- 规划与建设
- 文章编号：1009-6000(2025)07-0084-09
- 中图分类号：TU984 文献标识码：A
- Doi：10.3969/j.issn.1009-6000.2025.07.013
- 项目基金：国家重点研发计划课题“资源约束下城市（群）系统韧性功能协同恢复和提升技术”（2023Y FC3805204）；日本学术振兴会项目“中国における災害時パニックならびに災害時クレーズの発生要因についての研究（中国灾害情境下恐慌行为及其危害机制相关研究）”（18K03022）资助。
- 作者简介：夏静安，南京大学建筑与城市规划学院，博士研究生；
葛懿夫，南京大学建筑与城市规划学院，博士研究生；
翟国方，通信作者，南京大学建筑与城市规划学院，南京大学城市安全发展研究中心主任，教授，博士生导师。
- 安全韧性导向下中国城市更新政策的演进脉络与地方特征
- Changes of Urban Regeneration Policy of China from the Perspective of Safety Resilience: Stage Characteristics and Trends
- 夏静安 葛懿夫 翟国方
- XIA Jingan GE Yifu ZHAI Guofang
- 摘要：
面对气候变化与城市系统复杂性叠加的治理挑战，安全韧性建设已成为城市更新的核心命题。文章基于韧性治理理论，构建包含政策层级、治理要素、风险类型、实施过程和参与主体的五维分析框架，系统解构 1982—2024 年间 38 份国家层面城市更新政策文本，揭示安全韧性导向的政策演进三阶段特征：（1）危旧房屋消险阶段（2007年之前）聚焦建筑结构安全的工程性防御；（2）社区安全提升阶段（2007—2018 年）转向基础设施与应急管理协同；（3）韧性体系建设阶段（2019年至今）形成“风险评估—动态响应—制度保障”的治理闭环。通过上海、南京 19 份地方政策的对比研究发现，当前政策存在应急响应机制薄弱、风险类型覆盖局限、多元主体协同不足等结构性矛盾。为此提出韧性嵌入城市更新的四重路径：构建“平急两用”的应急空间体系，完善多灾种耦合的城市体检评估工具，强化更新规划与国土空间防灾体系的嵌套衔接，建立“政府—市场—社区”联动的动态治理机制。研究为新时代城市更新政策的范式转型提供理论框架与实践参照。 - 关键词：
安全韧性；城市更新；政策演进；治理机制 - Abstract: Confronted with governance challenges posed by climate change and increasing urban system complexity, safety resilience has emerged as a core agenda in urban regeneration. This study develops a five-dimensional analytical framework encompassing policy hierarchy, governance elements, risk typology, implementation processes, and stakeholder participation, grounded in resilience governance theory. Through systematic analysis of 38 national-level urban regeneration policies from 1982 to 2024, three evolutionary phases are identified: (1) Hazard Mitigation Phase (pre-2007) emphasizing structural safety engineering; (2) Community Safety Enhancement Phase (2007-2018) transitioning to infrastructure-emergency management synergy; (3) Resilience System Building Phase (post-2019) forming a“risk assessment-dynamic response-institutional guarantee”governance loop. Comparative analysis of 19 local policies in Shanghai and Nanjing reveals structural contradictions including inadequate emergency response mechanisms, limited risk-type coverage, and insufficient multi-stakeholder coordination. Four optimization pathways are proposed: establishing dual-purpose emergency spatial systems, developing multi-hazard integrated urban diagnostic tools, enhancing nested articulation with territorial disaster prevention planning, and creating dynamic governance mechanisms through government-market-community collaboration. This research provides theoretical and practical references for paradigm shifts in urban regeneration policymaking.
- Key words: safety resilience; urban regeneration; policy evolution; governance mechanism