© Acta hydrotechnica 22/36 (2004), Ljubljana
ISSN 1581-0267
17
UDK/UDC: 502.58:614.8:711(234.3)(497.14) Prejeto/Received: 12. 11. 2004
Pregledni znanstveni članek – Review scientific paper Sprejeto/Accepted: 28. 6. 2005
PREVENTIVNO OBVLADOV ANJE TVEGANJ ZARADI NARA VNIH
NEV ARNOSTI – POSTOPKI V ALPSKIH DRŽA V AH IN SLOVENIJI
PREVENTIVE MANAGEMENT OF RISKS DUE TO NATURAL HAZARDS –
PROCEDURES IN THE ALPINE COUNTRIES AND IN SLOVENIA
Blažo ĐUROVI Ć, Matjaž MIKOŠ
Skladen prostorski razvoj obmo čij, ogroženih zaradi naravnih nevarnosti, zahteva kakovostne
teoreti čne zasnove, prakti čno zakonodajo in pravilno izvedbo postopka analize, vrednotenja in
obvladovanja tveganj. Preventivni na čin obvladovanja tveganj je dandanes prevladujo č pristop k
presoji prostorskih planov, programov in politik. Prispevek se osredoto ča na družbeno-pravni vidik
takega pristopa v Sloveniji in povzema razmere v alpskih državah. Pri tem je dan poudarek
pregledu postopkov v izbranih državah.
Klju čne besede: prostorsko na črtovanje, naravne nevarnosti, preventiva, tveganje, upravljanje s
tveganjem, Alpe, zakonodaja
A harmonious spatial development of the areas endangered by natural hazards demands quality
theoretical designs, practical legislation, and adequate realization of risk analysis, assessment, and
management procedure. The preventive risk management is nowadays the predominant approach to
the consideration of spatial plans, programmes, and policies. The paper is focused on the socio-
legal aspect of such approach in Slovenia, and summarizes the situation in the alpine countries.
Doing this, the stress is given to an overview of procedures in selected countries.
Key words: spatial planning, natural hazards, prevention, risk, risk management, the Alps, legal
acts
1. UVOD
Sodobna družbena ureditev implicira
odgovornost države pri varovanju človeških
življenj in materialnih dobrin. S skokovitim
naraš čanjem stopnje izkoriš čenosti in
izrabljenosti življenjskega prostora so se zlasti
v zadnjih stotih letih poleg pozitivnih za čeli
pojavljati tudi negativni stranski u činki, ki se
na podro čju prostorskega na črtovanja kažejo v
nastanku konfliktnih obmo čij. Konfliktna
obmo čja se matemati čno gledano pojavijo na
preseku dveh površin (površine območja
nevarnostnega potenciala in površine obmo čja
škodnega potenciala; slika 1) in jih je treba
obravnavati z vidika družbeno-kulturoloških
zaznav naravnih nevarnosti in naravnih nesre č.
Opozorimo, da pomeni naravna nesre ča (angl.
natural disaster, fr. catastrophe naturel, nem.
Naturkatastrophe, it. disastro naturale) že
udejanjeno naravno nevarnost (potres,
zemljinski plaz, podor, drobirski tok, snežni
1. INTRODUCTION
The contemporary arrangement of society
implies the responsibility of state in protecting
human lives and material assets. With rapid
increase of the degree of habitat utilisation and
exploitation, especially in the last hundred
years, besides positive also negative side
effects began to appear, manifesting as the
generation of conflict areas in the field of
spatial planning. From the mathematical point
of view, the conflict areas have appeared at the
intersection of two surfaces (surface of hazard
area and surface of damage potential area;
Figure 1), and it is necessary to consider them
from the aspect of socio-cultural perception of
natural hazards and natural disasters. We
should emphasize that the term natural disaster
(Fr. catastrophe naturel, Ger. Natur-
katastrophe, It. disastro naturale) means a
realised natural hazard (i.e. earthquake,

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
18
plaz), ki jo spremlja dejanska škoda, medtem
ko je naravna nevarnost (angl. natural hazard,
fr. aléa naturel, nem. Naturgefahr, it. pericolo
naturale) potencialnega zna čaja in vedno
nastopa v zvezi s škodnim potencialom
(življenja ljudi oziroma možna neposredna in
posredna materialna škoda). Zaznavanje in
odnos posameznika ali skupine posameznikov
ter vrednostni sistem so klju č do pravilnega
razumevanja tveganja (angl. risk, fr. risque,
nem. Risiko, it. rischio), ki nastane na
konfliktnih obmo čjih.
landslide, rock fall, debris flow, snow
avalanche) accompanied by actual damage,
while natural hazard (Fr. aléa naturel, Ger.
Naturgefahr, It. pericolo naturale) has a
potential character and is always associated
with the damage potential (individual lives
resp. possible direct and indirect material
damages). Perception and individual or
collective attitude as well as the value system
are a key part of a correct comprehension of
the risk (Fr. risque, Ger. Risiko, It. rischio)
that occurs in conflict areas.
Slika 1. Parametri dolo čitve tveganja (Romang, 2004) zaradi nevarnih naravnih procesov, kot so
npr. potresi, zemljinski plazovi, podori, drobirski tokovi ali snežni plazovi.
Figure 1. Risk determination parameters (Romang, 2004) due to dangerous natural processes,
such as earthquakes, landslides, rock falls, debris flows or snow avalanches.
NEVARNOSTNI
POTENCIAL
ŠKODNI
POTENCIAL
T
V
E
G
A
N
J
E
procesi
vrsta
intenziteta
verjetnost
nastopa
objekti
vrsta
vrednost
ob čutljivost
(ranljivost)
verjetnost
prisotnosti
(izpostavljenost)
spremembe spremembe
ukrepi ukrepi
HAZARD
POTENTIAL
DAMAGE
POTENTIAL
R
I
S
K
processes
type
intensity
occurrence
probability
objects
type
value
sensitivity
(vulnerability)
presence
probability
(exposure)
changes changes
measures measures

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
19
Med posameznimi pojmi najlaže lo čimo po
analogiji s primerom dveh oseb, ki plujeta po
morju in sta namenjeni iz pristaniš ča A v
pristaniš če B. Nevihtna nevarnost lahko
nastopi nekje na poti med A in B, verjetnost
nastopa in magnituda nevarnosti v dolo čeni
to čki med A in B (mesto nevarnosti) pa sta
odvisni od vremenskih dejavnikov. Ko osebi
zaplujeta na obmo čje nevarnosti (morje),
postaneta ogroženi osebi ali ogroženca.
Tveganje, ki ga sprejmeta (na primer uni čenje
plovila, poškodbe, smrt) ob podajanju na
obmo čje nevarnosti – in s tem izrabita
priložnost (na primer hitrejšega prihoda v
pristaniš če B kot po kopnem), dolo ča še njuna
ranljivost, ki je odvisna od tehni čnega stanja
plovil, njunih sposobnosti, na čina plovbe in
drugega. K ranljivosti lahko štejemo tudi
njuno izpostavljenost (verjetnost, da se
nahajata na mestu nevarnosti). Vrednost
plovila, predmetov in potnikov v njem je
vrednost ogrožencev.
Nevarnost je za obe osebi enaka, njuna
ogroženost in sprejeto tveganje pa ne!
Opazimo, da pri osebi 1 tveganja (izguba
materialne dobrine!) prakti čno ni, saj ta svoje
plovilo zaznava kot “že odsluženo in
amortizirano”, a še vedno konstrukcijsko
zanesljivo in tehni čno brezhibno. Pri osebi 2,
ki pluje s popolnoma novo jadrnico enake
velikosti (in brez kasko zavarovanja vodnih
plovil!), se tveganje za izrabo priložnosti
mo čno pove ča, čeprav je ranljivost enaka. Če
bi oseba 1 plula z veliko manjšo in tehni čno
neizpravno jadrnico, bi se njeno tveganje
opazno pove čalo. Pri nespremenljivi
nevarnosti se torej tveganje lahko mo čno
spreminja v odvisnosti od ranljivosti in
vrednosti ogroženca.
Differentiation between individual concepts
is most easily made by the analogy with the
example of two people navigating by the sea,
headed from port A to port B. Storm hazard
can occur somewhere on the way between A
and B, while hazard occurence probability and
magnitude in certain point between A and B
(hazard place) depend from weather factors.
When two persons navigate to a hazard area
(the sea) they become endangered persons or
endangered elements. The risk they accept (for
instance destruction of vessel, injuries, death)
by seting out on a hazard area – and by that
exploiting the opportunity (for instance of
faster arrival at port B as by the mainland) – is
determined also by their vulnerability, which
depends of the technical condition of vessels,
their abilities, modes of sailing and other. We
can also add their exposure (probability that
they are present in a hazard place). Value of
the vessel, objects and passengers is the value
of endangered elements.
The hazard is equal for both persons but
their endangerment and the accepted risk are
not! There is practically no risk (of material
loss!) for person 1, who perceives his own
vessel as “disused and depreciated” but still
constructionally reliable and technically
flawless. For person 2, who navigates a
completely new sailboat of equal size (and
without insurance policy for sailboats!), the
risk for taking advantage of the opportunity
increases enormously, even though the
vulnerability remains equal. If person 1 would
navigate the smaller sailboat with technical
flaws, the risk this person accepted would
noticeably increase. So, at a constant hazard
the risk strongly varies in dependence of
vulnerability and of value of endangered
elements at risk.
2. OPREDELITEV
PREVENTIVNEGA
OBVLADOV ANJA TVEGANJA
Zgornji primer napeljuje na misel, da je
tveganje odvisno od treh dejavnikov:
nevarnosti, ranljivosti in vrednosti ogroženca.
Ena čbe, ki povezujejo te štiri parametre, so
praviloma lastne posameznim avtorjem.
Navedimo eno izmed njih (CENAT, 2004):
2. DEFINITION OF PROTECTIVE
RISK MANAGEMENT
The case above leads us into thinking that
the risk depends on three factors: hazard,
vulnerability and value of endangered
elements. Equations linking these four
parameters differ from author to author. We
state one of them (CENAT, 2004):

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
20
V R N T ⋅ ⋅ = (1)
T (tveganje): Pri čakovane izgube (smrtne
žrtve, poškodovanci, škoda na premoženju in
motnje v ekonomski dejavnosti) zaradi
dolo čene nevarnosti in za neko površino ter
referen čno obdobje. Na podlagi matemati čnih
izra čunov je tveganje zmnožek nevarnosti,
ranljivosti in vrednosti ogrožencev.
N (nevarnost): Dogodek ali fizikalno stanje,
ki je potencialen vzrok smrtnih žrtev,
poškodovancev, škode na premoženju, škode
na infrastrukturi, izgub poljš čin, okoljskih
škod, prekinitev poslovanja ali drugih vrst
poškodb ali izgub. Magnituda pojava,
verjetnost njegovega nastopa in razsežnost ter
jakost njegovega u činka lahko variirajo,
čeprav jih je v številnih primerih mogo če
predvideti ali oceniti.
R (ranljivost): Zna čilnost človeškega
obnašanja, socialnih in fizikalnih okolij, ki
opisuje stopnjo dovzetnosti (ali odpornosti)
učinkom npr. naravnih nevarnosti. Ranljivost
je dolo čena s kombiniranjem zavedanja o
nevarnosti, stanja človeških naselbin in
infrastrukture, javne politike in administracije
in organizacijske mo či pri obvladovanju
nesreč. Revš čina je v mnogih krajih sveta eden
glavnih vzrokov ranljivosti.
Sklepamo lahko, da se znotraj členov N in
R nahajata tudi dva verjetnostna parametra, ki
sta lastna nevarnostnemu in škodnemu
potencialu. Gre za:
- verjetnost nastopa nevarnosti dolo čene
magnitude P
M
 na mestu ogroženca ter
- verjetnost prisotnosti ogroženca I
v
 na
tem istem mestu.
Torej dolo ča verjetnost kolizije K
nevarnosti in ogroženca, možnost interakcije
med obema, nevarnostnim in škodnim
potencialom ter pogojuje nastanek
konfliktnega obmo čja in s tem tudi tveganja:
T (risk): Expected losses (fatalities, injuries,
damaged property, and disrupted economic
activities) due to a particular hazard for a
given area and reference period. Based on
mathematical calculations, risk is the product
of hazard, vulnerability, and “value-at-risk”.
N (hazard): An event or physical condition
that is a potential cause of fatalities, injuries,
property damage, infrastructure damage,
agricultural loss, environmental damage,
business interruption, or other types of harm or
loss. The magnitude of the phenomenon, the
probability of its occurrence, and the extent
and severity of its impact can vary, although in
many cases may be anticipated or estimated.
R (vulnerability): Characteristic of human
behavior, social, and physical environments,
describing the degree of susceptibility (or
resistance) to the impact of e. g. natural
hazards. Vulnerability is determined by
combining hazard awareness, condition of
human settlements and infrastructure, public
policy and administration, and organizational
strength in disaster management. Poverty is
one of the main causes of vulnerability in
many parts of the world.
One can reach the conclusion that two
probability parameters which are characteristic
of the hazard and damage potential are
included in N and R. Those are:
- the occurrence probability of the hazard
of certain magnitude P
M
 at the place
where the endangered element, and
- the presence probability of the
endangered element I
v
 on the same spot.
So, the probability of collision K
determines the likelihood of interaction
between hazard and damage potential, and is a
condition for emergence of the conflict zone
and consequently the occurence of a risk:
( )
v M
I P N K ⋅ = (2)
Produkt nevarnosti in ranljivosti iz ena čbe 1
je specifi čno tveganje ali ogroženost (Crosta et
al., 2001):
The product of hazard and of vulnerability
from equation 1 is the specific risk (Crosta et
al., 2001):
R K OG ⋅ = (3)

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
21
Opazimo, da je izpostavljenost I
v
 ogroženca
obravnavana lo čeno od ranljivosti ogroženca,
čeprav bi jo morda lahko šteli tudi k temu
kompleksu dejavnikov (npr. konstrukcijski
materiali, starost, vzdrževanost ...). Bistvena
dejavnika, ki dolo čata nevarnost, sta poleg
njene časovno-prostorske razsežnosti njena
magnituda in verjetnost nastopa na mestu
ogroženca, kar je še posebej treba poudariti,
saj v časih prihaja do napa čnih interpretacij in
tako se verjetnosti in magnitude ra čunajo le na
obmo čjih nastanka nevarnosti.
Vrednost ogrožencev V je stvar subjektivne
presoje ali objektivnega ekonomskega
vrednotenja. Produkt ranljivosti in vrednosti
ogroženca imenujemo škodni potencial ŠP,
torej je tveganje (Crosta et al., 2001; Romang,
2004):
The exposure I
v
of an element of risk is
considered separately from its vulnerability,
although we could add it to the factors that
design vulnerability (e. g. construction
materials, age, maintenance ...). The essential
factors that design the hazard are, besides its
time-spatial dimension, its magnitude and
probability of occurence on the place of the
endangered element, which must be especially
emphasized because sometimes interpretations
are wrong and consequently the probabilities
and magnitudes are calculated on hazard
source areas only.
The value of endangered elements V is a
matter of subjective estimation or objective
economic evaluation. The product of the
vulnerability and of the value of endangered
element is the damage potential ŠP, and thus
the risk is (Crosta et al., 2001; Romang, 2004):
V OG T ⋅ = (4)
oziroma/or
ŠP K T ⋅ = (5)
Vrnimo se k ravnanju s konfliktnimi
obmo čji, ki smo jih že omenili v uvodnem
delu prispevka. Ob prevladujo čem mnenju, da
je naravne procese mogo če “regulirati” in s
tem pose či zgolj v parameter magnitude
nevarnosti na konfliktem obmo čju, v časih celo
v parameter verjetnosti nastopa nevarnosti na
istem obmo čju, se je nemoteno pove čeval
obseg dejanskih škod ob nastopu naravnih
nesreč.
Druga rešitev, v današnjem času veliko bolj
aktualna in v skladu s konceptom trajnostnega
in celovitega reševanja problemov na
konfliktnih obmo čjih, se pojavi pozneje. Gre
za zmanjševanje škodnega potenciala znotraj
konfliktnih obmo čij. Iz ena čbe (1) je razvidno,
da je za zmanjšanje tveganja treba zmanjšati
bodisi nevarnost ali škodni potencial bodisi
oboje hkrati. Optimizacija teh razmerij je
odvisna od stopnje sprejemljivega tveganja
T
dop
, ki pa je mo čno odvisna od vrednostnega
sistema posameznika ali skupine
posameznikov in ga dolo čamo znotraj procesa
vrednotenja tveganja.
Torej, če je T > T
dop
, je z zmanjšanjem
Let's discuss the treatment of the conflict
zones mentioned in the introduction of this
paper. The dominant opinion that natural
processes can be “managed” by intervening
only in the parameter of hazard magnitude in a
conflict zone, sometimes even in the parameter
of probability of hazard occurence, caused that
the extent of actual damages after natural
disasters undisturbedly increased.
The other solution, a lot more relevant and
pursuant to the sustainable and holistic concept
of problem solving in conflict zones, emerges
later. It is about reducing the damage potential
inside the conflict zones. From equation (1) it
can be derived that for the reduction of risk it
is necessary to reduce either hazard or damage
potential, or both at the same time. The
Ooptimization of these relationships depends
upon the degree of acceptable risk T
dop
 that is
strongly dependent on the individual or
collective value system and it can be
determined during the risk assessment process.
So, if T > T
dop
, the difference ∆T = T - T
dop
has to be nullified with reduction of N, R
and/or V. We name the limit procedure ∆T →

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
22
členov N, R in/ali V treba izni čiti razliko ∆T =
T - T
dop
. Limitni postopek ∆T → 0 imenujemo
preventivno obvladovanje tveganja!
Po Kienholzu (1998) se obvladovanje
tveganja lahko izvaja preventivno (z
zmanjšanjem verjetnosti ali škod na nivo
sprejemljivega tveganja), reaktivno (z
ukrepanjem ob nesre či) in neaktivno (s
preprosto ohranitvijo in nadzorom statusa
quo), cilj obvladovanja tveganja pa je najvišja
možna efektivnost (mera za stopnjo
doseženosti cilja, brez upoštevanja porabe
sredstev) in eficienca (razmerje med
doseženim delovanjem ukrepa in porabljenimi
sredstvi).
Reaktivno in neaktivno obvladovanje
tveganja nista predmet razprave. Omenimo le,
da reaktivni pristop k obvladovanju tveganja
smotrneje izrabimo ob nastopih izjemnih
dogodkov, ki imajo zanemarljivo verjetnost
nastopa, torej ob zelo redkih nevarnostih;
pasivno obvladovanje pa izvajamo na
monitorinški na čin, ki ohranja in nadzira
obstoje če stanje. Pri obeh pristopih je težko
govoriti o dejavnem obvladovanju tveganja,
ampak gre bolj za podro čje delovanja služb, ki
so zadolžene za ukrepanje ob nesre či ter za
sistem monitoringa in pravo časnega
opozarjanja, ki je ravno tako tesno povezan s
temi službami (slika 2).
Preventivno obvladovanje tveganja je
učinkovitejša in dolgoro čno tudi cenejša
oblika varstva pred naravnimi nesre čami, kar
kaže tudi ustaljena praksa v ostalih alpskih
državah.
3. RAZMERE V IZBRANIH
A L P S K I H D R Ž AVA H
(povzeto po Stötter et al., 1997)
V 50. in 60. letih prejšnjega stoletja je
prišlo do spoznanja, da aktivni ukrepi
varovanja pred naravnimi nevarnostmi trajno
ne zadostujejo ve č, da si jih tudi ni več
mogo če privoš čiti in da je nastopila potreba po
mo čnejši zaš čiti, kot jo zagotavljajo gradbeni
varovalni ukrepi. Zato so iskali orodje za
na črtovanje preventivnega ravnanja z
naravnimi nevarnostmi oziroma za bolj
usmerjeno na črtovanje aktivnih varovalnih
0 preventive risk management!
According to Kienholz (1998), risk
management can be done in a preventive (by
reducing the likelihood or damages on the
level of acceptable risk), reactive (by taking
measures during the disaster) and inactive (by
simple preservation and monitoring of the
status quo) manner, while the goal of risk
management is the highest possible
effectiveness (unit for the degree of goal
achievement without considering the costs)
and efficiency (relation between achieved
measure activity and spent financial means).
Reactive and inactive risk management
approaches are not the subjects of this
discussion. We use the reactive approach to
risk management more properly in case of
occurence of extreme events which have
negligible probability of occurence, that means
during very rare hazards. Inactive management
is performed in a monitoring manner that
preserves and monitors the existing conditions.
It is hard to consider these approaches as
active risk management, but more as the
domain of agencies that are bound to act
during the disaster and for monitoring and up-
to-date warning system, which are closely
related to these agencies as well (Figure 2).
Preventive risk management is more
efficient and in the long run also the cheaper
form of natural disasters mitigation, as has
been proven by the common practice in other
alpine countries.
3. CONDITIONS IN SELECTED
ALPINE COUNTRIES
(adapted after Stötter et al., 1997)
In 1950's and 1960's we realized that active
measures of protection from natural hazards
are no more sufficient nor affordable, and that
there is a need for a stronger protection than
provided by civil engineering protection
measures. That is why a tool for planning of
preventive treatment of natural hazards or for
more directed planning of active protective
measures was pursued. The new legislation
placed natural hazards into the field of spatial

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
23
ukrepov. Nova zakonodaja je umestila naravne
nevarnosti v prostorsko na črtovanje v obliki
ploskovne dolo čitve stopnje ogroženosti v
okviru na črtovanja obmo čij nevarnosti.
planning in the form of areal designation of
degree of endangerment in frame of hazard
zones planning.
Slika 2. Koncept upravljanja s tveganjem (prirejeno po CENAT, 2004).

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
24
Figure 2. The concept of risk management (adapted after CENAT, 2004).
3.1 ŠVICA
Po katastrofalni zimi 1951/52 je bil leta
1954 za ob čino Gadmen v Berner Oberland
izdan prvi na črt obmo čij nevarnosti snežnih
plazov (nem. Lawinenzonenplan). Od teh
prvih za četkov do obsežnega na črtovanja
ogroženih obmo čij je bila potrebna vrsta
zakonskih sprememb. Eden prvih, še zelo
skr čenih zakonskih okvirjev je bila gozdarska
3.1 SWITZERLAND
 After a catastrophic winter of 1951/52, in
1954 a first plan of hazard zones due to
avalanches (Ger. Lawinenzonenplan) was
issued for the municipality Gadmen in Berner
Oberland. A series of legal changes was
necessary from these very first beginnings to
extensive planning of danger zones. One of the
first, still very limited legal frames was

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
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zakonska uredba (nem. Vollziehungs-
verordnung zum Forstpolizeigesetz) iz leta
1965, ki je dolo čala, da se na obmo čjih
ogroženosti zaradi snežnih plazov ne postavlja
novih objektov, kar naj bi bila kantonalna
skrb. S tem namenom so bili izdelani načrti
obmo čij nevarnosti snežnih plazov (nem.
Lawinenzonenpläne).
Z zakonom o prostorskem na črtovanju
(nem orig. Raumplanungsgesetz) z dne 22.
junija 1979 so vklju čili v na črtovanje tudi
ostale naravne nevarnosti. S tem so bili uradi
za na črtovanje zavezani k upoštevanju
naravnih nevarnosti pri prostorskih
dejavnostih. A šele z novo zakonodajo iz 90.
let so bile ustvarjene okvirne razmere za
moderno na črtovanje obmo čij nevarnosti.
Zvezni zakon o vodni gradnji (nem.
Bundesgesetz über den Wasserbau) z dne 21.
junija 1991 in Zvezni zakon o gozdovih (nem.
Bundesgesetz über den Wald) z dne 4. oktobra
1991, skupaj s pripadajo čimi akti, zavezujeta
kantone k izdelavi podlag, kot sta kataster
nevarnosti in karta nevarnosti, kakor tudi k
ustanovitvi zveznih ustanov za izvajanje
temeljnih del in za izdelavo tehni čnih smernic.
Zaradi federalne strukture države so v
posameznih kantonih nastajali razli čni
pristopi. Poleg zelo razli čnih konceptov in
pristopov v posameznih kantonih, kot so npr.
Graubünden, Obwalden, Freiburg in Wallis, je
bilo tudi na zveznem nivoju veliko iniciativ za
podlage presoje nevarnih procesov in prikaza
nevarnih obmo čij. Taki primeri so:
• Projekt: Gefahrenkataster – Ereigniskataster
(Heinimann, 1996; Krummenacher et al.
1996)
• Symbolbaukasten zur Kartierung der
Phänomene (BWW & BUWAL, 1995)
• Richtlinien zur Berücksichtigung der
Lawinengefahr bei raumwirksamen
Tätigkeiten (BFF & EISLF, 1984)
• Empfehlungen – Berücksichtigung der
Hochwassergefahren bei raumwirksamen
Tätigkeiten (BWW & BUWAL, 1997)
• Empfehlungen – Berücksichtigung der
Massenbewegungsgefahren bei raum-
wirksamen Tätigkeiten (Lateltin et al.,
1997; nova izdaja v pripravi)
• Richtlinie für den Hochwasserschutz des
forestry legal regulation (Ger. Vollziehungs-
verordnung zum Forstpolizeigesetz) from
1965, which appointed to the care of cantons
that in danger zones  no new objects may be
built due to avalanches. Accordingly
avalanche hazard zone plans were made (Ger.
Lawinenzonenpläne).
With the Law on Spatial Planning (Ger.
Raumplanungsgesetz) from June 22, 1979,
other natural hazards were also included in
planning. Offices for planning were bound to
consider natural hazards in spatial activities.
But only through the new legislation in 1990's
the circumstances for modern hazard zone
planning were set. The Federal Law on
Hydraulic Engineering (Ger. Bundesgesetz
über den Wasserbau) from June 21, 1991, and
the Federal Law on Forests (Ger. Bundesgesetz
über den Wald) from October 4, 1991,
together with belonging acts, bind cantons to
set up bases, such as the register of hazards
and hazard maps, as well as the foundation of
federal institutions for execution of
fundamental works and technical guidelines.
Individual approaches in individual cantons
occurred because of the federal structure of a
country. Beside very different concepts and
approaches in individual cantons, e. g.
Graubünden, Obwalden, Freiburg and Wallis,
at the federal level many initiatives have been
given for making the base for assessment of
hazard processes and display of hazard zones.
Examples are:
• Projekt: Gefahrenkataster – Ereigniskataster
(Heinimann, 1996; Krummenacher et al.,
1996)
• Symbolbaukasten zur Kartierung der
Phänomene (BWW & BUWAL, 1995)
• Richtlinien zur Berücksichtigung der
Lawinengefahr bei raumwirksamen
Tätigkeiten (BFF & EISLF, 1984)
• Empfehlungen – Berücksichtigung der
Hochwassergefahren bei raumwirksamen
Tätigkeiten (BWW & BUWAL, 1997)
• Empfehlungen – Berücksichtigung der
Massenbewegungsgefahren bei raum-
wirksamen Tätigkeiten (Lateltin et al.,
1997; new edition in preparation)
• Richtlinie für den Hochwasserschutz des
Kantons Uri (Kanton Uri, 1992)

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
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Kantons Uri (Kanton Uri, 1992)
Po velikih poplavah leta 1987 je švicarsko
najvišje zakonodajno telo leta 1989 Zveznemu
zavodu za vode in Zveznemu zavodu za
prostorsko na črtovanje naro čilo naj pripravita
posebna priporo čila, kako upoštevati
nevarnosti vodnih ujm pri prostorskem
na črtovanju. Zakonodajna rešitev v Zveznem
zakonu o prostorskem na črtovanju iz leta 1979
zavezuje kantone k dolo čitvi znatno ogroženih
obmo čij zaradi naravnih nevarnosti. Zvezni
zakon o vodni gradnji z dne 21. junija 1991 pa
dolo ča, da kantoni zagotavljajo varstvo pred
visokimi vodami predvsem z rednim
vzdrževanjem in ukrepi prostorskega
na črtovanja. Šele, če to ne zadoš ča, lahko
uporabijo gradbene ali druge varstvene ukrepe.
3.2 FRANCIJA
V 60. letih je razvoj zimskega turizma na
višje leže čih obmo čjih vplival na potencial
naravnih nevarnosti, ga mo čno spodbudil, tako
da se je vlada morala soo čiti s problemom
javne varnosti v gorskih okoljih. Usodna
nesreča zaradi snežnega plazu v Val d'Isèru
spomladi leta 1970 je naposled sprožila
aktivnosti za prepre čevanje in zaš čito pred
naravnimi nevarnostmi, ki so bile izpeljane z
izdelavo načrtov nevarnih obmo čij za
francoski alpski prostor. V prvem koraku je
bila izdelana karta naravnih nevarnosti (fr.
carte des risques naturels ali carte R 111-3 po
členu R 111-3 Code de l'urbanisme) za presojo
prihodnjih na črtov. Vzporedno so za čeli z
izdelavo karte ZERMOS (fr. Zones Exposées à
des Risques liés aux Mouvements du Sol et du
sous-sol) za obravnavo pobo čnih gibanj in
karte CLPA (fr. Carte de Localisation
Probable des Avalanches) za na črtovanje
glede na nevarnost snežnih plazov. Sredi 80.
let je bil uveden nov koncept na črtovanja
nevarnih obmo čij. PER-i (fr. Plan d'Exposition
aux Risques Prévisibles) so bili bistveno bolj
avtenti čni kot karte R 111-3. Nadaljnje
zaostrovanje zakonskega položaja celo do
kazensko-pravnega preganjanja zaradi
neupoštevanja pravnih obveznosti je bilo
zaklju čeno z izdajo PPR (fr. Plans de
Prévention des Risques) leta 1995, ki se jih še
danes uporablja v na črtovalski praksi.
Leta 1967 so se v departmaju Isère v
After large floods in 1987 the Swiss highest
legislative body in 1989 ordered to Federal
Institute for Water and Federal Institute for
Spatial Planning to prepare special guidelines,
how to regard water flood hazard in spatial
planning. Legislative solution in the Federal
Law on Spatial Planning from 1979 appoints
that cantons determine the areas that are
considerably endangered due to natural
hazards. The Federal Law on Hydraulic
Engineering from June 21, 1991, appoints
cantons to ensure protection from floods
especially by regular maintenance and
measures of spatial planning. Only in case this
proves insufficient, the use of construction or
other protection measures is expected.
3.2 FRANCE
The development of winter tourism in high-
altitude areas in the 1960's affected the
potential of natural natural hazards by strongly
stimulating it, so that the government was
confronted by the problem of public safety in
the mountain regions. Eventually, the fatal
disaster following the avalanche in Val d'Isère
in spring 1970 set off activities for prevention
and protection against natural hazards, which
were executed through the making of hazard
zone plans for the French alpine region. The
first step was the making of the natural hazards
map (Fr. carte des risques naturels or carte R
111-3 under Article R 111-3: Code de
l'urbanisme) that was provided for assessing
future plans. At the same time, the ZERMOS
map (Fr. Zones Exposées à des Risques liés
aux Mouvements du Sol et du sous-sol) for
treatment of slope movements, and the CLPA
map (Fr. Carte de Localisation Probable des
Avalanches) as a base for planning with regard
to avalanche hazard were made. In mid-1980's
a new concept of hazard zones planning was
introduced. The new PERs (Fr. Plan
d'Exposition aux Risques Prévisibles) were
essentially more reliable than the maps under
Article R 111-3. Further gradation of the legal
position even to penalties due to non-
compliance to legal obligations was concluded
with Risk Prevention Plans (PPR; Fr. Plans de
Prévention des Risques) in 1995, which are
even today used in the common planning
practice.
In 1967 in “departement” Isère, France, the

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
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Franciji pojavile prve uradne karte nevarnosti
na osnovi člena R 111-3 Zakona o urbanizmu,
ki pravi (Besson, 1996): “ Če je gradnja na
zemljiš čih, ki so izpostavljena neki naravni
nevarnosti, kot je na primer poplava, erozija,
udor, podor, snežni plaz, odobrena, se jo lahko
podredi posebnim pogojem. Ta zemljiš ča so
dolo čena s prefektoralnim odlokom po
izvedeni javni razgrnitvi in jih je s sklepom
sprejel ob činski svet.” Te karte so izdelovali
na TTN 10 in so razmejila obmo čja, kjer je
bila gradnja prepovedana, in obmo čja, kjer je
bila pogojno dovoljena. Do sedaj izdelani
dosje francoskega departmaja Isère vsebuje
(Besson, 1996):
• coniranje ob činskega ozemlja v skladu s
predpisi in na temeljni topografski karti
1 : 10.000, na kateri nastopajo nezazidljiva
obmo čja in pogojno zazidljiva obmo čja;
karta se imenuje »ob činska karta naravnih
nevarnosti«, toda urbanizirani sektorji ali
sektorji bodo če urbanizacije so
predstavljeni na temeljni katastrski karti;
• predstavitveno poro čilo, ki opisuje ob čino v
morfološkem, podnebnem, ekonomskem in
geološkem planu ter utemelji coniranje;
• model tipi čnega predpisa, imenovanega
“zakonske dolo čbe za uporabo na
podro čjih, ki so izpostavljena naravnim
nevarnostim”.
Grafi čna dokumentacija (poleg
predstavitvenega poro čila in predpisa je tudi to
dolo čeno z odredbo iz l. 1993) vsebuje štiri
sestavne dele:
1. karta prostorske omejitve naravnih pojavov
(na temeljni topografski karti v merilu
1 : 25.000 ali 1 : 10.000),
2. karta nevarnosti (na temeljni topografski
karti v merilu 1 : 10.000 ali 1 : 5000),
3. karta ranljivosti (na temeljni topografski
karti v merilu 1:25.000),
4. na črt v skladu s predpisi (rde ča, modra, bela
cona) (na temeljni katastrski karti v merilu
1 : 5000)
Na črti P.E.R. lo čijo med zelo (gradnja
prepovedana), delno (gradnja pod pogoji) in
neznatno ogroženimi obmo čji (Mikoš, 1997).
Če povzamemo francoske izkušnje,
opazimo tristopenjski razvoj kart nevarnosti
(povzeto po Besson, 1996):
first official natural hazard maps were issued
on the basis of paragraph R. 111-3 of the
Urbanistic Code that says (Besson, 1996): “If
construction on land exposed to a natural
hazard, for instance floods, erosion,
subsidence, collapse, avalanche, is approved it
could be subdued to special conditions. These
lands are appointed with prefect's decree, after
public presentation and after they are passed
by the municipal council.” Those maps were
made on the basis of topographic map
1 : 10,000 and they delineated the areas where
construction was forbidden from the areas
where construction was conditionally allowed.
So far, the file of the French “departement”
Isère contains (Besson, 1996):
• The zonation of the municipal territory
harmonized with regulations and on a basic
topographic map 1 : 10,000 with non-
housing areas and conditionally housing
areas; it is termed as “municipal map of
natural hazards” while urbanized sectors or
sectors of future urbanization are presented
on a basic cadastral map;
• A demo report that describes a municipality
in the morphological, climatic, economic
and geologic plan and substantiates the
zonation;
• A model of typical regulation, appointed as
“statutory provision for the use in the fields
exposed to natural hazards”.
The graphic documentation (besides the
demo report and regulation it is laid down by
the decree from 1993 as well) contains four
parts:
1.map of spatial restraints of natural
phenomena (on basic topographic map
1 : 25,000 or 1 : 10,000),
2. hazard map (on basic topographic map
1 : 10,000 or 1 : 5000),
3. vulnerability map (on basic topographic
map 1 : 25,000),
4. plan harmonized with regulations (red,
blue, white zones) (on basic cadastral map
1 : 5000).
P.E.R. plans delineate between highly
(construction forbidden), partially
(construction under conditions) and
insignificantly endangered areas (Mikoš,
1997).
Summarizing the French experiences, a
three-level development of hazard maps can be
observed (after Besson, 1996):

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
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1. Dolo čitev obsega naravnih tveganj na
podlagi člena R. 111-3 Zakona o
urbanizmu; cilj: javna objava tveganja in ne
ureditev nevarnih obmo čij, zadeva bodo če
konstrukcije in ne obstoje čih.
2. Izdelava načrta izpostavljenosti tveganjem
P.E.R. na podlagi zakona z dne 13. julija
1982 in uredbe z dne 15. marca 1993; cilj:
javno objaviti tveganje in zmanjšati stroške
opustošenj, ki jih ta tveganja povzro čijo.
3. Izdelava načrta prepre čitve tveganj P.P.R.
na podlagi zakona z dne 2. februarja 1995
in uredbe z dne 5. oktobra 1995; cilj: javno
objaviti tveganje in sprejeti prevencijske
ukrepe, zaščitne ukrepe in varovalne ukrepe
na izpostavljenih obmo čjih in na posredno
izpostavljenih obmo čjih.
3.3 AVSTRIJA
Presoje iz 60. let so pokazale, da finan čna
sredstva za aktivne zazidalne ukrepe
dolgoro čno ne zadostujejo. Drobirski tokovi in
snežni plazovi pozimi 1965/66 so kon čno
pokazali na nujnost mo čnejšega spodbujanja
poleg aktivnih tudi pasivnih varovalnih
ukrepov. Od za četka 70. let so bila kot
predhodnik sedanjih na črtov nevarnih obmo čij
dokončana strokovna mnenja o površinah
(nem. Flächengutachten), ki so bila cenejša od
posameznih strokovnih del in tudi kvalitativno
premišljena. Z Zakonom o gozdovih z dne 3.
julija 1975 so bile ustvarjene zakonske
podlage za na črtovanje nevarnih obmo čij,
katerih izpeljava je bila razložena z Uredbo o
na črtih nevarnih obmo čij (nem. Verordnung
über Gefahrenzonenpläne) z dne 30. julija
1976.
Mikoš (1997) navaja: “Pojavi se potreba po
revidiranju nekaterih že izdelanih na črtov
zaradi spremembe naravnih pogojev, ki so
nastopile v času po njihovi izvedbi, predvsem
v odmiranju gozdov. Zato se je v Avstriji
pojavila zahteva po enotnem pristopu pri
izdelavi takih na črtov obmo čij ogroženosti. Pri
tem gre predvsem za vprašanje ustrezne
metodike raziskovanja in za v obliki smernic
podprti na čin pristopa k izdelavi na črta
ogroženosti nekega obmo čja.”
1. Designation of extent of natural risks on the
basis of Article R. 111-3 of the Law on
Urban Development; objective: only
publication of risk, but no regulation of
hazard areas; it regards future constructions
and not the existing ones.
2. Making a plan of exposure to P.E.R. risks
based on the law from July 13, 1982, and
regulation from March 15, 1993; objective:
publication of risk and reduction of costs of
damage caused by those risks.
3. Making a risk prevention P.P.R. plan based
on the law from February 2, 1995, and
regulation from October 5, 1995; objective:
publication of risk and preventive measures,
shielding measures and protection measures
in exposed areas and indirectly exposed
areas.
3.3 AUSTRIA
In 1960's the reviews showed that the
financial means for active construction
measures do not suffice in the long run. Debris
flows and snow avalanches in winter 1965/66
finally suggested the urgency for a stronger
stimulation of passive protective measures on
top of the active ones. From the beginning of
1970's expert opinions about surfaces (Ger.
Flächengutachten) were completed as a
precursor of present hazard zone plans, which
were cheaper than the individual professional
works and well thought out. With the Forestry
Act from July 3, 1975, the legal basis was
created for planning of hazard zones,
derivation of which was explained in the
Decree on Hazard Area Plans (Ger.
Verordnung über Gefahrenzonenpläne) from
July 30, 1976.
Mikoš (1997): “The need for revision of
some already made plans had emerged due to
the changes of natural conditions that occurred
in the time after their realization, primarily due
to the dying forests. That is why the demand
for a unified approach of making such hazard
zone maps emerged in Austria. It is above all a
matter of suitable research methodology and
through guidelines supported approach to the
making of hazard plans of a certain area.”

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
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29
4. ZAKONSKA IZHODIŠ ČA
PREVENTIVNEGA
OBVLADOV ANJA TVEGANJA V
REPUBLIKI SLOVENIJI
Analiza in vrednotenje tveganja sta
predpogoja za kakovostno preventivno
obvladovanje tveganja. Zlasti analiza tveganja
potrebuje prakti čne zakonske osnove.
4.1 STRATEGIJA PROSTORSKEGA
RAZVOJA SLOVENIJE (2003)
Eden izmed ciljev prostorskega razvoja
Slovenije je prostorski razvoj, usklajen s
prostorskimi omejitvami (SPRS, 2003):
“Naravne procese, ki lahko ogrožajo poselitev
in človekove dejavnosti, je treba obvezno
upoštevati kot omejitev pri na črtovanju rabe in
dejavnosti v prostoru. Prostorski razvoj na
vseh obmo čjih, zlasti pa na ogroženih
obmo čjih je treba na črtovati v skladu z
omejitvami zaradi naravnih in drugih nesre č,
kot so poplave, zemeljski plazovi, erozija,
snežni plazovi, požari v naravnem okolju in
potresi.
Potencialna tveganja je treba zmanjšati s
preventivnim na črtovanjem, in sicer z
razmeš čanjem dejavnosti v prostor izven
obmo čij potencialnih nesre č, z ustreznim
upravljanjem primarnih dejavnosti v nevarnih
in ogroženih obmo čjih ter z nadzorovanjem
aktivnosti, ki lahko povzro čajo naravne in
druge nesre če.” Torej sta bistveni prostorski
omejitvi naslednji:
1. Usmerjanje prostorskega razvoja izven
obmo čij, ki jih ogrožajo naravne ali druge
nesreče.
2. Preusmerjanje obstoje čih dejavnosti izven
obmo čij, ki so ogrožena zaradi naravnih ali
drugih nesre č, oziroma izboljševanje zaš čite
pred posledicami naravnih in drugih nesre č.
4.2 ZAKON O VARSTVU PRED
NARAVNIMI IN DRUGIMI NESRE ČAMI
(2002)
Pri ocenah ogroženosti po “Zakonu o
varstvu pred naravnimi in drugimi nesre čami“
(ZVNDN, 2002) gre za podporo pri
reaktivnem in neaktivnem obvladovanju
tveganja, sama izdelava ocen ogroženosti ter
4. LEGAL BASES FOR
PREVENTIVE RISK
MANAGEMENT IN THE
REPUBLIC OF SLOVENIA
Hazard analysis and hazard assessment are
prerequisite for a quality preventive risk
management. Especially risk analysis demands
practical legislation basis.
4.1 SPATIAL DEVELOPMENT
STRATEGY OF SLOVENIA (2003)
One of the goals of the spatial development
of Slovenia is spatial development harmonized
with spatial restraints (SPRS, 2003): “Natural
processes that can endanger settlement and
human activities should be considered as a
restraint in spatial use planning and activities.
Spatial development in all areas, especially the
endangered ones, has to be planned pursuant to
restraints due to natural and other disasters like
floods, landslides, erosion, avalanches, fires in
the natural environment and earthquakes.
Potential risks have to be reduced by
preventive planning, namely by displacement
of activities in space, outside the areas of
potential disasters, with suitable management
of primary activities in hazard and endangered
areas, and with control of activities that could
cause natural and other disasters.” So, the
essential spatial restraints are:
1. Guidance of spatial development outside
the areas that are endangered by natural or
other disasters.
2. Diverting the existing activities outside the
areas that are endangered by natural or
other disasters or improving the protection
against the consequences of natural and
other disasters.
4.2 PROTECTION AGAINST NATURAL
AND OTHER DISASTERS ACT (2002)
Estimations of endangerment after the
“Protection Against Natural and Other
Disasters Act” (ZVNDN, 2002) are about
support at reactive and inactive risk
management, however, the estimation of
endangerment and protection plans are in the
competence of the state and municipalities and

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
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na črtov zaščite in reševanja je v pristojnosti
države in ob čin ter naloga gospodarskih družb,
zavodov in drugih organizacij. Ocena
ogroženosti po 44. členu tega zakona obsega:
1. Na črtovanje zaš čite, reševanja in pomo či ob
naravnih in drugih nesre čah ter v vojnem
stanju mora temeljiti na ocenah ogroženosti
in drugih strokovnih podlagah.
2. Ocene ogroženosti za obmo čje države ali
del obmo čja države za posamezne naravne
in druge nesre če ter v vojnem stanju izdela
Uprava Republike Slovenije za zaš čito in
reševanje (URSZR) v sodelovanju z
drugimi ministrstvi.
3. Ocene ogroženosti za obmo čje ob čine izdela
pristojni ob činski organ.
4. Minister predpiše metodologijo za izdelavo
ocen ogroženosti.
4.3 NACIONALNI PROGRAM VARSTVA
PRED NARAVNIMI IN DRUGIMI
NESRE ČAMI (2002)
Bolj preventivno je usmerjen “Nacionalni
program varstva pred naravnimi in drugimi
nesrečami” (NPVNDN, 2002), ki upošteva vse
nevarnosti naravnih (potres, poplava,
zemeljski plaz, snežni plaz, visok sneg, mo čan
veter, to ča, žled, pozeba, suša, množi čni pojav
nalezljive človeške, živalske ali rastlinske
bolezni in druge nesre če, ki jih povzro čijo
naravne sile) ter drugih nesre č, ki ogrožajo
ljudi, živali, premoženje, kulturno dediš čino in
okolje. Program navaja: “Cilj preventive je
prepre čiti, odstraniti ali zmanjšati varnostna
tveganja. Preventiva je usmerjena predvsem v
vire ogrožanja. Njen namen je predvsem
prepre čiti nevarnost, že obstoje če nevarnosti
pa odstraniti ali vsaj zmanjšati. Temeljne
preventivne ukrepe naj bi izvajala pristojna
ministrstva, lokalne skupnosti ter gospodarske
družbe, zavodi in druge organizacije. Izvajanje
preventivnih ukrepov mora biti zasnovano na
ocenah ogroženosti in drugih strokovnih
podlagah.”
Ocene ogroženosti je treba upoštevati pri
na črtovanju in izvajanju prostorskih planskih
aktov ter pri projektiranju in gradnji objektov.
Tako lahko z instrumenti urejanja prostora
zagotovimo, da so nove prostorske dejavnosti
a task of commercial companies, institutes and
other organizations. Under Article 44 the
assessment includes:
1. Planning of protection, rescue and help
during natural and other disasters, and
during war state must be based on the
endangerment estimations and other
professional bases.
2. The Administration of the Republic of
Slovenia for Civil Protection and Disaster
Relief in co-operation with other ministries
prepares the endangerment evaluation for
the state area or part of the state area for
individual natural and other disasters and
during war.
3. Endangerment estimations for a
municipality area are made by a competent
municipal body.
4.The methodology for making the
endangerment evaluations is prescribed by
the minister.
4.3 NATIONAL PROGRAMME FOR
PROTECTION AGAINST NATURAL
AND OTHER DISASTERS (2002)
The “National Programme for Protection
Against Natural and Other Disasters”
(NPVNDN, 2002) is more preventively
oriented and considers all natural hazards
(earthquake, flood, landslide, avalanche, high
snow cover, strong wind, hail, sleet, frost,
drought, mass phenomenon of contagious
human, animal or vegetable disease, and other
disasters caused by natural forces) for natural
and other disasters that endanger people,
animals, property, cultural heritage and the
environment. The programme cites: “The
objective of prevention is to prevent, eliminate
or reduce safety risks. Prevention is primarily
directed to the sources of endangerment. Its
objective is primarily to prevent hazard, and to
eliminate or at least reduce the existing
hazards. Fundamental prevention measures
should be done by competent ministries, local
communities and economic companies,
institutes and other organizations. Execution of
preventive measures must be conceived on
endangerment evaluations and other
professional bases.”
Endangerment evaluations must be
regarded during planning and execution of
spatial plans and considered in design and
construction. Hence, with instruments of
spatial planning we can ensure that new spatial

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
31
usmerjene zunaj ogroženih obmo čij. Za
zmanjšanje tveganja je med drugim treba
dopolniti predpise s podro čja na črtovanja in
urejanja prostora.
Program predvideva tudi zvišanje stopnje
premoženjske zavarovanosti fizi čnih in
pravnih oseb, kar bi dejansko pomenilo
znižanje vrednosti ogroženca, seveda ne v
materialnem smislu, ampak znotraj
posameznikove zaznave tveganja. To bi
okrepilo vlogo zavarovalnic pri izvajanju
preventivnih oblik varstva pred naravnimi in
drugimi nesre čami, v povezavi s tem pa bi se
postopno zmanjševala finan čna pomo č države
pri odpravljanju posledic naravnih nesre č.
4.4 ZAKON O VODAH (2002)
“Zakon o vodah” (ZV-1, 2002) dolo ča
upravljanje in posege v vode, vodna in
priobalna ter druga zemljiš ča (kamor spadajo
zemljiš ča na varstvenih in ogroženih
obmo čjih). Opredeljene so tudi omejitve in
odvzem lastninske pravice na teh zemljiš čih,
kakor tudi kazni.
Na črt upravljanja z vodami vsebuje tudi
prikaz varstvenih in ogroženih obmo čij, zakon
uvaja tudi program ukrepov, ki se nanašajo na
varstvo pred škodljivim delovanjem voda, za
kar skrbita država in lokalne skupnosti.
Zakon predvideva izdelavo vodnega
katastra, ki ga sestavljajo popis voda in popis
vodnih objektov ter naprav. V popis voda se
vnašajo podatki o površinskih in podzemnih
vodah, vodnih in priobalnih zemljiš čih,
vodnem in morskem dobru, varstvenih in
ogroženih obmo čjih po tem zakonu in
zavarovanih obmo čjih po drugih zakonih.
Znotraj poglavja urejanje voda je
natan čneje opredeljeno varstvo pred
škodljivim delovanjem voda (82. člen), ki
obsega izvajanje ukrepov, s katerimi se
zmanjšuje ali prepre čuje ogroženost pred
škodljivim delovanjem voda in odpravlja
posledice njihovega škodljivega delovanja.
Varstvo pred škodljivim delovanjem voda se
nanaša na varstvo pred poplavami, površinsko,
globinsko in bo čno erozijo celinskih voda,
erozijo morja, zemeljskimi in hribinskimi
plazovi, delovanjem snežnih plazov ter ledom
na celinskih vodah.
activities are directed outside of endangered
areas. Among other things, for the reduction of
risk it is necessary to amend the regulations in
the field of spatial planning.
The programme also anticipates the raise of
property insurance level of physical and legal
entities which would actually bring about the
lowering of value of the endangered element,
not in a material sense, of course, but within
individual’s risk perception. This would
strengthen the role of insurance companies at
execution of preventive protection against
natural and other disasters, and thus the
financial help from the state when eliminating
the consequences of natural disasters would
gradually reduce.
4.4 WATERS ACT (2002)
“Waters Act” (ZV-1, 2002) provides for the
management and encroachments on waters,
water and coastal land and other land
(including the land in protected and
endangered areas). Restraints are defined as
well as expropriation of land and penalties.
The water management plan also contains a
display of protected and endangered areas, and
the act also introduces a programme of
measures that refer to the protection from
adverse effects of water, which is the domain
of the state and local communities.
The law foresees the making of a water
register that is made of inventory of water and
inventory of water facilities and devices. In the
inventory of water the data about surface and
ground water are entered as well as water and
coastal land, water and sea goods, protected
and endangered areas under this law and
safeguarded areas according to other laws.
In the water management chapter there is a
more exact definition of protection against
adverse effects of water (Article 82), which
includes the execution of measures for
reduction or prevention of endangerment
against adverse effects of water and eliminates
the consequences of these effects. The
protection against adverse effects of water
refers to the protection against floods, surface,
deep and lateral erosion of continental waters,
erosion of the sea, soil and rock landslides,
avalanche activity, and ice cover in continental
waters.

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
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Ogrožena obmo čja dolo ča 83. člen: “Zaradi
zagotavljanja varstva pred škodljivim
delovanjem voda se dolo či obmo čje, ki je
ogroženo zaradi poplav (poplavno obmo čje),
erozije celinskih voda in morja (erozijsko
obmo čje), zemeljskih ali hribinskih plazov
(plazljivo obmo čje) in snežnih plazov
(plazovito obmo čje).” Ta obmo čja skupaj
tvorijo ogroženo obmo čje, ki ga dolo či vlada,
ob upoštevanju naravnih možnosti, da pride do
škodljivega delovanja voda, števila
potencialno ogroženih prebivalcev in velikosti
možne škode na objektih, zemljiš čih in
premoženju. Zaradi varstva pred škodljivim
delovanjem voda se zemljiš če na ogroženem
obmo čju lahko razvrsti v razrede glede na
stopnjo ogroženosti, upoštevaje metodologijo
za dolo čanje ogroženih obmo čij in na čin
razvrš čanja zemljiš č v razrede ogroženosti, ki
jo predpiše minister.
Pogoje in omejitve za izvajanje dejavnosti
ali poseganje v prostor na ogroženem obmo čju
predpiše vlada, podrobneje pa se dolo čijo v
vodnem soglasju (85. člen).
4.5 RESOLUCIJA O NACIONALNEM
PROGRAMU VARSTVA OKOLJA
(2004)
Vlada RS je 7. oktobra 2004 sprejela
“Resolucijo o Nacionalnem programu varstva
okolja“ (ReNPVO, 2004) in jo posredovala v
obravnavo Državnemu zboru RS. Nacionalni
program je osnovni strateški dokument na
podro čju varstva okolja, katerega cilj je
splošno izboljšanje okolja in kakovosti
življenja ter varstvo naravnih virov. Cilji in
ukrepi so opredeljeni v okviru štirih podro čij.
Cilj programa zmanjševanja škodljivega
delovanja voda je zmanjšanje ogroženosti pred
poplavami in plazovi, predvideva pa
identifikacijo ogroženih obmo čij z izdelavo
kart nevarnosti in ogroženosti, pripravo
programa ukrepov, za četek izvajanja
gradbenih ukrepov v okviru programa Sklada
za vode in vzpostavitev drugih instrumentov
za zmanjšanje ogroženosti (raba prostora,
gradbeni standardi, zavarovalništvo).
The endangered areas are defined by Article
82: “To ensure the protection from adverse
effects of water, areas shall be determined
which are at risk of floods (flood area), erosion
of continental and marine waters (erosion
area), soil or rock landslides (slide area) and
avalanches (avalanche area).” Endangered
areas consists of all the areas mentioned and
shall be determined by the government bearing
in mind the natural capacities that might lead
to adverse effects of water, the number of
potentially endangered inhabitants, and the
extent of possible damage to facilities, lands
and property. The land on an endangered area
can be classified into categories with regard to
the level of endangerment, taking into
consideration the methodology for endangered
area determination and mode of classification
of land into endangerment categories, which is
ordained by the responsible minister.
The conditions and restraints for execution
of activities or encroachments on space in
endangered areas are ordained by the
government, more and in more detail
determined in the water consent (Article 85).
4.5 NATIONAL ENVIRONMENTAL
ACTION PROGRAMME RESOLUTION
(2004)
The Government of the RS has adopted the
“Resolution on National Environmental Action
Programme“ (ReNPVO, 2004) on October 7,
2004, which was forwarded to the National
Assembly of the RS. The national programme
is the basic strategic document in the field of
environment protection with an objective of
general improvement of the environment and
quality of life, and protection of natural
resources. Objectives and measures are
defined in the frame of four fields.
The objective of the programme of
reduction of adverse effects of water is to
reduce the endangerment against floods and
landslides, and it foresees the identification of
endangered areas with the making of hazard
and danger maps, preparation of a programme
of measures, start of construction measures in
the frame of the Water Fund programme, and
establishment of other instruments for
endangerment reduction (land use, civil
engineering standards, insurancy).

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
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5. ZAKLJU ČKI
Preventivno obvladovanje tveganja zaradi
naravnih nevarnosti predstavlja odlo čilen
preskok na podro čju človekovega odnosa do
naravnih nevarnosti. Vedno znova potrjeno
dejstvo, da narave ni mogo če zadovoljivo
“regulirati”, je pripeljalo do novega koncepta
ravnanja s konfliktnimi obmo čji, ki nam
ponuja večjo varnost za manj stroškov, in
čeprav se v časih rezultat navidezno ne kaže
kot absolutna varnost, nam hkrati ponuja
možnost odlo čanja o želeni stopnji in vrsti
varnosti (objektivna ali subjektivna). V
sodobnem svetu je tak pristop edini mogoč, saj
mora biti posamezniku omogo čeno, da s
prevzemanjem višje stopnje tveganja hkrati
pridobi tudi ve č priložnosti.
Kljub temu pa mora na neki stopnji
nastopiti država kot korektor želja
posameznika, ki v časih lahko presežejo neko
splošno mejo dopustnega. Skozi proces
vrednotenja tveganja, ki je umeš čen po analizi
in pred obvladovanjem tveganja, dolo čamo to
mejo dopustnega tveganja, ki pa seveda ni
nespremenljiva, saj je še vedno odprta
možnost svobodnega odlo čanja na razli čnih
nivojih družbenega povezovanja po poti javne
predstavitve predlogov.
Na podlagi dejstva, da se države alpskega
prostora spopadajo s podobno problematiko
tveganj zaradi naravnih nevarnosti, lahko
sklepamo, da bi bilo smiselno v čim ve čji meri
upoštevati tako slabe kot dobre izkušnje iz
tujine, zlasti v zvezi z metodološkimi pristopi,
katerih problematika se zares lahko pokaže
šele pri izdelavi konkretnih kart ogroženosti
oziroma kart tveganosti. Ali bi se bilo pri nas
dobro izogniti vsem tem zapletom še pred
sprejetjem podzakonskih aktov in kako? Na
voljo imamo bogate izkušnje iz tujine, njihove
napake, ki bi jih morali koristno izrabiti, da ne
bi prihajalo do nepotrebnih zapletov tudi pri
nas. Po zgledih (npr. Crosta et al., 2001;
Borter et al., 1999) bi bilo treba izdelati
pilotsko 4-nivojsko študijo analize tveganosti
zaradi razli čnih pojavnih oblik masnega
gibanja in transporta (opozorilna karta
nevarnosti → karta nevarnosti → karta
ogroženosti → karta tveganosti) še pred
dokončnim sprejetjem podzakonskih aktov
ZV-1.
5. CONCLUSIONS
Preventive management of risk due to
natural hazards is a decisive leap in the field of
human relation to natural hazards. The ever
confirmed fact that the nature cannot be
“regulated” satisfactorily has lead to a new
concept for treatment of conflict areas, which
offers higher safety at lesser costs, and
although the results occasionally fail to
provide absolute safety, it offers the possibility
of making the decisions at the desired level
and type of safety (objective or subjective). In
the contemporary world only such an approach
is possible because the individual must be
allowed to take a higher level of risk and to
gain at the same time more opportunities.
The state as a correction mechanism of
individual’s wishes must step in at a certain
level despite all, because the individual may
surpass a certain generally permissible limit.
Through the process of risk assessment, which
takes place after risk analysis and before risk
management, this permissible limit is
determined, but not unchangeable, since there
is always a possibility of free decision making
at different levels of social connections
through a public presentation of propositions.
Based on the fact that alpine countries have
similar risk problems in terms of natural
hazards, one can conclude that it would be
reasonable to consider bad as well as good
experiences from abroad, especially in
connection to methodological approaches,
where problems could indeed emerge only
through the making of endangerment maps or
risk maps. Could it be possible to avoid all
these problems before accepting the regulation
acts and how? Rich experiences from abroad
are available and we should learn and benefit
from the mistakes made elsewhere so that we
could avoid unnecessary complications.
Following the examples (Crosta et al., 2001;
Borter et al., 1999), a pilot 4-level study of risk
analysis due to different types of mass
movement and transport (warning hazard map
→ hazard map → danger map → risk map)
should be made before the final acceptance of
regulation acts of the Waters Act ZV-1.

Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
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34
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Đurovi ć, B., Mikoš, M.: Preventivno obvladovanje tveganj zaradi naravnih nevarnosti – postopki v alpskih državah in
Sloveniji – Preventive management of risks due to natural hazards – Procedures in the Alpine Countries and in Slovenia
© Acta hydrotechnica 22/36 (2004), 17–35, Ljubljana
35
Naslov avtorjev – Authors’ Addresses
Blažo Đurovi ć
Inštitut za vode Republike Slovenije – Institute for Water of the Republic of Slovenia
Hajdrihova ul. 28c, SI-1000 Ljubljana
E-mail: blazo.djurovic@izvrs.si
izr. prof. dr. Matjaž Mikoš
Univerza v Ljubljani – University of Ljubljana
Fakulteta za gradbeništvo in geodezijo – Faculty of Civil and Geodetic Engineering
Oddelek za gradbeništvo – Department of Civil Engineering
Jamova c. 2, SI-1000 Ljubljana
E-mail: mmikos@fgg.uni-lj.si