Natural and imposed injustices: the challenges in implementing 'fair' flood risk management policy in England

This paper examines the challenges facing English flood risk management (FRM) policy and practice when considering fair decision-making processes and outcomes at a range of spatial scales. It is recognised that flooding is not fair per se : the inherent natural spatial inequality of flood frequency and extent, plus the legacy of differential system interventions, being the cause. But, drawing on the three social justice models – procedural equality, Rawls' maximin rule and maximum utility – the authors examine the fairness principles currently employed in FRM decision-making. This is achieved, firstly, in relation to the distribution of taxpayer's money for FRM at the national, regional and local levels and, secondly, for non-structural strategies – most notably those of insurance, flood warnings and awareness raising, land use control, home owner adaptation and emergency management. A case study of the Lower Thames catchment illustrates the challenges facing decision-makers in 'real life': how those strategies which appear to be most technically and economically effective fall far short of being fair from either a vulnerability or equality perspective. The paper concludes that if we are to manage flood risk somewhat more fairly then a move in the direction of government funding of nationally consistent non-structural strategies, in conjunction with lower investment decision thresholds for other local-level FRM options, appears to offer a greater contribution to equality and vulnerability-based social justice principles than the status quo.     

县域尺度下的陕西省洪涝灾害风险评估及区划

洪涝灾害风险评估和区划研究对区域洪灾综合管理具有重要意义。以陕西省洪涝灾害气候背景和社会经济环境为基础,利用辖区内34个气象测站1954-2015年、月降水数据和2015年社会经济统计资料,运用自然灾害风险评估理论及方法,从致灾因子危险性、孕灾环境脆弱性、承灾体暴露性和防灾减灾能力4个子系统选取17个评价指标,建立洪涝灾害风险评价指标体系,借助GIS技术进行洪涝灾害风险评估和区划。结果表明：（1）陕西省洪涝灾害致灾因子危险性等级自北向南呈递增趋势,高和次高危险区分布在陕南地区和关中盆地西部。（2）孕灾环境脆弱性空间分布差异较大,高和次高脆弱区分布在榆林北部长城沿线各县、延安市区、关中盆地渭河沿岸主要区县、陕南汉中盆地和安康市区。（3）承灾体暴露性各区县分布不均,大部分市区和农业发达地区暴露程度较高。（4）城市和经济发达地区防灾减灾能力较高,其他地区相对较低。（5）陕西省洪涝灾害综合风险等级表征为陕南汉江谷地、丹江流域和关中盆地渭河沿岸区县偏高,其他区县相对偏低。总体来看,中等以上风险区县占陕西省所辖区县的61.54%,其中陕南汉江谷地、丹江流域、关中盆地西部和渭南市应为陕西省洪涝灾害防范的重点区域。     

日本洪水风险管理研究新进展及对中国的启示

日本是一个洪水灾害多发国家,因此对洪水灾害管理非常重视,经过100多年的不断探索和实践,取得了令人瞩目的成绩。本文主要对日本近10年来洪水风险管理研究的动态进行了综述。可以看出,日本在重视工程措施(如：河堤、城市下水道管网)研究的同时,非常重视非工程措施(如：公民防洪意识、实时预警系统、灾害保险等)的防灾研究;另外,还特别重视信息技术的在洪水风险管理中的应用,强调洪水风险沟通和洪灾保险的作用,注重洪水风险防范与城市区域发展的结合,强化洪水风险的综合管理,这些已成为日本洪水风险管理研究领域的潮流。日本的许多经验能为我国的洪水风险研究和管理提供有益的借鉴,如：增加洪水风险研究的资金投入,强化洪水风险形成机制和综合管理的跨学科研究;重视公众参与研究;重视和推进实施灾害保险制度的研究;加快防洪减灾高新技术的研究开发和应用,等等。     

洪灾风险评价与区划研究进展

洪灾风险评价是洪灾风险管理的首要步骤。洪灾风险区划是在洪灾风险评价基础上的宏 观分区, 有助于更清晰的把握洪灾风险的空间格局与内在规律。文章首先对洪灾风险相关概念进 行了阐述, 试图达到理清和规范的目的。然后对洪灾风险评价常用方法和洪灾风险区划研究进行 了评述。目前主要的洪灾风险评价方法有地貌学方法、水文水力学模型与系统仿真模拟方法、基 于历史灾情数据的方法、基于水灾史料和古洪水调查的方法、遥感与GIS 方法、基于洪灾形成机 制的系统分析方法等。最后对洪灾风险评价与洪灾风险区划研究进行了小结, 并指出了未来在洪 灾风险评价与区划的数据基础、洪灾风险评价的时空尺度、洪灾风险区划的理论与方法、洪灾风 险评价与区划的技术手段等方面的可能发展前景。     

中国城镇职工基本养老保险基金区域差异及影响机理

缩小地区差距,实现基本养老保险全国统筹,有利于增进人民福祉、促进社会公平以及提升人民的幸福感。基于2007-2016年中国31省（市、自治区）面板数据,运用泰尔指数、探索性空间数据分析及地理探测器等方法,研究中国城镇职工基本养老保险基金区域差异和影响机理。研究表明：① 城镇职工基本养老保险基金支出总体和带间泰尔指数稳步下降,带内泰尔指数逐年上升;② 城镇职工基本养老保险基金累计结余空间分布差异明显。高值区和次高值区主要分布在东部地区,次低和低水平主要分布在西部地区和东北地区。③ GDP、参保人数、制度赡养率等7因素对基本养老保险基金区域差异影响大。同时,各因子叠加后影响体现为非线性增加或双因子增强。为此,应坚持统筹区域社会经济协调的发展理念,夯实缴费基数,确保应保尽保,分步推进基本养老保险全国统筹。     

洪灾风险评价与区划研究进展

洪灾风险评价是洪灾风险管理的首要步骤。洪灾风险区划是在洪灾风险评价基础上的宏 观分区, 有助于更清晰的把握洪灾风险的空间格局与内在规律。文章首先对洪灾风险相关概念进 行了阐述, 试图达到理清和规范的目的。然后对洪灾风险评价常用方法和洪灾风险区划研究进行 了评述。目前主要的洪灾风险评价方法有地貌学方法、水文水力学模型与系统仿真模拟方法、基 于历史灾情数据的方法、基于水灾史料和古洪水调查的方法、遥感与GIS 方法、基于洪灾形成机 制的系统分析方法等。最后对洪灾风险评价与洪灾风险区划研究进行了小结, 并指出了未来在洪 灾风险评价与区划的数据基础、洪灾风险评价的时空尺度、洪灾风险区划的理论与方法、洪灾风 险评价与区划的技术手段等方面的可能发展前景。     

暴雨洪灾风险评估研究进展

洪灾风险评估是洪灾风险管理的首要步骤,作为非工程性防洪措施的一种,要及时、准确地把握洪水灾害的多方面特征。首先对洪灾风险形成机理、洪灾风险评估与区划、洪灾风险评估方法3 个方面进行国内外研究现状及分析,指出当前洪灾风险评估中在评估指标体系、评估方法及模型、风险演变驱动机制等方面尚存在的问题,最后,对洪灾风险评估中的发展趋势进行了展望。     

A record of flooding on the White River,Arkansas derived from tree-ring anatomical variability and vessel width

ABSTRACT

Tree rings preserve important records of past flooding. We present the results of an examination of inter-annual tree-ring anatomical variability and vessel width in overcup oak (Quercus lyrata) and river flooding at a bottomland hardwood forest site near the confluence of the White and Mississippi Rivers. We developed two flood chronologies based on (1) visual identification of “flood-ring” anatomical anomalies and (2) a simple method for quantitative measurements of earlywood vessel width (VW). Using visual flood rings, we have developed a response index (RI) chronology of floods from 1780–2013 and, using the VW measurements, we have developed a quantitative reconstruction of spring river levels from 1800–2013. Both the RI and VW chronologies are strongly related to spring river flooding and indicate that major floods such as those in 1805, 1826, 1844, 1852, 1858, occurred in the period prior to the systematic collection of stage data, and that the frequency of extreme events has greatly varied over the past two centuries. These chronologies provide important new information about Lower Mississippi River flooding in past centuries, and our simple method of measuring VW is a potentially useful new approach to the development of tree-ring records of flooding.     

When insurance and goodwill are not enough: Bushfire Attack Level (BAL) ratings,risk calculations and disaster resilience in Australia

ABSTRACT

Home and contents insurance is integral to household and community resilience against disasters. Yet many households are underinsured. While causes for underinsurance have been widely researched, changes to Australian building regulations in the last decade has established a new source of insurance miscalculations. Bushfire Attack Level (BAL) ratings can inflate rebuilding costs by 20% or more, yet BAL ratings remain obfuscated to homeowners and are notoriously confusing to navigate. After the October 2013 bushfires in New South Wales, the Blue Mountains Local Recovery Steering Group found that ‘information on the BAL process, the guidelines, the expected costs, the consulting experts and a property’s bushfire-prone status is literally all over the place’. This paper aims to provide clarity on the subject, tracing the precise socio-technical means through which disaster risk is perceived and assessed. The paper conceptualises insurance and risk ratings as calculative devices that provide both a technical solution to reduce financial losses and a philosophical tool for risk rationalisation. It then builds on interviews conducted with residents in the Blue Mountains affected by the 2013 bushfires, to ascertain how such calculative devices practically affect communities at risk. The paper concludes by outlining potential solutions to a confusing and costly problem in Australia, highlighting critical public awareness issues surround BAL ratings, which have profound insurance and wellbeing implications for people rebuilding and recovering from bushfire.     

Community cooperation with natural flood management: a case study in the Scottish Borders

The cooperation of communities and landowners in the upper catchment is vital for the successful implementation of natural flood management (NFM) projects as few incentives are in place to reward them to host such projects. The aim of this paper is to initiate an exploration of the issues that affect a community's decision to cooperate. The results of a case study in Scotland show that willingness to cooperate is affected by concern about alternative flood management techniques, a sense of responsibility to help connected communities at risk of flooding and the expectation of beneficial impacts from the project. Indeed, these issues appeared to over-ride the hostility generated towards the project as a result of poor communication and engagement with the community from organisations associated with the proposed project. The results of the research suggest that if NFM projects are to proliferate, close attention must be paid to community attitudes towards flood management and related communities at risk, and that NFM projects must be developed and implemented according to well-established principles of public participation.     

鄱阳湖区洪灾风险与农户脆弱性分析

This paper quantitatively explores farmers' vulnerability to flood in the Poyang Lake Region (PLR) with the supports of GIS spatial functions. The analysis consists of three major steps,which is based on the spatial unit of township. Firstly,the spatial extent and charac-teristics of flood risk areas were determined using a digital elevation model (DEM) derived from the 1:50,000 topographic map. Secondly,for each of the township,six indices indicating the economic activities of local farmers were calculated. These indices are: rural population proportion,cultivated land proportion,GDP per unit area,employment proportion of primary industry,net rural income per capita and agricultural income proportion. These six indices were then normalized and used for later vulnerability assessment. Thirdly,the normalized indices (as GIS data layers) were overlaid with the flood risk areas to produce the risk coeffi-cient for each township and to calculate the overall vulnerability for each township. The analysis results show that in the PLR there are high flood risk areas where the farmers' livings are seriously influenced or threatened. About 55.56% of the total 180 townships in the flood risk areas have a high degree of flood vulnerability. The townships under flood risk are mainly distributed in the areas around the Poyang Lake and the areas along the "five rivers".     

Farmers&rsquo|vulnerability to flood risk: A case study in the Poyang Lake Region

This paper quantitatively explores farmers’ vulnerability to flood in the Poyang Lake Region (PLR) with the supports of GIS spatial functions. The analysis consists of three major steps, which is based on the spatial unit of township. Firstly, the spatial extent and charac-teristics of flood risk areas were determined using a digital elevation model (DEM) derived from the 1:50,000 topographic map. Secondly, for each of the township, six indices indicating the economic activities of local farmers were calculated. These indices are: rural population proportion, cultivated land proportion, GDP per unit area, employment proportion of primary industry, net rural income per capita and agricultural income proportion. These six indices were then normalized and used for later vulnerability assessment. Thirdly, the normalized indices (as GIS data layers) were overlaid with the flood risk areas to produce the risk coeffi-cient for each township and to calculate the overall vulnerability for each township. The analysis results show that in the PLR there are high flood risk areas where the farmers’ livings are seriously influenced or threatened. About 55.56% of the total 180 townships in the flood risk areas have a high degree of flood vulnerability. The townships under flood risk are mainly distributed in the areas around the Poyang Lake and the areas along the “five rivers”.     

‘Rising Waters Don't Lift All Boats’: a sustainable livelihood analysis of recursive cycles of vulnerability and maladaptation to flood risk in rural Bihar,India

ABSTRACT

Bihar, in the central Gangetic Basin, is simultaneously India's poorest and most flood-prone State. Climate change models currently identify a heightening of Bihar's flood risk, as rainfall patterns become more intense and Himalayan glaciers recede. During the past half century, the major strategy deployed by the State and national governments to address the risk of floods has involved the construction of embankments: raised areas of land that seek to control river flow and provide temporary sanctuaries for flood-affected populations. In this article, qualitative data from interviews with flood-affected villagers and policy makers at local, district and State levels are used to assess the social implications of embankments as an adaptive response to flood risk. Evidence from these testimonies leads us to conceptualise embankments as contributing to recursive cycles of vulnerability, in which women, children and poorer social segments have been unwitting bearers. Hence, reliance on embankments is a maladaptation that perpetuates, if not exacerbates, the severe manifestations of social and economic inequality that continue to plague rural Bihar. Perhaps not surprisingly, the voices of those whose lives have been made more difficult by embankments are heard all too infrequently in policy debates. This emphasises the need for climate adaptation initiatives to be anchored in a sustainable livelihood approach, for which the prime analytical objective is to understand the factors that enable or constrain the abilities of people, especially those who are most vulnerable, to make decisions about their lives.     

农业结构调整的社会支持体系研究--以湖北省洪灾区为例

农业结构调整的社会支持体系主要包括人口计划与素质保障体系、农业技术推广体系和农业保险体系这三个方面的内容。文章在分析湖北省洪灾区目前在上述三个方面所存在问题的基础上,提出了完善该区农业结构调整社会支持体系的建议：控制人口增长,提升人口素质,优化人口结构;构建农业技术推广新体系;积极推进农业保险。     

Aspiration and reality: flood policy, economic damages and the appraisal process

Research shows that flood damage potential has increased significantly in the last 15 years. At the same time, flood policy has shifted away from simplistic flood defence towards 'living with floods' and 'making space for water'. This paper explores the mis-match between the aspiration in policy ideals, the reality of rising potential economic damages and the inability of the flood risk appraisal process to match the aspiration with the reality. Unless investment appraisal procedures are changed, the increase in damages will undermine policy changes that seek a different pattern of flood risk management, away from economically dominated decision-criteria towards more sustainable objectives.     

漓江流域干旱与洪涝灾害生态风险评价与管理

区域生态风险评价是进行生态风险管理的重要依据。流域生态风险评价应考虑地理单元的整体性和相对独立性。文章基于历史文献资料、自然地理数据和社会经济数据,选择漓江流域主要的自然灾害--干旱和洪涝为风险源,以161个子流域作为评价单元,基于相对风险评价模型,从风险源、脆弱度和抗风险能力3方面来评价流域综合生态风险。结果表明：漓江流域生态风险存在明显的空间差异性。高风险区占流域总面积的2.3%,主要分布于临桂县、灵川县北部和兴安县,表现为基础设施建设薄弱,景观稳定性差,生态脆弱度高;低风险区和较低风险区占流域总面积的59.0%,集中于猫儿山自然保护区、海洋山自然保护区和桂林市区,表现为保护区人为干扰较弱,植被保存完好,景观结构稳定,市区基础设施建设完善;下游阳朔县属中等风险区,存在一定风险隐患。最后基于风险评价结果提出了建立分级旱涝灾害预警机制和生态风险分级管理措施。     

中国自然灾害保险风险度综合评判与区划

首先将自然灾害保险风险评判分为灾害危险性与灾害易损性评判，以省、市、自治区划分自然灾害保险风险区，选择地质、地震、洪水、台风等四种自然灾害进行了自然灾害综合危险性评判；再将自然灾害易损性评判分为两个层次，第一层次是经济易损性与社会易损性评判，以风险区国内生产总值和固定资产投资作为评判指标进行了自然灾害经济易损性评判，以风险区人口密度作为指标进行了社会易损性评判，在此基础上进行了第二层次——自然灾害易损性评判；然后以自然灾害综合危险度和易损度指标值作为评判因子进行了自然灾害保险风险度综合评判；最后根据评判结果得到了各风险区的自然灾害保险风险度，由此绘制了中国自然灾害保险风险区划图。     

区域洪水灾害风险格局演变分析——以马来西亚吉兰丹州为例

准确了解区域洪水灾害风险演变状况及规律,对于洪水灾害预警与管理具有重要意义。本文利用1990年和2000年洪水灾害风险等级数据和风险指数数据,分析了10年来区域洪水灾害风险演变规律。研究表明:(1)1990~2000年10年之间,研究区的洪水灾害风险在空间分布格局及时间演变过程上都发生了显著变化。(2)高风险区与较高风险区的面积在增加,较低风险区、中等风险区的面积在逐渐减少,这是区域洪水灾害风险等级结构变化最突出的特征。(3)区域洪水灾害风险等级之间的不对等转化是各种风险等级结构特征发生实质性变化的主要原因。(4)2000年区域洪水灾害风险较1990年高,整个区域洪水灾害风险在增加,但局部地区洪水灾害风险变化不一。(5)区域洪水灾害风险演变的本质就是风险等级类型结构和功能的自组织,对于揭示洪水灾害演变的普遍现象和机制具有重要意义。     

开封市黄河滩区土地资源规避洪水风险的安全利用

基于ArcGIS与ERDAS遥感影像制图软件,利用2007年SPOT2.5m分辨率遥感影像,结合实地调查,详细编绘了开封市段黄河河道边界、开封段黄河滩区土地资源的利用现状。采用1992~2007年最大洪峰时期的TM影像与沿河水文站点的观测资料,提取1992~2007年7个典型日期的河道行洪边缘线,与本底数据叠加,编制了开封段不同常遇洪水流量下滩区淹没范围。按照黄河下游二维水沙数学模型,采用2004年汛后河道大断面资料,计算生成不同流量级大洪水在滩区的可能淹没范围图(淹没区边界)。在此基础上,结合土地资源管理与河道行洪安全性的要求,总结当前黄河下游滩区利用开发的现状与存在问题,制订土地安全利用规避洪险的原则,规划土地安全利用分区,分为临河风险缓冲带、近河宜耕地带、相对稳定利用带(中风险带)和稳定利用带。提出了黄河滩区土地资源合理安全利用的对策。     

山区农户双重风险感知对搬迁意愿和搬迁行为的影响

以受汶川“5.12”地震和“7.10”特大山洪泥石流灾害严重影响的汶川县原草坡乡为例,从农户风险感知现状出发,考察风险感知对搬迁意愿和搬迁行为的不同影响。研究结果表明：农户对自然灾害风险感知越强、对搬迁安置风险感知越弱,其搬迁意愿越强;较高的自然灾害风险感知会提高农户搬离灾害隐患点或风险区的概率,较强的搬迁安置风险感知会降低农户全家搬迁的可能性;搬迁安置风险感知对未搬迁和部分搬迁农户的影响程度超过自然灾害风险感知的影响。基于汶川县原草坡乡的实证研究,提出避灾搬迁安置决策中的“双重风险感知”假说。