中國韌性城市發(fā)展報告決策者摘要

ChinaResilientCitiesReportSummaryforPolicymakersCLECLE宜可城地方可持續(xù)發(fā)展協(xié)會該摘要內(nèi)容基于宜可城東亞秘書處2023年發(fā)布的《中國韌性城市發(fā)展報告》（以下簡稱“報告”）編寫而成合國際韌性城市建設(shè)和發(fā)展現(xiàn)狀以及宜可城全球經(jīng)驗(yàn)，對中國城市所推進(jìn)的相關(guān)項(xiàng)目和經(jīng)驗(yàn)進(jìn)行重點(diǎn)從“氣候韌性”角度出發(fā)，探討在中國的語境韌性城市。2019-2021年間，宜可城東亞秘書處和聯(lián)合國減災(zāi)署及其他關(guān)鍵全球合作伙伴一起，與四個中國項(xiàng)目城市開展了“讓城市更具韌性2020”倡議（自2021年起為“創(chuàng)建韌性城市2030”項(xiàng)目）框架下的城市災(zāi)害韌性系列培訓(xùn)。培訓(xùn)針對項(xiàng)目城市防災(zāi)減災(zāi)工作，圍繞氣候變化、氣應(yīng)、氣候投融資和基于自然的解決方案等核心議題市提供了全面立體的“韌性城市”概念解讀和全享學(xué)習(xí)?；凇盀?zāi)害韌性計(jì)分卡”工具，我們和項(xiàng)對城市韌性相關(guān)的工作進(jìn)行了全面梳理回顧，提議。該《中國韌性城市發(fā)展報告》為宜可城在“創(chuàng)由宜可城-地方可持續(xù)發(fā)展協(xié)會東亞秘書處和中國社會科學(xué)院可持續(xù)發(fā)展研究中心聯(lián)合撰寫。核心團(tuán)隊(duì)和主要作會科學(xué)院可持續(xù)發(fā)展研究中心）、袁媛（中國社會續(xù)發(fā)展研究中心）和劉敏智（宜可城-地方可持續(xù)發(fā)展協(xié)會東亞秘書處）。陳加信（寧波諾丁漢大學(xué)地理學(xué)院）亦《中國韌性城市發(fā)展報告》得到多方專家和審閱，為修訂提供了諸多寶貴建議。在此感謝以下對本次報告的修訂和發(fā)布的大力支持（按姓氏）：合國減災(zāi)署）、許吟隆（中國農(nóng)業(yè)科學(xué)院農(nóng)業(yè)環(huán)境學(xué)城市安全發(fā)展研究中心）、趙丹（北京市城市規(guī)免責(zé)聲明DisclaimerThispublicationwasoriginallyproducedaspartoftheUN-DRR-fundedproject“EngagingfourcitiesinChinatowardsachievingtargetEoftheSendaiFramework”(2019-2021).ThedesignationsemployedandthepresentationofthematerialinthispublicationdonotimplytheexpressionofanyopinionwhatsoeveronthepartoftheSecretariatoftheUnitedNationsconcerningthelegalstatusofanycountry,territory,cityorarea,orofitsauthorities,orconcerningthedelimitationofitsfrontiersorboundaries.Viewsexpressedinthispublicationarethoseoftheauthorsanddonotnec-essarilyreflectthoseoftheUnitedNationsoritsMemberCitation引用目錄（APA7）ICLEIEastAsiaSecretariat宜可城-地方可持續(xù)發(fā)展協(xié)會東亞秘書處.(2023).ChinaResilientCitiesReport:SummaryforPolicymakers中國韌性城市發(fā)展報告：決策者摘要(ChinaBackgroundnaResilientCitiesReport(2023).Thisreportintegratesthein-troductiontointernationalandICLEIexperienceofbuildingresilientcities,analysisofpracticesconductedinChinesecities,andexplorationonhowtobuildresilientcitiesinChi-nawithafocuson‘climateresilience’.Inpartnershipwithandotherdistinguishedactors,duringyear2019to2021,ICLEIEastAsiaSecretariatcloselycitiesinChina,toimplementaseriesoftrainingworkshopspromotingthe‘MakingCitiesResilient2020’Campaign(followedbythe‘MakingCitiesResilient2030’inisince2021).TrainingworkshopsrootinthepracticalworkinChinaaroundurbandisasterriskreductionandemer-gencymanagement,coveringtopicslikeclimatechange,climatemitigationandadaptation,climateinvestmentandfinancing,andNature-basedSolutions.Forwhich,wehopetoprovideasystematicpresentationofwhatresilientcitiesare,andtoshowcasebestpracticesacrosstheworld.Viaapplyingthetool‘DisasterResilienceScorecard’,ratedwithcitiestounderstandandreflectontheirexistingresilientcitiespractices,tonavigatenextsteps.ResilientCitiesReport(2023)isacontributionofICLEItoWorkingGrouptentoftheChinaResilientCitiesReport.ThereportisjointlypreparedbyICLEI-LocalGovernmentsforSustainabilforSustainableDevelopmentofChineseAcademyofSocialUniversityofNottinghamNingbo)contributedtothewrit-Wewouldliketoexpressourgreatestgratitudetoreview-ersfortakingtimeandeffortnecessarytoreviewtheChinaResilientCitiesReport(2023),whichprovidesmanycommentsandsuggestions.Herewewouldliketothankthefollowingexpertsandscholars’support(inalphabeticalorder):Reduction),SunisaSoodrak(UnitedNatsasterRiskReduction),YinlongXu(InstituteofEnandSustainableDevelopmentinAgriculture,ChinaAcade-InstituteofClimateChangeandSustainableDevelopment),nologicalUniversity,Singapore),GuofangZhai(CentreforandDanZhao(BeijingMunicipalInstituteofCityplanning目錄/ContentsForewordii1.為什么要建設(shè)韌性城市WhyBuildingResilientCities22.如何理解韌性城市HowtoUnderstandResilientCities83.如何規(guī)劃和建設(shè)韌性城市19HowtoPlanandDevelopResilientCities204.打造中國韌性城市：從構(gòu)建氣候韌性城市入手35BuildingResilientCitiesinChina:StartwithBuildingClimate-resilientCities36參考文獻(xiàn)和資料43Reference43SanjayaBhatia過去30年來，90%的災(zāi)害都與氣候變化和極端天氣事件SanjayaBhatia我們都認(rèn)識到，人類決策是造成災(zāi)害風(fēng)險的最大因素。最近發(fā)布的《2015-2030年仙臺減少災(zāi)害風(fēng)險框架實(shí)施情況中期審查報告》顯示我們?nèi)〉昧酥卮筮M(jìn)展，但這份報告仍然指出了需要我們深思的地方。為了預(yù)防和減輕與災(zāi)《2022年全球評估報告》強(qiáng)調(diào)：當(dāng)國家政府和地方政府為了預(yù)防災(zāi)害而做出決定性轉(zhuǎn)變時，就能獲得巨大的“韌性紅利”。通過將氣候和災(zāi)害風(fēng)險預(yù)測納入關(guān)鍵基礎(chǔ)設(shè)施規(guī)劃，能夠變現(xiàn)紅利。通過修改預(yù)算規(guī)劃以應(yīng)對風(fēng)險和不確定性，能夠累積紅利。通過重新配置法律和金融體系，旨在對降低風(fēng)險進(jìn)行激勵，能夠成就紅利。上述所有措施可以結(jié)合起來，以預(yù)防未來氣候和災(zāi)害風(fēng)險升級所造成的重大損失。為了幫助地方政府將韌性紅利變現(xiàn)，聯(lián)合國減災(zāi)署與宜可城-地方可持續(xù)發(fā)展協(xié)會等合作伙伴攜手發(fā)起了“創(chuàng)建以及它們?nèi)绾纬浞职l(fā)揮韌性紅利的作用。我借此機(jī)會向宜可城-地方可持續(xù)發(fā)展協(xié)會及本報告的作者以及iForewordⅠOverthepast30years,90%ofalldisastershavebeenrelatedtoclimatechangeandextremeweatherevents.Climatechangeisthegreatestriskdriverforsomanycitiesacrosstheworld.Itamplifiesdisasterlosses,bothintermsofhumanlivesandlivelihoodsaswellastheoveralleconomy.Unfortunately,mostoftheselossesarein-creasinglyconcentratedinurbanareas.Weallrealisethathumandecisionsarethelargestcontributorstodisasterrisk.Despitesignificantprogress,therecentReportoftheMidtermReviewoftheImplementationoftheSendaiFrameworkforDisasterRiskReduction2015-2030makesforsoberreading.Itcallsforamajor‘coursecorrection’thatwillbedeeplychallenginginordertopreventandreducethenegativeimpactsandlossesassociatedwithdisasters.Storiesfromcitiesdemonstratethatsuchacoursecorrectionispossible.ForewordTheGlobalAssessmentReportof2022highlightsasignificant‘resiliencedividend’forthoselocalandnationalgov-ernmentsthatmakeadecisiveshifttowardsdisasterprevention.Thisdividendcanberealisedthroughincorpo-Forewordratingprojectedclimateanddisasterrisksintocriticalinfrastructureplanning.Itcanbeaccruedthroughrevisingbudgetplanningsothatitconsidersriskanduncertainty.Itcanbeachievedthroughareconfigurationoflegalandfinancialsystemstoincentivizeriskreduction.Allthesemeasurescancombinetopreventsignificantfuturelossesassociatedwithescalatingclimateanddisasterrisk.HelpinglocalgovernmentstorealisethisresiliencedividendiswhyUNDRR–alongwithourpartnersincludingICLEI–launchedtheMakingCitiesResilient2030globalinitiatMCR2030aimstoLeaveNoMunicipalityBehindintheirambitiontostrengthenclimateanddisasterresilience.Inthiscontext,theChinaResilientCitiesReportisafreshlookatproactivestepsthatsomecitiesaretakingtoreducedisasterandclimaterisksandathowtheyareutilisingthefullpoweroftheresiliencedividend.ItakethisopportunitytocongratulateICLEIandtheauthorsofthisreport,andthecitieswhosecasesarereflected,forcontributingtotheknowledgeavailableonthisimportanttopic.WelldonetoICLEI.Iwishthispublicationaverysuccessfuldisseminationsothatothercitiesaroundtheworldcanlearn,benefitandbeinspired.SanjayaBhatia,HeadoftheUNDRROfficeinIncheonforNortheastAsiaandGlobalEducationandTrain-ingInstitute(ONEA-GETI)如今，全球約56%的人口居住在城市，城市化是驅(qū)動經(jīng)濟(jì)轉(zhuǎn)型和發(fā)展的關(guān)鍵力量。但是，城市消耗著全球四分之三以上變化的主要因素。同時，城市作為復(fù)雜的系統(tǒng)，由于其人口密度高、規(guī)模大，極易受到氣候等災(zāi)害的侵?jǐn)_和沖擊，付出沉重是城市可持續(xù)發(fā)展的核心要務(wù)之一。如何規(guī)劃、建設(shè)和管理城市，決定著未來的發(fā)展過程中，城市應(yīng)對災(zāi)害風(fēng)險能力的高低和可能付出的代價。可以說，如果城市不具備韌性，就沒有繁榮宜居可言，也無法實(shí)現(xiàn)《中共中央關(guān)于制定國民經(jīng)濟(jì)和社會發(fā)展第十四個五年規(guī)劃和二〇三五年遠(yuǎn)景目標(biāo)的建議》中首次提出要“建設(shè)韌性城市”，黨的二十大報告進(jìn)一步要求“打造宜居、韌性、智慧城市”。2022年發(fā)布的《國家適應(yīng)氣候變化戰(zhàn)略2035》和《“十四五”國家綜搭建合作交流平臺，促進(jìn)知識傳播與分享，推動城市開展韌性行動，建設(shè)更加繁榮、包容和可持續(xù)的城市和社區(qū)。2018年至今，多個中國城市在宜可城和聯(lián)合國減災(zāi)署合作組織的培訓(xùn)活動中獲益，學(xué)習(xí)了國際韌性城市建設(shè)的經(jīng)驗(yàn)、案例和工具，提高了對災(zāi)害風(fēng)險、城市韌性等概念的認(rèn)知，促進(jìn)了跨部門和不同利益為更多城市提供參考，以助力中國城市韌性行動的深入開展?！皠?chuàng)建韌性城市2030”項(xiàng)目已在中國啟動，宜可城和聯(lián)合國減災(zāi)署將選擇一批中國試點(diǎn)城市，繼續(xù)提供能力建設(shè)、交流合作等方面的支持，開發(fā)規(guī)劃和評估工具，探索符合中國城市需求的韌性解決方案和戰(zhàn)略。我們期待著更多地方政府的積極參與，開啟ForewordⅡToday,about56%oftheworld’spopulationlivesincities,andurbanizationhasbecomeakeydrivingforceforeco-nomictransformationanddevelopment.However,citiesconsumemorethanthree-quartersoftheworld’senergyandemitmorethan70%ofgreenhousegases,becomingthemaincauseofhumaninducedclimatechange.Atthesametime,asacomplexsystem,citiesareextremelyvulnerabletotheintrusionandimpactofclimateandotherdisastersduetotheirhighpopulationdensityandlargescale,resultinginheavyeconomic,social,environmentalandhealthcosts.Therefore,improvingurbandisasterriskreductionandclimateadaptationcapability,andbuildingresilientcitiesareoneofthecoreprioritiesforsustainableurbandevelopment.Howtoplan,buildandmanageacitydeterminesthecity’sabilitytocopewithdisasterrisksandthepossiblepriceitwillpayinthefuturedevelopmentprocess.Itcanbesaidthatifcitiesarenotresilient,theywillnotbeprosperousandliveable,andtheywillnotbeabletoachievethegoalsofsustainabledevelopment.ForewordThe“RecommendationsoftheCentralCommitteeoftheCommunistPartyofChinaonFormulatingthe14thFive-YearPlanforNationalEconomicandSocialDevelopmentandtheLong-termGoalsfor2035”proposedforthefirsttimeinChinatheneedto“buildresilientcities.”Thereportofthe20thNationalCongressoftheCommunistPartyofChinafurthercalledfor“buildingliveable,resilient,smartcities”.The“NationalStrategyforAdaptingtoClimatein2022alsoemphasizedtheimportanceofresiliencebuilding.Atpresent,manyChinesecitieshavedevelopedForewordstrategiesforbuildingresilientcities,incorporatingresiliencegoalsintotheirkeyplans,activelycarryingoutrele-vantresilienceactions,andimprovingdisasterriskmanagementtoanewlevel.Inordertosupportcitiesindisasterriskreductionandresiliencebuilding,theUNDRRinclosecooperationwithICLEIandotherpartners,launchedthe“MakingCitiesResilient2020”and“MakingCitiesResilient2030”tosupportparticipatinglocalgovernmentsintermsofcapacitybuilding,exchangeandcooperation,knowledgedisseminationandpromotion.Theinitiativehelpscitiestotakeresilienceactions,andbuildmoreprosperous,inclusiveandsus-tainablecitiesandcommunities.Since2018,manyChinesecitieshavebenefitedfromtrainingactivitiesorganizedbyICLEIandUNDRR.Theyhavelearnedtheexperience,casesandtoolsofinternatiounderstandingofconceptssuchasdisasterrisksandurbanresilience,tofurthercoordinateacrossdepartmentsandwithdifferentstakeholders,andtolaythefoundationforfurtherdeepeningresilienceactions.Againstthebackgroundoftheaboveprojects,thisreportattemptstooutlinetherelevantpoliciesandpracticesofChina’sresilientcityconstructionandprovidereferencesformorecitiesbyanalysingthecasesoftheprojectcities,soastofacilitatethein-depthdevelopmentofChina’surbanresilienceactions.The“MakingCitiesResilient2030”initiativehasbeenlaunchedinChina.ICLEIandUNDRRwillselectagroupofChinuedtechnicalandcapacitysupport,andhelpthemexploreresiliencesolutionsandstrategiesthatfittheneedsofChinesecities.Welookforwardtotheactiveparticipationofmorelocalgovernmentsintheinitiative,startinglocalresilienceactions,preparingforrainydays,andjointlybuildingresilientandliveablecities.ShuZhu,RegionalDirector,ICLEIEastAsiaSecretariatandChiefRepresentativetoChinaWhyBuildingResilientCities作為復(fù)雜的人居環(huán)境系統(tǒng)，城市是應(yīng)對各種全球性風(fēng)險和挑戰(zhàn)的重要行政和地理單元，在應(yīng)對系統(tǒng)性風(fēng)險（SystemicRisk）、提升系統(tǒng)韌性（GenericResil-ience）方面發(fā)揮著越來越重要的作用。政府間氣候變化專門委員會（IPCC）第六次評估報告指出城市既是影響和風(fēng)險的熱點(diǎn)，也是解決方案的關(guān)鍵部分，一方面，日益增長的城市化和加劇的氣候變化將帶來復(fù)合風(fēng)險，另一方面，城市也可為氣候行動提供機(jī)遇、降低氣候風(fēng)險自2010年起，宜可城啟動了全球韌性城市大會（ResilientCitiesCongressseries，現(xiàn)更名為”Cities”雄心城市峰會助力與提升城市應(yīng)對全變化等不確定性風(fēng)險的韌性和能力?；仡櫴陙怼绊g性城市大會”的諸多關(guān)鍵議題，我們發(fā)現(xiàn)全球城市在提升韌性所關(guān)注的一些重點(diǎn)內(nèi)容上存在薄弱環(huán)節(jié)。例如，關(guān)鍵領(lǐng)域的氣候韌性提升、社會脆弱性群體、跨部門和多層級的城市風(fēng)險綜合治理、氣候韌性投資及氣候融資機(jī)在城市糧食/食物系統(tǒng)方面，氣候變化對城市糧食系統(tǒng)的安全構(gòu)成嚴(yán)重風(fēng)險。因而，如何構(gòu)建能夠應(yīng)對氣候變化及極端氣候事件風(fēng)險的韌性糧食系統(tǒng)成為一個重在城市水資源方面，氣候變化，尤其是熱浪、極端強(qiáng)降雨和干旱等極端事件發(fā)生的頻率和強(qiáng)度增加，將加劇當(dāng)前缺水地區(qū)的形勢，并對當(dāng)今水資源仍然豐富的地區(qū)造成壓力，洪水或干旱期間污染物濃度升高導(dǎo)致水污3染和病原體污染的風(fēng)險增加，潛在地威脅數(shù)十億人切實(shí)享有水和衛(wèi)生設(shè)施的權(quán)利(UNWater,2020)。這些問題亟需城市提升應(yīng)對洪澇和干旱災(zāi)害的韌性、加強(qiáng)水資源氣候變化將加劇城市地區(qū)現(xiàn)有的健康風(fēng)險。氣候變化對人類健康產(chǎn)生直接或間接影響，其中，直接影響體現(xiàn)在高溫?zé)崂恕O端低溫以及洪水、風(fēng)暴、火災(zāi)等極端天氣氣候事件造成的健康效應(yīng)；間接影響一方面通過昆蟲傳播媒介、病原體、空氣和水污染等自然生態(tài)系統(tǒng)為中介因素，另一方面通過人類社會系統(tǒng)為中介因素，如極端天氣頻發(fā)導(dǎo)致人們流離失所或財(cái)產(chǎn)損失而產(chǎn)生的精神疾病或心理壓力等（IPCC,2022）。這需要城市積極改善人居環(huán)境，并構(gòu)建具有較強(qiáng)韌性和氣候適應(yīng)性的衛(wèi)在城市交通系統(tǒng)方面，可靠的交通系統(tǒng)對城市社區(qū)的經(jīng)濟(jì)和福祉至關(guān)重要。隨著交通系統(tǒng)的規(guī)模和復(fù)雜性相對于可持續(xù)、低碳運(yùn)輸和氣候減緩行動，氣候適應(yīng)行動在運(yùn)輸部門中獲得的關(guān)注和投入較少。因此，地方政City,asacomplexhumansettlementportantadministrativeandgeographicunittoaddressvariousglobalrisksandchallenges.It’splayingamoreandmoreimportantroleespeciallyinaddressingSys-AssessmentReportoftheIPCCpointsoutthatcitiesarenotonlyhotspotsofimpactsandrisks,butalsoakeypartofthesolution.Ontheonehand,increasingurbanisationandclimatechangewillbringcompoundrisks,andontheotherhand,citiescanalsoprovideclimateactionopportunitiesandreduceclimateriskseries(now‘DaringCities’)focusingonthelatestprog-ressandchallengesofcityresilienceinofthe“ResilientCitiesConference”,itcanbefoundthatthereareweaklinksinsomeofthekeyissuesthatglobalcitiesfocusoninimprovingresilience.Forexample,theimprovementofclimateresilienceinkeyareas,sociallyvulnerablegroups,comprehensivecross-sectoralandmulti-levelurbanriskmanagement,climateresilienceinvestmentandclimatefinancingmechanisms,opportunitiesandchallengesbroughtbythedigitalagetourbanresilience,etc.Intermsofurbancrops/foodsystems,climatechangeposesaseriousrisktothesecurityoffoodsys-temsinurbanareas.Buildingfoodsystemresiliencethatcanresisttheriskofclimatechangeandextremeclimateeventshasbecomeanimportantissue.Intermsofurbanwaterresources,climatechange,especiallytheincreasedfrequencyandintensityofex-tremeeventssuchasheatwaves,extremerainfallanddrought,willexacerbatethesituationinareascurrent-lywater-scarceandcausewaterstressinareaswherewaterresourcesarestillabundanttoday.Elevatedconcentrationsofpollutantsduringfloodsordroughtsleadtoincreasedrisksofwatercontaminationandpathogencontamination,potentiallythreateningbillionsofpeople’shumanrightstomeaningfulenjoy-mentofwaterandsanitation(UNWater,2020).There-fore,itisurgentlyneededforcitiestoimprovetheirre-siliencetowardsfloodanddrought,tostrengthentheeffectivemanagementofwaterresourcesespeciallytransboundarywatermanagement,toimplementap-propriatewatermanagementstrategies,andtobuildstablefundingschemesandformregionalcoopera-tion.Climatechangewillexacerbateexistinghealthrisksinurbanareas.Climatechangehasdirectorindirectimpactsonhumanhealth.Amongthem,directimpactsarereflectedinthehealtheffectscausedbyextremeweatherandclimateeventssuchashightem-peratureandheatwaves,extremelowtemperatures,floods,storms,andfires;indirectimpactsareontheonehandmediatedthroughnaturalecosystemssuchasinsectvectors,pathogens,airandwaterpollutionWhyWhyBuildingResilientCitiessocialsystems,suchasmentalillnessorpsycholoicalstresscausedbyfrequentextremeweatherthat2022).Itisnecessarytoimprovethelivingenviron-mentandbuildahealthsystemwithstrongresilienceandclimateadaptability.Intermsofurbantransportationsystems,areli-abletransportationsystemiscrucialtotheecon-omyandwell-beingofurbancommunities.Withtheincreaseofthescaleandcomplexityofthetrans-portationsystem,sotoodotherisksofadisruptiontotheflowofgoods,servicesandpeople.Howeveparedwithsustainable,low-carbontransportationandmitigationactions,climatechangeadaptationactionshavereceivedlessattentionandfundinginthetrans-portationsector.Long-terminvestmentsinmeasuresofcomprehensiveadaptationandmitigationshouldalsobeconsidered.4在韌性城市的社會維度著重關(guān)注公平和包容性。韌性城市的社會維度更加關(guān)注城市邊緣群體和貧困人口，包括那些生活在非正式居住區(qū)和在非正式部門工作的人。由此，通過構(gòu)建社區(qū)韌性（CommunityResilience）來增強(qiáng)當(dāng)?shù)厣鐓^(qū)的能力，能夠推和多利益相關(guān)者合作機(jī)制。地方政府、捐助者、私營部門和社和全方位地考慮相關(guān)困難。如在重視環(huán)境風(fēng)險和社會影響的同時，也切實(shí)討論和解決財(cái)務(wù)可行性和風(fēng)險等操作層面的重要問題。此外，城市間需要加強(qiáng)合作，讓各個城市和網(wǎng)絡(luò)成積極探索氣候韌性投融資與城市保險創(chuàng)新。地方政府和投資者之間建立有效的溝通和合作機(jī)制，發(fā)力。在應(yīng)對風(fēng)險中，充分發(fā)揮氣候風(fēng)險保險等風(fēng)險轉(zhuǎn)移和金融以可靠的決策依據(jù)為基礎(chǔ)，堅(jiān)持證據(jù)導(dǎo)向原則，保障韌性城市規(guī)劃制定的科學(xué)性與合理性。為達(dá)成這個目標(biāo)，地方政府、學(xué)界和私營部門已逐漸加強(qiáng)合作與伙伴關(guān)系，通過將數(shù)據(jù)轉(zhuǎn)化為可運(yùn)用于決策、公眾傳播的信息，建立環(huán)境分析、預(yù)測模型和規(guī)劃系統(tǒng)，能大大提升決策效率，進(jìn)而發(fā)展出基于實(shí)證依據(jù)、可WhyBuildingResilientCitiesThus,tobuildresilientcities,therearpoints:Payattentiontothesocialdimensionofurbanre-silience,especiallyequitableandinclusivedevel-opment.Itpaysmoreattentiontothemarginalisedgroup,includingthoselivingininformalsettlementsandworkingintheinformalsector.Thus,buildingCommunityResilienceisaboutempoweringthelocalcommunitiestobeabletodevelopsolutionsbythem-selvesandforthemselveswithintheirneighbourhoodFormmulti-levelriskgovernanceandmulti-stake-holdercooperationframework.Multi-levelgover-nancemechanismsandmulti-stakeholdercoopera-tionmechanismsneedtobebuiltamongnational,regional,localgovernments,communitiesandprivateenterprises.Effectivecommunicationamonglocalgovernments,donors,theprivatesectorandcom-munitymembers,canbringmulti-dimensionalandcomprehensiveperspectivestocopewithdevelop-mentalchallenges.Forinstance,itcanhelptocopewithenvironmental-socialissues,whileaddressingfundingfeasibilityandothercoreoperationaltopics.Inaddition,citiesneedtostrengthencooperationsothatcitiesandnetworkmemberscanlearnfromeachotherandjointlyexploreinnovativewaystobuildcityExploreclimateresiliencefinancingandcityinsuranceinnovation.Itisrequiredtoestablisheffectivecommunicationandcooperationmecha-nismsbetweenlocalgovernmentsandinvestorsandexploretheinvestmentpotentialofclimateresilience.Risktransferandfinancialinstrumentssuchasclimateriskinsuranceplayanimportantroleinaddressingcatastrophes.Makeevidence-base,science-informed,rational,andreliabledecisions.Toachievethisgoal,localandregionalgovernments,academiaandtheprivatesectorhavegraduallystrengthenedcooperationandpartnership.Thiscooperationcontributestoestablishenvironmentalanalysis,forecastingmodelsandplan-ningsystemstbytransformingdataintoinformationthatcanbeusedfordecision-makingandpublicdissemination,whichcangreatlyimprovetheefficien-cyofdecision-makingandleadtothedevelopmentofevidence-based,replicablecasesandprogrammesthatcaneasilycommunicateandcommunicatetheresilienceplanningprocess.6HowtoUnderstandResilientCities基于中國行政管理和社會治理特色，結(jié)合生態(tài)文明建設(shè)、適應(yīng)氣候變化和碳達(dá)峰、碳中和戰(zhàn)略，具有韌性生態(tài)韌性：保障城市生態(tài)紅線，充分調(diào)動生態(tài)系統(tǒng)服務(wù)功能，積極在多尺度上推廣和運(yùn)用基于自然的解決方案。城市生態(tài)韌性對城市生態(tài)服務(wù)系統(tǒng)起著至關(guān)重要的作用，是韌性城市規(guī)劃、建設(shè)和管理的基本載體，與城市未來是否健康發(fā)展息息相關(guān)。城市生態(tài)系統(tǒng)服務(wù)為探索向更可持續(xù)的城市轉(zhuǎn)型的規(guī)劃、管理和治理實(shí)踐提供了關(guān)鍵紐帶，并在構(gòu)建城市系統(tǒng)韌性方面發(fā)揮重要作用，城市應(yīng)優(yōu)先保障生態(tài)系統(tǒng)服務(wù)供應(yīng)的韌性，以確保案例:地區(qū)生物多樣性協(xié)同行動項(xiàng)目（Integratedactiononbiodiver-善快速發(fā)展的城市及其周邊地區(qū)對自然的利用和管理，為全球南方不斷擴(kuò)大的城市社區(qū)提供基于自然的解決方案和長遠(yuǎn)效益。該項(xiàng)目使各級政府將生物多樣性和生態(tài)系統(tǒng)服務(wù)主流化的努力整合到地方政府的核心職能中，如空間規(guī)劃、土地利用管理、地方經(jīng)濟(jì)發(fā)展和基礎(chǔ)設(shè)施同時保護(hù)和加強(qiáng)這些服務(wù)和機(jī)會所依賴的生物多樣性和生態(tài)系統(tǒng)，使城市走上更具韌性和可持續(xù)中國作為二期項(xiàng)目試點(diǎn)，項(xiàng)目將開展一系列科學(xué)研究、對話交流及能力建設(shè)培訓(xùn)工作，包括支持地方政府開展?將生物多樣性和“基于自然的解決方9ConsideringtheadministrationandgovernancenatureofChina,andvisionsofecologicalcivilisation,climateadaptation,carbonpeakandneutrality,thefivedimensionsaresuggestedtotakeactionsforbuildingresilientcities:Ecologicalresilience:secureurbanecologicalred-lines,utiliseecosystemservices,andproactivelyapplyandpromotenature-basedsolutions.Urbanecologicalresilienceplaysavitalroleintheurbanecologicalservicesystem.Itisthebasiccarrierofplan-ning,constructionandmanagementofaresilientcity,andiscloselyrelatedtothehealthydevelopmentofthecityinthefuture.Urbanecosystemservicespro-videkeylinksforbridgingplanning,managementandgovernancepracticesseekingtransitionstomoresus-tainablecitiesandserveanimportantroleinbuildingresilienceinurbansystems.Citiesneedtoprioritisesafeguardingofaresilientsupplyofecosystemser-vicestoensurelivable,sustainablecities(McPhearsonBOX:Integratedactiononbiodiversity,INTERACT-BioINTERACT-Bio,ledbyICLEI,isdesignedtoimprovetheutilisationandmanagementofnaturewith2HowtoUnderstandResilientCitiesfast-growingcitiesandtheregionssurroundingthem.ItaimstoprovideexpandingurbancommunitiesintheGlobalSouthwithnature-basedsolutionsandassociatedlong-termbenefits.Theprojectenablesgov-ernmentsatalllevelstointegratetheireffortsformainstreamingbiodiversityandecosystemservices2HowtoUnderstandResilientCitiesdevelopmentandinfrastructuredesign.Theprojectsupportscity-regionstounderstandandunlock,withintheirspecificlocalcontext,thepotentialofnaturetoprovideessentialservicesandneworenhancedeco-nomicopportunities,whilesimultaneouslyprotectingandenhancingthebiodiversityandecosystemsonwhichtheseseriesandopportunitiesdepend.Indoingso,theseactionswillplacetheparticipatingcity-re-gionsonamoreresilientandsustainabledevelopmentpath.AsapilotforthesecondphaseoftheprojectinChina,theprojectiscarryingoutaseriesofscientificresearch,dialogueexchangesandcapacity-build-ingtraining,includingsupportforlocalgovernmentstocarryoutbiodiversityassessments,prepareandimplementurbanbiodiversitystrategiesandactionplans,andcarryouttrainingactivitiesonbiodiversityfinancialinstruments.?Cooperatewithothersubnationalandnationalgovernments,includingbiodiversityintourbanregionalplanninganddecision-making;?IncorporatebiodiversityandNature-basedSolutionsintolanduse,infrastructureanddevelopmentplanning,andformulatesupportingpolicytools;?Mainstreamcross-sectionalbiodiversityattheaspectsofcityplanning,managementandimplementa-tion;?PromoteNature-basedSolutionsaseconomic,reasonableandsustainableinvestmentoptions;?Demonstratetheeffectivenessofnature-baseddevelopmentthroughpilotprojects;?Combinenature-basedmethodswithpoint-to-pointcommunication,andimprovepeople’sawarenessofthevalueofnatureintheurbanenvironment基礎(chǔ)設(shè)施韌性：可持續(xù)出行等城市網(wǎng)絡(luò)基礎(chǔ)設(shè)施。基礎(chǔ)設(shè)施韌性是基礎(chǔ)設(shè)施在遭受自然沖擊期間和之后為用戶提供所需服務(wù)的能力。加強(qiáng)電力、水、環(huán)境衛(wèi)生、交通和通訊等基礎(chǔ)設(shè)施對系統(tǒng)的韌性至關(guān)重要，這不僅是為了避免昂貴的維修費(fèi)用，也是為了盡量減少自然災(zāi)害對人民生計(jì)和福祉的廣泛影響(theWorldBank2020)。以人為中心的城市規(guī)劃，可能使各項(xiàng)服務(wù)規(guī)模縮小且分散在市區(qū)各地。碎片化服務(wù)雖與經(jīng)濟(jì)效率理念相悖，卻是部分地區(qū)功能失靈時能夠維持城市整體系統(tǒng)運(yùn)作的一種必要的冗余性，更是韌性的一項(xiàng)核心支柱經(jīng)濟(jì)韌性：深入挖掘和發(fā)揮綠色經(jīng)濟(jì)潛力，城市新產(chǎn)業(yè)/就業(yè)，競爭力提升。具有韌性的經(jīng)濟(jì)系統(tǒng)不僅可以抵御外來沖擊對區(qū)域經(jīng)濟(jì)造成的損失，還可以在復(fù)雜多變的發(fā)展環(huán)境中及時調(diào)整經(jīng)濟(jì)運(yùn)行模式，消除外部沖擊帶來的干擾，及時實(shí)現(xiàn)產(chǎn)業(yè)轉(zhuǎn)型升級，轉(zhuǎn)向全新的經(jīng)濟(jì)增長模式。構(gòu)建經(jīng)濟(jì)韌性的一個主要路徑是促進(jìn)經(jīng)濟(jì)轉(zhuǎn)型升級，發(fā)展綠色經(jīng)濟(jì)。其中，循環(huán)經(jīng)濟(jì)是一種綠色生產(chǎn)和消費(fèi)模式，涉及共享、租賃、再利用、修復(fù)、翻新和回收，在一個（近乎）閉環(huán)系統(tǒng)中，產(chǎn)品及其所包含的材料具有很高的價值(EuropeanUnion,2016)。此2014年1月設(shè)立的西咸新區(qū)是中國19個國家級新區(qū)之一。西咸新區(qū)將海綿城市、氣候適應(yīng)型城市試點(diǎn)建設(shè)作為中國西部地區(qū)落實(shí)生態(tài)文明理念、探索新型城鎮(zhèn)化范式的突破口之一。2019年，灃西新城海綿城市試點(diǎn)建設(shè)通過國家專家組考核驗(yàn)收，并成功獲批聯(lián)合國教科文組織全球生態(tài)水文示范點(diǎn)。西咸新區(qū)通過制度創(chuàng)促進(jìn)綠色產(chǎn)業(yè)金融體系創(chuàng)新，以股權(quán)和債權(quán)兩種方式投資于新區(qū)海綿城市建設(shè)。通過與商業(yè)銀行合作，建立陜西首支綠色海綿發(fā)展基金12億元；成立城鎮(zhèn)化建設(shè)發(fā)展基金60億元，其中海綿專項(xiàng)26.42億元；與政策性性管網(wǎng)、片區(qū)海綿城市建設(shè)與可經(jīng)營污水處理設(shè)施捆綁打包，引入資金@Photo@PhotobygengzhangonUnsp22HowtoUnderstandResilientCitiesInfrastructureresilience:urbannetworkinfra-structuresuchassustainablemobility.Theresil-ienceofinfrastructureistheabilityofinfrastructuretoprovidetheserviceusersneedduringandafteranaturalshock.Strengtheninginfrastructuresuchaselectricity,water,environmentalsanitation,trans-portation,andcommunicationsmakesthesystem’sresiliencevital,notonlytoavoidcostlyrepairs,butalsotominimisethewidespreadimpactofnaturaldisas-tersonpeople’slivelihoodsandwell-being(theWorldandRecovery,2020).People-centredumaycausevariousservicestoshrinkandbescatteredthroughouttheurbanarea.Suchfragmentedservicesarecontrarytotheconceptofeconomicefficiency,butwhensomeareasfailtofunction,theyareamanifes-tationofnecessaryredundancytomaintaintheover-Economicresilience:potentialforgreenecon-omy,newindustries/employmentsincities,enhancedcompetitiveness.Aresilienteconomicsystemcannotonlywithstandthelossescausedbyexternalshockstotheregionaleconomy,butalsoadjusttheeconomicoperationmodeintimeinthecomplexandchangeabledevelopmentenvironment,eliminatetheinterferencecausedbyexternalshocks,andrealiseindustrialtransformationandupgradingintime,andturntoaneweconomicgrowthmodel.Oneofthemainwaystobuildeconomicresilienceistopromoteeconomictransformationandupgradeanddevelopagreeneconomy.Amongthem,thecirculareconomyisaproductionandconsumptionmodelinvolvingsharing,leasiandrecycling.Ina(near)closedloopsystem,productsandthematerialstheycontainhavehighvalue(Euro-peanUnion,2016).Importantly,economicresilienceisgreatlyrelyingonstronginstitutionalresilience.BOX:XixianNewAreaInnovativeFinancingMechanismArearegardstheconstructionofspongecitiesandclimate-adaptivecitiesasoneofthebreakthroughsforimplementingtheconceptofecologicalcivilizationandexploringnewurbanisationparadigmsinwesternChina.In2019,thepilotconstructionofthespongecityinFengxiNewCitypassedtheassessmentandacceptanceofthenationalexpertpanelgyDemonstrationSite.TheimprovementofurbanresiliencethroughinstitutionalinnovationinXixianNewAreaisregardedasatypicalexampleof“transformationandadaptation”andisincludedinthe“IPCCSixthAssessmentReportWorkingGroupIIReport”.XixianNewAreaisactivelypromotingtheinnovationofclimateadaptationfinancingmechanisminthepilotprogram:basedonthespecialsubsidyfundsforthepilotprogram,theleverageoffiscalfundsisamplified,theinnovationofthegreenindustryfinancialsystemispromoted,andthespongecityconstruc-tioninthenewareaisinvestedintwoways:equityanddebt.Throughcooperationwithcommercialban