2018-城市洪水风险管理中的土地利用规划（英文版）-3mb

Summary of Urban Floods Community of Practice: Land Use Planning for Urban Flood Risk Management

Core Content

This document outlines the role of land use planning in urban flood risk management, emphasizing the importance of a risk-based approach in both developed and developing countries. It highlights the increasing frequency and severity of urban flooding due to climate change, unplanned urban growth, and inadequate infrastructure. Land use planning is presented as a nonstructural measure that can effectively manage flood risks across all stages of the disaster risk management cycle, from prevention to reconstruction.

Main Viewpoints

• Urban flood risk is exacerbated by rapid, unplanned urban development, climate change, and the loss of natural drainage areas.
• Land use planning is essential for balancing economic, social, and environmental objectives while ensuring safety and resilience.
• A comprehensive approach to flood risk management includes both structural (e.g., levees, flood walls) and nonstructural (e.g., zoning, building codes) measures.
• Structural measures alone are insufficient due to their high costs, limited adaptability, and the complacency they may induce in communities.
• Nonstructural approaches, such as land use planning, offer cost-effective, flexible, and community-focused solutions.

Key Information

Principles of Land Use Planning for Flood Risk Management

1. Safe Location

   • Land use planning should guide development away from high-risk areas and into flood-safe zones.
   • It should include measures such as retreating from chronic flood zones, designating floodplains for low-occupancy uses, and planning for critical preparedness infrastructure.

2. Safe Construction

   • Promote flood-resilient infrastructure and green-gray integration to improve flood conveyance and drainage.
   • Encourage elevated structures, flood-proofing, and green building practices to reduce flood damage.

3. Safe Activities

   • Ensure that economic activities and land use are designed to maximize net benefits and protect the natural ecosystem.
   • Support multifunctional land use that includes recreational, agricultural, and ecological functions in flood-prone areas.

Land Use Measures

• Minimize development in flood-prone zones.
• Reduce water runoff through development controls and green infrastructure.
• Designate routes and open spaces for better response and recovery.
• Mitigate damages from unavoidable floods.
• Accommodate urban growth in flood-safe areas, including resettlement and reconstruction.

Spatial Plans

Spatial plans are essential for guiding land use based on flood risk assessments. They can be prepared at different administrative levels:

• National level: General directives and policies for flood risk management.
• State/Regional level: Specific goals and mandates for flood-prone areas.
• Metropolitan level: Integrated planning across multiple jurisdictions.
• Municipal level: Comprehensive layouts with detailed land use allocations.
• Local level: Community-focused projects and participatory planning.

Examples include:

• Netherlands' "Room for the River" program, which focuses on restoring floodplains and increasing discharge capacity.
• Singapore's ABC Waters program, which integrates green infrastructure and water cycle management to reduce flood-prone areas.
• Da Nang's resilience action plan, which involves regional cooperation and flood-sensitive area transformation.
• Kaduna's spatial development framework, which zones natural drainage channels as green corridors and prohibits development in floodplains.
• Kibera's participatory flood risk assessment, involving community groups and government to implement flood protection schemes.

Land Use Implementation Tools

The document outlines various tools for implementing flood risk-based land use plans, including:

• Regulatory instruments:

  • Zoning plans and ordinances
  • Development controls (land use and density)
  • Building codes (elevated structures, flood-proofing, green building)

• Financial instruments:

  • Public funds
  • Public-private partnerships
  • Flood insurance

• Economic instruments:

  • Land-based financing (density transfer, density bonuses)
  • Preferential taxation
  • Tax credits
  • Conditional insurance
  • Conditional permitting

• Behavioral instruments:

  • Awareness campaigns
  • Mandatory risk disclosure in real estate transactions
  • Early warning systems
  • Capacity building

Challenges

• Enforcement of regulations is often weak in developing countries due to limited resources, poor institutional capacity, and contentious land ownership.
• Resettlement is resisted by communities due to socioeconomic concerns.
• Informal settlements in developing countries are difficult to manage due to unclear land tenure and lack of formal infrastructure.
• Decision-makers may favor highly visible structural measures over long-term, nonstructural approaches like land use planning.
• Integration of flood risk across multiple sectors and scales requires coordination among stakeholders and strong governance.

Conclusions and Recommendations

• Land use planning is a nonstructural, cost-effective, and community-oriented tool for managing urban flood risks.
• It must be integrated into the disaster risk management cycle and supported by a participatory framework.
• Successful implementation requires investment in education, capacity building, and technical and financial resources.
• Combining multiple land use tools (regulatory, financial, economic, and behavioral) is essential for effective flood risk management.

References

• Jha, S., Bloch, M., and Lamond, J. (2012).
• World Bank (2010).
• UNECE (2008).
• UNISDR (2009, 2015).
• Rijkswaterstaat (2006).
• 100 Resilient Cities (2016).
• Jeb, M., and Aggarwal, S. (2008).
• Kounkuey Design Initiative (2015).
• Swiss Re Foundation (2015).
• FESP, FOWG, and SAEFL (2005).
• Hawkesbury City Council (2012).
• WMO (2016).
• GFDRR (2015).

This knowledge note was prepared under the Urban Floods Community of Practice (UFCOP), a global initiative led by the World Bank with support from the Global Facility for Disaster Reduction and Recovery (GFDRR).