新冠肺炎疫情对市级国土空间总体规划的启示
Enlightenment from COVID-19 to City-level Territorial Spatial Master Plan
骆 悰
上海市城市规划设计研究院 副总工程师，重大办主任
刘 龙
上海市城市规划设计研究院 规划师，硕士
摘要: 新型冠状病毒肺炎（COVID-19，以下简称“新冠肺炎”）疫情直观印证了推进治理体系和治理能力现代化的重要性和
急迫性。疫情集中在大城市暴发，显示了城市将是我国未来一段时间内推进治理体系建设的重要战场。市级国土空间总
体规划的科学性本质上应是城市治理水平而非建设水平的反映，安全保障能力是检验城市治理能力现代化的重要标
尺。推动安全防灾规划从设施布局向综合治理转变、从建设落地向提升应急响应能力转变、从指标约束向资源配置优化
转变，对于提升市级国土空间总体规划的科学性、充分发挥其作为城市发展蓝图的作用具有重要意义。
Abstract: The significance and urgency of modernizing urban governance systems and capabilities are emphasized with the COVID-19
epidemic causing tremendous impacts on large cities, indicating that the modernization of the city-level governance system is
getting more important. The scientific nature of the city-level territorial spatial master plan, which relies upon the rationality
of hazard mitigation strategies, is more a reflection of urban governance abilities other than urban construction abilities.
Therefore, promoting the transformation of hazard mitigation planning from facility layout to comprehensive governance,
from construction-oriented objectives to improving emergency response capabilities, from rigid index-constraint to flexible and
resilient optimization of resource allocation, is of great importance to making better urban planning decisions and sparkling a
more scientific city development blueprint.
关键词：市级国土空间总体规划；城市安全治理；安全防灾；规划科学性；COVID-19
Keyword: city-level territorial spatial master plan; urban security governance; urban security and hazard mitigation; scientific nature of planning; COVID-19
中图分类号：TU981
文献标识码: A
钱少华，徐国强，沈阳，等. 关于上海建设韧性城
市的路径探索[J]. 城市规划学刊，2017（7）：109-
118.
QIAN Shaohua, XU Guoqiang, SHEN Yang, et al. An
exploration about the path toward a resilient city for
Shanghai[J]. Urban Planning Forum, 2017(7): 109-
118.
石婷婷. 从综合防灾到韧性城市：新常态下上海城
市安全的战略构想[J]. 上海城市规划，2016（1）：
13-18.
SHI Tingting. From comprehensive defense to
resilient cities: strategic conception of Shanghai's
city security in the new normal[J]. Shanghai Urban
Planning Review, 2016(1): 13-18.
张帆. 传染病疫情防控应尽快纳入城市综合
防灾减灾规划——应对2020新型冠状病毒肺
炎突发事件笔谈会[J/OL]. 城市 规划：1[2020-
03-11]. http://kns.cnki.net/kcms/detail/11.2378.
TU.20200212.1757.008.html.
ZHANG Fan. Infectious disease prevention
should be introduced into urban comprehensive
disaster prevention planning: online discussion on
2020 COVID-19 epidemic[J/OL]. City Planning
Review: 1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.1757.008.html.
刘奇志. 建议增加传染病防治专项规划——应对
2020新型冠状病毒肺炎突发事件笔谈会[J/OL].
城市规划：1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.1135.006.html.
LIU Qizhi. Suggestion of developing special planning
of infectious disease prevention: online discussion
on 2020 COVID-19 epidemic[J/OL]. City Planning
Review: 1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.1135.006.html.
周素红. 安全与健康空间规划与治理——应对
2020新型冠状病毒肺炎突发事件笔谈会[J/OL].
城市规划：1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.1747.040.html.
ZHOU Suhong. Planning and governance of urban
security and healthy city: online discussion on
2020 COVID-19 epidemic[J/OL]. City Planning
Review: 1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.1747.040.html.
王兰. 构建“公共健康单元”为核心的健康
城市治理系统——应对2020新型冠状病毒肺
炎突发事件笔谈会[J/OL]. 城市规划：1[2020-
03-11]. http://kns.cnki.net/kcms/detail/11.2378.
TU.20200212.1746.038.html.
WANG Lan. Building healthy city management
system based on public health unit: online discussion
on 2020 COVID-19 epidemic[J/OL]. City Planning
Review: 1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.1746.038.html.
郑德高. 安全城市需源头控制、源尾留白——应
对2020新型冠状病毒肺炎突发事件笔谈会[J/OL].
城市规划：1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.2047.012.html.
ZHENG Degao. Pre-control and blank layout are
necessary in urban security issues: online discussion
on 2020 COVID-19 epidemic[J/OL]. City Planning
Review: 1[2020-03-11]. http://kns.cnki.net/kcms/
detail/11.2378.TU.20200212.2047.012.html.
纽约市应急管理办公室. 纽约市综合减灾计划
2019[R]. 2019.
NYC Emergency Management. NYC hazard
mitigation plan[R]. 2019.
东京都下水道局. 东京都豪雨对策基本方针[R].
2019.
Bureau of Sewerage Tokyo Metropolitan Government.
Basic policies on heavy rain countermeasures in
Tokyo[R]. 2019.
东京都都市整备局. 关于地震引发火灾时避难场
所、就地避灾区域的安排（2018年度）[R]. 2018.
Bureau of Urban Development Tokyo Metropolitan
Government. Designation of evacuation sites and
roads in the event of earthquake and earthquakeinduced
fire disasters (2018)[R]. 2018.
刘龙. 城市收缩背景下的消防站布局优化方法研
究[J]. 上海城市规划，2017（Z1）：83-88.
LIU Long. Study on optimization method of fire
station layout in shrinking cities[J]. Shanghai Urban
Planning Review, 2017(Z1): 83-88.
