中国跨境河流灾害预警应急协同管理机制构思

Conception of a collaborative management mechanism for disaster early warning and emergency response for transboundary rivers in China

水资源灾害联合防治是国际河流冲突预防与合作的重要内容,也是促进水资源问题“去安全化”,推动流域水安全环境构建的重要手段。该研究以中国典型跨境河流伊犁河和澜沧江-湄公河为分析对象,从水资源灾害预警应急合作的广度、深度、紧密度3个维度,透视中国跨境河流在水资源灾害预警、灾害应急管理方面存在的主要问题:①缺乏水资源灾害协同管理机制,尚未形成集数据共享、灾害预报、抗灾决策、信息发布等过程于一体的桥接平台。②缺乏水资源信息披露制度,信息共享程度依然偏低。③缺乏流域水资源合作专项基金,流域内水资源项目合作资金尚存在散、小、断的现象。据此,本研究构建了跨境河流灾害预警应急协同管理的四项原则:信息共享原则、平等协商原则、不造成重大损害原则、整体规划原则。提出了构建跨境河流灾害预警应急协同管理机制:建立流域水资源合作专项基金、建立灾害信息共享系统、建立灾害风险评估系统、建立灾害应急管理决策系统,将信息共享、风险评估、管理决策等程序有效整合到一个桥接平台,以保证信息传递的流畅性。该研究从水利工程共建、技术援助、利益补偿、法制建设、基金设立、灾害保险等方面提出了保障协同管理机制有效运行的主要措施。该研究提出的灾害预警应急协同管理机制不仅可以弥补中国跨境河流现有管理机制框架的不足,也可以为其他跨境河流实施灾害预警应急管理提供借鉴。

Collaboration in the prevention and control of water resource disasters is an important part of the prevention and cooperation of international river conflicts.It is also an important means to promote the de-securitization of water resources.Taking the Ili River and Lancang-Mekong River,two typical transboundary rivers in China,as the objects of analysis,this paper identifies the deficiencies in disaster early warning and emergency management of transboundary rivers in China from the perspectives of breadth,depth,and closeness.The main existing problems are summarized as follows:①There is no mature collaborative management mechanism for water resource disasters within the basin with an integrated platform to share data,predict disasters,formulate strategies,and communicate information.②Due to the lack of an efficient two-way disclosure system,there is little information sharing among the basin countries.③Special funds for water resource cooperation in the basin are far from enough,and they are characterized as scattered,small in amount,and intermittent.Accordingly,this paper proposes four principles for collaborative management over transboundary river disasters:information sharing,equal consultation,no significant harm,and integrated planning.Furthermore,a mechanism for disaster early warning and emergency cooperative management over transboundary rivers is proposed,including a special fund for basin water resource cooperation,an information sharing system,a disaster risk assessment system,and an emergency management decision system.Safeguard measures to support the operation of the management mechanism are put forward,including joint construction of water conservancy projects,technical assistance,interest compensation,legal system construction,fund establishment,disaster insurance,and so on.The mechanism proposed in this paper can not only make up for the deficiencies of the existing management mechanism framework of transboundary rivers in China,but also provide a reference for the implementation of disaster early warning and emergency management of other transboundary rivers.