the very beginning.Therefore,it is pivotal to conduct one or several rounds of reviewing,reporting and updating the strategy,and to seek for integration of policies and practices.4 打造中国韧性城市：从构建气候韧性城市入手 Building Resilient Cities in China:Start with Building Climate-resilient Cities37384 Building

228、 Resilient Cities in China:Start with Building Climate-resilient Cities4 打造中国韧性城市：从构建气候韧性城市入手中国的城市已经广泛建立了城市防灾减灾系统。虽然“韧性“这一概念在中国目前的治理体系和城市规划系统中仍需要进一步明确识别或定义，但韧性工作已经开展，如根据工作经验，对应急管理和响应方法进行适应性的调整，逐步升级的建模和监测支撑系统。许多城市早已开展了相关工作，并采取了与韧性理念相一致的方式方法，例如宁波的海绵城市、成都的公园城市，北京基于风险模拟和监测等技术支持的多部门应急指挥体系等。然而，这些“韧性元素”都散落

229、在各个部门的相关工作中，缺乏从系统概念出发，整合、全面地去构建韧性城市。因此，提高认识和深入分析韧性，对于接下来建立韧性城市并将“韧性城市”工作主流化非常重要，尤其是在政策制定和实施过程中。全面提升韧性城市与积极的气候行动相辅相成。中国处于打造韧性、宜居、绿色、可持续城市的进程中。自 2017 年起由国家发展和改革委员会以及住房和城乡建设部开展的气候适应型城市试点工作方案中，便明确提出了试点城市应当开展城市气候变化影响和脆弱性评估、出台城市适应气候变化行动方案、组织开展适应气候变化行动、和加强适应气候变化能力建设四个领域的工作。这一工作思路同韧性城市建设路径三阶段、韧性规划九步骤的地方行动框架

230、相呼应，强调地方政府通过多方参与的行动，整合地方资源并探索有效的路径，设计因地制宜的气候适应型发展战略。2022 年 6 月，生态环境部等 17 部委联合发布国家适应气候变化战略 2035，针对城市和人居环境这一重点领域，提出强化城市气候风险评估、调整优化城市功能布局、保障城市基础设施安全运行、完善城市生态系统服务功能、加强城市洪涝防御能力建设与供水保障、和提升城市气候风险应对能力(生态环境部等,2022)。2023 年启动的深化气候适应型城市建设试点工作，更多试点城市的参与将带来更多典型案例和创新实践，打通从“城市防灾减灾工作”到“城市气候韧性发展”的路线图。结合十四五期间的地方试点需求，在

231、韧性社区、韧性城区试点、韧性城市人居环境设计、韧性评估打分及指标设计等方面开展的针对性探索。中国的试点经验也将有助于推进发展中国家韧性城市建设，帮助中国政府在国际气候变化南南合作中发挥积极作用。从国内外城市进展来看，制定前瞻性、系统性的韧性城市规划是实现可持续城市的有效途径。提升城市应对气候风险的韧性规划举措包括：改善基础设施和生态系统，减小气候变化影响的脆弱性，避免连锁风险（级联影响）和系统失灵；增强社会主体的适应能力，提供支持性的城市系统服务；评估制度因素，减少容易诱发系统脆弱性的政策行动，增强决策参与和包容性等。For cities in China,the system of DRR

232、is well estab-lished.While resilience remains unidentified or defined through the system,resilience-informed approaches are undertaken,such as adaptive emer-gency control and response approaches adjusted through working experience and gradually upgraded modelling and monitoring support.Many cities h

233、ave already carried out relevant work and adopted meth-ods consistent with the concept of resilience,such as the sponge city in Ningbo,the park city in Chengdu,and Beijings multi-department emergency command system based on technical support such as risk simu-lation and monitoring,etc.However,resili

234、ence elements are very fragrant and exist in works of several departments.A lack of sys-tematic understanding of resilience is obvious,as well as methods to build resilient cities interactively and comprehensively.Thus,awareness-raising,and deep-dive resilience analysis are very important for up-com

235、ing works on building and mainstreaming urban resilience during policymaking and implementation.Comprehensively improving urban resilience and aggressive climate action go hand in hand.China is in the process of building resilient,liveable,green and sustainable cities.In the pilot work plan for cli-

236、mate-adaptive cities carried out by the National Devel-opment and Reform Commission and the Ministry of Housing and Urban-Rural Development since 2017,it is clearly proposed that the pilot cities should work in four areas,i.e.carry out urban climate change impact and vulnerability assessments,issue

237、urban climate change adaptation action plans,organise and carry out climate change adaptation actions,and strength-en climate change adaptation capacity building.This working idea echoes the local action framework in the three-stage,nine-step paradigm,emphasising that lo-cal governments integrate lo

238、cal resources and explore effective paths through multi-participatory actions,and design climate-adaptive development strategies tailored to local conditions.In June 2022,17 ministries and commissions,includ-ing the Ministry of Ecology and Environment,jointly released the“National Climate Change Ada

239、ptation Strategy 2035”,aiming at the key areas of cities and human settlements,and proposed to strengthen ur-ban climate risk assessment,adjust and optimise the layout of urban functions,ensure the safe operation of urban infrastructure,improve urban ecosystem service functions,strengthen urban floo

240、d defence capabilities and water supply guarantees,and enhance urban climate risk response capabilities(Ministry of Ecolo-gy and Environment of the P.R.China et al.,2022).In 2023,the Systematic and Integrated Climate-adaptive Pilot Programme starts.The participation of more pilot cities will bring m

241、ore typical cases and innovative prac-tices,and open the roadmap from“urban disaster risk reduction”to“urban climate resilience development”.In combination with the needs of local pilot projects during the 14th Five-Year Plan period,specific and targeted explorations can be carried out in terms of r

242、esilient communities,resilient urban pilot projects,resilient urban living environment design,resilience assessment scoring and indicator design,etc.Chinas pilot experience will also help promote the construc-tion of resilient cities in developing countries,and help the Chinese government play an ac

243、tive role in interna-tional South-South cooperation on climate change.From the progress of cities at home and abroad,for-mulating forward-looking and systematic resilient ur-ban planning is an effective way to achieve sustainable cities.Measures to improve urban resilience planning in response to cl

244、imate risks include:improving infrastructure and ecosystems,re-ducing vulnerability to climate change impacts,and avoiding cascading risks and system fail-ures enhancing the adaptive capacity of social sub-jects and providing supportive urban system services assessing institutional factors,reducing

245、policy actions that easily induce system vulnerabili-ties,and enhancing decision-making participa-tion and inclusiveness.39404 Building Resilient Cities in China:Start with Building Climate-resilient Cities4 打造中国韧性城市：从构建气候韧性城市入手(1)加强低碳韧性城市的协同规划中国政府提出的 2060 碳中和目标，将带动新一轮气候政策和投资行动。对此需要坚持“减缓与适应并重”，加强适应与

246、减排行动的协同管理，积极发挥协同效应。此外，中国有近百个城市开展了低碳城市试点，十四五规划将推动韧性城市建设的热点。韧性城市试点需要与其它相关城市试点相结合，才能实现可持续发展，尤其是气候适应目标与防灾减灾、节能减排、生态建设、减贫、城乡环境治理等生态文明建设、绿色发展目标的协同建设。(2)加强气候风险评估和气候地图设计中国城市建设中注重的“安全宜居韧性”目标为应对气候变化背景下的新增灾害风险提出了更高的要求。未来防灾减灾规划首先应加强中长期气候变化风险评估，针对人口和社会经济发展情景，开发适用于特定地区的风险评估模型，加强多灾种和灾害链综合监测、风险早期识别和预报预警能力。其次，将气候风险地

247、图和气候资源承载力纳入国土空间规划，指导城市人口和产业布局。(3)借鉴国际城市多主体参与的风险治理机制中国城市发展的“安全宜居韧性”目标提高了应对气候变化背景下新增灾害风险的门槛。国际城市中的多部门协同风险治理、社区参与韧性建设、公众科普与行动等，能够为中国城市提供参考案例。适时培育市场资源和社会力量，推动风险防范的常态化和全民参与。此外，中国城市还应积极“走出去、请进来”，通过参与国际社会的各种韧性城市网络，开展城市试点，加强经验分享，总结中国城市的适应模式，向发展中国家分享发展型适应、转型适应的经验和做法。(4)构建政府财政资金和市场相结合的多元融资机制未来中国的韧性城市试点必然需要大量资

248、金投入，一方面可以鼓励地方城市积极探索适应创新机制，整合相关部门专项资金，通过政府绿色采购、政府和社会资本合作（PPP）等模式推动城市气象服务。另一方面，积极拓展融资渠道，吸引国际资金和社会资金投入。例如引入绿色金融、天气指数保险、巨灾保险、债券市场保险等风险分担机制及市场融资机制。(1)Strengthening collaborative planning for low-carbon resilient cities The Chinese governments 2060 carbon neutrality tar-get will drive a new round of clima

249、te policy and invest-ment actions.In this regard,it is necessary to adhere to the principle of“mitigation and adaptation at the same time”,strengthen the synergistic management of adaptation and emission reduction actions,and ac-tively exploit synergistic effects.In addition,nearly 100 cities in Chi

250、na have launched pilot low-carbon cities,and the 14th Five-Year Plan will promote the construc-tion of resilient cities as a hotspot.Resilient city pilots need to be integrated with other related city pilots to achieve sustainable development,especially the syner-gy of climate adaptation goals with

251、disaster risk re-duction,energy conservation and emission reduction,ecological construction,poverty alleviation,urban and rural environmental governance and other ecological civilisation construction and green development goals.(2)Strengthen climate risk assessment and cli-mate map designThe goal of

252、“safety,liveability and resilience”empha-sised in Chinas urban construction puts forward high-er requirements for coping with the new disaster risks under the background of climate change.Future di-saster risk reduction planning should first strengthen mid-and long-term climate change risk assessmen

253、t,develop risk assessment models suitable for specific regions in light of population and socioeconomic de-velopment scenarios,and strengthen comprehensive monitoring of multiple hazards and disaster chains,early risk identification,and forecasting and early warning capabilities.Second,incorporate c

254、limate risk maps and climate resource carrying capacity into na-tional land spatial planning to guide urban population and industrial layout.(3)Drawing on risk management mechanisms involving multiple actors in international cit-ies The goal of“safe and liveable resilience”in Chinas urban developmen

255、t has raised the bar for coping with new disaster risks in the context of climate change.The multi-sectoral risk management,community par-ticipation in resilience building,public awareness and action in international cities can provide case studies for Chinese cities.For this,market resources and so

256、cial forces should be cultivated in a timely manner to promote the normalisation of risk reduction and the participation of the whole people.In addition,Chinese cities should also actively“go out and invite in”by participating in various resilient city networks of the international community,to carr

257、y out urban pilot projects,strengthen experience sharing,summarise the adaptation models of Chinese cities,and share the experience and practices of developmental adaptation and transformation adaptation with developing coun-tries.(4)Developing a multi-faceted financing mecha-nism combining governme

258、nt financial funds and the marketIn the future,Chinas resilient city pilots will inevitably require a large amount of capital investment.On the one hand,local cities can be encouraged to actively ex-plore innovative mechanisms for adaptation,integrate special funds from relevant departments,and prom

259、ote urban weather services through government green procurement and Public-Private Partnership models(PPP).On the other hand,actively expand financing channels to attract international and social funding.Examples include the introduction of risk-sharing mechanisms such as green finance,weather index

260、 insurance,catastrophe insurance,bond market insur-ance and other market financing mechanisms.41424 Building Resilient Cities in China:Start with Building Climate-resilient Cities4 打造中国韧性城市：从构建气候韧性城市入手(5)注重韧性社会建设在气候变化背景下协同实现以人为本的可持续发展目标。中国具有独特的救灾文化和制度经验，例如通过中西部省份结对救灾、扶贫、发展的制度设计，取得了良好的效果。后疫情时代加强社会韧性建

261、设尤为必要。可借鉴国际经验，积极探索新型的适应性社会保障政策，例如发挥公共气象的作用，提升公众参与意识及预警信息获取能力，将灾害预防与救助纳入失业、医疗、养老等社会保障与保险机制，打造社会风险的安全网。北京、上海、广州、深圳等城市已将韧性作为目标愿景纳入城市总体规划，十四五期间应全面推进韧性城区、韧性社区建设，加强生态文明理念下的灾害科普教育，促进国家适应气候变化战略 2035中“气候适应型社会”目标的实现。(5)Emphasising building social resilienceTo help achieve people-centred sustainable develop-me

262、nt goals in the context of climate change.China has a unique culture and institutional experience in disaster relief,for example,through the twinning of central and western provinces for disaster relief,poverty alleviation and development,which has yield-ed good results.Strengthening social resilien

263、ce in the post-pandemic era is particularly necessary.Drawing on international experience,new types of adaptive so-cial security policies can be actively explored,such as leveraging the role of public meteorology,enhancing public awareness and access to early warning infor-mation,and integrating dis

264、aster risk reduction and relief into social security and insurance mechanisms such as unemployment,medical care and pensions to create a safety net for social risks.Beijing,Shanghai,Guangzhou,Shenzhen and other cities have included resilience as a goal and vision into their master urban planning.Dur

265、ing the 14th Five-Year Plan period,we should comprehensively promote the construction of resilient urban areas and resilient communities,strengthen disaster science education under the concept of ecological civilization,and promote the“climate-adaptive society”goal of the“National Climate Change Ada

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