Measures of Shanghai Municipality for the Administration of Seawalls

(Promulgated by Decree No. 21 of Shanghai Municipal People's Government on February 17, 2025 and implemented as of May 1, 2025)

Article 1 (Purposes and Basis)

With a view to strengthening seawall management and ensuring flood control safety, these Measures are formulated in accordance with Water Law of the People's Republic of China, Law of the People's Republic of China on Flood Control, Regulation of the People's Republic of China on Flood Control, Regulation of Shanghai Municipality on Flood Control and other laws and rules, and in the light of the actual circumstances of this Municipality.

Article 2 (Application Scope)

These Measures shall apply to the construction, repair, maintenance, and related management activities of seawalls within the administrative area of this Municipality.

For the purposes of these Measures, the term "seawalls" refers to dikes, dike structures, and beach protection works constructed along the Yangtze River Estuary, the East China Sea, Hangzhou Bay, and the perimeters of islands.

Article 3 (Management Department)

The municipal water affairs department shall serve as the administrative department in charge of the seawalls of this Municipality; the district water affairs departments are responsible for the management of the seawalls within their respective administrative regions.

The finance, planning and natural resources, transport, landscaping and city appearance, urban management and law enforcement departments and other relevant departments shall, in accordance with their respective functions, jointly implement these Measures.

Article 4 (Protection Zone and Management Scope)

For dikes with an accompanying dike river, the protection zone of dike shall comprise the dike body, a 20-meter-wide beach area outside the outer slope foot of the dike, and the land for dike protection extending from the inner slope foot to the edge of the accompanying dike river. For dikes without an accompanying dike river, the protection zone of dike shall comprise the dike body, a 20-meter-wide beach area beyond the outer slope foot of the dike, and a 20-meter-wide land for dike protection outside the inner slope foot of the of the dike. The scope of dike structures and beach protection works shall be determined based on the approved design documents.

The protection zones of dikes and the scopes of dike structures and beach protection works specified in the preceding paragraph shall hereinafter be collectively referred to as the seawall protection zones.

Where the seawall protection zone can not be determined in accordance with the provisions of the first paragraph of this Article, the municipal and district water affairs departments shall, in conjunction with the planning and natural resources departments at the same level, formulate a plan for the seawall protection zone. This plan shall be submitted to the people's government at the same level for approval before implementation.

The management scope of seawalls shall be consistent with their protection zone.

Article 5 (Seawall Planning)

When the municipal water affairs department formulates the municipal flood control plan in conjunction with relevant departments, the content of seawall planning shall be included.

Article 6 (Construction, Repair, and Maintenance Plans)

In accordance with the responsibilities for construction, repair, and maintenance, seawalls are classified into public shore-section seawalls and dedicated shore-section seawalls.

The annual plan for the construction of public shore section seawalls shall be organized and compiled by the municipal water affairs department. The annual plans for the maintenance and repair of public shore section seawalls shall be organized and compiled by the district water affairs departments and submitted for approval to the municipal water affairs department.

The annual plans for the construction, repair, and maintenance of dedicated shore section seawalls shall be organized and compiled by the dedicated units and filed with the district water affairs departments.

Article 7 (Responsibilities for Construction, Repair, and Maintenance)

The construction of public shore section seawalls shall be organized and implemented by the municipal water affairs department, except as otherwise provided by the Municipal People's Government. The maintenance and repair of public shore section seawalls shall be organized and implemented by the district water affairs departments on behalf of the municipal water affairs department.

The construction, repair and maintenance of seawalls in dedicated shore sections shall be undertaken by the dedicated units.

The construction of seawalls shall be undertaken by qualified units through open competitive methods, such as public bidding, in accordance with the law.

In case of special circumstances where the dedicated unit is unable to undertake the responsibilities for the construction, repair, and maintenance of the dedicated shore section seawalls, upon application by the dedicated unit, the dedicated shore section seawalls may be legally converted into public shore section seawalls to fulfill relevant responsibilities and ensure the seawalls safety.

The district water affairs departments shall be responsible for inspecting and urging the implementation of the responsibilities for the construction, repair, and maintenance of the dedicated shore section seawalls within their administrative regions and providing professional guidance.

Article 8 (Funding Allocation)

The funds for the construction, repair, and maintenance of public shore section seawalls shall be borne by the municipal finance department. The funds for the construction, repair, and maintenance of dedicated shore section seawalls shall be borne by the dedicated units.

The management personnel expenses for district public shore section seawalls shall be allocated in the district's annual budget as determined in accordance with the national and municipal standards.

Article 9 (Technical Standards and Specifications)

The construction, repair, and maintenance of seawalls in this Municipality shall be carried out in accordance with the prescribed technical standards and specifications.

The technical standards for seawall construction and the technical specifications for maintenance and repair shall be formulated by the municipal water affairs departments in accordance with relevant national and municipal provisions.

Article 10 (Real Estate Registration)

Real estate registration procedures involving seawalls shall be applied for with the real estate registration authority in accordance with relevant national and municipal provisions.

Article 11 (Utilization of Public Shore Section Seawalls)

Where it is necessary to utilize public shore section seawalls, the district water affairs authority shall draft a management plan for utilization and submit it to the municipal water affairs authority for approval.

To utilize public shore section seawalls, relevant procedures shall be handled in accordance with the regulations on the management of administrative and institutional state-owned assets, an agreement shall be signed, and the maintenance and repair responsibilities of the utilizing unit for the seawalls shall be clarified.

The municipal and district water affairs departments shall strengthen supervision and inspection of the utilization of public shore section seawalls.

Article 12 (Classification of Seawalls)

Seawalls are classified into primary seawalls, front-line seawalls, and standby seawalls based on their defensive functions, and shall be subject to classified management in compliance with prescribed requirements and technical standards.

Article 13 (Classified Management)

Front-line seawalls that meet specified flood control safety standards and withstand three consecutive years of flood control tests may be converted to primary seawalls upon assessment by the municipal water affairs department.

When a front-line seawall is converted to a primary seawall, the original primary seawall shall be converted to a standby seawall.

Where a front-line seawall in a dedicated shore section is converted to a primary seawall, the dedicated unit shall submit relevant technical documents regarding seawall design and construction to the district water affairs department where the seawall is located.

Article 14 (Abolition of Seawalls)

Primary seawalls and front-line seawalls shall not be abolished.

A standby seawall that has lost its flood - control function and indeed needs to be abolished shall be approved in accordance with the law based on the defensive capacity of the primary seawall and the local flood-control situation before abolition.

Article 15 (Prohibited Acts)

The following acts are prohibited within the seawall protection zone:

1. blasting, well-drilling, quarrying, or soil extraction;

2. slope cutting or lowering the crest of the dike;

3. damaging wave-break crops; 

4. or other acts that endanger the safety of seawalls as prescribed by laws and rules.

Damage to ancillary facilities of seawalls, including survey markers, mileage posts, and boundary markers, is prohibited.

Article 16 (Requirements for Engaging in Relevant Activities)

The following activities within seawall protection zone shall require approval from district water affairs department; for activities under item 1 involving dike breaching, gap opening, or drilling construction on primary or front-line seawalls, approval shall be obtained from the municipal water affairs department:

1. drilling, constructing buildings or structures;

2. cultivation activities; 

3. and operation of iron-wheeled vehicles, tracked vehicles, or overweight vehicles on the dikes.

Article 17 (Construction Requirements and Completion Acceptance)

Construction units conducting approved drilling operations or constructing buildings or structures within seawall protection zone shall conduct construction within the prescribed scope and time limit.

Upon project completion, completion acceptance inspection shall be conducted in accordance with relevant national and municipal provisions.

Article 18 (Use of Dike Crest Roads)

Where it is necessary to use the crest of a public shore section seawall as a dedicated or main transport road, approval from the district water affairs department where the seawall is located shall be obtained, and the responsibility for the maintenance and repair of the dike crest road shall be assumed from the date of approval.

When flood control alerts are issued in this Municipality, the municipal and district water affairs departments shall, in accordance with provisions, promptly implement measures such as installing warning signs or issuing traffic bans to ensure the safety of dike crest roads. Emergency flood response vehicles shall be exempt from such restrictions.

Article 19 (Flood Damage Restoration)

Where seawalls are damaged due to natural disasters such as storm surges exceeding their defense standards, the district water affairs departments shall apply to the municipal water affairs department for funds for the seawall restoration based on actual damage assessments. After the municipal water affairs department reviews the application, it shall submit it to the municipal finance department for disbursement.

Article 20 (Seawall Afforestation)

The municipal and district water affairs departments shall organize the planting of trees for seawall protection in areas suitable for trees-planting within seawalls.

Article 21 (Scenic and Ecological Seawall Development)

On the premise of complying with the safety requirements of seawalls for flood control, districts and dedicated units are encouraged to increase financial investment in carrying out the construction of scenic and ecological seawalls adapting to local conditions. This includes integrating facilities such as cultural exhibition spaces, slow-traffic lanes, fitness trails, and sightseeing and recreational amenities to create picturesque corridors along the seawalls

Article 22 (Safety Monitoring)

The municipal and district water affairs departments and dedicated units shall conduct safety monitoring of seawalls in accordance with provisions to understand the operational status and the trends in river regime.

Safety monitoring of seawalls includes dike settlement and displacement, seepage stability, and river regime changes.

Article 23 (Safety Evaluation)

The municipal and district water affairs departments and dedicated units shall regularly conduct safety evaluations of seawalls in accordance with provisions. If any potential issues that may affect the flood control safety of the seawalls are identified, a safety evaluation shall be promptly conducted. If the results indicate that the seawalls do not meet the operational safety requirements, reconstruction, rebuilding, or other remedial measures shall be taken within the specified time limit in accordance with the requirements of the evaluation report.

The technical specifications and management requirements for safety evaluation of seawalls shall be separately formulated by the municipal water affairs department.

Article 24 (Safety Patrol and Inspection)

A safety patrol and inspection system for seawalls shall be established in the municipal and district water affairs departments and dedicated units shall conduct regular patrols, periodic inspections, and special inspections in accordance with provisions. If potential safety hazards are identified, they shall be promptly rectified or appropriate remedial measures shall be taken. In case of an emergency, immediate emergency rescue operations shall be organized and implemented, and the situation shall be reported to the flood control command authority.

Article 25 (Supervision and Inspection)

The municipal water affairs departments shall regularly organize and conduct supervision and inspection of the flood control safety of seawalls within this Municipality.

The district water affairs departments shall strengthen the supervision and inspection of the daily flood control safety of seawalls within their administrative regions.

No unit or individual shall hinder or obstruct the flood control safety supervision and inspection carried out by the municipal or district water affairs departments.

Article 26 (Digital Governance)

This Municipality shall advance the digital transformation of seawall management through the "Government Online-Offline Shanghai" and "Integrated Governance Platform" to optimize processing procedures. Technical means are used to enhance information sharing, monitoring and early warning, and emergency response to achieve collaborative and closed-loop management.

Article 27 (Guiding Provision)

Where violations of these Measures are already subject to provisions under laws or rules, such provisions shall prevail.

Article 28 (Penalties for Damaging Ancillary Facilities)

In violation of the Item 2 of Article 15 of these Measures, any person who damages ancillary facilities of seawalls, such as surveying markers, mileage posts, boundary stakes shall be ordered by the district water affairs departments to undertake corrective actions. A fine of not less than 200 yuan but not more than 1,000 yuan may be imposed; where the circumstances are serious, a fine of not less than 1,000 yuan but not more than 10,000 yuan may be levied.

Article 29 (Administrative Liability)

Where municipal or district water affairs departments or their staff members commit acts of abuse of authority, dereliction of duty, or malpractice for personal gain, the directly responsible supervisors and other liable personnel shall be subject to sanctions in accordance with the law.

Article 30 (Definition of Terms)

The term dike structures as used in these Measures refers to sluices and culverts built along the dikes.

The term beach protection works as used in these Measures refers to spur dikes, longitudinal dikes, bend-ended spur dikes and revetments built along the dikes.

Article 31 (Effective Date)

These Measures shall be effective as of May 1, 2025. The Measures of Shanghai Municipality for the Administration of Seawalls promulgated by Decree No. 63 of Shanghai Municipal People's Government on December 10, 1998, and amended and re-promulgated by Decree No. 52 of Shanghai Municipal People's Government on December 20, 2010 shall be repealed simultaneously.