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How To Make Cities More Resilient
A Handbook For Local Government LeadersA contribution to the global campaign 2010-2015
Making Cities Resilient - My City is Getting Ready!
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How To Make Cities More ResilientA Handbook For Local Government Leaders
A contribution to the Global Campaign 2010-2015
Making Cities Resilient - My City is Getting Ready!
Geneva, March 2012
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AcknowledgementsUNISDR would like to acknowledge and thank everyone who has participated in the development o this
Handbook: an extensive number o city representatives, experts and members o the Advisory Panel
o the Making Cities Resilient Campaign, not all o whom are mentioned by name. The scope, orm
and examples contained in the Handbook were collected through interviews with mayors and localgovernment representatives at the Global Platorm or Disaster Reduction (Geneva, May 2011); at a
validation workshop in the City o Chengdu, China (August 2011); with mayors, parliamentarians and
experts at a stock taking workshop on cities use o the Local Government Sel-Assessment Tool in the
City o Incheon (October 2011); and at a workshop in Geneva (October 2011). Subsequent editions
o this Handbook will take into account eedback by users. Examples and tools will be updated on the
Handbook website: www.unisdr.org/campaign.
Project Coordinator and Executive Editor: Helena Molin Valds, UNISDR
Production: Michele Cocchiglia, UNISDR
Co-authors: Helena Molin Valds, Aloysius Rego (Consultant), John Scott (Consultant), Jaime Valds
Aguayo (Collaborator), Patricia Bittner (Editor)
Design: Ramon Valle
Contributors and Reviewers (who provided written input):Cities: Violeta Seva (Makati City), Yelgi Verley (Mayor o Siquirres, Costa Rica), Paola Trevisan (CORILA,
Venice), Nada Yamout (City Council Beirut, Lebanon).
Partners: Fouad Bendimerad, Jose Mari O. Daclan, and Jerome B. Zayas (EMI); Marcus Lee, Dan
Hoornweg, Daniel Kull and Zuzana Svetlosakova (World Bank and GFDRR); Alice Balbo and Steve
Gawler (ICLEI); Mohamed Boussraoui (UCLG); Bernadia Irawati Tjandradewi (CityNet); Dan Lewis
and Ana Moreno (UNHABITAT); Rajib Shaw (Kyoto University - Asia Urban Risk Reduction Task Force);
Janet Edwards (Swedish National Platorm); Piyush Ranjan Rout (LG-NET, India); Dilanthi Amaratunga
(Salord University, UK), Marcus Moench and Stephen Tyler (ISET); Hachim Badji (CADRI-UNDP); Boris
Zerjav (RICS Disaster Management Commission).
Individual Capacity: Murat Balamir (Turkey), Garry de la Pommerai (UK).
UNISDR Private Sector Group: Mark Armstrong (Field Secure); Nicerine Bres, Caroline Woolley (Marsh);
Jesus Gary S.Domingo (Permanent Mission o the Philippines to the United Nations); Peter Gruetter
(Cisco Systems, Inc.); Aris Papadopoulos (Titan America); Dale Sands (AECOM); Rgis Thepot (EPTBSeine Grands Lacs); Peter Williams (IBM); Sandra Wu (Kokusai Kogyo Holdings).
UNISDR: Sandra Amlang, Sanjaya Bhatia (International Recovery Platorm), Michele Cocchiglia,
Bina Desai, Glenn Dolcemascolo, Craig Duncan, Justin Ginnetti, Vincent Fung, Sarah Landelle, Yuki
Matsuoka, Denis McClean ,Hang Thi Thanh Pham, Dizery Salim, Julio Serje.
INTERNS: UNISDR is grateul to the interns that have helped on the Campaign and with research during
2011: Javier Quero, Jerey Makala Ngaka, Shashank Mishra, Rajinder Sagoo, Francesca Salvi.
Funding has been provided by the World Bank Global Facility or Disaster Risk Reduction (GFDRR-
Track I), the City o Incheon and the Republic o Korea, and the other donors to the UNISDR, including:
Sweden; the European Commission; Australia; Norway; Netherlands; Japan; Switzerland; Denmark;
Germany; Finland; Spain; the United Kingdom; Luxembourg; Brazil; China; the United States; Argentina;
Mexico; Hungary; Cyprus; and the Philippines (ranked in order o the size o their contribution to the
UNISDR Trust Fund).
See more about the key partners in the Making Cities Resilient campaign on page 71: UNISDR, GFDRR,
ICLEI, UCLG, CityNet, EMI, UNHABITAT
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Table o ContentsForeword 6
Introduction and Purpose o this Handbook 7
Why are Cities at Risk? 9
What is a Disaster Resilient City? 11
A Global Agenda and Campaign to Build Resilient Nations and Communities 14
Chapter 1. Why Invest in Disaster Risk Reduction? 15
Benets o Investing in Disaster Risk Reduction and Resilience 16
Investing in Resilience is an Opportunity 19
Policy Directions 20
An Opportunity to Strengthen Participation 21
Chapter 2. What are the Ten Essentials or Making Cities Disaster Resilient? 25
Essential 1: Institutional and Administrative Framework 25 Essential 2: Financing and Resources 31
Essential 3: Multi-hazard Risk Assessment- Know your Risk 34
Essential 4: Inrastructure Protection, Upgrading and Resilience 37
Essential 5: Protect Vital Facilities: Education and Health 40
Essential 6: Building Regulations and Land Use Planning 42
Essential 7: Training, Education and Public Awareness 46
Essential 8: Environmental Protection and Strengthening o Ecosystems 49
Essential 9: Eective Preparedness, Early Warning and Response 52
Essential 10: Recovery and Rebuilding Communities 55
Chapter 3. How to Implement the Ten Essentials or Making Cities Resilient 59 Milestones and Strategic Planning 60
Phase One: Organizing and Preparing to Incorporate the Ten Essentials 62
Phase Two: Diagnosis and Assessment o the Citys Risk 63
Phase Three: Developing a Sae and Resilient City Action Plan 64
Phase Four: Implementing the Plan 64
Phase Five: Monitoring and Follow Up 65
How to Finance Disaster Risk Reduction 66
Partners in the Global Campaign: Making Cities Resilient - My City is Getting Ready 71Acronyms 76
AnnexesAnnex 1 Local Government Sel-Assessment Tool or Disaster Resilience 79
Annex 2 Disaster Risk Reduction Terminology 86
Annex 3 Trends o Exposure to Disaster Risk and Reerences 87
Annex 4 Tools, Resources and Websites 90
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With its city built on ault lines, the population o Istanbul
has suered greatly rom a lack o proper planning, leaving it
at risk. Two questions to consider: How to rehabilitate existing
settlement areas and how to plan new settlements in light o
the dangers. All countries must collaborate, with governments
devising the approach and displaying the will to get the job done,
aided by non-governmental organisations and the public, who
should be aware o the dangers o specic buildings potential or
collapse. The private sector must also contribute. A clear road mapmust enable cities to take concrete steps and cooperate with each
other because they all ace similar dangers. There is no time to lose
because the loss o more lives and property is imminent. According
to Istanbuls experience, urban settlements must be transormed and
community members must be included in the project. Its not just
top-down; its also bottom-up.
Mr. Kadir Tobpas, Mayor of Istanbul, President of the United Cities
and Local Governments (UCLG)
From his intervention at the United Nations General Assembly Thematic
Debate on Disaster Risk Reduction, February 2011
Photo page 7 from left to right: Margareta Wahlstrm, SRSG UNISDR, and David Cadman, President of ICLEI
with Marcelo Ebrard, Mayor of Mexico City and President of World Mayors Council on Climate Change; Jrgen
Nimptsch, Mayor of Bonn, Germany; Cheikh Mamadou Abiboulaye Dieye, Mayor of Saint Louis, Senegal;
Enrique Gomez, Mayor of Larreynaga-Malpaisillo, Nicaragua; Aake Pettersson Frykberg, Vice Mayor of
Karlstad, Sweden; Joey Sarte Salceda, Provincial Governor of Albay, the Philippines. The rst Mayors signingup to the Making Cities Resilient Campaign, in Bonn, Germany, May 2010.
Photo: UCLG
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ForewordWith over hal the worlds population now living in urban areas, making cities saer is a long-term challengethat can be achieved. Cities are engines o national growth and dynamic in their governance systems andcapacities. Throughout history, disaster events have disrupted urban lie. An extreme and changing climate,earthquakes, and emergencies triggered by man-made hazards are increasingly putting pressure on peopleand threatening the prosperity o cities.
This Handbook or Local Government Leaders provides mayors, governors, councillors and others with ageneric ramework or risk reduction and points to good practices and tools that are already being applied indierent cities or that purpose. It responds to the ollowing key questions: WHY building disaster resilience isbenecial; WHAT kind o strategies and actions are required; and HOW to go about the task. Because cities,towns and municipalities dier in size, social, economic and cultural proles and exposure to risk, each one
will approach the tasks dierently.
The message is: resilience and disaster risk reduction must be part o urban design and strategies to achievesustainable development. They require strong alliances and broad participation. Applying the guidingprinciples o the Making Cities Resilient Campaign and the inormation in this Handbook will help cities andlocal governments to share learning, access inormation, develop indicators and perormance measures andtrack progress.
We take this opportunity to thank everyone who is currently engaged in the resilient cities movement andwe encourage and welcome many more to join us! An acknowledgement o all who have participated in the
development o this Handbook, by providing content, experiences and unding, can be ound prior to the Annexes.
UNISDR seeks your eedback on the Handbooks content, examples and ormat to improve uture editions.
David Cadman
Vice Mayor of Vancouver and President of ICLEI;
host of the launch of the Making Cities Resilient
Campaign in May 2010
Margareta Wahlstrom
Special Representative of the Secretary-General
for Disaster Risk Reduction,
United Nations UNISDR
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7 Making Cities Resilient - My City is Getting Ready!
Introduction
Purpose o this Handbook
This Handbook is designed primarily or local government leaders and policymakers to support public policy, decision making and organization as theyimplement disaster risk reduction and resilience activities. It oers practicalguidance to understand and take action on the Ten Essentials or MakingCities Resilient, as set out in the global campaign Making Cities Resilient:My City is Getting Ready!
The Handbook is built on a oundation o knowledge and expertise o Campaignpartners, participating cities and local governments. It responds to the call orbetter access to inormation, knowledge, capacities and tools to eectivelydeal with disaster risk and extreme climate events. It provides an overview okey strategies and actions needed to build resilience to disasters, as part o anoverall strategy to achieve sustainable development, without going into greatdetail. Each city and local government will determine how these actions applyto their own context and capacities. There is no one-size-ts-all solution.
The annexes to this Handbook contain more detailed inormation, includinglinks to electronic tools, resources and examples rom partner cities. A web-based inormation platorm, where cities and local governments can share
their own tools, plans, regulations and practices, complements the Handbookand will be available through the Campaign website at www.unisdr.org/campaign.
Throughout the Handbook we reer to cities and local governments.The approach to resilience, as described, also applies to sub-nationaladministrations o dierent sizes and levels, including at regional, provincial,
metropolitan, city, municipal, township, and village level.
Disaster risk reduction
is an investment, not a
cost. It increases business
returns. Albay has seen a
surge in investments, evenater typhoons and volcanic
eruptions. Climate change
adaptation and risk reduction
allow development to proceed
amid disasters, since they
dont disrupt peoples lives
when the local government
takes charge o the disaster.
Joey Salceda, Governor of the
Province of Albay, Philippines
First Champion, Making Cities
Resilient Campaign
Photo:UNISDR
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8
ContextMayors, local government ocials and decision makers requently must deal with the impact o small- and medium-scale disastersand less requently with large-scale eventsthat arise rom natural or man-made hazards. Climatechange and extreme weather events are likely to increase the citys exposure to hazards and risk. Less obvious is theact that regular development practices may also generate complex environmental change and contribute to increased
risk, i they are not taken into account and acted upon.
In disasters, local governments are the rst line o response, sometimes with wide-ranging responsibilities butinsucient capacities to deal with them. They are equally on the ront line when it comes to anticipating, managingand reducing disaster risk, setting up or acting on early warning systems and establishing specic disaster/crisismanagement structures. In many cases, a review o mandates, responsibilities and resource allocations is needed toincrease the capacity o local governments to respond to these challenges.
To understand that disasters are not natural, it is important to consider the elements o risk. Risk is a unction othe hazard (a cyclone, an earthquake, a food, or a re, or example), the exposure o people and assets to thehazard, and the conditions o vulnerability o the exposed population or assets. These actors are not static and can
be improved, depending on the institutional and individual capacity to cope and/or act to reduce risk. Societal andenvironmental development patterns can increase exposure and vulnerability and thereore increase risk.
Hazard x Vulnerability x Exposure
Resilience or coping capacities
The City of Kobe, Japan, with 1.5 million inhabitants, suffered great losses during the Great Hanshin-Awaji Earthquake in January 1985 (7.2Richter scale), disrupting the activities of one of the busiest ports in the region. The recovery focused on creating a safer city, where complex
infrastructure and service systems are balanced with human interaction, education and community cooperation.
= Disaster Risk
Photo: UNISDR
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9 Making Cities Resilient - My City is Getting Ready!
Why are Cities at Risk?Drivers o Risk in the City Environment
Cities and urban areas represent dense and complex systems o interconnected services. As such, they ace a growingnumber o issues that drive disaster risk. Strategies and policies can be developed to address each o these issues, aspart o an overall vision to make cities o all sizes and proles more resilient and livable.
Among the most signicant risk drivers are: Growing urban populations and increased density, which put pressure on land and services, increasing
settlements in coastal lowlands, along unstable slopes and in hazard-prone areas.
Concentration o resources and capacities at national level, with a lack o scal and human resources and
capacities in local government, including unclear mandates or disaster risk reduction and response.
Weak local governance and insucient participation by local stakeholders in planning and urban management.
Inadequate water resource management, drainage systems and solid waste management, causing healthemergencies, foods and landslides.
The decline o ecosystems, due to human activities such as road construction, pollution, wetland reclamationand unsustainable resource extraction, that threatens the ability to provide essential services such as foodregulation and protection.
Decaying inrastructure and unsae building stocks, which may lead to collapsed structures.
Uncoordinated emergency services, which decreases the capacity or swit response and preparedness. Adverse eects o climate change that will likely increase or decrease extreme temperatures and precipitation,
depending on localized conditions, with an impact on the requency, intensity and location o foods and otherclimate-related disasters.
Globally,the recorded number o hazard events that adversely aect human populations is on the rise (see trends inFigure 1). Each local and urban context is aected dierently, depending on the prevailing hazards in each locationand the exposure and vulnerabilities as stated above (see more in Chapter 2, Essential 3).
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10
Figure 1 shows recorded disaster events worldwide and indicates an increasing trend as well as number o actualoccurrences. The gure indicates that the number o recorded seismic events (deadliest in terms o loss o lie) isrelatively constant, but points to an increase in the reported number o storms and foods. In many parts o the world,the risks associated with weather-related hazards are on the rise (the risk o economic losses is also on the rise,although ewer deaths have been recorded). The number and intensity o foods, droughts, landslides, and heat wavescan have a major impact on urban systems and resilience strategies. Depending on the location, climate changeis likely to increase the requency o precipitation in many regions. This will imply changes in food patterns andcontribute to upward trends in extreme sea levels in coastal high water levels.
These extremes need to be actored into uture land-use plans and other measures, according to the IPCC SpecialReport on Managing the Risks o Extreme Events and Disasters to Advance Climate Change Adaptation.The increasein impact will remain largely dependent on human activity in terms o exposure and vulnerability (see Annex 3).
Figure 1: Number of recorded disasters.Source: EMDAT-CRED, Brussels
Jakarta: One main reason leading to urban floods during
heavy rains is insufcient or clogged drains.
Photo:UNISDR
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11 Making Cities Resilient - My City is Getting Ready!
What is a Disaster Resilient City?
A disaster resilient city:
Is one where disasters are minimised because the populationlives in homes and neighbourhoods with organized servicesand inrastructure that adhere to sensible building codes;
without inormal settlements built on food plains or steepslopes because no other land is available.
Has an inclusive, competent and accountable localgovernment that is concerned about sustainable urbanizationand that commits the necessary resources to develop
capacities to manage and organize itsel beore, during andater a natural hazard event.
Is one where the local authorities and the populationunderstand their risks and develop a shared, localinormation base on disaster losses, hazards and risks,including who is exposed and who is vulnerable.
Is one where people are empowered to participate, decideand plan their city together with local authorities and valuelocal and indigenous knowledge, capacities and resources.
Has taken steps to anticipate and mitigate the impact odisasters, incorporating monitoring and early warningtechnologies to protect inrastruture, community assets andindividuals, including their homes and possessions, culturalheritage, environmental and economic capital, and is ableto minimize physical and social losses arising rom extreme
weather events, earthquakes or other natural or human-induced hazards.
Is able to respond, implement immediate recovery strategiesand quickly restore basic services to resume social,
institutional and economic activity ater such an event.Understands that most o the above is also central to building
resilience to adverse environmental changes, includingclimate change, in addition to reducing greenhouse gas
emissions.
Photo:UNISDR
Read more:
www.unisdr.org/hfa
San Fransico, Cebu, the Philippines, bringing the Hyogo
Framework to local level planning, Puroks
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12
A Global Agenda and Campaign to
Build Resilient Nations and CommunitiesThe Hyogo Framework or ActionThe Hyogo Framework for Action 2005-2015: Building the resilience of nations and communities to disasters
(HFA), was endorsed by the member states o the United Nations in 2005, and has since guided national policyand international organisations in their eorts to substantially reduce losses stemming rom natural hazards. ThisFramework is comprehensive and addresses the roles o states, regional and international organisations, calling oncivil society, academia, volunteer organisations and the private sector to join eorts. It promotes the decentralizationo authority and resources to promote local-level disaster risk reduction.
The expected outcome o the Hyogo Framework is to substantively reduce disaster losses in terms o lives and thesocial, economic and environmental assets o communities and countries. The ve HFA priorities or action are:
1. Build institutional capacity: Ensure that disaster risk reduction is a national and local priority with
a strong institutional basis or implementation.
2. Know your risks: Identiy, assess and monitor disaster risks and enhance early warning.
3. Build understanding and awareness: Use knowledge, innovation and education to build a cultureo saety and resilience at all levels.
4. Reduce risk: Reduce the underlying risk actors through land-use planning, environmental,social and economic measures.
5. Be prepared and ready to act: Strengthen disaster preparedness or eective response at all levels.
Read more: www.unisdr.org/hfa
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13 Making Cities Resilient - My City is Getting Ready!
NOTES
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14
1
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16CHAPTER 1
Why Invest in Disaster Risk Reduction?
Benets o Investing in Disaster Risk
Reduction and ResilienceThere are many reasons or a mayor and the city council to prioritize resilience as part o their political and sustainabledevelopment agenda. For local government leaders, reducing disaster risk can be a legacy opportunitypaying attentionto protection will improve environmental, social and economic conditions, including combating the uture variables oclimate change, and leave the community more prosperous and secure than beore.
The gains include:
A Legacy o Leadership
Strengthened trust in and legitimacy o local political structuresand authority.
Opportunities or decentralized competencies and optimizationo resources.
Conormity to international standards and practices.
Social and Human Gains
Lives and property saved in disaster or emergency situations,
with a dramatic reduction in atalities and serious injuries.
Active citizen participation and a platorm or local development.
Protected community assets and cultural heritage, with less diversiono city resources to disaster response and recovery.
Economic Growth and Job Creation
Assurance or investors in anticipation o ewer disaster losses,leading to increased private investment in homes, buildings and otherproperties that comply with saety standards.
Increased capital investment in inrastructure, including retrotting,renovation and renewal.
Increased tax base, business opportunities, economic growthand employment as saer, better-governed cities attract more investment.
There is no such thing as
natural disasters. Natural
hazardsfoods, earth-quakes, landslides and
stormsbecome disasters
as a result o human and
societal vulnerability and
exposure, which can be ad-
dressed by decisive policies,
actions and active participa-
tion o local stakeholders.
Disaster risk reduction is a
no-regret investment that
protects lives, property, liveli-
hoods, schools, businesses
and employment.
From the Chengdu Declaration
of Action, August 2011
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17 Making Cities Resilient - My City is Getting Ready!
More Liveable Communities
Balanced ecosystems that oster services such as resh waterand recreation and that reduce pollution.
Improved education in saer schools and improved health and well-being.
Inter-connected Cities with National and InternationalExpertise and Resources
Access to an expanding network o cities and partners committedto disaster resilience through the Campaign,to share good practices,tools and expertise.
An expanded knowledge base and better-inormed citizens.
Venice: Protecting a Citys Cultural Heritage
The Mayor oVenice, Giorgio Orsoni, takes his role seriously as custodian o one o the worlds greatest cultural attractions,
and consequently the many jobs and businesses it generates. About 20 million tourists pass through the streets o Venice
each year and travel its waterways. The city sits at sea level and any change in the mean sea level leaves the city vulnerable
to foods, endangering the artistic and cultural heritage o this 1,000-year old UNESCO world heritage site. While this
may appear to be a problem o Venice alone, in many ways it is a problem related to climate change and the increase in
sea level rise overall. We were orced in some sense to develop particular care or cultural heritage protection. For this,
we were recognized by UNISDR as a role model or other cities, said Pierpaolo Campostrini, Managing Director o the
CORILA research centre in Venice, and the citys ocal point or UNISDRs Making Cities Resilient Campaign. CORILA
coordinates scientic research activities concerning the lagoon o Venice, which has long been a topic o debate betweenthe scientic and public policy communities. Mr. Campostrini says the Campaign has expanded the dialogue between these
two communities, providing a ramework or transerring research results to other cities. A mobile tidal barrier system will
be operational in 2014, the result o a number o organisations working together to achieve a sustainable and food-proo
Venice.Read more at http://www.corila.it/ENCorila.asp
Truly participatory
approaches provide anopportunity or scaling up
innovative local initiatives to
build resilience. One important
actor is the relationship
between the city government
and those within its jurisdiction
who are most at risk, with
clear and direct response to
community priorities.
Examples
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18CHAPTER 1
Why Invest in Disaster Risk Reduction?
San Francisco, Caliornia: The Resilience Wheel
On the surace, the goal o resilience is universally embraced as the ideal at the individual, organisational andcommunity level. Yet, given the diverse network o stakeholders in an organism as complex as a city, it can be dicult
to rame the opportunity o resilience in a way that allows all actors to align it to their current mission and goals. San
Francisco (Caliornia) uses the Resilience Wheel, with its eight unctional areas, to show partners, both inside and
out o government, how their organisations mission connects with those o other stakeholders who may work in
sectors perceived to be quite dierent rom theirs (i.e. agencies who work to advance nancial independence in poor
communities and emergency managers doing outreach or disaster preparedness). See more: http://resilientSF.org
Figure 2:
The Resilience Wheel
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19 Making Cities Resilient - My City is Getting Ready!
Foster interdepartmental coordination andleadership or disaster risk reduction
Build institutional capacity and allocateresources
Regulate urban and local developmentwith risk reduction principles
Protect, restore and enhance ecosystems,watersheds, unstable slopes, and coastal areas
Engage in ecosystem-based risk management
Commit to reducing contamination, improv-ing waste management and reducing GHGemissions
Guarantee access to basic services or alland provide post-disaster saety nets
Allocate sae land or all strategic activitiesand housing
Encourage multi-stakeholder participationin all stages and strengthen social alli-
ances and networking
Diversiy local economic activities andimplement poverty reduction measures
Plan or business continuity to avoiddisruption in case o disaster
Put in place incentives and penalties toincrease resilience and improve compli-
ance with saety standards
Investing in Resilience is an OpportunityThe risk o not paying attention to disaster risk reduction can lead to serious deterioration o the economy and ecosystemsand a loss o trust by the population and investors. Frequent small and medium-impact disasters and single intenseevents can severely disrupt community lielinesthe systems that provide ood distribution, water supply, health care,transportation, waste disposal, and communicationslocally and with the rest o the world. Business and privateinvestors may shy away rom cities with a perceived indierence to acting to reduce disaster risk.To overcome the perception that the disaster risk management budget competes or scarce resources with otherpriorities, risk reduction must be an integral part o local development. Holistic disaster risk management is moreattractive when it simultaneously addresses the needs o many stakeholders and competing priorities. In general, theincentives are stronger when disaster risk management visibly contributes to improved economic and social well-being.
For example: Well-designed and drained roads that do not trigger landslides or foods will permit the smooth transportation o
goods and people at all times.
Sae schools and hospitals will ensure the security o children, patients, educators and health workers.
Figure 3: Disaster risk reduction and resilience is part and parcel o sustainable development in the environmental,economic, social and political spheres. This gure shows some o the relationships laid out in this Handbook.
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20CHAPTER 1
Why Invest in Disaster Risk Reduction?
Policy Directions
Building on the benets o investing in disaster risk reduction, mayors and city councils may consider an incrementalapproach to prioritizing disaster risk reduction to support other prevention and saety agendas (such as road saety,
citizen saety, water resource management, or climate change adaptation). Prevention and risk reduction are seen as
long-term and invisible investments in time-bound political terms, although the choices are not between risk reduction
and response but rather a combination o the two.
The ollowing may help to develop policies that promote risk redution and resilience: Adopt a resolution that makes your city a Resilient City, committed to reducing disaster risk,
including the risk o climate change.
Conduct risk assessments and integrate the outcomes in disaster risk reduction plans and inurban development design and plans.
Raise awareness and use knowledge, both scientic and local, in disaster risk reduction practices;ensure that local capacities are enhanced and valued.
Actively participate in national, regional and international networks and share experiencesor making cities more resilient and join the Making Cities Resilient - My City is Getting Ready! campaign.
Quito: An Integrated Policy Approach to Saety
The population o metropolitan Quito, Ecuador is exposed to a variety o geological and hydrometeorological hazards,
yet a general lack o awareness o the potential danger has allowed the city to grow in an uncoordinated and unsae
manner. To address this reality, Quito put policies in place that take an integrated approach to security, addressing
situational risks, road saety and risks to natural and technological hazards. With regard to risk reduction, these
policies include:
Making disaster risk reduction a crosscutting issue throughout the citys planning and
development processes.
Promoting a culture o disaster prevention and preparedness or natural and manmade
disasters to protect the population.
Establishing a municipal risk management system with the appropriate human, technical and
nancial resources and capacities.
By carrying out policies in an integrated manner, working through inter-institutional and cross-departmental
commissions, all aspects related to the saety o the population o Quito will be improved.
More information at: http://www.quito.gov.ec (Spanish only).
Example
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22CHAPTER 1
Why Invest in Disaster Risk Reduction?
Disaster Risk Reduction is a Team Eort
Local Government:Take the lead, convene other actors, regulate, monitor. Sectors (education, health, transport, environment, etc.): Integrate risk reduction
as part of plans and responsibilities, contribute information, and implement activities.
Academia, research centres: Provide research and data analysis; participate.
Citizens, community groups, including indigenous communities and other vulnerable
populations: participate, be actively informed, and take individual responsibility.
Private sector/business community: Comply with safety regulations; contribute to
the community with know-how and business continuity.
Professional groups, including chartered surveyors, engineers, architects, and planners:
Provide technical expertise on the built environment; social workers, teachers and
others: organize, raise awareness, collect data; inform the media, etc.
Civil society, non-governmental organisations (community-based, faith-based,
voluntary, etc.): Participate, organize communities, coordinate, help oversee, monitor. National government authorities and parliamentarians:support decentralized
capacities with resources, policy and enabling legislation.
International organisations:provide technical cooperation, capacity development,resources, meeting space.
Three
Municiaplities
working together
with an NGO in
Nicaragua: Telica,
Quezalguaque
and Larreynaga-Malpaisillo
Photo:J.
Valds
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23 Making Cities Resilient - My City is Getting Ready!
NOTES
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24
2
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25 Making Cities Resilient - My City is Getting Ready!
CHAPTER 2Whatare the Ten Essentials or Making Cities Disaster Resilient ?
Port-au-Prince, Haiti, 2010: It is not the earthquakes that kill people, but the buildings collapsing on them.
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CHAPTER 2What are the Ten Essentials for Making Cities Disaster Resilient ? 26
Reer to Annex 1 or a list o key questions to use in benchmarking
and monitoring progress in each o the Ten Essentials.
This chapter oers a brie overview o the Ten Essentials, including the critical and interdependent steps local
governments may take to make their city more disaster resilient. It provides the rationale or each Essential, pointing
out strategic areas o intervention and identiying key actions. The actions identied under each Essential should bepart o the overall disaster risk reduction planning process and infuence urban development planning and design.
The Ten Essentials or Making Cities Resilient Checklist Summary Checkials or
1. Put in place organisation and coordination to understand and reduce disaster risk, based onparticipation o citizen groups and civil society. Build local alliances. Ensure that all departmentsunderstand their role in disaster risk reduction and preparedness.
2. Assign a budget or disaster risk reduction and provide incentives or homeowners, lowincomeamilies, communities, businesses and the public sector to invest in reducing the risks they ace.
3. Maintain uptodate data on hazards and vulnerabilities, prepare risk assessmentsand use theseas the basis or urban development plans and decisions. Ensure that this inormation and theplans or your citys resilience are readily available to the public and ully discussed with them.
4. Invest in and maintain critical infrastructure that reduces risk, such as f ood drainage, adjustedwhere needed to cope with climate change.
5. Assess the saety o all schools and health acilities and upgrade these as necessary.
6. Apply and enorce realistic, riskcompliant building regulations and land use planning principles.Identiy sae land or lowincome citizens and upgrade inormal settlements, wherever easible.
7. Ensure that education programmes and training on disaster risk reduction are in place inschools and local communities.
8. Protect ecosystems and natural buffers to mitigate f oods, storm surges and other hazards towhich your city may be vulnerable. Adapt to climate change by building on good risk reductionpractices.
9. Install early warning systems and emergency management capacities in your city and holdregular public preparedness drills.
10.Ater any disaster, ensure that the needs of the affected population are placed at the centre of
reconstruction, with support or them and their community organisations to design and helpimplement responses, including rebuilding homes and livelihoods.
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27 Making Cities Resilient - My City is Getting Ready!
Essential 1: Institutional
and Administrative FrameworkPut in place an organisation and coordination to understand and reduce disaster risk, based on participation o
citizen groups and civil society. Build local alliances. Ensure that all departments understand their role in disaster risk
reduction and preparedness.
Why?To be eective and contribute to a citys development and saety, managing
disaster risk and understanding the potential threats o complex events requires aholistic approach and must include the involvement o local government decisionmakers, city ocials and departments, academia, business and citizens groups.Experience gained through the Hyogo Framework or Action has shown thatappropriate policies and an institutional ramework are preconditions or decisionmaking and sound disaster risk reduction actions. Accompanied by decentralizedpower and resource allocations and the participation o all major groups andactors in planning, implementation and monitoring mechanisms, this Frameworkcontributes to the citys development objectives and sustainability.
What?Establish or strengthen the city-level institutional
and coordination capacity
Assign a lead entity or establish a designated oce within the cityadministration to lead a coordination mechanism among departmentsand other actors.
Dene and review, on a regular basis, the roles and responsibilitieso departments and services involved; clariy the limitation o authority
o each. Involve dierent actors, volunteers, NGOs, academia, the business
community and encourage the involvement o community-
based organisations as early as possible in the process.
The tasks o the
coordination entity/o ce
may include preparation
o awareness campaigns,coordination o risk
assessments and disaster
risk reduction plans,
ensuring that resilience
planning is part o the
citys development
practices, its strategies
and projects or resourcemobilization, and
tracking o progress.
Queson City organization for Disaster
Risk Management
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CHAPTER 2Essential 1: Institutional and Administrative Framework
28
Establish a legislative ramework or resilience anddisaster risk reduction
Identiy the obligations, constraints and opportunities that current urban
planning and regulations, national laws and regulatory devices imposeon the city administration; improve local regulations with resiliencecriteria.
Generate municipal ordinances that support disaster risk reduction in allsectors (public and private).
Update environmental, building and planning standards and bylaws tosupport risk reduction and anchor them in recent risk assessments.
Ensure a degree o fexibility in regulations or low-income areas, withoutcompromising saety.
Coordinate all emergency services within the city
Generate a collaborative strategy to integrate and coordinate all existingunits responsible or emergency response, relie and recovery, even iunder the jurisdiction o multiple authorities.
Use ormal protocols to maintain recognition o individual organisationsand services (re departments, ambulance services, health services,police, NGOs and others), increase inter-operability among theseunits (language, tools, communication) and generate scenarios or
coordinated drills.
Create alliances and networks beyond the city
Seek and promote alliances, incorporating a cluster approach amongneighbouring municipalities with similar or interdependent risks, tostrengthen partnerships, improve decentralized action, plan or commonterritorial risks and multiply resources.
Develop partnerships with local, national or international universities,NGOs or scientic-technical bodies that can provide data, expertise and
research.
Consider an exchange programme with cities in other countries that acesimilar risk patterns or challenges.
Participate in regional and international ora and in the global campaignMaking Cities Resilient, to promote initiatives, exchange experiencesand increase local-national-international cooperation.
Risk reduction planning
should make the opera-
tions o all actors run more
smoothly in the emergency
and recovery phases.
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29 Making Cities Resilient - My City is Getting Ready!
Albay Province: Local Government Makes Risk Reduction a Formal and Permanent PriorityThe Albay provincial government in the Philippines established a permanent disaster risk management oce in 1995
to deal with the high risk o typhoons, foods, landslides and earthquakes. Disaster risk reduction was institutionalized,
unded properly, and genuinely mainstreamed into local government planning and programmes, making it clear that
disaster reduction was a ormal and permanent priority within regular planning, governance and local government
programmes. As a result, disaster prevention, preparedness and response have been well coordinated and, with the
exception o 2006 and 2011, no casualties have resulted in 15 o the last 17 years.
Read more at http://www.unisdr.org/we/inform/publications/13627 (page 48) and http://tinyurl.com/ck6btnb.
Beirut: Concerted Action on the Ten Essentials
Councilor Nada Yamout, rom Beirut, Lebanons city council stated at the Third Global Platorm or Disaster Risk
Reduction (May, 2011): We are a newly elected council; we are concerned about disaster risk reduction and so we
registered as a Campaign City in October 2010. As a rst step, the Council looked at allocating a budget to begin risk
reduction activities: risk assessment, building a risk database, developing a DRR master plan, etc. We analyzed our
needs and took stock o what was available and perormed a gap analysis. We have several heritage sites within Beirut
and protecting and preserving their character is important. We will move ahead using our pillars: technical support;
nancial support; involvement o the private sector and civil society; and national government support. I we do not
allocate the right resources, we run the risk o not prioritizing projects. Building resilience is not the responsibility o
the mayor alone. Action must be taken at the ollowing levels: national and provincial governments, city governmentpoliticianswhether elected or appointed; and the municipal administration.
Lebanons National Platorm or Disaster Risk Reduction is helping small and medium-sized local governments to
sign on to the Campaign or Resilient Cities, undertaking baseline studies and stepping up disaster risk reduction
actions (November, 2011).
North Vancouver: Innovation and Community Engaagement
North Vancouver, Canada ormed a natural hazards task orce comprised o eight volunteer district residents. Their
mandate was to recommend to the Council the communitys tolerable level o risk rom natural hazards. Ater listeningto subject matter experts and consulting the public or their input, the resulting recommendations make up the Districts
current policy or risk tolerance. Hazards and risks are careully considered when granting building and development
permits. Risk is compared with the risk tolerance criteria and urther reduced to as low a level as is reasonable. The
District works with residents, private corporations and neighbouring government land owners to collectively reduce
risk rom landslides and orest res by taking action to improve drainage on slopes and create deensible spaces
along the urban-wild land interace areas.
Examples
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CHAPTER 2Essential 1: Institutional and Administrative Framework
30
North Vancouver is setting a high standard or communities across Canada, and has become a model at engagingmunicipal and ederal government and the private sector in the promotion o a resilient approach to disaster risk
reduction, said Vic Toews, Canadas Minister o Public Saety, when the District o North Vancouver received the
United Nations-Sasakawa Award or Disaster Risk Reduction, in 2011 (the award was shared with San Francisco,
Cebu, Philippines and Santa Fe, Argentina). North Vancouver has incorporated risk reduction criteria into its ocial
community plan, strategic planning, and development permit processes, and has instituted early warning systems
or landslides and debris fows. The jury or the UN-Sasakawa Award says the District demonstrates capacity
or challenging, absorbing and producing technology, traditional knowledge, new knowledge and products, and
innovative practices. This international recognition is evidence o the work by the proessional sta who serve the
citizens o North Vancouver District, the leaders and many volunteers o the North Shore Emergency Management
Oce, and all agencies dedicated to the public saety needs o their community. It is something our entire communitycan take pride in, said North Vancouver District Mayor Richard Walton. The work is ongoing as we continue to seek
best practices and learn rom the experience o communities around the world. Read more at: www.nsemo.org/, www.
getprepared.gc.ca/, http://tinyurl.com/d4m85ry.
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31 Making Cities Resilient - My City is Getting Ready!
Essential 2: Financing and Resources
Assign a budget or disaster risk reduction and provide incentives or homeowners, low-income amilies,
communities, businesses and the public sector to invest in reducing the risks they ace.
Why?
An action plan remains just thata planunless it has dedicated resources to ensure that actions related to the
Ten Essentials can be carried out. Local governments require capacities and mechanisms to access and manage
resources, including or disaster risk reduction, as part o the citys vision, mission and strategic plans. Resources can
come rom city revenues, national disbursements and allocations to sectoral departments, public-private partnershipsand technical cooperation, and rom civil society and external organisations. Chapter 3 has additional inormation on
how to nance disaster risk reduction.
What?
Invest in risk reduction measures and awareness campaigns
Integrate risk reduction measures into the local government budget to increase the resilience o the cityseconomy, ecosystems and inrastructure (i.e. schools, hospitals, critical assets, water supply, drainage, solid
waste management).
Along with your own unds, seek to access complementary national and provincial unds and programmes tosupport your actions (i.e. urban inrastructure, environmental management and public works).
Encourage public and private sector participation in developing awareness campaigns and inormation thatpromote resilience actions or the general public, home owners, education and health workers, industry, realestate developers and others.
Ensure a budget or preparedness and response
Make provisions in the budget to maintain well-trained and equipped emergency response services,communications, early warning systems and risk assessment capacities.
Institutionalize disaster management and actions, with capacity or decision making and access to unds.
Consider establishing a contingency und or post-disaster recovery
Build a contingency und to meet post-disaster needs with stockpiles or relie assistance, response equipmentand vehicles, a reserve or post-disaster interventions and rapid recovery, and assign resources to developtoolkits and standard operating procedures or post-disaster and recovery activities.
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Cairns: Regular Budget or Disaster Preparedness and ResponseThe city oCairns, Australia has an annual operating budget to cover its Disaster Management Unit, Coordination
Centre, volunteer emergency services and community awareness programs. Its annual capital budget has, in recent
years, covered allocations or building construction, emergency response vehicles and equipment, new risk assessment
sotware, upgrading food warning network and drainage and food mitigation investmentsa clear demonstration
o the citys commitment to disaster risk reduction. This is complemented by investment and partnerships at national
level, or instance, through a review o building codes ollowing Cyclone Yasi in 2011, which also involved built
environment proessionals, private sector and academic institutions.
Read more about their work at: http://tinyurl.com/7qm2vgg
Manizales: Innovative Financial Measures to Promote Disaster Risk Reduction
The government o Manizales, Colombia has taken innovative nancial steps to promote disaster risk reduction,including: Tax reduction or those who implement measures to reduce the vulnerability o housing in areas at high riskor landslides and fooding.
An environmental tax on rural and urban properties, spent on environmental protection inrastructure, disaster prevention
and mitigation, community education, and relocation o at-risk communities.
A system o collective voluntary insurance to allow low-income groups to insure their dwellings. The city government
has an agreement with an insurance company and allows any city resident to purchase insurance coverage through
municipal taxes.For more information consult the 2009 Global Assessment Report on Disaster Risk Reduction(UNISDR), www.preventionweb.net/gar. Click on GAR-2009, chapter 6.2
Philippines, China and Sri Lanka: Supporting Investment in Disaster Risk Reduction
Since 2001, cities in the Philippines are required to allocate 5% o their local government budget to a calamity relie
und (CRF). Under the Disaster Risk Reduction and Management Act o 2010, they can spend 70% o this allocation or
preparedness and procurement o relie /rescue equipment and stockpiles.
Sri Lankas Disaster Management Ministry announced in 2011 an allocation o Rs. 8 billion or a programme to control
foods in the capital, Colombo, while launching a secure town planning programme to minimise disasters as part othe Resilient Cities Campaign. The money will be used to clear canals, reconstruct the drainage system and or other
measures to prevent foods. Under the secure towns programme, 15 towns have been selected as disaster-ree cities.
Provincial governors in two o Chinas disaster-prone provinces committed additional resources to disaster reduction.
Wei Hong, Executive Deputy Governor o Sichuan province, said that 2 billion Yuan will be invested to improve the
local geological disaster prevention system. Gu Chaoxi, Deputy Governor o Yunnan province, which is highly at risk
or geological disasters, vowed to invest at least 10 billion yuan over 10 years in the local disaster prevention and
assessment system. The report on Sri Lanka available at: http://tinyurl.com/7t23osr; the report on China:
http://tinyurl.com/858rfyo.
Examples
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CHAPTER 2Essential 3: Multi-hazard Risk AssessmentKnow your Risk
34
Essential 3: Multi-hazard Risk Assessment
Know your RiskMaintain up-to-date data on hazards and vulnerabilities, prepare risk assessments and use these as the basis
or urban development planning and decisions. Ensure that this inormation and plans or improving resilience are
readily available to the public and ully discussed with them.
Why?Unless cities have a clear understanding o the risks they ace, planningor meaningul disaster risk reduction may be ineective. Risk analysis andassessments are essential prerequisites or inormed decision making, prioritizingprojects, planning or risk reduction measures and identiying high-, medium- orlow-risk areas, according to their vulnerability and the cost eectiveness o potentialinterventions. A well-maintained database o disaster losses and a GeographicInormation System to map hazards, vulnerabilities, the exposure o people andassets and capacities will provide the oundation or the risk assessment.
What?Determine the nature and extent o disaster risk
Led by the appropriate city department, prepare a comprehensive riskassessment and risk maps with loss scenarios, including the impact oclimate change, using technical expertise available through city entities orlocal technical institutions.
Enlist, as necessary, technical support rom national, regional andinternational experts. Make sure to consult and involve local stakeholders.
Make the inormation available to the public.Historic loss data: Prepare and maintain an updated database o disaster
losses rom past events and current potential hazards in the city.
Hazard assessment: Establish and map the nature, locale, intensity andprobability o hazards (including natural events, technological and other
man-made hazards).
Risk assessments pro-vide local authorities,
investors and the general
community with vetted
and updated data, maps
and other inormation on
hazards, vulnerabilities
and risk in order to take
decisions regarding timely
interventions beore, dur-
ing and ater a disaster.
Satellite pictures of venice.
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35 Making Cities Resilient - My City is Getting Ready!
Vulnerability assessment: Determine the degree o vulnerability and exposure tothe hazard o the population, development sectors, inrastructure and ongoing
or planned city projects. Map and work with populations in high-risk areas.
Capacity assessment: Identiy the capacities and resources availableinstitutionally and at neighborhood or district level.
Identiy corrective actions and plans to reduce the risks.
Disseminate risk inormation and apply to development decisions
Prioritize actions based on an analysis o the urban plan, land-use zoning,investment decisions and worst-case scenarios or emergency preparedness
plans and exercises.Make the results available through websites and other means o inormation.
Update the risk assessment, preerably annually.
Establish a city-wide geographic inormation and monitoringsystem
Consider creating a geographic inormation and monitoring system thatincludes input data rom and is accessible to all actors, including civil society,the production sector (or example, agriculture, mining, commerce and tourism)and the scientic and technical community.
Maintain outputs in the citys Geographic Inormation System (GIS).
The basic components o a
risk assessment include:
Historic loss data: Prepare
and maintain an updated
database o disaster losses
rom past events and current
potential hazards in the city.
Hazard assessment:
Establish and map the
nature, locale, intensity
and probability o hazards
(including natural events,technological and other man-
made hazards).
Vulnerability assessment:
Determine the degree o
vulnerability and exposure to
the hazard o the population,
development sectors,
inrastructure and ongoing or
planned city projects. Map
and work with populations inhigh-risk areas.
Capacity assessment:
Identiy the capacities
and resources available
institutionally and at
neighborhood or district level.
Identiy corrective actions
and plans to reduce the risks.
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CHAPTER 2Essential 3: Multi-hazard Risk AssessmentKnow your Risk
36
Peru, Cape Town: Reviewing Impact o Disaster Risk on New Development ProjectsMany countries, particularly in Latin America, have systems or assessing the impact o disaster risk on productive
inrastructure. The UNISDR Global Assessment Report 2011 highlights Peru, which established a pioneering legal
requirement that all public investment projects be evaluated or disaster risk. I the risk is not addressed, the project will
not be unded. O the US $10 billion investment approved in 2008, about hal was to be executed by local governments.
Similarly, under its Disaster Risk Management (DRM) ramework, the city o Cape Town has mandated that the Municipal
DRM Center be involved in the review process o all new development projects.
Read more about opportunities and incentives for disaster risk reduction management at: http://tinyurl.com/7sganme
and consult Cape Towns DRM framework at http://tinyurl.com/cw9n22x
Cuttack: Data Collection and Risk Mapping or Urban Development Planning
Mahila Milan is a womens group taking leadership roles in inormal settlements. The mapping process in Cuttack, India
is carried out by community organisations comprised o residents o inormal settlements and other districts, through a
partnership between local Mahila Milan groups and local slum dweller ederations. The data gathered is used to generate
digital maps or city authorities and to negotiate support or upgrading or relocating houses, thus reducing disaster risk.
This process is applied in all inormal settlements and results in an accurate, detailed and disaggregated database on
risk and vulnerability or the entire city, showing the boundaries o all inormal settlements.
For more information: http://tinyurl.com/7wg3ktd
An Urban Risk Assessment Framework
The World Bank, with UN-Habitat, UNEP, and Cities Alliance, has developed an urban risk assessment (URA) ramework
based on experiences in many cities. The URA oers a fexible approach that project and city managers can use to
identiy easible measures to assess a citys risk. The methodology ocuses on three reinorcing pillars that collectively
help to understand urban risk: a hazard impact assessment, an institutional assessment, and a socioeconomic
assessment. The assessment is based on our principal building blocks to improve the understanding o urban risk:
historical incidence o hazards, geospatial data, institutional mapping, and community participation. The URA is fexible
in how it is applied, depending on available resources and institutional capacity in a given city.
Read more at: http://go.worldbank.org/VW5ZBJBHA0
Examples
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37 Making Cities Resilient - My City is Getting Ready!
Essential 4: Inrastructure Protection,
Upgrading and ResilienceInvest in and maintain critical inrastructure that reduces risk, such as food drainage,
adjusted where needed to cope with climate change.
Why?Not all hazards are destined to cause disasters. Preemptive measures canhelp avoid the disruption, incapacitation or destruction o networks, gridsand inrastructure, which can cause severe social, health and economicconsequences. Collapsed buildings are the greatest cause o mortalityduring earthquakes. Poorly planned roads or insucient drains causemany landslides. Lielines such as roads, bridges and airports, electric andcommunications systems, hospital and emergency services and energy and
water supplies are essential or a city to unction during a response to disaster.
What?Strengthen protective inrastructure
Adopt city policies, management strategies and plans or geological,climate-related and technological hazards and extremes that combinestructural and non-structural measures to strengthen protectiveinrastructure.
Assess the risks to each system, review their operation, eectiveness andunctions and develop programmes to redesign or strengthen those that aremalunctioning (these measures will also improve service delivery in general).
Recognize physical environmental changes that could potentially alter foodpatterns and take into account uture impacts o climate change, such assea level rise, storm surge, and increased rainall; establish early warningand monitoring systems that alert crisis management agencies to risks thatapproach coping threshholds.
Ensure that roads and sites are designed to be accessible in case oemergencies, including re or earthquakes. Ensure that all public buildingsollow seismic codes adapted to the area; promote compliance with thesecodes by all developers and builders.
Critical areas or
f ood risk and landslide
prevention include: urban
drainage and sewerage
systems; disposal andcontrol o solid waste;
green management o the
city with increased f ood
retention ponds; open
permeable spaces and
trees; slope stabilization
and erosion control; dikes
and embankments andcoastal protection.
Recognize that f ood
deenses increase risks or
those outside the protected
area and that residents
over-reliance on deenses
can lead to a alse sense osecurity.
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CHAPTER 2Essential 4: Infrastructure Protection, Upgrading and Resilience
38
Protect critical inrastructure
Assess the vulnerability o existing inrastructure to natural hazards,undertake measures to prevent damage and develop long-term capitalinvestments to retrot and/or replace the most critical emergency lielines.
Plan or business continuity to ensure that lielines and services are quicklyrestored.
Develop special programmes to protect historic buildings and the cityscultural heritage.
Develop resilient new inrastructure
Establish minimum criteria and standards o resilience and saety, as part ourban design (see Essential 6).
Invest, design and construct new sustainable inrastructure in appropriatelocations and to a higher standard o hazard and climate resilience so they
withstand destructive events and unction eectively during an emergency.
Conduct an assessment to prioritize maintenance improvements and repairprogrammes and, i required, the retrotting, capacity redesign, demolition orreplacement o damaged or obsolete structures.
Take preventive measures in buildings that are damaged, not being used, ina state o disrepair or obsolete. Discourage occupation o these buildings to
avoid jeopardizing human saety.
I possible, consider demolishing at-risk inrastructure i the building has nocultural or historic value or cannot be repaired.
Critical inrastructure
includes transport (roads,
bridges, airports, railway
stations and bus terminals),
vital acilities (including
hospitals and schools that
may also double as reugee
shelters), the power grid,
telecommunications, security
and emergency services, and
water supply and sanitation,
all key assets or a well-
unctioning and healthy
city and critical or eective
disaster response and quick
recovery.
HOLDING BASIN
STORAGE RESERVOIR
NO STORM
NO STORM
NO STORM
STORAGE RESERVOIR
STORAGE RESERVOIR
HOLDING BASIN
HOLDING BASIN
Figure 4: Three
modes o operation
o the SMART Tunnel
Kuala Lumpur: Dual-use Drain and Car Tunnel Source: Mott MacDonald Group 2009.
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39 Making Cities Resilient - My City is Getting Ready!
Kuala Lumpur: Dual-use Drain and Car Tunnel
Locating inrastructure out o harms way is one way to ensure that new inrastructure does not introduce new risk.
Where that may not be possible, another way is to execute multipurpose inrastructure projects, such as Kuala Lumpurs
Stormwater Management and Road Tunnel (SMART). Floods rom heavy rains are a hazard, and the 9.7 km. long,
$514 million tunnel has three levels, the lowest or drainage and the upper two or road trac. The drain allows large
volumes o food water to be diverted rom the citys nancial district to a storage reservoir, holding pond, and bypass
tunnel. Combining the drain with the road has two advantages: it ensures that this critical inrastructure is subject to
higher-than-usual margins o saety (the extra strength that engineers build into designs). In 2010, local government
ocials commented that the RM 2 billion provided by the government to construct the SMART Tunnel in Kuala Lumpur is
a signicant investment. But in the three years since its launch in 2007, the SMART operations have successully avertedat least seven fash foods and have saved hundreds o millions o RM in potential losses. Together with the revenue rom
toll ees, we are very close to recovering the investment cost, said Datuk Hj Salleh Bin Yusup, Director General o City
Hall. A local newspaper reported in 2010 that since SMART operations began in 2007, it was used 114 times to divert
excess water and prevented seven potentially disastrous fash foods, which ar exceeded the original target o diverting
food waters only two or three times a year.
In addition to the SMART Tunnel, another RM 140 million was spent on maintaining food retention ponds and main drains;
RM 40 million is provided or maintenance and cleansing o rivers and main drains; and 300 million has been allocated or
river cleansing and beautication. These substantial investments, both rom the Federal Government and City Hall, are the
results o eorts to mainstream disaster risk reduction into all policies and development and land use plans such as the Kuala
Lumpur Structure Plan 2020, the Kuala Lumpur City Plan and the Flood Mitigation Plan, said the Lord Mayor to UNISDR.For more information about the SMART tunnel, consult pages 6-7 of: Natural Hazards, UnNatural Disasters: The
Economics of Effective Prevention (World Bank- United Nations, GFDRR, 2010) pages 6-7. http://tinyurl.com/7aalwlj
Pune: Investing in Measures to Reduce Risk
Pune, India, has been aected by severe periodic fooding or decades. Anticipating that the impact o climate change
may increase the requency, the city has put programmes in place to build capacity, assess hazards and vulnerability,
and implement a city-wide action plan that contains structural and planning measures or restoring natural drainage,
widening streams, extending bridges and applying natural soil inltration methodologies. Watershed conservation
techniques, such as aorestation and building small earthen check dams, were undertaken in the hill zone. Property taxincentives were provided to encourage households to recycle wastewater or to store run-o rainwater or domestic use.
These eorts were complemented by improvements in food monitoring and warning systems and social protection or
aected amilies. The initiative was driven jointly by the elected municipal government, the municipal commissioner and
Alert (active citizen groups), and involves many dierent city departments.
Consult Brieng Note 02: Adaptation to climate change by reducing disaster risks: Country practices and lessons
(UNISDR 2010) at http://tinyurl.com/6nmww8t.
Examples
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CHAPTER 2Essential 5: Protect Vital Facilities: Education and Health
40
Essential 5: Protect Vital Facilities:
Education and HealthAssess the saety o all schools and health acilities and upgrade these as necessary.
Why?Schools and health acilities provide essential social services. As such,special attention must be paid to their saety and risk reduction eorts mustocus on ensuring they can continue providing services when most needed.Not only do they house among the most vulnerable groups in society,schools and hospitals are also places o care, development and well-being.They carry out essential unctions during and ater a disaster, where theyare likely to accommodate and treat survivors. The normal educationalroutines o children must be restored as soon as possible to avoid social andpsychological repercussions.
What?
Keep schools and health acilities operating and unctional
Establish and implement action plans and programmes, maintain thestructural and physical resilience and robustness o these acilities.
Examine the geographical location and investigate capacity requirements inemergency and recovery situations.
Assess disaster risk in schools and hospitals and strengthen/retrot themost vulnerable
Introduce data on the vulnerability o schools and health acilities into risk
assessments and ensure compliance with saety standards when decidingon the location, design and construction o all new inrastructure.
Create an action plan to assess and reduce vulnerability and risk in existingschools and health acilities by selecting and retrotting the most critical(and vulnerable) acilities and incorporating stringent maintenance andrepair programmes.
While it is true that
the collapse o a school
or hospital generates
severe problems or a
disaster-aected city, it ismore common to see the
unctional collapse o these
acilities, where structures
may remain standing but
cannot be used or a variety
o preventable reasons. To
avoid this, hospitals and
schools must be constructedto high standards o
resilience, access routes must
remain open and the water
supply, electric power and
telecommunications must
continue providing services
to the acilities to guarantee
continuity o operations.
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41 Making Cities Resilient - My City is Getting Ready!
Generate wider action and more resources by encouraging surveyors,engineers and other built environment proessionals, the private sector andcommunities to participate in this critical risk reduction work.
Recognize the relevance o priority services and operationsater a disaster
Improve the saety o public health and educational acilities that havecomplementary and supporting roles in emergency response and recovery.
Strengthen and motivate private acilities that can contribute to relie eortsand provide complementary services in the emergency and recovery phase.
Provide incentives to eligible private institutions to become partners.
Cayman Islands: Making Health Care Facilities Saer
The Cayman Islands are one o the most requent targets o Atlantic hurricanes, and in 2004, Hurricane Ivan, the
worst storm in 86 years, struck the largest island, Grand Cayman, damaging 90% o the buildings. Power, water and
communications were disrupted or months in some areas. The island began a major rebuilding process, and within
the National Strategic Framework or Disaster Risk Reduction, the Health Services Authority addressed structural, non-structural, unctional and workorce issues. For instance, the 124-bed Cayman Islands Hospital (the territorys principal
healthcare acility), which had been built to Category 5 hurricane standards, remained unctional during and ater
Hurricane Ivan, while providing an impromptu shelter or more than 1,000 people. However, older acilities needed to
be upgraded to new local and international building codes and protocols or healthcare acilities. Seismic risk reduction
elements were also introduced into the design o new acilities.
For more information: http://www.caymanprepared.gov.ky
Hospital Saety Index: Will My Hospital Be Able to Function in a Disaster?
A growing number o countries worldwide are using the Hospital Saety Index, a low-cost tool that helps health acilitiesassess their saety and avoid becoming a casualty o disasters. The Hospital Saety Index provides a snapshot o
the likelihood that a hospital or health acility can continue to unction in emergency situations, based on structural,
nonstructural and unctional actors, including the environment and the health services network to which it belongs. By
determining a hospitals saety index or score, countries and decision makers will have an overall idea o its ability to
respond to major emergencies and disasters. The Hospital Saety Index does not replace costly and detailed vulnerability
studies. However, because it is relatively inexpensive and easy to apply, it is an important rst step towards prioritizing
investments in hospital saety. The Hospital Saety Index is available in English, Spanish, Arabic, Russian and French.
Download the background information and forms at http://tinyurl.com/c53gdvw
The One Million Sae
Schools and HospitalsCampaign is a global
advocacy initiative to make
schools and hospitals
saer rom disasters. Make
a pledge and save a
lie! www.sae-schools-
hospitals.net/
Examples
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CHAPTER 2Essential 6: Building Regulations and Land Use Planning
42
Essential 6: Building Regulations
and Land Use PlanningApply and enorce realistic, risk-compliant building regulations and land use planning principles. Identiysae land or low income citizens and develop upgrading o inormal settlements, wherever easible.
Why?Countries and cities will have saer inrastructure when standards are in placethrough building codes and regulations. The application o construction codes andmechanisms or planning and monitoring the use o city land is a valuable way toreduce disaster vulnerability and risk rom extreme events such as earthquakes,foods, res, the release o hazardous materials and other phenomena. It is theresponsibility o local authorities to monitor their application, compliance andollow up. Using resilient design standards and land use planning is cost eective
when compared to relocation and/or retrotting unsae buildings (a cost/benetratio o 4 to 1).
What??Enorcement o and compliance with risk-sensitive building codesand regulations
Ensure that municipal regulations and laws include building codes that setstandards or location, design and construction to minimise disaster riskand ensure enorcement by investing in building capacity o local ocials,increasing public awareness and using motivational means to increasecompliance.
Ensure adequate clarity about dierences in building regulations or criticalpublic inrastructure, engineered buildings and more simple and accessible
guidelines or smaller non-engineered homes.
According to the
Pan American Health
Organisation, the cost o
a building designed andbuilt to withstand hazards
such as earthquakes may
increase the total cost o
the structure by 1% to 5%.
When it comes to certain
non-structural elements, the
cost savings are dramatic.
For example, a severelydamaged electric generator
could result in the loss o
power and cost as much as
US$50,000 to replace. This
situation could be avoided
by installing seismic
isolators and braces to
prevent the generator rom
moving, at a cost as low as
US$250.
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CHAPTER 2Essential 6: Building Regulations and Land Use Planning
44
Building and Planning Regulations thatFacilitate Local Disaster Risk Reduction
Building and Planning Regulations thatImpede Local Disaster Risk Reduction
National mandates that give local governments responsibility
or sae construction practices (while contributing technical
expertise and resources to make and implement plans and
enorce building regulations).
Recognition by local government o the needs o the poor and
accountability to them.
Plans, codes and standards that are developed with and
include the perspectives o businesses, residents and diversecommunities.
Flexible regulatory rameworks that accommodate changing
economies, environments and building densities.
Recognition o inormal building processes and encouragement
o sae building practices through education and advocacy.
Sae construction or secure land tenure is
unaordable or unobtainable by the poor.
Inequalities in access to land or housing.
Forced evictions or reduced security with regard to
tenure or inhabitants o inormal settlements
Regulations that ail to take into account realities on
the ground, where existing density in urban areas is
ignored, where the construction o small dwellings
or workspaces or the use o more aordable
alternative building materials is prohibited.
See more in GAR-2011 www.preventionweb.net/gar, Chapter 6.5 Land use planning and building regulations.
Thailand: Upgrading Inormal Settlements
The government o Thailand has launched an ambitious slum and squatter upgrading initiative. The Baan Mankong
(secure housing) programme channels unds in the orm o inrastructure subsidies and housing loans directly to
community organisations o low-income inhabitants in inormal settlements. The unding comes almost entirely rom
domestic resources a combination o national government, local government and community contributions. Under thisnational programme, illegal settlements can obtain legal land tenure through a variety o means such as direct purchase
rom the landowner (supported by a government loan), negotiating a community lease, agreeing to move to another
location provided by the government or agreeing with the landowner to move to part o the site they are occupying in
return or tenure o that site (land sharing).For more information: http://tinyurl.com/72p7375
Examples
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45 Making Cities Resilient - My City is Getting Ready!
Santa Tecla: A Risk-Sensitive City Development Plan
Santa Tecla is part o the metropolitan area o El Salvadors capital, San Salvador. Santa Tecla suered two earthquakes
in 2001. In just ve seconds, a mudslide caused more than 700 deaths, displaced 20% o the city, and badly damaged38% o the inrastructure. Real estate prices plummeted. We had to think deeply about what we could do, says Oscar
Ortiz, the Mayor. In order to turn our city around and make it disaster resilient, we realized we needed to stop improvising
when disaster strikes and start planning ahead. We need to manage our land in a responsible and sustainable manner.
We developed a ten-year plan to redevelop the city and now have a longer-term plan or a sustainable uture through
2020. Citizens need to understand the signicance o what we are doing or very little change will take place. We try to
do this by encouraging participation in Mesas de Ciudadanos (citizens groups), which bring a wide cross section o
stakeholder organisations together in periodic discussions and decision making. They soon come to understand that
these are issues and decisions that concern their livelihood, their children, their schools and their productivity. (Source:
Interview with Mayor Oscar Ortiz, February 2011, UNISDR)
For more information: http://www.santatecladigital.gob.sv/ Click on: Gestin de Riesgos 13.11 (in Spanish).
Kabul Municipality, Afghanistan: before
and after urban improvement works withdrains and sanitation.
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47 Making Cities Resilient - My City is Getting Ready!
Develop risk reduction training and capacity building at the city level
Establish a sustainable and permanent training programme or key city personnel, in partnership withcommunities, a variety o proessionals rom the social and economic sector and specialized local andnational institutions. Work with local resources such as the Red Cross, universities, NGOs, teachers and others.
Focus on training priority target groups such as municipal departments and emergency managementauthorities, re and rescue services, medical emergency teams and law enorcement personnel, specialistsin engineering, water and sanitation, surveying, planning and zoning, environment, health, communications,the media, the private sector, community leaders and educators. Distribute this Handbook and other guidancematerial, oering short courses and ongoing training opportunities.
Establish city-wide disaster saety initiativesCommemorate the anniversary o locally-memorable disasters with a disaster saety day, a time when people
are very receptive to saety messages.
Establish a memorial in the city and/or organize a small exhibition/disaster museum to preserve the memoryo the impact o past disasters.
Find creative new ways to participate in the International Day or Disaster Reduction, celebrated each year on13th October, and in other related events such as World Meteorological Day, World Health Day, World HabitatDay and events commemorating major national disasters.
Read more about the International Day or Disaster
Reduction www.unisdr.org/2011/iddr/
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CHAPTER 2Essential 7: Training, Education and Public Awareness
48
Saijo City: Watch and Learn: Children and Communities Study Mountain and Urban RisksAs early as kindergarten, schools in Japan are educating children about how to detect and react in disaster situations,
conducting regular drills and disaster watches. This long-time investment undoubtedly saved many lives in the March
2011 Great East Japan earthquake and tsunami.
In 2004, Saijo City, Japan was hit by record typhoons that caused fooding in urban areas and landslides in the
mountains. Saijo Citys aging population represents a particular challenge. Young able-bodied people are very important
to community systems o mutual aid and emergency preparedness. As young people move away to bigger cities, the
population o smaller towns in Japan grows older than the already imbalanced national average. Small cities like Saijo
City are also oten spread over a mix o geographic terrains an urban plain, semi-rural and isolated villages on hills and
mountains or along the coast. To meet these challenges, the Saijo City government began a risk-awareness programme,
targeting school children. Focusing on the citys physical environment, the mountain-watching and town-watchingproject takes 12-year-olds on risk education eld trips. Young urban dwellers meet with the elderly to learn together
about the risks acing Saijo City and to remember the lessons o the 2004 typhoons. A mountain- and town-watching
handbook has been developed, and a teachers association or disaster education and a childrens disaster prevention
club have been set up.
For more information: http://www.unisdr.org/we/inform/publications/13627 (page 29)
Disaster Saety Days Commemorate Anniversaries o Past Events
In Nepal, 15th January marks the anniversary o the greatNepal earthquake o 1934. In Kathmandu, political leaders
and prominent personalities commemorate the event with activities such as street parades, shake table demonstrations,
exhibitions on sae construction, street drama, interactive seminars, posters, art and other competitions and presentations
or children. Earthquake simulation drills are the highlight o the observance, with wide public participation and media
coverage. The national and city governments have a strong sense o ownership o and leadership in the event.
Japan observes Disaster Saety Day each year on 1st
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