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City Resilience Framework April 2014 (Updated December 2015) Acknowledgements

On behalf of the study team, I would like to thank The Foundation for giving Arup International Development the opportunity to undertake this study. Our special thanks go to Dr. Nancy Kete, Sundaa Bridgett-Jones and Lily Fu for their support throughout. We would also like to thank the Rebuild by Design, 100 Resilient Cities – pioneered by The – and the Asian Cities Climate Change Resilience Network teams. Their comments and feedback have been very valuable to our work.

Our particular thanks go to everyone who contributed to the fieldwork, especially our local partners: Fundación Alto Río (Concepción, Chile); GIP Pacífico and Findeter (, ); City of and the Southeast Louisiana Chapter (USA); Arup Cape Town (South Africa); TARU Leading Edge (Surat, India); and Mercy Corps (Semarang, Indonesia). Their assistance during the fieldwork made a significant contribution to the final quality and outcomes of the study.

Jo da Silva Director Arup International Development

On behalf of Arup International Development’s study team: Sachin Bhoite, Kieran Birtill, Stephen Cook, Sandra Diaz, Vicky Evans, Andrea Fernandez, Laura Frost, Sam Kernaghan, Ashlee Loiacono, Braulio Eduardo Morera, Geoffrey Morgan, Elizabeth Parker, Jo da Silva, Samantha Stratton-Short, Flora Tonking.

Graphic design: Charlotte Svensson.

Unless specified, all images are copyright Arup.

© Arup

City Resilience Framework - The Rockefeller Foundation | Arup Foreword

In 1958, , a community activist, We found potential partners ready to received a Rockefeller Foundation grant jump into the metrics and indicators, but to expand upon her ideas about how a city few with the experience to work with us should look, feel, and work. The book she to understand what does and does not published three years later − The Death and contribute to urban resilience. We risked Life of Great American Cities − transformed investing in an index that measured and how city dwellers, urban academics and compared cities based on available data, policy-makers think about cities and urban but did not necessarily help cities better planning. Jacobs challenged the prevailing understand and assess their own resilience. assumptions of what makes a city thrive. Over the past five decades, the values and We found perspectives were siloed, shaped ideas put forward by Jacobs and others have by experience and expertise in one or been profoundly important as questions another aspect of resilience, disaster risk of identity, voice, inclusion, access and reduction, infrastructure resilience, climate opportunity have been negotiated in the change, national security or business context of dynamic urban growth and continuity. What Arup has been able to globalisation. bring is thought leadership and the capacity to create a comprehensive framework that This legacy of progressive urban thinking reflects reality. A city’s resilience depends becomes even more crucial as we look on its physical assets as well as its policies, to the future. Just as cities are hubs social capital and institutions. for innovations and investments that expand opportunities, they are also living This report presents the inclusive laboratories forced to confront challenges framework for articulating city resilience of increasing complexity. Indeed, the role of that the Foundation was looking for, to cities has become central in debates around underpin the City Resilience Index. It has our planetary boundaries, economic futures, already proven useful in the agenda-setting social stability and climate change. What workshops in cities across the globe that and who makes a city resilient – and not are participating in the 100 Resilient Cities just liveable now or sustainable for the long Challenge. These workshops, in turn, have term – has become an increasingly critical helped and will continue to help shape the question, one we set out to answer in late framework and contribute to the final phase, 2012 with our partners at Arup through the developing the indicators and variables that creation of a City Resilience Index. will comprise the City Resilience Index.

The Rockefeller Foundation has been This framework will form the basis of a tool pioneering work on climate resilience in that should enable all of us interested in both rural and urban regions for more than city resilience to convene around a common a decade. By 2012, the idea of resilience as understanding of that idea, and begin to the critical lens through which to consider ‘baseline’ what matters most for making not only climate change, but also disaster cities more resilient. Both the framework risk reduction more generally, including and the index are intended to facilitate a financial shocks, terrorism and slow-moving process of engagement with and within chronic stresses, was gaining traction cities that generates dialogue and deeper globally. But, producing a meaningful index understanding. Ultimately, this will lead for something as complex as the resilience to new ideas and opportunities to engage of a city is fraught with reputational, new actors in civil society, government and conceptual and execution risk. We stumbled business on what makes a city resilient. again and again on major conceptual and practical challenges.

Dr. Nancy Kete Managing Director The Rockefeller Foundation

City Resilience Framework - The Rockefeller Foundation | Arup 1 “In order to get a grip on it, one must be able to relate resilience to other properties that one has some means of ascertaining, through observation.” Martin-Breen & Andries (2011) Resilience: A literature review. The Rockefeller Foundation: City, p. 11

2 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup “By April 2014, to articulate Understanding city resilience urban resilience in a measurable, evidence-based and accessible way that can inform urban planning, practice, and investment patterns which better enable urban communities (e.g. poor and vulnerable, businesses, coastal) to survive and thrive multiple shocks and stresses.” Opportunity statement (Rockefeller Grantee Workshop, , February 2013)

Why city resilience? primary audience for this tool is municipal governments. But, the framework, As the 21st century unfolds, an increasing indicators and variables are also intended to majority of the world’s population will support dialogue between other stakeholders live in cities. Human wellbeing in cities who contribute to building more resilient relies on a complex web of interconnected cities globally. institutions, infrastructure and information. People are drawn to cities as centres of economic activity, opportunity and What is city resilience? innovation. But cities are also places where stresses accumulate or sudden shocks Definition | City resilience describes occur that may result in social breakdown, the capacity of cities to function, so that physical collapse or economic deprivation. the people living and working in cities That is, unless a city is resilient. – particularly the poor and vulnerable – survive and thrive no matter what stresses or Cities have always faced risks, and many shocks they encounter. cities that have existed for centuries have demonstrated their resilience in the face Resilience is a term that emerged from the of resource shortages, natural hazards, field of ecology in the 1970s, to describe and conflict. In the 21st century, global the capacity of a system to maintain pressures that play out at a city scale − such or recover functionality in the event of as climate change, disease pandemics, disruption or disturbance. It is applicable economic fluctuations, and terrorism − pose to cities because they are complex systems new challenges. The scale of urban risk that are constantly adapting to changing is increasing due to the number of people circumstances. The notion of a resilient living in cities. Risk is also increasingly city becomes conceptually relevant when unpredictable due to the complexity of city chronic stresses or sudden shocks threaten systems and the uncertainty associated with widespread disruption or the collapse of many hazards – notably climate change. physical or social systems. The conceptual limitation of resilience is that it does not Risk assessments and measures to reduce necessarily account for the power dynamics specific foreseeable risks will continue to that are inherent in the way cities function play an important role in urban planning. and cope with disruptions. In addition, cities need to ensure that their development strategies and investment In the context of cities, resilience has helped decisions enhance, rather than undermine, to bridge the gap between disaster risk the city’s resilience. If governments, donors, reduction and climate change adaptation. investors, policy-makers, and the private It moves away from traditional disaster sector are to collectively support and foster risk management, which is founded on risk more resilient cities, there needs to be a assessments that relate to specific hazards. common understanding of what constitutes Instead, it accepts the possibility that a a resilient city and how it can be achieved. wide range of disruptive events – both stresses and shocks – may occur but are not The City Resilience Framework responds to necessarily predictable. Resilience focuses this challenge by providing an accessible, on enhancing the performance of a system evidence-based articulation of city in the face of multiple hazards, rather than resilience. Over the coming months, it will preventing or mitigating the loss of assets be further developed to create the City due to specific events. Resilience Index, which will introduce variables that provide a robust basis for (Image opposite) measuring resilience at the city scale. The Area of redevelopment in the Silo District, Cape Town.

City Resilience Framework - The Rockefeller Foundation | Arup 3 Surat Concepción New Orleans Semarang Cali © Municipality of Concepción Learning from literature Learning from case studies Learning from cities

Approaches | Various approaches have been Functions and failure | A performance- Fieldwork | To ensure the framework taken to framing or assessing resilience. based approach, which defines resilience is widely applicable and grounded in the They focus either on urban assets or systems, in terms of a city’s ability to fulfil and experiences of cities, the second stage of and, to varying degrees, consider man-made sustain its core functions, offers a more research involved fieldwork in six cities: infrastructure, the natural environment, urban comprehensive and holistic approach. As Cali, Colombia; Concepción, Chile; New management and human behaviour. Asset- a city’s functions rely on a combination Orleans, USA; Cape Town, South Africa; based approaches tend to focus on physical of assets, systems, practices and Surat, India; and Semarang, Indonesia. assets, rather than considering intangible actions undertaken by multiple actors, These cities were selected as they had either assets that influence human behaviour, such as a performance-based approach has recently experienced a major shock or are culture, social networks and knowledge. They greater potential to address questions of suffering chronic stresses, and as a group neglect the role that assets play in city systems, interdependency, power dynamics and scale. are geographically diverse. and, therefore, overlook the importance of assets outside the city boundary; for example, a Based on the literature review, a draft The primary purpose of the fieldwork was reservoir that may be a critical part of the water hypothesis was developed which proposed to understand what contributes to resilience supply or flood management system. that urban resilience could be framed in in cities, and how resilience is understood relation to seven critical functions of a from the perspective of different city System-based approaches align more closely city. This was tested through a desk-based stakeholder groups in different contexts. In with the concept of resilience, and the analysis of the ‘factors’ of resilience each city, we carried out workshops, focus long-standing notion of cities as ‘systems of identified from more than 150 sources, groups and key informant interviews with systems’. Social systems determine human which examined cities experiencing shocks people from the municipal government, behaviour, which is also influenced by physical or stresses, together with recent guidance on utility providers, business and civil society. systems in the urban environment. Various urban resilience. Across the six cities, we collected data from approaches exist, but they mostly examine the 450 consultees and identified 1546 factors. resilience of individual sub-systems rather than This analysis resulted in a refined list of Factors are defined as things (physical) attempting to consider the resilience of the city eight city functions that are critical to or practices/procedures or behaviours as a system in itself. This promotes a sectoral resilience. The functions propose that (non-physical) that, in the opinion of the approach and means that interdependencies a resilient city: delivers basic needs; consultees, contribute to the resilience of between different systems at different scales, safeguards human life; protects, maintains their cities. and the governing structures that influence the and enhances assets; facilitates human way systems work, are not easily considered. relationships and identity; promotes A detailed analysis of the factors identified knowledge; defends the rule of , justice 12 key themes: essential needs; health Finally, empirical evidence throughout the and equity; supports livelihoods; stimulates management; livelihood support; law literature suggests that urban systems that economic prosperity. The city’s ability to enforcement; social harmonisation; exhibit particular qualities (or characteristics) perform these functions determines whether information and knowledge management; are more likely to be resilient. The seven the city is resilient or not. Resilience capacity and coordination; critical qualities summarised opposite are derived could be perceived as good health, a infrastructure management; environmental from published literature, including the set of safe environment, social harmony and management; urban strategy and planning; characteristics developed previously by Arup prosperity. Conversely, a city that is not economic sustainability; accessibility. These and the Institute for Social and Environmental resilient would be identified by ill-health or themes represent what the city stakeholders Transition, as used by the Asian Cities Climate insecurity, an unsafe environment, conflict perceived to be the key city functions Change Resilience Network. These qualities and deprivation. relevant to improving resilience. They apply at a city scale and to individual systems. map very closely to the functions that were derived from the desk-top analysis, with the We concluded that what was missing is a following exceptions: comprehensive, holistic framework that combines the physical aspects of cities with Infrastructure + environment | Physical the less tangible aspects associated with assets were least mentioned by consultees human behaviour; that is relevant in the in the field, whereas they feature very context of economic, physical and social strongly in the literature review. In the disruption; and that applies at the city scale fieldwork research, emphasis was placed on rather than to individual systems within a city. proactive management and maintenance of Finally, it needs to incorporate the qualities infrastructure and the environment, rather that describe a resilient city (or system).

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Qualities of than its presence. Consultees also talked resilient systems about connecting people and enabling flows of information, goods, and services Reflective Resourceful as a result of integrated transport and Reflective systems are accepting of the Resourcefulness implies that people and communications infrastructure. inherent and ever-increasing uncertainty institutions are able to rapidly find different and change in today’s world. They have ways to achieve their goals or meet their Two new aspects of resilience were mechanisms to continuously evolve, and needs during a shock or when under stress. identified: will modify standards or norms based on This may include investing in capacity to emerging evidence, rather than seeking anticipate future conditions, set priorities, Leadership + coordination | Consultees permanent solutions based on the status quo. and respond, for example, by mobilising emphasised the critical importance of As a result, people and institutions examine and coordinating wider human, financial leadership, in the form of a committed city and systematically learn from their past and physical resources. Resourcefulness government that takes decisions on the basis experiences, and leverage this learning to is instrumental to a city’s ability to restore of sound evidence; engages with business, inform future decision-making. functionality of critical systems, potentially citizens and civil society groups; and aligns under severely constrained conditions. with other governing bodies at the regional Robust and national level. Robust systems include well-conceived, Inclusive constructed and managed physical assets, Inclusion emphasises the need for Urban planning + strategy | Consultees so that they can withstand the impacts of broad consultation and engagement of proposed that cities should have a holistic hazard events without significant damage or communities, including the most vulnerable cross-sectoral city vision, strategy or loss of function. Robust design anticipates groups. Addressing the shocks or stresses plan underpinned by appropriate data and potential failures in systems, making faced by one sector, location, or community delivered via policy, regulations, standards provision to ensure failure is predictable, in isolation of others is an anathema to the and codes. safe, and not disproportionate to the cause. notion of resilience. An inclusive approach Over-reliance on a single asset, cascading contributes to a sense of shared ownership Every city perceived resilience-building to failure and design thresholds that might or a joint vision to build city resilience. be an integrated, ongoing process involving lead to catastrophic collapse if exceeded are a multitude of actions at different scales. actively avoided. Integrated Across the six cities, there was a clear Integration and alignment between city distinction between those cities which had Redundant systems promotes consistency in decision- experienced shocks, and those which had Redundancy refers to spare capacity making and ensures that all investments are not. Different groups within the same city purposely created within systems so mutually supportive to a common outcome. had different perspectives on, and priorities that they can accommodate disruption, Integration is evident within and between for, what makes their city resilient. This extreme pressures or surges in demand. It resilient systems, and across different scales highlights the importance of inclusive includes diversity: the presence of multiple of their operation. Exchange of information consultation in resilience planning. ways to achieve a given need or fulfil a between systems enables them to function Further research is needed to specifically particular function. Examples include collectively and respond rapidly through understand the factors that contribute to the distributed infrastructure networks and shorter feedback loops throughout the city. resilience of lower income groups. Our resource reserves. Redundancies should be research suggested that their concerns and intentional, cost-effective and prioritised priorities were very different to those of the at a city-wide scale, and should not be an government and the private sector. externality of inefficient design.

Flexible Flexibility implies that systems can change, evolve and adapt in response to changing circumstances. This may favour decentralised Further information on our journey to understand city and modular approaches to infrastructure or resilience is captured in the research reports: ecosystem management. Flexibility can be achieved through the introduction of new • City Resilience Index: Research Report Volume I: Desk Study (Arup, April 2014) knowledge and technologies, as needed. It • City Resilience Index: Research Report Volume II: also means considering and incorporating Fieldwork and Primary Data Analysis (Arup, April 2014) indigenous or traditional knowledge and These are available on www.arup.com/cri practices in new ways.

City Resilience Framework - The Rockefeller Foundation | Arup 5 6 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework

Structure of the City Resilience Index

Every city is unique. The way Categories Goals resilience manifests itself plays out differently in different places. 4 12 The City Resilience Framework provides a lens through which Indicators the complexity of cities and the numerous factors that contribute 52 to a city’s resilience can be understood. It comprises 12 key Variables goals that describe the fundamental outcomes of a resilient city. 156

A resilient city is a city where there is or 7. Reduced exposure and fragility are… Indicated by environmental stewardship; appropriate infrastructure; effective land 1. Minimal human vulnerability use planning; and enforcement of planning Indicated by the extent to which everyone’s regulations. basic needs are met. 8. Effective provision of critical services 2. Diverse livelihoods and employment Indicated by diverse provision and active Facilitated by access to finance, ability to management; maintenance of ecosystems and accrue savings, skills training, business infrastructure; and contingency planning support and social welfare. 9. Reliable communications and mobility 3. Effective safeguards to human health Indicated by diverse and affordable multi- and life modal transport systems and information and Relying on integrated health facilities communication technology (ICT) networks; and services, and responsive emergency and contingency planning. services. 10. Effective leadership and management 4. Collective identity and community Involving government, business and civil support society, and indicated by trusted individuals; Observed as active community engagement, multi-stakeholder consultation; and evidence- strong social networks and social based decision-making. integration. 11. Empowered stakeholders 5. Comprehensive security and rule of Indicated by education for all, and access law to up-to-date information and knowledge Including law enforcement, crime to enable people and organisations to take prevention, justice, and emergency appropriate action. management. 12. Integrated development planning 6. Sustainable economy Indicated by the presence of a city vision; an Observed as sound financial management, integrated development strategy; and plans that diverse revenue streams, the ability to are regularly reviewed and updated by cross- attract business investment, adequate departmental working groups. investment, and emergency funds.

(Image across) View of Cali, Colombia.

City Resilience Framework - The Rockefeller Foundation | Arup 7 Categories

Goals

Qualities

Categories Goals Qualities The relative importance of the 12 goals is The 12 goals fall into four categories: likely to depend on the urban context and The 12 goals are complemented by qualities the health and wellbeing of individuals the challenges a city faces. However, our that distinguish a resilient city from one (people); urban systems and services research tells us that, generally, these factors that is simply liveable, sustainable or (place); economy and society (organisation); are what matter most when a city faces a prosperous. These qualities are considered and, finally, leadership and strategy wide range of chronic problems or a sudden to be important in preventing breakdown or (knowledge). For each, it is possible to catastrophe. They represent the backbone of failure; or enabling appropriate and timely envisage a best case which represents a resilient city. They are what enable people action to be taken. They can be observed a resilient city, and a worst case which to survive and thrive and businesses to in relation to the various assets, systems, equates to breakdown or collapse. A city prosper despite adverse circumstances. behaviours and practices that collectively characterised by poverty, social conflict, contribute to achieving the 12 outcomes poor quality infrastructure and weak The 12 goals provide a holistic articulation (or goals). For example, health services governance is not resilient. This is evident of resilience which equates to the elements that are flexible can reallocate staff to deal in Port au Prince, Haiti, where recovery of a city’s immune system. A weakness with an outbreak of disease. Protective following the devastation caused by an in one area may compromise the city’s infrastructure that is robust will not fail earthquake on 12 January 2010 has proven resilience overall, unless it is compensated catastrophically when design thresholds are particularly challenging. for by strength elsewhere. In Guangzhou, exceeded. Energy systems with redundancy China, public squares were redesigned can accommodate surges in demand or The categories can be used to explain New to encourage social interaction between disruption to supply networks. Planning York City’s resilience, as demonstrated migrant workers as part of an integrated processes that are reflective are better placed following Superstorm Sandy in 2012, and, approach to urban planning. In Surat, India, to respond to changing circumstances. previously, after the 9/11 terrorist attack there has been substantial investment in Families that are resourceful will have put in 2001. This was due to the city’s relative health services to offset the lack of family aside savings or invested in insurance. Early prosperity, but also to collective identity support and social networks among migrant warning systems that are inclusive will and effective city leadership. These factors workers. minimise loss of life and property. meant that people were willing to help each other and unite around the common goal of The goals are focused on performance; they City resilience is complex. The three getting the city back to normal as quickly describe the outcome of actions to build layers of the City Resilience Framework as possible. Emergency plans were in place resilience, not the actions themselves. This – categories, goals and qualities – each that meant that urban systems and services acknowledges that resilience results from contribute to a richer articulation of were rapidly reinstated and civil order was individual and collective action at various resilience. The framework can be used maintained. levels, delivered by multiple stakeholders to facilitate a common understanding of ranging from households to municipal resilience amongst diverse stakeholders. It Wealthier cities are not necessarily more government. In Cape Town, South Africa, can also be used to identify where there are resilient, as demonstrated by the decline emergency response in some townships critical gaps, where action and investment of the US city of Detroit, which became has fallen to community groups, as the to build resilience will be most effective, overly dependent on a single industry, or the city police force is unwilling to operate or where deeper analysis or understanding flooding which brought Bangkok, , in these areas due to concerns for their is required. The final layer will be the to a standstill in 2010, affecting supply safety. In the , the efficacy of variables and metrics that result in the City chains globally. Conversely, relatively poor a community-based early warning system Resilience Index. This will enable cities to cities can make choices that build resilience. in Metro Manila has been strengthened carry out an objective assessment of their Gorakhpur, India, is working to build through access to data and knowledge as a resilience and measure progress against an resilience at the ward level in response to result of a partnership between a local non- initial baseline. annual waterlogging in poorer parts of the governmental agency and the university. city. By improving solid waste management practices to unblock drains, and increasing drainage of waterlogged areas, the city has reduced incidences of diseases such as and Japanese encephalitis, which are spread by vectors that breed in waterlogged areas.

8 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup “Resilience is based on the shifting relationship between scales, and between autonomy on the one hand and connectivity on the other.” Allan, P. & Bryant, M. (2011) ‘Resilience as a framework for urbanism and recovery’. Journal of Landscape Architecture 6(2), p. 43

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City Resilience Framework - The Rockefeller Foundation | Arup 9 2. Diverse livelihoods and 3. Effective safeguards to human employment health and life

This is facilitated by access to finance, This relies on integrated health facilities ability to accrue savings, skills training, and services, and responsive emergency 1. Minimal human vulnerability business support, and social welfare. services. This relates to the extent to which Diverse livelihood opportunities and Health systems are critical to the day-to- everyone’s basic needs are met. support mechanisms allow citizens to day prevention of illness and the spread of Minimising underlying human vulnerabilities proactively respond to changing conditions disease, as well as protecting the population enables individuals and households to achieve within their city without undermining their during emergencies. They comprise a a standard of living which goes beyond wellbeing. Access to finance, skills training diverse suite of practices and infrastructure, mere survival. A basic level of wellbeing and business support enables individuals which help to maintain and also allows people to deal with unforeseen to pursue a range of options to secure the treat chronic and acute health problems. circumstances. This is only possible once critical assets necessary to meet their basic their physiological needs are met through a needs. Long-term, secure livelihoods allow Health services encompass a variety of basic level of provision of food, water and people to accrue personal savings that will practices, including: education; sanitation; sanitation, energy and shelter. support their development, as well as their epidemiological surveillance; vaccination; survival during times of crisis. and provision of healthcare services. These The focus of this goal is on providing an are focused on ensuring both physical and adequate and dependable supply of essential Mechanisms through which diverse mental health. Accessible and affordable services to a city’s whole population. livelihood and employment opportunities day-to-day individual healthcare, as well as Access to shelter and food – particularly for can be generated include training and skills appropriate population-based interventions vulnerable groups – as well as sufficient, safe, development, microfinance, incentive (i.e. targeted at the community or city level), and reliable citywide water, sanitation and and innovation programmes, as well as are key features of a functioning city health energy networks are key to achieving this a living wage. Financial resources for system. goal. Evidence from cities suggests that the business development and incentives affordability of these services is also critical for innovation allow individuals to seek Measures to address injuries and addiction to ensuring the whole population has daily diverse employment options during times of are also important to reduce the burden access, including during times of disruption. economic constraint or change. Contingency of ill-health in urban settings. Effective, measures, such as insurance and social inclusive and well-prepared medical staff The robustness of essential city networks welfare, contribute to supporting households and procedures ensure that all individuals becomes particularly important in severe through challenging circumstances. have access to health services before, as environmental events. For example: electricity well as during, emergencies. Responsive power lines may be damaged by storms. An inclusive approach to livelihoods emergency services provide surge capacity If failure occurs, resourceful city utility ensures that all citizens in a city have to support peak demand during a crisis. companies are able to respond quickly in line unrestricted access to legitimate In order to achieve the above, appropriate with coordinated and pre-prepared emergency occupations, regardless of race, ethnicity, health infrastructure is critical. plans. Inclusive plans are also essential gender or sexual orientation. A range to ensure that all communities receive a of dynamic small, medium and large Learning and future planning ensure that minimum supply of basic assets, notably businesses in different economic sectors public health practices − such as prevention water and food, particularly in extreme helps people to access job opportunities, through education − are appropriate for circumstances. even during challenging macro-economic the social and physical context of a given circumstances. In the long term, city. Services or facilities that target Specific indicators that underpin this goal microfinance, savings, training, business vulnerable groups ensure that preventive include: Housing; Energy supply; Drinking support and social welfare form a safety and responsive strategies are inclusive water; Sanitation; Food supply. net that enables people to be flexible during and able to reach the entire population. In times of stress. emergencies, a diverse network of medical practitioners and facilities throughout the Specific indicators that underpin this goal city ensures the availability of additional include: Labour policies; Skills and training; resources (redundancy) that can be deployed Business development and innovation; immediately wherever they are needed. Financing mechanisms; Protection of livelihoods. Specific indicators that underpin this goal include: Public health systems; Quality healthcare; Medical care; Emergency Health & response. wellbeing

10 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup Economy & society 6. Sustainable economy

5. Comprehensive security and This is observed in sound management of city finances, diverse revenue streams, rule of law and the ability to attract business investment, allocate capital, and build This includes law enforcement, crime emergency funds. prevention, justice, and emergency management. A robust economic system is critical to 4. Collective identity and sustaining the investment that a city needs community support A comprehensive and contextually to maintain its infrastructure and provide appropriate approach to law enforcement for its communities. It helps to create This is observed as active community facilitates the reduction and prevention of contingency funds that both the private engagement, strong social networks and crime and corruption in a city. By instituting and public sectors can use to respond to social integration. a transparent justice system based on ethical emergencies and unforeseen events. As a principles, cities can uphold the rule of result, cities are better able to respond to Communities that are active, appropriately law and promote citizenship in daily life. changing economic conditions and pursue supported by the city government and These norms are critical to maintaining long-term prosperity. well-connected with one another contribute order during times of stress. Well planned to the bottom-up creation of a city with a and resourced law enforcement facilitates A sustainable city economy is developed by strong identity and culture. This enables peaceful recovery, and ensures a healthy aligning fiscal procedures in government, individuals, communities and the city population by reducing crime-related injury, and the ability of the private sector to government to trust and support each other, fatality and stress. function despite shocks and stresses. A and face unforeseen circumstances together careful structuring of city budgets will without civil unrest or violence. An integrated approach to law enforcement consider the availability of funds to combines deterrents with effective policing, regularly invest in infrastructure and to Creating cohesive cities has both social emergency capacity, a transparent judicial respond to emergencies. This is supported and physical dimensions. Reinforcing system, and measures to reduce corruption. by a robust revenue base, supplemented local identity and culture contributes to An effective judicial system promotes civic by the city’s ability to attract inward positive relationships between individuals education as a preventive measure, as well investment. while reinforcing their collective ability to as responsive action through fair justice. improve the environment where they live, Sufficiently resourced policing practices The private sector has a complementary work, create and play. These relationships that promote safety and security are a responsibility to develop business are supported by a number of practices, feature of daily life in a resilient city, and continuity plans to ensure that businesses including social networks and community continue during times of unrest. Trust and can also function during, and recover organisations, artistic expression and the transparency are identified as key attributes from, emergencies. City government can preservation of cultural heritage, including of policing, which can be achieved by contribute to the sustainability of private religion, language and traditions. Ideally, reducing corruption and by involving economic activities by empowering these practices are underpinned by spatial other relevant actors in law enforcement, different sectors within the economy and interventions that shape the places where such as community leaders. Trust in city strengthening trade relationships beyond communities develop and connect. authorities and legal institutions is achieved the city. Provision of communal facilities, public by appropriate enforcement of and spaces and physical accessibility can help to avoiding discrimination or violence in law Resourcefulness is identified as a key strengthen community cohesion and avoid enforcement. quality for a healthy city economy. A isolation. diverse economy can absorb the impacts Laws are upheld by resourceful and of sector-based shocks without major Inclusivity is promoted by community inclusive systems of policing, which impact on the city’s revenue streams. participation. For example: processes that actively involve city agencies, businesses Resilient cities also optimise revenues and encourage civic engagement in planning and and civil society. Social stability and expenditures, and leverage funds from non- decision-making processes. Social practices security is also facilitated by inclusive government and business sources where are reinforced by physical interventions public space design, which helps to avoid appropriate. For example: public-private that foster resourcefulness and integration, creating places where crime may proliferate, partnerships, direct investment and grant such as the provision of communal meeting while maximising the safety and security of funding. places; and the development of mixed individuals. neighbourhoods that offer a range of Specific indicators that underpin this housing opportunities to different social/ Specific indicators that underpin this goal goal include: Public finances; Business income groups. include: Systems to deter crime; Corruption continuity planning; Economic base; prevention; Policing; Criminal and civil Business environment; Integration with Specific indicators that underpin this goal justice. regional and global economies. include: Community support; Community cohesion; Identity and culture; Engaged Citizens.

City Resilience Framework - The Rockefeller Foundation | Arup 11 Infrastructure & environment

9. Reliable mobility and 8. Effective provision of critical communications services This is enabled by diverse and affordable This results from diversity of provision, multi-modal transport systems and redundancy, active management information and communication 7. Reduced exposure and fragility and maintenance of ecosystems and technology (ICT) networks, and infrastructure, and contingency planning. contingency planning. This relies on environmental stewardship, appropriate infrastructure, effective Ecosystems and infrastructure both provide Reliable communications and mobility land use planning and enforcement of planning regulations. critical services to urban populations. create daily connectivity between places, However, these services depend on more people and services. This fosters a positive Conservation of environmental assets than just the presence of assets; their quality environment for everyday working preserves the natural protection afforded and performance are only maintained and living, builds social cohesion, and to cities by ecosystems. Among other through proactive management. During also supports rapid mass evacuation things, this might include the absorption of times of stress, some ecosystem services and widespread communication during tidal surges by coastal wetlands or fluvial and infrastructure become central to the emergencies. flooding by upstream woodlands. The city functioning. Well-maintained systems protective function of infrastructure relies are better able to accommodate abnormal A combination of transport links and on appropriate design and construction. This demand, withstand unusual pressures and the provision of ICT are fundamental is as important for homes, offices and other continue functioning. Well-established to connectivity in contemporary cities. day-to-day infrastructure as it is for specific management practices create enhanced Transport links enable physical mobility and defences, like flood barriers. Working knowledge of system components, so that should be characterised by a wide coverage together, both natural and man-made assets infrastructure managers are better prepared to of the city, as well as good service quality help to improve protection against severe restore disrupted services. and affordability. Good infrastructure conditions, avoiding injury, damage or loss. capacity, safety and efficiency are essential Educating communities and businesses is for the effective operation of transport Ecosystems and built infrastructure essential to ensuring that ecosystem services networks. Business logistics and freight designed as integrated urban systems of importance to urban populations – such as infrastructure are an important consideration effectively contribute to reducing physical natural drainage capacity and flood defences to support the city’s economic functioning. exposure and vulnerability. For example: – remain robust and are not undermined by river basins, forests, drains and sewers careless or unwise actions, such as natural Consultations undertaken in this research all play a role in protecting cities from resource extraction or destruction of coastal suggest that communication technologies flooding. In coastal areas, for example, dunes and mangroves. The management of are also critical for a city’s connectivity. robustness can be better achieved by using man-made infrastructure includes frequent These include a diverse range of natural wetlands and man-made dykes as monitoring together with regular plans for technologies, such as radio networks, part of an integrated approach to coastal upgrade and renewal. Demand management internet and mobile phone services, as well flooding. is critical in the continuity of critical services, as specific channels such as social media. ensuring that neither built nor natural systems The availability of reliable and inclusive A resilient city values ecosystem services are overloaded, and can maintain sufficient forms of communication is critical to and has in place robust environmental redundancy to absorb surges in demand. disseminate information during emergencies policies to protect ecosystems in situ. In A resilient city also implements continuity – particularly to the most vulnerable resilient cities, man-made infrastructure plans to ensure that infrastructure managers residents of a city, such as the poor and the and buildings are well-conceived, well- are ready to maintain service provision and elderly. constructed and safeguarded against known avoid disruption during extreme events. hazards. Building codes and standards Inclusive multi-modal transport networks promote long-term robustness, flexibility Active management of ecosystem services allow safe and affordable travel between all to adapt in the future and safe failure and infrastructure ensures long-term neighbourhoods and key facilities across mechanisms in the event of a shock. robustness and flexibility in changing the city. Multi-modal systems incorporate conditions. For example: through monitoring redundancy and flexibility by providing Cities in seismic zones can be better and maintenance programmes. Reflective alternative options in the event of failure prepared for earthquakes by updating and approaches may use intelligent technologies or surges in demand. Robust and redundant enforcing building codes on the basis of and education to monitor the integrity of ICT services enable safe communication reflective learning and new understanding of assets and disseminate alerts in the event of and access to information, including future conditions. declining performance. coordination of emergency services.

Specific indicators that underpin this goal Specific indicators that underpin this Specific indicators that underpin this include: Hazard exposure and mapping; goal include: Stewardship of ecosystems; goal include:Transport networks; Codes, standards and enforcement; Infrastructure services; Spare capacity; Transport operations and maintenance; Protective ecosystems; Protective Maintenance; Continuity for critical assets Communications technology; Technology infrastructure. and services. networks.

12 City Resilience Framework - The Rockefeller Foundation | Arup 12 City Resilience Framework - The Rockefeller Foundation | Arup Leadership & strategy

10. Effective leadership and management 11. Empowered stakeholders 12. Integrated development This relates to government, business planning and civil society and is recognisable in This is underpinned by education for trusted individuals, multi-stakeholder all, and relies on access to up-to-date This is indicated by the presence of consultation, and evidence-based information and knowledge to enable decision-making. a vision, an integrated development people and organisations to take strategy, and plans that are regularly appropriate action. reviewed and updated by cross- Clear and purposeful leadership promotes departmental groups. trust, unity and a shared understanding Individuals and communities that know of a city’s trajectory. Leadership is a key what to do during unexpected events are Development plans and land use regulations ingredient in encouraging individuals invaluable assets to a city. The provision are instruments that cities use to coordinate and communities to take action during of early warnings and access to education, and control urban development and guide challenging times. A committed city information and knowledge empowers future investments. The creation and government that takes decisions on the basis citizens and gives them the tools to take implementation of plans and regulations of sound evidence enables a city to thrive appropriate decisions in the face of shocks ensures that individual projects and from day to day, and to respond to shocks and stresses. As a consequence, urban programmes are aligned and sufficiently and stresses. stakeholders are better positioned to act, address uncertainty. Integrated plans learn, and adapt. create a formalised framework to deal with Cross-sector collaboration that challenges multidisciplinary issues, such as climate ‘siloed’ approaches in government is critical The generation of information and change, disaster risk reduction or emergency to effective decision-making. Multi- knowledge depends on a city’s investment response. stakeholder alignment and consultations in research, data collection and risk with communities, including the private monitoring. By leveraging relevant A critical aspect of delivering a sector, are measures that support relevant information for evidence-based decision- comprehensive development and planning and effective decision-making. Evidence making, resilient cities can take better framework is the presence of a city vision. gathered in cities suggests that effective decisions and act appropriately in changing The development of a shared and integrated city governments are given the necessary circumstances. Multiple and well-used city vision requires understanding of and power to make decisions at local level. channels of communication help to make alignment between the motivations of The presence of a strong local government this process effective. In addition, resilient different stakeholders involved in designing leader is also an asset in this context. cities ensure that information shared with and implementing projects in the city. Integrated, multi-stakeholder decision- their citizens can be understood. Other This, in turn, requires ongoing processes making is also supported by coordinated forms of knowledge exchange between of communication and coordination at practices and procedures, such as communities and cities – such as city all stages of planning. A vision should be emergency management structures and networks or ‘twin city’ schemes – are also underpinned by appropriate evidence and response plans. beneficial when it comes to disseminating acceptance of uncertainty, and delivered best practice. via policy and regulations. Land use plans Inclusive governments recognise the should be permanently enforced and importance of grassroots knowledge to Inclusive provision of education and regularly updated. Preparation of plans help them understand local challenges, and information enables citizens to protect relies on collecting up-to-date and relevant they value the research and innovation that themselves in emergency situations. For data, as well as the ongoing monitoring of universities and businesses can contribute example, in many cities that are vulnerable urban trends. to solve city problems. By forging cross- to seismic activity, television and radio sector relationships, resilient cities are better stations automatically switch to deliver The implementation of integrated strategies able to coordinate people and access private official earthquake information following and plans ensures that different projects resources and support during times of need. an event, which alerts the public to risks and programmes across a city are aligned, Integration and reflectiveness are essential and precautionary measures. Sharing mutually-supportive, reflective of past to emergency coordination and capacity- knowledge, experience and best practices experience and resourceful in the face building, enabling appropriate and timely between cities enables reflectiveness of future uncertainty. These processes government responses. through broader exchange of information, should be truly inclusive, incorporating feedback loops, learning and adaptation. consultations with residents and others who Specific indicators that underpin this goal will experience their effects. include: Government decision-making; Specific indicators that underpin this goal Co-ordination with other government include: Education for all; Community Specific indicators that underpin this bodies; multi-stakeholder collaboration; awareness and preparedness; Mechanisms goal include: City monitoring and data hazard monitoring and risk assessment; for communities to engage with management; Planning process; Land use Government emergency management. government. and zoning; Planning approval process.

City Resilience Framework - The Rockefeller Foundation | Arup 13 “Surat started off as a place with household workplaces specialising in high skill products –hand woven textiles, diamond cutting/ polishing and embroidery. Due to scarcity of labour, competition in the country and demand for craftsmanship, employers had to be nice to their immigrant employees – they needed to retain their employees. They tried to understand their issues and treated them like family…This sentiment has continued.” Elected standing commitee member

14 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup Recognising resilience

Building cross-sectoral leadership for disasters, Surat

As the fastest growing city in India, and Following this catastrophe, a municipal despite its economic prosperity, Surat commissioner was put in place to lead the struggles to keep up with demands on city back to normality and rebuild trust its infrastructure and services. It has internally and externally. There was a experienced several shocks in recent recognised need for improved infrastructure, decades, including floods, social unrest and such as sewerage and stormwater drainage, an outbreak of the pneumonic plague. This as well as better flood management to has strongly influenced the city’s successful reduce the chances of a recurrence. This efforts to enhance resilience. event also raised awareness of public health generally and the wellbeing of Surat is well-known for its flooding the workforce to contribute to economic challenges. However, 20 years ago, a chain prosperity. The local government put in reaction following a flood permanently place measures to prevent rapid disease changed Surat’s approach to flood spread, such as monitoring at household management. After the flood in 1994, poor level, and provided local health centres in sanitation in vulnerable communities is the most vulnerable areas to anticipate and reasoned to have caused an outbreak of respond to a disaster. pneumonic plague. While the number of suspected cases was limited, the unexpected nature and fear of a relatively unknown disease caused panic which started locally but quickly spread nationally and internationally.

Civil hospital quaratined by Indian military officials © Laurie Garett

Door to door solid waste collection It took longer to restore trust in the security © JNNURM of Surat after the disaster than it did to clean up the streets and control the disease. This lack of trust delayed residents from returning to the city and impacted heavily on business continuity. In light of this, the business community, led by the Chamber Learning from previous of Commerce, now contributes strong disasters has helped leadership in planning for disasters and Surat to cope with new challenges, through being on the ground during emergencies, evolving systems helping to disseminate information and and developing new resources. This complements government practices. recognition of the importance of providing fast, reliable information to the public about emergencies and their management.

City Resilience Framework - The Rockefeller Foundation | Arup 15 Addressing seismic risk beyond building codes, Concepción

“In Concepción Events following the massive 8.8 earthquake that hit Concepción’s we had two metropolitan area on 27 February 2010 earthquakes: the highlight the physical and social aspects 8.8 one and the of resilience. Due to the presence and enforcement of building codes in Chile, social earthquake buildings sustained moderate damage and – looting, arson… there was limited loss of life considering the magnitude of the earthquake. Critical I think the last one services – electricity, water and sewerage affected our soul networks – were disrupted and transport most violently.” came to a standstill. Arrival of military to Coronel, Gran Mayor of Concepción What was unexpected was the almost total Concepción © Radio Bio Bio/Leesly Leal breakdown of communication networks: internet, telephone and radio. Officials were unable to communicate with each other, Order was gradually restored after the obtain help from disaster management arrival of the military and the imposition agencies in Santiago, or inform the public of a curfew that was welcomed by the as to what was happening. Reports of food population. The level of social instability shortages, looting and arson led to rumours after the disaster, as well as its link to about gangs stealing from homes. An inadequate emergency communications, overriding sense of insecurity led to panic, were key learning points for the city. The which escalated into widespread looting situation in Concepción after the earthquake and anxiety. Neighbours demonstrated demonstrates that it can take a city longer to community cohesiveness by joining forces recover from the social and human impacts to protect each other and setting up shifts to of disasters than to restore the physical keep watch after dark and guard their home. elements.

The only communication network that continued to function was Radio Bio Bio, thanks to its continuity planning and back-up systems. By providing the public with a source of information about what was happening and enabling residents to communicate with one another, the radio station became a centre point for keeping some level of social stability.

Social systems and communications were critical to allow a rapid response after a major earthquake in Concepción.

Emergency drill at Concepción municipality

16 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup Enhancing resilience through community-led actions, New Orleans

“A lot of residents The city of New Orleans has endured two Resumption of Catholic masses at the Mary significant disasters recently: Hurricane Queen of church – led by the feel a strong sense Katrina in 2005 and the BP oil spill in priest who had displayed such leadership – of belonging 2010. Located close to both the Gulf of helped to promote a sense of normality, and here. They had a and Lake Pontchartrain, many local reminded residents of their shared religion, residents rely on these water resources for their common language (Vietnamese) chance to evacuate their livelihoods in the fishing and food and their collective identity and cultural and start a life processing industries. One such community heritage. Residents were encouraged to is the city’s Vietnamese community in rebuild their homes by bartering their somewhere else, the neighbourhood of Versailles. Their skills with one another. For example: local but most of them proximity to open water has made the electricians helped to restore power to the chose to come back community particularly vulnerable to the homes of roofers; in exchange, the roofers recent disasters. Their response illustrates helped to replace damaged tiles and roofs here because it the importance of social aspects of on the electricians’ homes. reminded them of a resilience, particularly the fundamental role little Vietnam. This of strong, unified communities. In 2006, the Mary Queen of Vietnam Community Development Corporation really feels like a (MQVN CDC) was founded to help community – you local residents rebuild not only their can’t keep a secret homes but also their lives after Katrina. This organisation still exists, promoting here, people are so redundancy by providing social services close.” and care in the continued absence of health facilities in the neighbourhood, and also Deputy Director of Mary training residents in alternative livelihoods. Queen of Vietnam Community Development Corporation The Deepwater Horizon BP oil spill in 2010 polluted many of the fishing waters that local fisherfolk relied on for their livelihoods. The MQVN CDC now re- Retail activities in Versailles trains fisherfolk in market gardening and aquaponics, providing them with alternative Katrina displaced almost the entire livelihood options. population of Versailles; destroyed and damaged homes and businesses, including fishing boats; forced the permanent closure of the nearest hospital and schools; and left the community temporarily without power or water. Galvanised by the leadership of the local Catholic priest, himself supported by a network of community leaders, evacuated residents began to return to Versailles a few weeks after Katrina. Learning that Communities unite behind strong the government was unable to provide the neighbourhood necessary resources for the recovery as identities in New Orleans to overcome quickly as they were needed, the community disaster. rebuilt both its physical and social structures on its own. Original homes of the first Vietnamese migrants in New Orleans (damaged by Hurricane Katrina)

City Resilience Framework - The Rockefeller Foundation | Arup 17 Balancing natural resources under challenging conditions, Semarang

“There are three Semarang suffers from regular flooding and water vendors in landslides. These issues are made worse by inadequate basic services provided to some this area, including of the residents, which cause them to extract me… There is water locally. This is an example of the limited water and inter-relationships between stresses, which the well is getting lead to further problems. dry.” Drinking water in Semarang is not easily accessible for some communities. Despite Water vendor their proximity to water, residents in Semarang’s coastal communities are often most affected by water shortages. They Semarang waterfront © Rockfeller commonly purchase water of unknown Foundation quality from formal or informal vendors. Wells are another alternative water source for communities or individuals who cannot To prevent further damage to their homes, be supplied by water mains. However, in some coastal communities have installed some coastal areas wells are becoming floating floorboards in their houses, and salinised, while wells in other parts of the put aside money every year to raise the city are running dry during periods of peak height of their houses. Fishpond farmers demand. now use nets in their ponds to reduce loses during floods. With the support of local universities, some fishpond farmers have also experimented with cultivating mussels as an alternative crop, as they grow tethered to rocks rather than floating free in the water.

Close by, in Semarang Port, private- and state-owned businesses appear to be far less affected by coastal flooding. With larger financial resources at their disposal, Flooding in Semarang streets they have been able to invest in hard infrastructure – such as automatic pumping systems – to reduce operational disruption Forced to extract groundwater to meet its caused by flooding. Businesses have also residents’ basic needs, Semarang is facing improved their transport access to the another significant urban challenge. Land Semarang Port area by laying a new road subsidence is a side-effect of groundwater 50cm higher than the previous road level. extraction, taking place at a rate of up to This local adaptation enables access to the 10cm a year according to some estimates. port to continue during coastal flooding This environmental process has increased events, allowing one of Semarang’s key Semarang works with, rather than against, the city’s vulnerability to flooding by economic assets to function. This ensures nature, to maintain its lowering the city’s ground level. Tidal continuity in the availability of goods, systems and assets, and to protect lives and flooding, which occurs on a daily basis in services and jobs, which benefits the local livelihoods. some communities, has significant impacts communities, and the wider city. on communities living along the coast. Homes, shops and roads are regularly flooded, and fishpond farmers have had their fish stocks washed out to sea, affecting their livelihoods.

18 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup Minimising vulnerabilities through multiple approaches, Cali

“How do we help? Cali is the third largest city in Colombia, Grassroots organisations, such as Fundación We try to get where located in the broad, fertile Cauca River Paz y Bien, have developed community- valley. The city’s rapid growth since the led approaches to address community the state is unable 1970s has forced large numbers of people, vulnerabilities that have been challenging to reach. We listen, often the poorest, to live in flood-prone for the city government and threaten social we support, and areas, among them the Aguablanca district. breakdown. With the aim of empowering To improve these vulnerable areas, the local communities and diversifying livelihoods, work with the government and grassroots groups have Fundación Paz y Bien provides training, social fabric of our developed parallel and complementary microfinance and emotional support. approaches that serve as an example of community.” creating resilience. One of this organisation’s major achievements is the implementation of Fundación Paz y Bien volunteer The first levees to protect Aguablanca a popular microcredit programme in from river flooding were built around 30 Aguablanca. Their deep understanding of years ago, but the structural integrity of the community’s problems has enabled the defences has been compromised over the organisation’s members to develop time. Local residents have placed pipes for a reflective and inclusive approach that domestic water supply through the levees specifically targets needs identified by and extracted materials for construction the community itself. With this approach, aggregates. To protect the levees, the city Fundación Paz y Bien has helped to build a government, supported by national and more cohesive community and has become international partners, is implementing a a key point of support and guidance for number of interventions. In this process, the families suffering the impacts of violence, municipality has recognised that ensuring extreme poverty, and economic instability in the robustness of the infrastructure in the Aquablanca. long term requires the engagement of the local communities.

Providing information about the risks associated with degrading infrastructure has ensured that communities can better appreciate the value of the flood defence and understand how it works. This integrated approach to community participation has also resulted in the passive surveillance of public spaces and better control of illegal dumping next to the levees.

Community workshop at Fundación Paz y Bien Multiple actors cooperate in Cali to create and strengthen vibrant communities, through actions which place community needs and capacities centre stage.

Mayor of Cali visiting Aguablanca district © Alcaldía de Santiago de Cali.

City Resilience Framework - The Rockefeller Foundation | Arup 19 Valuing spatial planning and leadership, Cape Town

Many of the stresses currently faced by city budget is not sufficient to do so. The “The city wasn’t Cape Town are the legacy of the segregation city government also struggles to maintain designed by and discriminatory practices of South security in these areas. The conditions economic forces; Africa’s apartheid system. Apartheid of isolation and lack of basic needs and planning processes promoted spatial security contribute to the residents’ lack instead it was segregation and resulted in disconnected of empowerment and a feeling of being designed by social neighbourhoods and a limited transport inadequately engaged in decision-making engineering. system in the city. These challenges are processes. starting to be addressed through improved Maybe we need leadership and a new approach to spatial As part of an effort to address these social engineering planning. challenges, the City of Cape Town has to change it drafted a Spatial Development Framework (2012) which promotes a new integrated again?” approach to planning and development of neighbourhoods and services. A new Representative of the Cape integrated transport system – headlined Town Partnership by the MyCiTi bus system – is also in development by the government body, Transport for Cape Town.

Within informal settlements, the City and NGO partners are undertaking inclusive re-blocking exercises to better engage residents and increase community cohesion. This involves rebuilding areas within A typical informal house in Sweet Homes, the settlements to allow greater space Khayelitsha for socialising and also to allow access for service provision, particularly for emergency services to respond to incidents Capetonians live in residential areas which such as domestic fires. are still often categorised by the race or economic status of their inhabitants. New housing developments typically only occur on the periphery of the city, while redevelopment of brownfield sites in the city is uncommon. Integrated mixed-use developments are extremely rare. Therefore, to travel between home and work, residents rely heavily on a limited transport network, with few choices of route or safe and affordable modes. Some areas of the city still lack any public transport. Integrated development is helping tackle the legacy Particular areas of the city lack basic of apartheid, building more services, specifically the informal cohesive communities and MyCiTi bus and feeder station, Gardens a more connected city in settlements in which 14% of Capetonians Cape Town. live. Many of these settlements exist in the flood-prone Cape Flats area. The City of Cape Town would like to relocate residents in these settlements to safer locations where they could provide them with basic services such as water and electricity. However, the

20 City Resilience Framework - The Rockefeller Foundation | Arup City Resilience Framework - The Rockefeller Foundation | Arup What next?

A year ago, we set out to create a City Resilience Index. Our objective was not to rank and compare cities. Rather, we set out to better understand what it is that makes a city resilient. The purpose of the City Resilience Index is to provide cities with a robust, holistic and accessible basis for assessment so that they are better placed to make investment decisions and engage in urban planning practices that ensure people living in cities – particularly the poor and vulnerable – survive and thrive no matter what shocks and stresses they encounter.

The City Resilience Framework is the first step. It provides the foundation for the Index, defining its structure; the categories, the goals and indicators. We have also developed a preliminary list of variables and metrics. As far as possible, these are based on data that is already available, and aligned with variables used today by cities to measure other aspects of urban performance. They will be reviewed and refined over the coming months based on consultation with experts in specific areas and the cities we have engaged with to date; also the 100 Resilient Cities and the Asian Cities Climate Change Resilience Network.

By the end of 2015, we hope to have a final version of the City Resilience Index that will have been piloted in several cities. We are also exploring opportunities to develop tools, based on the data we have collected, that provide a more specific lens for organisations interested in understanding resilience to particular types of hazard, in different sectors or at specific scales. Our hope is that the City Resilience Framework and City Resilience Index will also facilitate collaboration and alignment of global efforts to create safer and more resilient cities that will ensure the wellbeing of the majority of the world’s population as the 21st century unfolds.

City Resilience Framework - The Rockefeller Foundation | Arup 21 For more information

Arup Jo da Silva Braulio Eduardo Morera 13 Fitzroy Street E-mail: [email protected] E-mail: [email protected] London W1T 4BQ Tel: +44 20 7755 3037 Tel: +44 20 7755 4820 United Kingdom