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Planning for Urban and Township Settlements After the Earthquake

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Planning for Urban and Township Settlements After the Earthquake Working Paper EAP DRM KnowledgeNotes Series No. 4 Disaster Risk Management in East Asia and the Pacific Public Disclosure Authorized PLANNING FOR URBAN AND TOWNSHIP SETTLEMENTS AFTER THE EARTHQUAKE By Edward Leman INTRODUCTION This note builds on the proactive measures taken by the Government of China as announced in: (i) the Decree of Public Disclosure Authorized the State Council of the People’s Republic of China, No. 526 (Decree) issued on 9 June 2008, providing regulations on © The World Bank World © The post-Wenchuan Earthquake reconstruction; (ii) the Direc- tive on Counterpart Assistance (Directive) of 11 June 2008; and, (iii) the Land Policies to Support the Reconstruction of Wench- uan (Land Policies) of 11 June 2008 by the Ministry of Land and Natural Resources. This note cites selected international experience in reconstruction from recent earthquakes in Kobe, Japan; Gujarat, India; Bam, Iran; and Marmara, Turkey. The Wenchuan Earthquake affected a wide spectrum of rural and urban settlements in varying geographic contexts across a large area. The government quickly devised four categories of damage for the provinces of Gansu, Shaanxi, and Sichuan: (i) extremely affected, (ii) heavily affected, (iii) moderately affected, and (iv) affected areas. Analysis of Public Disclosure Authorized the then-interim information on affected towns, townships, counties, and cities suggested that settlement planning efforts would need to respond to very different contexts. In extremely affected areas (EAAs), reconstruction should address: n Small towns and villages in isolated mountainous valleys (e.g., counties of Wenchuan and Beichuan): These would require village-based planning approaches, including consolidation and construction of new villages in a few areas. n Medium-sized towns in isolated mountainous valleys (e.g., towns of Nanba in Pingwu County, Qiaozhuang in Qingchuan County, Qushan in Beichuan County): These would require structured planning. n Suburban villages and small towns near small- and medium-sized cities (e.g., the cluster of extremely affected Public Disclosure Authorized This working paper series is produced by the East Asia and Pacific Disaster Risk Management Team of the World Bank, with support from the Global Facility for Disaster Reduction and Recovery (GFDRR). This note was prepared for the Government of China as part of a series of good practice notes on post-disaster recovery following the Wenchuan Earthquake that struck on May 12, 2008. Content was coordinated by the China and Mongolia Sustainable Development and Country Management Units of the World Bank. The focus is on sector-specific lessons from past post- earthquake recovery programs in different countries around the world. 2 Disaster Risk Management in East Asia and the Pacific towns and townships around Dujiangyan): Planning HOW URBAN DEVELOPMENT PLANNING could improve integration of these villages and towns CAN SUPPORT RECONSTRUCTION with the cities, and some infrastructure services could Although approaches may differ, they all should ad- be extended. dress the basic objectives of effective urban planning: (i) n Large- and medium-sized towns adjacent to county- defining the types, locations, quantities, and intensities level cities at the edge of the Sichuan Plain (e.g., the of land uses; (ii) ensuring the availability of land (land towns of Hangwang and Zundao near Mianzhu in supply); (iii) ensuring the serviceability of land for al- Deyang). located uses (i.e., provision of infrastructure services); n Suburban and urban areas of these county-level cities and, (iv) facilitating the connectivity between land uses may require major adjustments or expansion of city (i.e., transport networks and services). master plans: The scale and scope of reconstruction Urban planning is critical in effective reconstruction efforts are likely to be very broad. planning. It sets the framework within which affected In heavily affected areas (HAAs), although the severity populations can permanently reestablish their liveli- of damage was more limited, the number of settlements hoods. It also allows enterprises to securely resume or is greater and includes: start new operations. n Suburban villages and small towns (e.g., around Successful international experience shows that effective Chongzhou and Deyang). post-disaster urban planning can: n Villages and towns adjacent to medium- and large- n Provide a powerful instrument for incorporating di- sized cities (e.g., Mianyang and the northern districts saster risk management into redevelopment efforts. of Chengdu): These cities may require adjustments n Provide a framework for coordinated, integrative ef- to city and district master plans to better integrate forts toward sustainable reconstruction by defining the these areas into urban regions. framework within which infrastructure, transport, en- n Outer areas and pockets of inner-urban areas of these vironmental management, and development occur. cities, possibly requiring the planning of large-scale n Provide a framework for setting and adhering to re- redevelopment of more formalized precincts and construction priorities. communities. n Facilitate monitoring of performance and progress. The type of development planning needed in isolated n Provide a disciplined framework for reconstruction areas would be quite different from those required in financing (capital investment budgeting, changes to suburban or inner urban areas of large cities. There fiscal revenue assignments, and fiscal transfers). would not be a “one size fits all” approach to the process n Provide stakeholders with a common basis for respond- and content of urban planning for reconstruction. It is ing to unforeseen needs and new constraints as the city, recommended that the government accelerate the dam- town, or village evolves through reconstruction. age and loss assessment to help determine the scale and extent of planning required. It would also guide the dif- URBANIZATION AND RECONSTRUCTION ferentiation of approaches to post-disaster urban plan- POLICY: REDUCING RECONSTRUCTION ning efforts. PRESSURES A prerequisite to post-disaster urban planning is ensur- ing that planning is directed to areas that need it the Planning for urban and township settlements after the earthquake 3 most. The government could consider several policy op- and cities: Some of the affected villages and towns were tions to better-focus planning efforts. in regions that have been lagging economically for de- cades. The rationalization and consolidation of strategic Facilitate voluntary resettlement to unaffected areas: towns would need to be coordinated with the resettlement Reconstruction pressures could be reduced by giving resi- of inhabitants from dangerous areas, and could focus on dents of affected areas the choice of moving permanently towns and cities that clearly have: (i) the capacity to gen- to unaffected towns and cities, especially if a sponsoring erate additional employment and nonwage economic op- family member had already migrated and become suc- portunities for resettled households; and (ii) the fiscal and cessfully established prior to the earthquake. Compen- institutional capacities to expand current levels of health, sation to affected family members could take the form education, and social services. Selecting these towns and of resettlement assistance instead of the housing grants cities presents challenges and requires accurate and current offered by the government for the rebuilding of homes. information to assess their absorption capacities within the Some national government assistance to local govern- context of regional economic development. ments in receiving areas could be given to offset the costs of additional education and social service obligations. PROCESS GUIDELINES FOR URBAN This policy could be structured to continue the intent of PLANNING AND IMPLEMENTATION the Directive on Counterpart Assistance. For households Given the urgency of reconstruction, there is not enough who do not have migrant members in unaffected areas, time or resources to follow the current hierarchy of stat- the government could consider a similar model but limit- utory urban plans in China. The major exceptions to ed to resettlement in towns and cities within the original current policy on land management, announced by the or adjacent prefecture-level city. This approach is consis- Ministry of Lands and Natural Resources (MLNR) on tent with the long-standing government policy promot- 11 June 2008, are a precedent for the kinds of excep- 1 ing rural–urban migration to towns and small cities. tions to statutory urban planning practice that the Min- Abandonment of unsustainable settlements at high istry of Housing and Urban and Rural Development risk: The Decree clearly recognizes that the Wenchuan (MHURD) should formulate. Earthquake caused almost total devastation in some International experience indicates that what is needed in villages and towns. Unsustainable settlements at high earthquake-affected areas is not new master plans and risk may need to be abandoned. This is a very difficult urban designs but rather iterative urban development policy decision, and one that should be considered with strategies. These should be supported by economic and care. Experience shows that new settlements can lead to social development policies and priority action pro- social problems and lack of accessibility to employment grams in key sectors. The government should consider and means of livelihood. However, in some
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