Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Metro Manila and Kathmandu
Executive Summaries
February 28, 2010
http://www.emi-megacities.org Risk-Sensitive Land Use Plan: Kathmandu Metropolitan City, Nepal
Copyright (c) 2010 German Committee for Disaster Reduction (DKKV) and EMI
Permission to use this document is granted provided that the use of document or parts thereof is for educational, informational, and non-commercial or personal use only. EMI and the German Committee for Disaster Reduction (DKKV) must be acknowledged in all cases as the source when reproducing any part of this publication.
This project is partially funded by the German Federal Foreign Office through the German Committee for Disaster Reduction (Deutsches Komitee Katastrophenvorsorge e.V. - DKKV).
For Further information on this project contact: EMI 2F Puno Bldg. Annex, 47 Kalayaan Ave., Diliman Quezon City 1101, Philippines T/F: +632 9279643; T: +632 4334074 Email: [email protected] Website: http://www.emi-megacities.org Preface
he project Mainstreaming Disaster recommendation of the following Project Work TRisk Reduction in Megacities: A Pilot Outputs: Application in Metro Manila and Kathmandu (Phase 2) was undertaken by the Earthquakes 1. Disaster risk reduction and Megacities Initiative from June 1.1. Development of a risk-sensitive 2008-January 2010. Funded largely by the physical land use plan for Kathmandu German Federal Foreign Office through the Metropolitan City (KMC); German Committee for Disaster Reduction 1.2. Structuring and Implementing a (Deutsches Komitee Katasrophenvorsorge competent disaster risk management e.v.-DKKV), the project aimed to support the function at KMC; disaster reduction efforts of both megacities, 1.3. Development of a schematic study strengthen their disaster management for an urban redevelopment plan capabilities, and facilitate the mainstreaming of of one of the most disaster-prone sound risk reduction practices into their basic neighborhoods of Makati City; and local governance functions. 1.4. Training of disaster management professionals in Metro Manila on This document contains the executive summaries of the various final reports prepared competent local-level emergency and was compiled to provide a bird’s-eye-view management practices. of the accomplishments of the project. The executive summaries of the following reports are 2. Content customization of two training included: courses and training of professionals for KMC and Metro Manila 1. Sectoral Profile of Kathmandu Metropolitan 2.1. Pilot testing of a Risk-sensitive Land City, Nepal; Use Planning Course in Metro 2. Risk-sensitive Land Use Plan of Kathmandu Manila; and Metropolitan City, Nepal; 2.2. Pilot testing in Metro Manila and 3. Structuring and Implementing a Competent KMC of a Course on City-Level Disaster Risk Management Function at Organizational and Operational KMC, Nepal; Arrangements for Emergency 4. Risk-sensitive Urban Redevelopment Plan Management. of Barangay Rizal, Makati City, Philippines; and 5. Professional Training in Risk-sensitive Land Use Planning and Local Level Emergency Management, Meto Manila, Philippines and Kathmandu Metropolitan City, Nepal.
The executive summaries provide relevant details on the accomplishments, constraints, results and
Executive Summaries iii iv Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Sectoral Profile Kathmandu Metropolitan City, Nepal
Executive Summary
his report is prepared by Earthquakes undertaking between Kathmandu Metropolitan Tand Megacities Initiative (EMI) as part City (KMC), the Earthquakes and Megacities of its contractual obligations to the German Initiative (EMI) and the National Society Federal Foreign Office (FFO) thru the German for Earthquake Technology - Nepal (NSET- Committee on Disaster Reduction (DKKV) Nepal). The overall goal of the project is to to develop a risk-sensitive land use plan for develop a rational land use plan of KMC that Kathmandu Metropolitan City (KMC). The fully integrates disaster risk reduction within KMC Risk-Sensitive Land Use Plan is prepared its spatial and physical development strategies, under the project titled, “Mainstreaming its regulatory and non-regulatory tools, and Disaster Risk Reduction in Megacities: A Pilot its related bylaws and procedures. The project Application in Metro Manila and Kathmandu.” demonstrates that land use planning is an The FFO/DKKV-EMI contract covers the effective tool to lessen the physical, social and Second Phase of the project undertaken from 1 economic vulnerabilities of a city. The Sectoral March 2009 to 31 December 2009. Profile compiles all the data and parameters necessary to develop the RSLUP. In addition, The Risk Sensitive Land Use Plan (RSLUP) for it provides relevant projections and trends of Kathmandu City and accompanying Sectoral future growth. The outcome of this effort are Profile and Preliminary Zone Plan are the summarize in this report, which serves as an major outputs of Activity 1.1 of this project. annex to the main report of Activity 1.1 under The RSLUP was prepared as a collaborative the heading of Risk Sensitive Land Use Plan of
Figure 1. Geographic Distribution of Recent Major Disasters Source: UN Nepal ‘s Inter-Agency Disaster Response Preparedness Plan, 2001
Executive Summaries 1 cultural, infrastructure, environmental, and institutional characteristics of the city, including its disaster risk landscape, which can serve as a chief source of information for planning, research, investments, decision- making, and other purposes (See Figure 1).
Chapter 1 provides a brief introduction about the document and a short narrative of Kathmandu City, its geography and history. Chapter 2 presents information on the natural physical environment of the city. Chapter 3 discusses the people of Kathmandu and the key features and trends of the city’s growing population. Chapter 4 tackles the general condition of Kathmandu’s social sector including the city’s education, health and protective services. Chapter 5 presents an overview of the city’s economy. Chapter 6 talks about the city’s built environment. Chapter 7 focuses on the land use pattern in the city. Chapter 8 describes the infrastructure and utilities sector in Kathmandu. Chapter 9 discusses the development administration of KMC, including its legal and institutional arrangements.
The KMC Sectoral Profile contains primary and secondary information collected from various Figure 2. Pictures showing the type of vulnerable agencies and organizations in Kathmandu and construction in Kathmandu as well as the high density Nepal. The preparation of the profile required of buildings and population (Source: EMI) months of collecting official data, completing Kathmandu Municipal City. data gaps, generating and validating data, and performing data projections for future urban This report includes the following components: population and future demands for services and • Executive summary; facilities in KMC. Majority of the information • About the project; contained in the profile were collected from • General information on Kathmandu; secondary sources and official documents • Profiles of the following sectors: Physical such as the Nepal Census Bureau of Statistics Environment, Population, Social, (CBS), World Bank City Development Strategy Economic, Land Use, Infrastructure and (CDS), Kathmandu Valley Mapping Program Utilities, Environment, and Development (KVMP), JICA Study on Earthquake Disaster Administration; and Mitigation in the Kathmandu Valley, and • List of references. other relevant materials. Primary information was also collected by the KMC Project The Sectoral Profile is an official city document Working Committee (PWC) through field that presents a whole range of information about investigations, windshield surveys and direct KMC. It provides a compendium of data and observations in key areas of the city (See Figure information on the physical, social, economic, 2). Key informant interviews were conducted to collect information from representatives
2 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu of various national and local agencies can add, update, revise, challenge or correct including KMC, Kathmandu Valley Town the information contained in the document Development Committee (KVTDC), Ministry in order to improve its accuracy, validity and of Home Affairs (MOHA), Ministry of Local reliability. Development (MOLD), Ministry of Physical Planning and Works (MPPW), Department This report is a collective output of the PWC of Roads, Department of Transport and composed of technical specialists from KMC, Traffic Management, and National Society of NSET and EMI Earthquake Technology-Nepal (NSET), as well as international organizations such as the Japan International Cooperation Agency (JICA), German Technical Cooperation (GTZ), Urban Development through Local Efforts (UDLE), Cities Development in Asia (CDIA), among others.
The Sectoral Profile provides the necessary base information to support the intra- and inter-sectoral analyses for the development of KMC’s risk-sensitive land use plan. Most of the decisions and situations made in the project where based on the facts and information contained in the KMC Sectoral Profile.
The KMC Sectoral Profile is not for the exclusive use of the project only. Other potential users of the profile include the KMC departments, offices and wards, the central government of Nepal and its ministries, local government units,the academe, international developmental institutions, international and regional financial institutions, and other institutions and organizations involved in development work in Nepal. Even the private sector, business investors and citizens of Kathmandu may find the information presented in the Sectoral Profile useful for various purposes.
One major limitation of the document is the lack of timely and updated information about the city. This is partly due to the lack of regular data collection and data management system at the city-level in Kathmandu. The preparation of the KMC Sectoral Profile aims to initiate an effective, continuous and up-to-date data collection system in the city level. Hence, it should be seen as a living document that needs to be constantly revised and updated. As it is owned by the city and its people, anybody
Executive Summaries 3 4 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Risk-Sensitive Land Use Plan Kathmandu Metropolitan City, Nepal
Executive Summary
his preliminary Risk-sensitive Land Use The project also received inputs from various TPlan (RSLUP) for KMC is a product of a development partners in Nepal through a series two-year cooperative undertaking by a multi- of consultations and workshops that took place disciplinary team of specialists and practitioners during the course of the project. These include from KMC, NSET, and EMI (See Figure 3). It the United Nations Development Programme is one of the four components of a larger project (UNDP), United Nations-Office for the aimed at mainstreaming DRR in Kathmandu Coordination of Humanitarian Affairs (UN- and Metro Manila. The development of the OCHA), Asian Development Bank (ADB), RSLUP received the backing and support of German Technical Cooperation (GTZ), Japan public officials from within KMC, as well International Cooperation Agency (JICA), and as from other ministries and agencies of the City Development Initiative of Asia (CDIA). Government of Nepal (GoN). The outcome benefitted from inputs and comments of The deliverables for this particular project external peer reviewers, KMC local officials, component (i.e. PWO 1.1) are as follows: and representatives of relevant ministries, in particular the Ministry of Local Development 1. KMC Sectoral Profile; (MOLD), Ministry of Home Affairs (MOHA), 2. Risk-Sensitive Land Use Plan 2020 (10 and the Ministry of Planning and Public Works years); and (MoPPW) through its concerned agencies, 3. Draft Zoning Ordinance Framework (10 namely, the Department of Urban Development years). and Public Construction (DUDBC) and the Kathmandu Valley Town Development The Sectoral Profile provides a compendium Committee (KVTDC). of data and information on the physical, social, economic, cultural, infrastructure, environmental, and institutional characteristics of the city, including its disaster risk landscape, which can serve as a chief source of information for planning, research, investments, decision- making, and other uses. It is available as a separate report.
This RSLUP is a ten-year guide (2010-2020) for realizing KMC’s desired spatial pattern of development, with due consideration to the city’s seismic risks, emergency response and disaster management capabilities, through Figure 3. EMI and KMC personnel during the first field different land use policies and urban renewal investigation in Kathmandu Metropolitan City schemes.
Executive Summaries 5 The RSLUP builds on previous and existing information derived from previous studies by land use plans, land use maps and land use- KMC, KVTDC and government ministries. related programs of the government, as well as One major difficulty encountered was the policies, initiatives and studies in disaster risk necessity of relying on risk assessment results management (DRM) that affect Kathmandu, prepared in 2002, which focused on earthquake such as the Earthquake Disaster Mitigation in hazards only. Data on other hazards (e.g., flood, the Kathmandu Valley undertaken by JICA landslides, fire, and others) were sketchy. These in 2002. The RSLUP explicitly incorporates shortcomings are proposed to be addressed in assessments and projections for transportation a future phase of the project. In addition, the and traffic management in the future. It also implications of existing or planned projects includes strategies and actions that prescribe (e.g. ongoing riverside development, proposed reasonable limits and restraints on the use of parking, and new roads) by development property through proposed zoning regulations agencies were less studied and not fully and other local ordinances and control incorporated in this RSLUP. mechanisms for development within the city. It is intended to serve as a guide for engaging While the RSLUP includes an initial list in historical preservation, infrastructure of proposed PPAs (Programs, Projects and development (e.g. transport, utilities, facilities, Activities) in the different development sectors, etc.), regulating housing settlements and open the information on the financial performance space, reclassifying agricultural lands into non- of KMC, as well as the potential sources of agricultural uses, and improving emergency funding for various projects, were not fully management. It covers the entire territorial addressed due to constraints in budget and jurisdiction of KMC. time. At the end of this document, a set of future activities is outlined to complete and The Draft Zoning Ordinance is meant to serve improve this RSLUP. This version of the as the principal instrument for enforcing the RSLUP should be considered as a working locational policies and performance standards document and not a comprehensive land use of the RSLUP (See Figure 4). Once the zoning plan. ordinance is enacted, further land development must be aligned with what is stipulated in the The structure and summary of this report is RSLUP. provided below. The document covers eight chapters with annexes on document reviews While this preliminary RSLUP provides a and proceedings of meetings conducted as part clear framework to guide the city’s future of the planning exercise. development, it is constrained by the following limitations: (a) some of the data used has not Chapter 1, Planning Mandates and Approach, been fully qualified and may need further provides the rationale for risk-sensitive land verification; (b) the financial implications of use planning and gives an introduction of the proposed programs, projects, and activities planning mandates and key policies and plans (PPAs) have not been evaluated; (c) the process that are relevant to land use planning in Nepal of adoption, implementation and enforcement (See Figure 5). It presents a summary of the of the RSLUP has not been engaged; (d) the mandates of national, regional and municipal understanding of the RSLUP by the national planning authorities and directives from the and international agencies (beyond KMC and various ministries. The chapter also discusses NSET) has been limited; and (e) the awareness planning and mainstreaming frameworks and campaigns, advocacy, and capacity building the overall mechanism of integrating elements efforts have been minimal. These limitations of DRR in KMC’s planning process. It provides are due to the lack of financial resources and contents and limitation of the RSLUP. The the limited timeframe allocated to the project. chapter ends with the summary of KMC’s The land use plan relied largely on secondary Sectoral Profile.
6 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Figure 4 KMC Proposed Land Use Map 4 KMC Proposed Figure
Executive Summaries 7 Figure 5 Risk-Sensitive Land Use Planning Framework for KMC Chapter 2, The Study Area, provides a summary periphery, inadequate housing and urban of the geography, hazards, and socio-economic facilities, unregulated industrial and residential conditions of the city. It draws information expansion, poor income, and high physical mainly from the Sectoral Profile to provide the vulnerability. Socio-economic concerns initial context of the planning. include the loss of cultural heritage, ineffective education policy, decreasing performance of Chapter 3, Vision, presents the outputs of industries, and weak institutional capacities. the visioning exercise held in July 2009 in Further the chapter emphasizes earthquake Kathmandu City. It includes the description risk and its impacts, represented by a M8.0 and elaboration of the measures of success Mid-Nepal Earthquake scenario which could for various vision elements, as prepared by potentially produce a level of intensity of IX as local stakeholders. In general, the city’s vision measured by the Modified Mercalli Intensity emphasizes beauty, safety, tourism, health, Scale MMI1. Such scenario is expected to green living, robust economy, and resilient local heavily damage 53,000 buildings and result governance. in 18,000 deaths and 53,000 injured persons within Kathmandu Valley. However, these Chapter 4, Development Issues and Problems, estimates are based on census data from 1991. summarizes the challenges and opportunities 1 Modified Mercalli Intensity (MMI) is a conven- that could bring KMC closer to the realization tional empirial measure of the severity of the earthquake of its vision. Among the pressing development shaking at a site based on observed damage. It should not concerns identified include congestion in the be confused with the magnitude of an earthquake which is a measure of the energy released by the earthquake at its city core and sprawling development at the source.
8 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Since then, the population of the Kathmandu to higher estimates of damage in the core and Valley has just about doubled and the density adjoining wards. has significantly increased, thus increasing the physical and social vulnerability of the city (See In terms of infrastructure, several bridges are Figure 6). The actual losses could be several likely to be heavily damaged, closing most times greater than these projections. of the access points in and out of KMC. The same earthquake study in Kathmandu Valley On physical and environment issues, the estimated that more than 10 percent of road following are highlighted: shortage of length will be damaged and more than 50 habitable land against an increasing demand percent of bridges will be impassable if an for urban land, continuing loss of public earthquake with intensity IX hit Kathmandu open space, conversion of agricultural lands, Valley. Almost all bridges connecting to the fragmentation of land parcels arising from international airport are at risk. As most of inheritance activities, backlogs in infrastructure them have neither been replaced nor retrofitted, development, declining water supply against implications for damage and consequent increasing demands, poor wastewater collection disruption remain substantial (See Figure 7). and treatment, deterioration of heritage sites Note that these estimates are based on data that and environmental deterioration, air pollution, is at least ten years old. In view of the increase electrical power shortages, open dumping of in population in the last decade and further solid wastes, traffic congestion with decreasing degradation of the physical infrastructure, the capacities, and structural risks to old buildings losses should be expected to be much higher. specially those made of brick and mortar. Lack However, the project did not have the resources of facilities maintenance similarly contributes and time to improve on existing data.
Figure 6. Population Densities in Ward and VDC, 1999
Executive Summaries 9 The public transportation system of KMC and VDCs. A Valley-wide transport study Figure 4.20 Bridge Damage Distribution, Mid-Nepal Earthquake Scenario
is characterized by the dominance of low- was suggested to reveal the dynamics of occupancy vehicles namely, three-wheelers, this movement and identify the needed microbuses and taxis. Furthermore, the low infrastructures and policies, the implications quality of the existing public transport system of hazards (e.g. flooding, landslides, ground drives the increasing ownership and use of shaking, and liquefaction) and their related private transport, particularly private cars and risks on the proposed new development motorcycles. This situation has contributed to sites, the transport system proposed, and the serious traffic congestion, air pollution and low resulting emergency scenarios that need to be energy efficiency (See Table 1). identified and evaluated. The appropriate risk reduction measures should then be integrated Traffic scenarios developed by reducing trips in into future land use plans or investment the Core Area, that is, by transferring part of its projects not just for Kathmandu City but for population to the eastern or western areas of the the entire Valley. city, revealed that such action only transfers the traffic elsewhere within its boundaries. Hence, The chapter similarly suggests a list of it is suggested that decongestion may likely be mutually reinforcing risk reduction and achieved if future population be directed outside development strategies such as (a) restricting or of Kathmandu City and towards the Valley discouraging new structures in high-risk areas boundaries. An identification of possible sites (Core Area); (b) providing economic incentives is suggested in this RSLUP, but requires further to discourage development in high-risk areas; studies on their availability and suitability, and (c) use of land pooling experiences by KMC; the resultant traffic between municipalities (d) relocating occupants in high risk-buildings;
10 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu and allowable height restrictions from Table 1. Annual Increase in Public Transport Units in microzonation studies. Wards 1 and 33 can Bagmati Zone, 2001-2006 accommodate a larger population and may Vehicle type Year Average be possible for densification. 2000/01 2005/06 annual % • In the North, even if a FAR of 2 is growth maintained, Ward 16 will still have the Three-wheeler 4,949 5,139 0.95% heaviest concentration of population to be Microbus 617 2,358 39.82% housed. Ward 3 will increase its capacity; Truck 5,484 8,966 13.08% while Wards 2, 4 and 29 can accommodate Bus 1,744 3,383 18.02% residential population in 2015 but will Minibus 1,804 3,207 15.47% exceed this capacity in 2020. Total 14,598 23,053 12.10% • In the Core, available land area will no (e) protection of critical facilities; and (f) longer meet the projected population in encouraging government and private sector to either year even if the FAR is raised to 2, observe building bylaws and zoning regulations. revealing a truly congested situation.
Chapter 5, Towards a Preferred Urban Form, • In the West, raising the FAR to 2 increases discusses the preferred urban form as the the residential capacity to meet demand in organizing concept for guiding the physical 2015 but not in 2020. growth of KMC. It indicates the initial bases and considerations for deciding on an While these are crude assumptions and alternative strategy. In the absence of an updated estimates, augmenting existing residential inventory on characteristics of residential areas for future population through infilling buildings (i.e. floor area ratio (FAR), percent and densification may be possible but rather area occupation of buildings), assumptions difficult to promote at this time without were made to check theoretically if future verifying the actual FAR of buildings on the residential areas in each ward having a FAR of ground, and resolving the transport congestion 2 and 50 percent occupancy were sufficient to problem. Hence, special studies on these house its future residential population (based are required for ascertaining availability and on projections). Based on this, results of the suitability of sites for residential-mixed used projection are as follows: areas.
• In the East sector, the projected population At the same time, it also points to the fact that by 2015 or 2020 cannot be accommodated in some wards, increases in capacity, through by its own allotted residential areas. Wards densification of residential areas, may no longer 7, 34 and 35 are likely to remain congested, be feasible after the planning period. Hence, even if the FAR is doubled. Wards 8, 9 and looking for possible residential sites outside of 10 have enough space to accommodate their KMC and towards Kathmandu Valley remain own populations, but this is likely to be the most plausible options. These findings exceeded in 2020. and conclusions should be further refined by more detailed studies that also integrates an • In the Central sector, Wards 5 and 31 can comprehensive analysis of the transport system accommodate the population projected in the Valley. in 2015 but it is unlikely that they will be able to do so in 2020. Wards 11 and 32 The redevelopment of the core area needs will remain congested, and raising the FAR to be prioritized to include measures for (a) may be questionable at this time without relocating part of the existing residential further information on ground conditions population outside the Core area; (b) reducing
Executive Summaries 11 building and traffic congestion and deterioration to emergency vehicles and fire fighting engines of heritage sites; (c) directing future non- should be improved. compatible commercial activities outside the city; (d) pursuing redevelopment or preservation Given the varied and special requirements with seismic risks in mind; and (e) providing towards the preservation of the heritage site and access to open areas and an emergency plan (e.g. redevelopment of the Core and its vicinity, this considering the possible blockages created by area should be taken as a special zone. damaged buildings over narrow streets and roads in an earthquake) (See Figure 8). The Central Sector Growth Area The central area being heavily built up, is In summary, the strategy proposed at this congested with mixed uses. The circulation time focuses on protecting assets (specially the network serving the wards in this area is the core area) through a combination of seismic “Ring Road”, which shall be improved by retrofitting of buildings and infrastructures and widening its connection with the Madan relocating existing structures or locating future Bhandari Path. A commercial buffer strip along structures in safer environments and planned the Madan Bhandari Path shall provide for the areas. The latter strategy may include future new medium to high density commercial uses planned expansion in safe, available areas in the proposed to concentrate along this road; while Valley. The possibility of forming a new risk- dense mixed residential uses shall continue to sensitive multi-centered development supported dominate the rest of the sector. Strong land use by a properly planned transport system may policies will have to be instituted to maintain hold the most promising prospect towards the the buffer as well as densify these areas to its realization of the KMC vision within the Valley. carrying capacity under FAR of 2 to 3. This central sector will maintain its function Within Kathmandu City, different development as the financial and business district of the areas and corridors are described briefly: city, leaving the traditional role for worship, pilgrimage and other related mercantile The Core functions at the core. As the traditional city core, it functions as the nerve center of the social, economic and Wards outside the CBD (central business political life of KMC. The heritage site in the district) will be medium density residential core shall be restored close to its original design areas, where row houses and townhouses will be and form (Integrated Management Framework, encouraged. Kathmandu Valley World Heritage Site, 2007). With the cultural and heritage value of the The East Sector Growth Corridors monuments in mind, the structural integrity of Development of the eastern and southeastern the monuments and remaining structures shall sections of the city is influenced by the airport be reviewed for possible seismic retrofitting location. Providing the vital link from this against ground shaking and related hazards. airport into inner areas is the same Madan The use and function of the public spaces Bhandari Path. The east sector, in general, will shall be continued, but will be based on the be promoted as a tourism and residential area understanding and appreciation of the heritage incorporating into its master plan two major values of the site. The RSLUP suggests that developments: 1) road commercial strips, and the streets and square be restored to allow for 2) apartment housing. These two features will their exclusive use by pedestrians. Mercantile serve as the focal points of this growth corridor. operations shall also be regulated; hence, private Vegetable markets here will be expanded and buildings shall be used only for traditional and modernized in order to cater to the growing compatible activities. Boundaries and buffer population. zones identified and approved by the World Heritage Committee shall be enforced. Access In line with the city’s aim to further strengthen
12 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Figure 8. The Central and Core Areas (An enlarged portion of the KMC land use map, indicating the concentration of development in the Core and Central areas.) its role as the premiere center in education and West sector shall remain largely a residential area health services, vacant lands still available in the comprised of “other residential area” categories fringes of the East area (near land pooled areas) and land pooled areas. The preferred form will may be used for setting parks that are conducive improve the riverside (Bagmati and Bishnumati) to learning and healing. in this sector.
The North Sector Residential Growth Area Chapter 6, Kathmandu City Risk-Sensitive This area shall be maintained as a tourist Land Use Plan, presents the land use plan and destination. The highways oriented toward the the different land use policy frameworks for north can serve as visual corridors leading to the regulation of future land use activities, the forest areas of the mountains. Therefore, the consistent with the chosen spatial strategy. This construction of high rise structures in this area section presents the four major land use policy shall be regulated. areas of settlements, production, protection, and infrastructure. These four policy areas cover all The West Sector Growth Corridor possible areas within KMC’s territory. New developments will be identified by urban redevelopment zones (along the Outer Ring Chapter 7, The Zoning Ordinance, presents a Road) within the commercial buffer strips to framework for the zoning plan. Much of the promote further commerce in the area. The materials are drawn from the KVTDC Building
Executive Summaries 13 Bylaws of 2007. Other annexes are also included of the Valley in order to organize essential for completeness. emergency management elements such as fire fighting, search and rescue, evacuation, shelter, Chapter 8, Conclusions and Future Work, water, health, sanitation, etc. Hence, the presents a rationale for the extension of the comprehensiveness and completeness of a risk- RSLUP to the whole Kathmandu Valley and the sensitive plan is only possible in the context completion of the Kathmandu City RSLUP into of the full Valley. At the same time, efforts to a Comprehensive RSLUP. It proposes a related extend the RSLUP to the whole of Kathmandu work plan for a subsequent three-year phase to Valley will lend themselves to improving and undertake the work. completing the current Kathmandu City RSLUP, which will serve as a model to other FUTURE WORK cities.
Moving forward with the adoption, The proposed scope of future work is structured implementation and enforcement of the RSLUP into six tasks which will have two key will undoubtedly curb the risk to Kathmandu deliverables: and build the discipline in development decisions and approaches that has been lacking 1. A Kathmandu Valley Risk-Sensitive to date. The RSLUP is a benchmark document Planning Framework (KV-RSPF) in filling an important gap for the direction and 2. A Comprehensive Risk Sensitive Land Use control of development within Kathmandu that Plan for Kathmandu City should be endorsed, adopted, implemented and enforced urgently. The six tasks are fully detailed in Section 6 of the report together with a corresponding Nonetheless, it must be noted that this version timeline. The proposed work is expected of the RSLUP remains a working document. to take three years. However, the work Some of its underlying data needs to be can be phased with Task 1 being given the qualified, completed and refined. Its biggest priority, followed by an effort to complete the limitation is that it is limited geographically to Kathmandu City RSLUP. For reference, the six KMC. Kathmandu City is physically, socially, tasks are indicated below: politically and economically fully enclosed within the Kathmandu Valley. The link between • Task 1: Adoption, Implementation Kathmandu City and Kathmandu Valley is and Enforcement of Kathmandu City vital in terms of its demographics, economy, RSLUP. This task includes reviewing, living, and livelihood conditions. The RSLUP improving, and testing the legal and for KMC leads to the realization that proposed institutional arrangements for adoption, strategies and approaches for future development implementation and enforcement of the are dependent on looking beyond the boundaries RSLUP. Performance indicators will also of the city proper. Key elements such as be included in the task. transport and housing require a Valley-wide analysis in order to be understood, assessed and • Task 2: Valley-Wide Data Collection incorporated adequately. Further, the hazards and Completion of the Kathmandu City and their consequences do not stop at the city RSLUP. This task includes the development boundary; thus, approaches for DRR and for of a Sectoral Profile and related Resource effective emergency management must take a Maps to the whole Valley. It also includes Valley-wide perspective. Other hazards such the incorporation of on-going and planned as floods and landslides but also including the development projects into the RSLUP, as long-term effects of climate change also need well as its completeness and refinement to be incorporated. Emergency management into a Comprehensive RSLUP. approaches must be framed in the context
14 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu • Task 3: Valley Wide Multi-Hazard Analysis offices to achieve the following results: and Emergency Management. This task includes the extension of the RSLUP to • Hazards such as earthquakes, floods and multi-hazards as well as the incorporation of others are accounted for and their impacts emergency management parameters. reduced with time; • Settlement areas are made livable and safe; • Task 4: Valley-Wide Risk Sensitive • Communities and institutions are prepared, Transport Analysis. This task includes with sufficient understanding of their the incorporation of Valley-wide risk capabilities, responsibilities and authorities sensitive transportation study to serve as a before, during and after a disaster backbone to the Valley-wide risk sensitive • Protected areas are respected and preserved development framework. for the benefit of all; • Infrastructure support is adequate and • Task 5: Special Studies. This task includes efficient to help a modern city become the undertaking a several special studies the model in the management of planned needed to refine the RSLUP (e.g., social change; and housing, historical preservation, building • Production areas are used sustainably so code implementation). that the needs of the present and future generations will continue to be adequately • Task 6: Development of the Kathmandu met. Valley Risk-Sensitive Planning Framework, This is the final task to integrate the above Performance indicators of accomplishments elements into a Kathmandu Valley Risk in DRM by KMC and other national agencies Sensitive Development Framework with responsible for land use planning, urban its companion document Kathmandu-City development and DRM should be used to Comprehensive RSLUP. These elements benchmark the current situation and measure can then serve as guides and model for other future progress. While being a first step, the cities to develop their own RSLUP. framework for mainstreaming introduced in this RSLUP could similarly be used to It has to be emphasized that the mainstreaming guide development and allocation of land. process should continue towards further The replication of the approach towards refining and updating this land use plan up the Kathmandu Valley can provide lessons until the implementation stages. Hence, in managing risks common to cities and other stages of planning such as local financial municipalities arising from natural hazards and planning, project programming and budgeting, climate change-related effects in Nepal and monitoring and evaluation programs need to be beyond. included in succeeding planning activities.
CONCLUDING STATEMENTS
The decision to manage the city according to the mandates of the Local Self-Governance Act (LGSA) provides local governments such as KMC and other municipalities the authority to take public control over the direction and pattern of development in their territories. Through a rigorous risk-sensitive planning process, local governments such as KMC can be proactive in prescribing the use of land, with the guidance and support of higher government
Executive Summaries 15 16 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Structuring and Implementing a Competent Disaster Risk Management Function Kathmandu Metropolitan City, Nepal Project Background and Summary
ost initiatives to mainstream Disaster favorable. MRisk Reduction (DRR) in local governance do not reach their goals because of Thus, building competency for DRM at lack of sustainability mechanisms. For most the local level should be a primary goal for local governments, the practice of Disaster achieving mainstreaming. This should start by Risk Management (DRM) is a new endeavor considering DRM as another core function of for which they have little understanding, poor local government; one that emphasizes DRR institutional structures, weak competencies and standards and requirements, including national meager resources to support it. The national strategies; is able to implement such strategies legal and institutional context inhibits action locally; and can link to the needs of the in many countries. Disaster risk management community as well as to the national programs. is often associated with public safety and based Such a core function will be the natural owner on laws and regulations that emphasize response of DRR activities and the coordinator and under the jurisdiction of a para-military central enabler within the various departments of agency isolated from developmental and day- local governments. This by itself will build to-day community welfare issues. Under such local ownership and ensure sustainability. The systems, the role of local authorities and their core DRM function should be linked to social linkages to their constituencies are ignored mobilization and citizen’s safety to ensure that and sometimes seen as irrelevant. Recent preparedness and the long-term goal of building developments show a shift in how local policy a culture of prevention are integrated with makers view disaster management: from being its mission. Unfortunately, such structure is a liability to an opportunity. Nonetheless, missing in most, if not all, cities in developing engaging in Urban Risk Reduction (URR) is a countries. Putting in place such competencies significant challenge to local authorities, with and practices would more effectively support local actors facing many impediments. any national strategy and create the dynamics for local implementation and long-term However, experience has shown that local sustainability. governments which have put in place a competent disaster risk management practice This is EMI’s approach and its contribution are better equipped to mainstream DRR within to the project. Through a 2-year program of their governing structure and core functions. capacity building, the Kathmandu Metropolitan They have also contributed significantly to City (KMC) has put in place the initial the risk reduction policies and programs of mechanisms to implement an operational and their countries. It is not by accident that in competent new section in charge for emergency most developed countries, the DRM practice and disaster risk management. A new unit is decentralized and provides a significant role was created, originally called the Disaster Risk to local authorities (refer for example to AU/ Management and Citizen Safety (DRMCS) NZS 4360 for Risk Management). This is Unit but now referred to as the Disaster the challenge in developing countries, where Management Section (DMS), is part of the the conditions and resources are much less Urban Development Department (UDD) of
Executive Summaries 17 Metropolitan Council Account & Other Committee Metropolitan City
Mayor Departments - 6
International Deputy Mayor Divisions - 15 Relation Secretariat Sections - 33 Executive Officer
Administration and Economic Public Health & Social Physical Development Urban Environment Organizational Dev. Management Development & Construction Development Management Department Department Department Department Department Department
Administration Revenue Division Public Health Public Urban Division Division Environment Infrastructure Development Division Development Department 1. HRD & Personnel 1. Revenue Division Management Section Planning & 1. Urban Health Monitoring Promotion 2. Internal Administra- Section Section 1. Building Permit 1. Solid Waste tion Section 1. Design Section Section Management 2. Revenue 2. Food & Section Collection Quality 2. Water Supply, 2. Land Use 3. Store Section Section Monitoring Sewerage Section Planning Section 2. Land Fill 4. Vital Registration & Electricity Section Management Section Account & Section Budgeting Social Welfare & Cultural Law Division Division Building & Division 3. Park & Heritage Division Policy Planning & Monitoring Greenery Division Promotion 1. Litigation Section 1. Account & 1. Cultural Section Budgeting Conservation & Control Section Tourism Section 1. Building & 2. Misil Section Maintenance 4. Mechanical Section 1. Urban Develop- Section 2. Account 2. Community ment Administra- Allocation Development & tion & Disaster Enforcement Division Control Section 2. Heritage Management Social Welfare Conservation Section Section Section Environment 2. Geographical 1. Monitoring & 3. Education & Information Administra- Contol Section 1. Internal Audit Sports Section System Section tion Division Section Road & Traffic 2. Work Management Management Section Division
Information & Documentation 1. Physical Development & Division Construction Administration Section 1. Media Section 2. Information Technology & Docu- mentation Section
Figure 9. Organizational Structure of Kathmandu Metropolitan City
KMC. This unit has been institutionalized as • Institutional Arrangements part of the Urban Development Department through a directive from the former Chief The Disaster Risk Management and Citizen Executive Officer, Mr. Dinesh Kumar Thapaliya, Safety (DRMCS) Unit (later renamed Disaster who served as the focal point within KMC ManagementSection) was created and its for this initiative. Figure 9 above presents the administrative structure defined. The DRMCS organizational structure of KMC showing the Unit is structured around its core function DMS section under the UDD. of Emergency Management, preparing and responding to all types of emergencies (from The following highlights the accomplishments of major disasters to so-called “every-day” risk). It the project: links vertically and horizontally to institutions
18 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Disaster Management Section
Figure 10. Disaster Management Section Disaster Management Section Organizational Chart
Figure 11. DISASTER MANAGEMENT SECTION Source: EMI (2008), Phase 1 Topical Report No. 2, Kathmandu Emergency Management and communities to advocate and raise • Development of job descriptions for the awareness as well as to improve preparedness staffof the DMS and inter-institutional coordination. It is the focal agency for DRMat the level of Kathmandu Job descriptions for key positions in the DMS City. The proposed functional structure of were formulated in close consultation with DRMCS Unit is shown in Figure 10. KMC. These positions are: * Director of the Urban Development Department
Executive Summaries 19 * (Section Chief) planning process. The Mission of the DMS is * Emergency Management Specialist (Planner) to protect communities by coordinating and * Operations Officer (Readiness Officer) integrating all activities necessary to build, * Social Mobilization Officer (Ward level sustain, and improve the capability to mitigate Trainer) against, prepare for, respond to, and recover from threatened or actual natural disasters, acts Figure 11 represents the proposed organizational of terrorism, or other man-made disasters, and chart for five positions under the Disaster vulnerability to hazards. Management Section. • Delivery of Training Course on City-Level The Director of the Urban Development Emergency Management Operations and Department will be the representative of the Functions Mayor in the Municipal Authority for Disaster Risk Management (MADRM) as defined in the Customized training courses were conducted National Strategy. The MADRM acts as the local by EMI during the four (4) field investigations municipal platform for DRM. The Disaster on emergency management to enhance the Management Section will serve as the Secretariat competencies of DMS personnel. Face-to- for the MADRM. These upward and lateral face trainings were conducted using the linkages will enable the new section to access not Table Top exercise earthquake scenarios. only other directors within KMC, but establish Such methodology helped develop common linkages with the national institutions in operating procedures, defined major roles charge of DRM policy and program, thus fully and responsibilities on emergency response, integrating its actions and programs with the and contributed to a better understanding by national strategy. The complete job descriptions KMC of its relationships to other stakeholders. of these five positions are found in Annex A of Chapter 2 of this report explains in greater this report. detail the training process and methodology. Annex C contains the Field Investigation • Drafting of a sample ordinance for the Reports and discusses the training activities establishment of the DMS functions and conducted for each field investigation. administration • Development of the “Basic Emergency A Draft City Ordinance on Disaster Plan” Management was formulated for KMC during this project. The ordinance authorizes a program The “Basic Emergency Plan” or the KMC for pre-disaster mitigation, provides direction Emergency Operations Plan (EOP) was and coordination of disaster preparations, developed for KMC. The EOP provides response, and recovery and streamlines the an Emergency Management System for administration of disaster relief in KMC. The full responding to a major disaster affecting people, text of the sample ordinance is found in Annex property, and infrastructure, such as a major B. earthquake. It also describes authorities, responsibilities, functions and operations of • Drafting of Vision and Mission Statements KMC during emergencies. Chapter 3 of this for DMS report summarizes the components of the EOP. The full KMC EOP is found in Annex D. The Vision of the KMC DMS is to define an Emergency Management Concept of Operations • Development of the “Departmental in which all department personnel understand Responsibility Matrix” their respective roles and responsibilities for disaster response operations and understand The “Departmental Responsibility Matrix,” that all departments must participate in the otherwise known as Emergency Support
20 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Functions (ESF), is a grouping of government * Establishment of a line of successions for key and certain private-sector capabilities into an emergency personnel. organizational structure to provide support, resources, program implementation, and For this project, fifteen (15) ESFs were emergency services that are most likely to be developed. needed during emergencies. Operating agencies and KMC Department assigned personnel • Awareness Campaign participate in the ESF structure as coordinators, primary response and/or support agencies, or The technical assistance to awareness-raising as required to support incident management provided by EMI to KMC is twofold: the activities. The objectives of the ESFs are: formulation of an advocacy strategy together with the Project Working Committee (PWC), * Development and maintenance of detailed and the development and design of information- plans and Standard Operating Procedures education-communication (IEC) materials. (SOPs) to support their emergency response Figure 12 provides samples of the IEC materials functional requirements; produced on EM, while Table 2 describes the advocacy strategy for the project. In terms of * Identification of sources of emergency implementation, the PWC took ownership supplies, equipment and transportation; of the dissemination of IEC materials and in * Maintenance of accurate records of disaster- the execution of the activities in the advocacy related expenditure and documentation; strategy.
* Protection and preservation of records essential for continuity of government; and
Figure 12. IEC materials on EM
Executive Summaries 21 Table 2. Advocacy Strategy Key Audience Communication Message Channels/medium Strategy Focus Person Expected objective of communication output 1.Ministries and To secure buy- “We would Progress report/ Advocacy through Bimal Rijal, Increased related agen- in of stakehold- like to part- update from the ministry of KMC buy-in of cies i.e., MoLD, ers ner with you” PWC; Consultation MoPPW stakeholders MoHA, MoPPW with the Individual , KVDTC, ministries and relat- Hold half day DUDBC ed agencies I, Dis- workshop for tribute IEC material MOPPW person- , re-visit EM web- nel site on DKKV-FFO project to highlight Consultation KMC ownership of meeting with project KVTDC Con- sultation meeting with ministries and related agen- cies to get their inputs in RSLUP CEO, KMC To get the “This is our Progress report/ Request CEO to Bimal Rijal, Commit- commitment of plan” update from the provide link to KMC ment from the CEO to act PWC; re-visit EMI website on the CEO to as Coordina- EMI website on the KMC web- advocate and tor and build DKKV-FFO project site, and in other support the support to the to highlight KMC channels Plan secured. plan (advocacy ownership of champion) project Metro Coun- To get the so- “KMC is Tarpaulin/flex print Consultation Rai, Chitra- Increased cil i.e., Ward cial acceptability preparing 10 (KMC), Small pam- meetings kar, Kafle, social accept- chairpersons, and communi- year RSLUP” phlets, Stakeholder Rajkarnikar, ability ward members cate KMC Vi- consultation meet- NSET, Je- and nominated sion with board Our vision ing/social accep- rome Zayas members, Metro and Council for KMC tance of the plan. Board i.e., Ward Chairpersons and nominated members. City Planning To Increase par- “This is our Presentation and Periodic meeting Kafle, Chitra- Increased Commission; ticipation in the plan” distribution of kar participa- Department RSLUP process Pamphlets tion and heads i.e., UDD, and Develop ownership of Legislators ownership of project (metropolitan project council), Ward Chairpersons and two nomi- nated members International To secure fu- “We would Present the RSLUP Consultation CEO’s of Get financial Donors/De- ture funding for like to part- to get their inputs meetings and KMC and support to velopment RSLUP imple- ner with you” and see if it match Include them EMI with the Implement Partners mentation with other ongo- in mailing list support of next phase of ing or proposed of EMI’s regular NSET the project projects newsletters
22 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Key Audience Communication Message Channels/medium Strategy Focus Person Expected objective of communication output General Public/ Awareness “Safe Kath- T.V Channel Interview of Kafle and Rai To achieve Communities campaign mandu City” Hamro Kathmandu PCW Team by the objective. regarding KMC and Nepal mandal, media personnel RSLUP and Radio Pro- gramme Metro FM 96.4 and through the Website
On the whole, the expected deliverables of the Investigations were carried out in support of project were met. The succeeding chapters of these training sessions for the duration of the this report explains in greater detail how KMC, project. particularly, the DMS was supported by EMI to accomplish the deliverables of the project Chapter 3, Development of the KMC specifically building competency in Emergency Emergency Operations Plan, discusses the salient Management through structured training features of the Emergency Operations Plan sessions, and developing the Emergency (EOP), its objectives, goal, vision, challenges, Operations Plan (EOP). The report covers four framework, roles of various stakeholders in city (4) chapters: emergency management and the Emergency Support Functions (ESF), plan maintenance Chapter 1: Institution Building, summarizes promulgation and training schedule, and other the process, activities and tasks undertaken to supplemental information. create, structure and build the competency of the DMS, the new administrative organization Chapter 4, Accomplishments, Conclusion within KMC for disaster risk management. and Future Work, provides a summary of the accomplishments of the project and discusses Chapter 2, Training Sessions for Capacity the proposed next steps for continuing work to Development of KMC, discusses the training sustain and further build the capacity of KMC activities conducted, including the modules on city emergency management. developed for KMC. A total of four (4) Field
Executive Summaries 23 24 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Risk-Sensitive Urban Redevelopment Plan Barangay Rizal, Makati City, Philippines
Executive Summary
he Risk Sensitive Urban Redevelopment social cohesion, public safety, and environmental TPlanning (RSURP) of Barangay1 Rizal, quality. Makati City, Philippines is a collaborative project among the Community of Barangay This pioneering project is intended to serve as Rizal, the City Government of Makati a pilot application to reduce the disaster risks (CGM), the Earthquakes and Megacities of highly vulnerable urban neighborhoods Initiative (EMI) and the Philippine Institute with poor and low-income households. The of Volcanology and Seismology (PHIVOLCS). key premises of the Project are: a) none of EMI, PHIVOLCS and Makati City entered the residents will be displaced out of the into a working partnership to engage in a geographical boundaries of the Barangay, and b) demonstration project to show that land use the Risk-Sensitive Redevelopment Plan is driven and redevelopment planning can be powerful by direct participation of the community. The tools to modify and lessen the physical, social, approaches and methodologies employed and and economic vulnerability of highly vulnerable the lessons learned from the Project can serve and low-income communities such as Barangay as a template for risk-sensitive redevelopment Rizal. The Project involved the preparation of planning which can be adopted by other high- a risk-sensitive urban redevelopment plan for risk low-income neighborhoods in Metro the Barangay with the goal of transforming Manila, as well as other major cities in and a high risk community into a safer, disaster- outside the Philippines. resilient neighborhood while simultaneously enhancing its urban fabric, economic vibrancy, The Risk-Sensitive Redevelopment Plan of Barangay Rizal is one of four elements of a larger project entitled, “Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Metro Manila and Kathmandu” funded by the German Federal Foreign Office (FFO) through the German Committee for Disaster Risk Reduction (DKKV).
Barangay Rizal was selected as the pilot site for the Project through a site selection process that involved analysis of potential candidate sites and extensive consultations with city officials and barangay leaders. The methodology Bird’s Evye View of Structures in Barangay Rizal for site selection involved the use of “Urban Redevelopment Indicators” (URI) developed 1 Barangay is the smallest geo-political unit in by the Project to determine the most suitable the Philippines. The barangay leadership is elected by its community and the administrative supervision and site among the 33 barangays of Makati City oversight are provided by the local government unit for urban redevelopment. At the end of the site or municipality that encloses the barangay. selection process, Barangay Rizal emerged as the
Executive Summaries 25 most suitable site for the Project due to its high in master planning, transport planning, physical risk, high degree of social vulnerability, engineering, social development, community and high redevelopment potential. The barangay organization, and legal and institutional leaders of Rizal also expressed their commitment development, and representatives from Makati and full support to the redevelopment planning City departments and Barangay Rizal. project once their Barangay was selected as the pilot site. The planning process used a highly participatory approach as a scientific Barangay Rizal, which is located on the eastern methodology to facilitate a two-way learning fringe of Makati City, contains dense residential experience between the barangay leaders, settlements characterized by narrow streets residents of the project site and the planning and lined by mostly one to two-storey houses team. In the process, residents of the abutting each other. Almost every available community learned about the earthquake space is built up, and there is little open space and other risks that they face in their such as parks and playgrounds. Running along community and their implications on their the northwestern portion of Barangay Rizal is lives, settlements, etc., while the planning the West Valley Fault, the movement of which, team learned which types of risk reduction according to the Metro Manila Earthquake measures the residents felt were feasible and Impact Reduction Study (JICA, 2004) (See socially acceptable. Stakeholders from the Figure 13), can cause an earthquake as high community and the City were involved at as magnitude 7.2 which will result in severe the outset in the data collection, validation, ground shaking and potential liquefaction in problems- and issues-analysis, and the planning the area. The risk is further heightened by the and decision-making processes. This ensured area’s socio-economic vulnerability. It is a low that the Plan reflected community needs and to middle-income area, with a large population aspirations and, hence, will be supported by (about 40,000) which is expected to continue the community and key stakeholders during its increasing because of its proximity to major implementation. commercial districts. Further, its physical make- up (congested streets, lack of open spaces) make Key Issues and Considerations emergency access and evacuation difficult. The results of the different analyses and the The RSURP process was completed in two years. outcome of the stakeholder consultation The Project had three phases. Phase 1 consisted workshops revealed the following issues of organization of key actors and stakeholders, in Barangay Rizal which became the main community preparation, establishment of a considerations in the formulation of the project implementation team, and establishment redevelopment plan: of coordination mechanisms. Phase 2 consisted of risk analysis and site planning analysis. This Physical Vulnerability. Unsafe buildings included hazard assessment, building-risk and structures, lack of public open spaces, analysis, vulnerability and capacity analysis, site as well as narrow and obstructed roads are analysis, emergency management evaluation, and the main contributors to the physical risk identification of redevelopment concerns and of the area. According to the building risk- issues. Phase 3 consisted of master planning and analysis, buildings with high and very high action planning; the setting of redevelopment structural vulnerability (which are likely to goals, objectives and targets; the development suffer extensive damage or collapse during of a disaster risk reduction logical decision- a strong earthquake) constitute about 34 making framework, the generation of alternative percent and 6 percent of the building stock, strategies; and selection and detailing of preferred respectively. Buildings on top or near the fault strategy. The planning process was facilitated by a are particularly vulnerable. planning team which was composed of specialists
26 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Figure 13. Location of West Valley Fault in Barangay Rizal There are very few open spaces within of these roads have a right-of-way below 6.5 the Barangay which can serve as space for meters, and are sometimes obstructed by parked evacuation, temporary shelter, and storage for cars and electric posts, among others. A possible debris in case of an earthquake. fault rupture can also cut off vehicular access to C-5 Road (the main highway). According to the transport study, the existing roads are congested especially during peak or Socio-Economic Vulnerability. Inadequate rush hours, and may become impassable due economic capacity, the presence of highly to building debris after an earthquake. Many vulnerable households, and rising population
Executive Summaries 27 density are the main contributors to the socio- and south neighborhoods has to be improved economic vulnerability of the area. Results in case the fault ruptures and cuts off access to of household census for the socio-economic C-5 Road. There needs to be additional open vulnerability analysis reveal that 16 percent of spaces for evacuation within the area as well. households have a combined monthly income While the institutional structure for emergency that fall below the poverty line of 8,568 pesos response exists, however, the response to per month for a family of five. More than half Typhoon Ondoy (International Typhoon (55 percent) of the community’s productive Ketsana) in September 2009 demonstrated population are unemployed. About 45 percent that the Barangay’s capacity for early warning, are employed, but only 49 percent of those search and rescue, and temporary shelter still employed have permanent status, while the needs to be strengthened. In addition, the low rest either have contractual work or are self- awareness level of households on the hazards employed. These socio-economic conditions that exist in the area and their knowledge of make it difficult for residents to make any what to do during a hazard event need to be improvements on their properties, and reduce addressed (See Figure 14). their capacity to recover right after a disaster. Disaster Risk Reduction Strategies The census also revealed that there are households with elderly, young children, persons Reduction in disaster risk and improvement with disabilities, and female heads, which may of emergency management capabilities are the have difficulty evacuating from their homes and/ driving objectives of the redevelopment plan. or recovering after disasters, and need to be given special consideration. These objectives can be achieved to a great extent by the following strategies: The growth of surrounding business areas 1. There should be no permanent human such as the Bonifacio Global City will put settlement with a “Very High Vulnerability” more pressure on Barangay Rizal to densify, (i.e., structures with a very high likelihood placing more people at risk. Thus, regulating of collapse or extreme damage to population density is a major concern for the earthquakes). The premise is that, at the Redevelopment Plan. present time, there is no cost-effective technological method for protecting these Emergency Preparedness and Management. The structures against earthquake hazards. main issues here are the evacuation difficulty and For this purpose, all structures located inadequate capacity in emergency preparedness on or within a close distance from the and response. Access to the surrounding north fault (about 5 meters on each side) are
Figure 14. Risk Perception of Households
28 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu considered to have very high vulnerability. Salient Features of the Redevelopment Plan
2. Structures with “High Vulnerability” should be further studied to ascertain their vulnerability level. The rapid visual inspection used in this initial study is based on limited construction and soil data. A more competent analysis will be able to determine with higher certainty the actual level of earthquake vulnerability. After review, all structures reclassify as “Very High Vulnerability” will fall under Criterion 1. Note that because of the limitations of the rapid visual inspection, none of the structures outside of the fault zone were Stakeholders from Barangay Rizal and the Makati City classified as Very High Vulnerability. Government during the Site Planning workshop The redevelopment planning methodology 3. There should be a voluntary seismic adopted an issue-oriented approach. This retrofitting program for structures of High involved subjecting the abovementioned Vulnerability, supported by an incentive physical/socio-economic vulnerability and package and awareness program. emergency management to a problem-solving process. Through stakeholder consultation 4. For the sake of creating open space or workshops, gaps and needs were determined, widening emergency access roads, certain trade-offs identified, and solutions to these issues structures/lots need to be acquired. The were developed. This led to the formulation acquisition of structures/lots for open space of the community vision and redevelopment should be clustered around structures with strategy, and the identification of the programs, Very High Vulnerability as to minimize the projects, and activities which comprise the number of displaced households. elements of the Redevelopment Plan (See Figure 15). The key features of the Plan are summarized 5. Critical facilities such as schools and health below: facilities as well as structures which can be used for post-emergency centers should be • Establishment of a fault zone park. An identified and seismically retrofitted easement zonealong the fault needs to be established. Because of the uncertainty of 6. Infrastructure and critical lifelines (e.g., the location of the fault and to optimize the water, sanitation, power, communication, use of space, the easement will be about 30 etc) should be upgraded for seismic meter wide (i.e., 15 meter on each side of performance as an integral part of the the current fault trace). Residents within redevelopment plan. the fault zone will need to be relocated. This intervention should be accompanied 7. No intervention is planned for structures by a re-housing program for the affected with vulnerability of Moderate to Low. households. Compensation for the displaced However, households of these structures will households should be determined on the be allowed to participate in the voluntary basis of existing legal provisions and in a seismic retrofit program. fair, transparent and socially acceptable manner. Part of the easement will be used for a major access road. The access road will also provide the opportunity to redesign new utility lines and fire protection systems
Executive Summaries 29 Figure 15. Conceptual Site Development Map
that will be designed for the appropriate the following target beneficiaries: (i) earthquake motion. Drainage systems will be households on structures located on top incorporated to reduce the risk of flooding. of the fault zone; and others currently Further, the easement can be used as a park, living in very high vulnerability structures; open market, recreational area, playground, (ii) households that will be affected by parking space, and a community garden. It relocation to create open space for housing; will serve as emergency staging area in case (iii) households that will be affected by of a disaster. This is the major feature of the the requirement for redevelopment open redevelopment plan (See Figures 16 and 17). space; (iv) households that will be affected by road widening; and (v) households • Development of a housing program that will be affected by other projects and pocket open space. New medium such as school expansion and construction density social housing will be created for of community facilities. The re-housing
30 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Figure 16. Conceptual Plan for Fault Zone Development
Figure 17. Proposed Street Section for Fault Zone Development program should be based on the premise • Retrofit program for high risk structures. that all relocation will be on-site, i.e., within A voluntary retrofit program is suggested the Barangay itself. Additional spaces would for structures classified as “High Risk.” be created once very high vulnerability However, prior to retrofit, more competent structures are demolished and contiguous structural analysis needs to be undertaken lots are consolidated. The subsequent on these structures to ascertain their level construction of new medium-rise housing of risk considering their construction on the following locations is proposed: characteristics and location. One major along the fault zone park; on proposed consideration is that aside from the strong nodes along the creek; around the proposed potential ground shaking, the liquefaction neighborhood commercial centers; and on ranges from high to very high. Such future lots with adjacent high risk structures (See study needs to examine whether it is viable Figures 18 and 19). A re-housing study to retrofit structures in these conditions, and needs to be undertaken to establish all the if so, what specific structural improvements conditions, process, and financing for the are required and how much it would cost. rehousing. Mandatory relocation is necessary when
Executive Summaries 31 Figure 18. Proposed Medium Rise Housing on Nodes Along the Creek
Figure 19. Proposed Medium Rise Housing Adjacent to Commercial Nodes the value of retrofitting is no longer cost- These controls include restrictions/ effective. Relocation may also be necessary regulations on construction, height, in order to open up space for social housing, easements, compliance with structural a component of the redevelopment plan. No design standards, and land use. These new structural measures are specified for medium development controls can be incorporated and low risk structures, unless desired and in a City Ordinance or appended to the undertaken voluntarily by their occupants. City Zoning Ordinance.
• Development controls. In order to rationalize future development and prevent • Density controls. The continuous increase additional risks, development controls (in of population in the area can put more addition to the existing zoning controls) are people at risk in the future. The following proposed for existing and new development. 32 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu actions will help regulate the area’s density: per neighborhood unit within a theoretical (i) Require the registration, issuance walkable radius of about 250 meters. of a clearance and monitoring of new migrants; (ii) Compel house owners who • Disaster preparedness and emergency want to lease/rent their properties to secure management. To enhance the community’s appropriate permits; and (iii) Strictly ability to anticipate and cope with disaster enforce compliance with business licenses/ events (e.g. floods, fire), the following tax on rental housing and other businesses actions were recommended: (i) Installation to prevent overcrowding. of an early warning system for different types of hazards; (ii) Formulation of an • Circulation network improvement and evacuation plan that considers different emergency access. The circulation system scenarios; (iii) Strengthening of emergency should be improved to efficiently facilitate response capacity through earthquake movement of people and goods, as well as drills, household-level orientation, training provide alternate routes in case the roads on emergency response, recruitment along the fault are blocked or are ruptured of additional responders, acquisition of during a disaster. Major connector roads equipment (radios, generator, etc.), and that serve the various zones within the strengthening of inter-agency coordination; Barangay and link the major entry/exit (iv) Placement of pre-disaster emergency points should be widened to at least an caches and (v) Construction of multi- eight meter right-of-way in order to serve purpose centers for recreation and the projected traffic volume and be adequate temporary shelter. for emergency vehicles and fire fighting vehicles In addition, the following measures • Upgrading of critical infrastructure. The are recommended: (i) Clearing of illegal area’s planned redevelopment provides an encroachments on the road; (ii) Connection opportunity to upgrade water, drainage, of blocked routes and dead end streets; (iii) communication and power systems as well Provision of through-streets/alleys on very as fire fighting and emergency response long blocks, and (iv) Construction of a capability while making them more disaster- roadway running along the creek. resilient. The Fault Zone Park is intended to serve as a major corridor for new utilities as • Traffic management. In order to indicated previously. Makati needs to work improve the circulation in the area, the with service providers such as Manila Water implementation of one-side parking and and Meralco in formulating a joint action no-parking schemes were proposed. Roads plan for the design and installation of long- less than four (4) meters wide, roads with term earthquake-resilient facilities. dead ends, and main access roads should be declared as no parking zones. All other To ensure the success of the above mentioned roads should have one-side parking only. interventions, these should be supported by the following: • Open space development. Open spaces play a crucial role after an earthquake because • Development of compensation scheme. these can serve as spaces for temporary This is for those who will be displaced evacuation and debris storage. To increase because their current dwellings are the amount of open space in the area, the considered to be at very high risk. The following measures were proposed: (i) The compensation scheme should be based development of a creek-easement linear on the pertinent legal provisions and park along the creek easement running regulations. They should consider the parallel to the proposed roadway along the socio-economic conditions of the current creek; and (ii) The provision of open space residents and be developed in a transparent
Executive Summaries 33 and fair manner. All those displaced will and (iv) Preparation of business and be relocated within Barangay Rizal and, if entrepreneurship support program which possible, within their zone. includes improving people’s access to affordable financing and market linkaging. • Development of incentive program. The Raising people’s income is one of the most voluntary seismic retrofit program needs immediate means to enhance people’s to be supported by an incentive scheme quality of life and at the same time reduce to favor the engagement of private owners their social and economic vulnerabilities to to participate. The incentive scheme can disasters. be in various forms such as undertaking all the studies free of charge, providing Urban redevelopment is a complex process soft low interest loans, allowing variations that requires sustained financial and in zoning for mixed uses, and others. The institutional support over a multi-year incentive program should be carefully period. The implementation strategy for the crafted to be able to complement the proposed redevelopment plan includes setting mandatory program and minimize the up the appropriate legal and institutional number of households who will be affected mechanisms that will formalize regulations by relocation. and incentives, define the roles of the different stakeholders, and ensure the mainstreaming • Information, Education and of the redevelopment plan elements into the Communication (IEC) Campaign for the City and Barangay development plans and Redevelopment Plan. An IEC plan needs budgets. Aside from the legal and institutional to be developed to outline information mechanisms, social acceptance is also one dissemination, promote awareness- component that needs to be worked on further raising and communication strategies to ensure the smooth implementation of the that will address information needs of plan. The participatory approach adopted various stakeholders, and improve social by this project should be continued in order acceptability. This needs to start early to ensure transparency and social acceptance. on and carried out in parallel with the Without consensus building and social implementation of the elements of the acceptance, the project will have little chance redevelopment plan. The IEC plan will to get implemented. Finally, several in-depth be particularly helpful in undertaking studies need to be undertaken to support the the following project components: (i) decision making process, including physical emergency management training; (ii) vulnerability,, transport, housing and incentive community preparedness campaign; (ii) study. Utility and service providers should be traffic management; (iii) development closely consulted and engaged in these studies. controls and (iv) projects under the The private sector should be brought in to look redevelopment plan. at opportunities for private investment and financing. These studies should be integrated • Raising Income Level and Improving with the Barangay Development Plan and the Economic Conditions. Aside from the Makati Development Plan. abovementioned interventions which directly address physical risk, the following The plan has been broken down into a 10-year measures are also proposed to raise income timetable with immediate, short, medium, and levels and improve the socio-economic long term actions (See Table 3). The immediate condition of the area: (i) Development actions include the formulation of the Plan by of neighborhood commercial centers; (ii) the Barangay Council and with City Council, Development of educational facilities; and the preparation of feasibility studies for (iii) Formulation of strategic livelihoods the components of the plan. The more socially and skills enhancement program acceptable actions such as road widening can
34 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu be done within the short to medium term, the participation and involvement of the while interventions which are more difficult to barangay officials, zone leaders, and community implement such as the Fault Zone Park can be representatives from the outset was critical in done in the long term. This will enable trust forging consensus. The highly participatory building with the community and provide process of exchanging information and ideas was appropriate time to plan adequately. particularly effective in developing a common understanding among the stakeholders. It Lessons Learned and Next Steps enabled the development of a common vision where the trade-offs are understood by the The project has generated valuable knowledge stakeholders. The systematic approach in data in terms of both the substantive content gathering, analysis, and presentation at the and redevelopment planning process for stakeholder workshops helped significantly in addressing the earthquake risk of an existing developing a deeper appreciation of the risks that community. The fact that the project site is the community faces. And the sensitivity of the virtually all built-up, with small lots and narrow City Government representatives and technical streets, and occupied by predominantly low- experts to the particular culture of safety, socio- income households place extreme limitations economic circumstances, and constraints on the on the range of redevelopment actions. part of the affected households was especially The engineering component to resolve the helpful in maintaining a spirit of collaboration physical vulnerabilities is critical as the risk to and cooperation throughout the planning every single structure needs to be evaluated. process. The nature of the structural risk practically dictates the fate of the occupants, and, thus, should be given close attention. Coupled with the inability to predict the probable next earthquake, and the residents’ tendency to accept a high level of risk, these existing conditions pose a daunting challenge in the formulation of the proposed redevelopment plan. While the Project is a pilot application in a very limited planning area, the methodology used has a high potential to be adapted or replicated in other contexts/ localities. The explicit incorporation of disaster resiliency in redevelopment planning poses great challenge in the legal and institutional aspects. No such local government plan, officially labeled as such, has ever been prepared, and a comprehensive national legislation/regulations and implementing instruments have yet been put in place to guide the process. In this sense, the Risk Sensitive Redevelopment Plan of Barangay Rizal is a precedent-setting effort.
In spite of the various constraints faced by the project, the study shows that formulating an acceptable redevelopment plan is possible if the planning process is systematic, transparent, participatory, and consensus-based. Engaging
Executive Summaries 35 Table 3. and Interventions Timeline
36 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Executive Summaries 37 38 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Interventions and Interventions Timeline Executive Summaries 39 40 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu Professional Training in Risk-Sensitive Land Use Planning and Local-Level Emergency Management Executive Summary
This Project emerged from EMI’s Cross- IWOs were developed for Kathmandu. This cutting Capacity Development (3cd) Program project i.e., Project Work Output (PWO) in Metro Manila and Kathmandu. EMI’s 2 - Customization of content of two training 3cd Program was conducted from 2004 to courses and their pilot application in Metro 2006 as a collaborative project of EMI, Metro Manila and Kathmandu-took off from Manila Development Authority (MMDA), recommended IWOs both for Kathmandu and and the Philippine Institute of Volcanology Metro Manila. This IWO specified the need for and Seismology (PHILVOLCS) in Metro specialized training to support institutions and Manila, Philippines. Another Project’s communities in undertaking urban disaster risk component was established in Kathmandu, reduction at the local level. Nepal as collaboration among the Kathmandu Metropolitan City (KMC), the National The goals of PWO 2 were: Society for Earthquake Technology-Nepal (NSET-Nepal), and EMI. The 3cd Program 1. Complete and customize a course on Risk was designed to engage and support megacities Sensitive Land Use Planning, and Local- in the process of implementing disaster risk Level Emergency Management to fit local reduction (DRR) strategies. The Program also level practitioners and professionals and to set a framework for developing a localized support the objectives of this project; capacity building agenda which aimed to (1) 2. Design the course delivery process; and empower local governments, institutions and 3. Pilot test the courses. communities to plan and deliver DRR program and policies; and (2) mainstream DRR within The PWO 2 is one of the four main components the day-to-day functions and services of the of a larger project titled, “Mainstreaming city, through the development of a sustainable, Disaster Risk Reduction in Megacities: A Pilot consensus-based Disaster Risk Management Application in Metro Manila and Kathmandu.” Master Plan (DRMMP). This project was funded by the German Federal Foreign Office (FFO) through the Deutsches The outcome from the 2004-2006 effort Komitee Katastrophenvorsorge (DKKV). The resulted in EMI proposing a 10-Point DRMMP Project involved the customization of two elements based on the 105 recommendations training courses: 1) Risk Sensitive Land Use from the Metro Manila Earthquake Impact Planning, and 2) Local-Level Emergency Reduction Study (MMEIRS). Through a Management. It also included the pilot stakeholders’ workshop, the 10 elements were applications of these courses in Metro Manila narrowed down into five Implementation and Kathmandu. These courses were selected to Work Outputs (IWOs)1. Similarly, a five point support the implementation of other activities of the project (i.e. PWO’s 1.1, 1.2 and 1.3). Note 1 IWO No. 1 - Develop and institutionalize that the content of these two courses was in for risk communication and preparedness, IWO No. great part developed with funding from another 2 - Incorporate risk reduction criteria in land use and urban planning, IWO No. 3 - Conduct training needs source[S3]. However, the funding from the assessment and capacity building for DRM, IWO No. German FFO enabled EMI to complete these 4 - Mobilize resources among NGOs, professional courses through customization to support this organizations, and private sector in DRM agenda, and particular project as well as their pilot delivery in IWO No. 5 - Improve legal and institutional arrange- both Kathmandu and Manila. ments for improved DRM delivery. Executive Summaries 41 Screenshot of the MEGA-Learn Online Platform running the Mega-Safe and Mega-Plan courses
The first training course on risk-sensitive land development of the Emergency Operations use planning is referred to as MEGA-Plan. It Plan, the main output of Project Work trained planners and related professionals on Output 1.2 (see separate report). Material and how disaster risk assessment tools, techniques, techniques behind MEGA-Plan were also used and methods can be integrated into the land use for training of Kathmandu planners to develop planning process. The second training course on critical components of the risk-sensitive land local-level emergency management is referred to use plan for Kathmandu (PWO 1.2). A field- as MEGA-Safe. It trained emergency managers based survey was employed during the training and other professionals on city-level emergency on Rapid Visual Screening of Buildings for management operations, functions, procedures Seismic Vulnerability for engineers and other and systems. While not planned originally in technical staff of Makati City. Several staff the scope of the project, a third training course of Barangay Rizal and other members of the was added to support PWO 1.3 of the project community were trained on Vulnerability and (Redevelopment Plan for Barangay Rizal) where Capacity Analysis (VCA). several engineers where trained on Rapid Visual Screening for Seismic Vulnerability. The development of courses, delivery process and pilot testing were completed in two years. The MEGA-Plan and MEGA-Safe training The initial plan was to train 40 practitioners courses made use of blended learning approach, on risk-sensitive land use planning in maximizing the potentials of both conventional Metro Manila, 40 practitioners on city-level (face-to-face) mode of training with distance emergency management in Metro Manila, learning and field-based learning modalities. and 20 practitioners on city-level emergency MEGA-Plan was delivered using distance management in KMC. However, it was learning modality in Manila while MEGA- necessary to re-orient the training in order to Safe was delivered both in an e-learning mode accommodate the needs of the project and in Metro Manila and in a series of face-to-face optimize the outcomes of the training agenda. training and table top exercises in Kathmandu. The final format of the training was as follows: MEGA-Safe in Kathmandu supported the
42 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu a. One day validation training undertaken at least two sessions and contains discussions in the form of a workshop to a selected of key lessons, case studies and examples, number of emergency managers from guide questions, and illustrations. The learning several local government units in Metro modules were specifically designed for distance Manila on MEGA-Safe. This was necessary learning but can be customized for face-to-face to validate the content of MEGA-Safe with trainings. highly knowledgeable audience b. Deliver MEGA-Plan in Metro Manila In Kathmandu, emphasis was given to on a blended learning approach to a enhancing the capacity of KMC Project smaller number of land use planners and Working Committee in developing the practitioners. A total of 40 was considered KMC Sectoral Profile and in identifying the not practical for this first pilot application development thrusts and spatial strategies of c. Deliver MEGA-Safe in Kathmandu as a the KMC risk-sensitive land use plan. EMI also series of on-site training classes to planners, organized a city-to-city sharing between KMC emergency managers, public safety officers, and Makati City. KMC staff and officials visited and other potential first responders. The the emergency management facilities of Makati training schedule was synchronize with the where they had an appreciation of state-of- development of the Emergency Operations the-art emergency management processes and Plan for Kathmandu Municipal City practices. undertaken as part of PWO 1.2 of this project Further, to support the implementation of PWO d. Deliver MEGA-Safe in Metro Manila on a 1.4 i.e. Risk-Sensitive Urban Redevelopment e-learning basis Planning for Barangay Rizal, EMI designed an e. On-site training of Kathmandu planners on additional training course for city engineers of key elements of a risk sensitive land use plan Makati City on how to assess physical seismic for Kathmandu (PWO 1.1) vulnerability of buildings through a rapid visual f. Provide in-depth training on rapid visual screening method. The training was conducted screening of buildings to assess seismic vulnerability to several Makati City Engineers. This last part of the training was not originally planned but became necessary in order to assess the physical vulnerability of Barangay Rizal. Outputs of this activity were used in developing the Urban Redevelopment Plan (PWO 1.3 of this project)
A total of 105 practitioners were trained as result of this project.
The report on these activities is divided into three parts:
Part I: PWO 2.1-MEGA-Plan with pilot testing in Metro Manila
MEGA-Plan consists of five modules focusing on mainstreaming natural disaster risk parameters into the land use planning and RVSBSV hands on survey manual development process. Each learning module has
Executive Summaries 43 Training on Rapid Visual Field exercise for Rapid Screening at Makati City Hall Visual Screening in Barangay Rizal 1. need for practical examples and hands-on Barangay Rizal. The results of the survey exercises. were an essential input to the Risk Sensitive Redevelopment Plan of Barangay Rizal 2. Trainees acknowledged that in some developed in PWO 1.3. Similarly, the cases, their limitations of knowledge of emergency managers in Kathmandu were disaster risk management hindered their able to understand and contribute to the ability to understand the course material. Kathmandu Emergency Operation Plan Consequently, it was proposed that the and take ownership of it at the end of the content of the course be aligned more with project. Planners in Kathmandu were able the reality of the practice of DRM in the to complete the sectoral profile and the field. Another approach is to require that strategic directions of the risk-sensitive land trainees first complete a general course on use plan. fundamentals of disaster risk management before taking these specialized courses. The approach, methodologies and lessons learned from this component will be used to 3. Trainers may need to complement textual strengthen the curriculum of the courses for and oral presentations with visuals and future delivery. These types of specialized structured learning exercises especially courses that are oriented toward local planners during face-to-face trainings to overcome and practitioners are not often available[S4], language barriers such as in Kathmandu but they are critical to develop local capacity. where English proficiency is sometimes low among local government staff. Case studies and examples may be effective if translated to native language.
4. All three trainings (i.e., MEGA-Plan, MEGA-Safe and Rapid Visual Screening) were found to have provided valuable knowledge and a stronger analytical foundation for the professionals to enable them to initiate, manage and implement similar tasks in the context of their own work and within their own cities. As a demonstration of that, the Makati engineers who received the Rapid Visual Screening evaluated in excess of 1000 structures in
44 Mainstreaming Disaster Risk Reduction in Megacities: A Pilot Application in Manila and Kathmandu
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