Table of Letters 4 Strategy Pillars 56 Contents Executive Summary 10 To foster a better quality of life based on more Urban Resilience 1.1 Integrating and modernizing water coordination and 12 integrated mobility. 3.3 61 management instruments and ecosystems 125 100 Resilient Cities Program 1.1.1. Design and implementation of the non-motorized mobility 15 3.3.1. Land Use Plan (POT) for the District of Master Plan for . 126 62 3.3.2. Comprehensive cost-benefit analysis of development 1.1.2. Strategic Plan for the ordering of informal transport Tools and Methodology 64 options around wetlands 18 1.1.3. New policy for carpooling in neighborhoods 128 65 3.3.3. Monitoring of the status of ecosystems in wetlands and 1.1.4. Network of preferential lanes for exclusive use of public the quality of water in basins of the metropolitan area transport 130 City Context 19 66 3.3.4. Municipal Waste Management Plan 1.1.5. Heavy vehicle traffic control 132 Migrations: Cultures in a Melting Pot 24 69 1.1.6. Metrocable in San Miguelito and Panama 70 The City in Figures 32

Development of the Resilience Strategy 4.1 Local leadership of risk management in the city 137 37 1.2 Enhance human capital so as to improve access to Methodological Process of Panama’s Strategy 38 job opportunities 72 4.1.1. Municipal multi-department system of geographic information 138 1.2.1. Pilot Program for municipal charter schools 73 Shocks and Stresses 4.1.2. Certificate of Prior Disclosures 46 1.2.2. STEAM (activities involving science, technology, 140 4.1.3. Structural assessment: training and construction for engineering, arts and mathematics) Program 74 vulnerable areas 142 Panama’s Resilience Strategy 1.2.3. Panama, a Destination for Natural and Sustainable Tourism 76 52 4.1.4. Municipal Comprehensive Contingency Plan 144 1.2.4. Training exchange programs for nationals and foreigners 78 Resilient Panama City Vision 4.1.5. Comprehensive Disaster Risk Reduction Program 53 1.2.5. Plan intended to strengthen fishing and agricultural 146 4.1.6. Multi-Department Technical Board of Works & How to Read the Resilience Strategy 54 markets for the benefit of community suppliers 79 Infrastructures 150

2.1 To drive integration of communities through a broader and better social infrastructure 83 To create safety for residents upon understanding 4.2 their vulnerabilities. 153 2.1.1. Action Plan for an integrated city 94 4.2.1. Communication and Education Program for Disaster Risk 2.1.2. Women’s centers 96 2.1.3. Municipal healthcare centers 98 Reduction 154 4.2.2. Early Alert Program for the boroughs of the Metropolitan Area 156 2.2 To connect the population through a new basic infrastructure 99 5.1 To strengthen management by streamlining both 2.2.1. Municipal Corporation of Basic Utilities 100 processes and resources 161 2.2.2. Tactic Urban Planning in downtown neighborhoods 101 2.2.3. Accessibility Program in neighborhoods 103 5.1.1. How are we doing Panama? 162 2.2.4. Implementation of the Comprehensive Mobility Plan for 5.1.2. Bidding processes based on more and better opportunities 164 the Historic District (San Felipe Neighborhood) 105 5.1.3. Collecting 110% for Panama 165 5.1.4. Strengthening our capabilities to implement better management 166 3.1 To rethink the infrastructure that will protect us from 5.1.5. Plan for joint management of projects with the Central effects of climate change 109 Government 168 5.1.6. Municipal Property Registry Office 169 5.1.7. United Municipalities 170 3.1.1. Green-Blue Micro-Infrastructure Program 110 3.1.2. Coastline System of Open Spaces 112 To foster participation in order to have more co- 3.1.3. Map of vulnerabilities and risks in the basin of 5.2 responsible residents 171 River 114 3.1.4. Resilient urban Juan Diaz Basin 116 5.2.1. Alliance for civic security 3.1.5. Integrated risk Atlas: Hydraulic models of 172 5.2.2. Let’s watch out for human rights 173 municipal hydrographic basins 118

Following Steps To effectively communicate the value of water as a 174 3.2 Abbreviations and Acronyms resource and that of the ecosystems protecting us 121 176

Acknowledgements 3.2.1. Communication and education plan on water, ecosystems 178 Bibliography 182 and biodiversity 122

RESILIENT PANAMA

Panama City will soon be reaching its 500th an- Our city has always been oriented towards inter- We thus set out in this journey with the optimism niversary since its foundation. It will be a special national trade, for its identity is diverse and built and joy that characterizes our people, with the date for us to commemorate and come back to- upon the successive waves of immigrants. A city assurance that there’s no goal impossible to ac- gether to our past, while thinking about the future with many contradictions, where we feel Caribbe- complish when we work together to achieve it. we wish for our city. an from the cultural point of view, despite being We are the small country that nowadays is suc- geographically located on the Pacific littoral. A cessfully managing the Canal, at the service of One year earlier, we set a countdown to this city that has boomed vigorously, without taking world trade. We are the country with one of the historic date, with a presentation of Panama’s enough time for its planning. These factors have most vibrant economies in . We are Resilience Strategy, imbued with a comprehen- all given rise to an extraordinary, heterogeneous the oldest city founded by the Europeans in the sive, long-term vision. It has been a titanic effort, city, rich in nuances and with its own strengths Pacific littoral of the Continent, the only Central which wouldn’t have been possible without the and weaknesses, as well as structural problems American nation to enter the Network of 100 Re- support and timely advice of the 100 Resilient that do have a solution, but which do require a lot silient Cities and the very first one in the region to José Isabel Blandón Cities Program of the Rockefeller Foundation. of attention. be declared by the UNESCO as Creative City. MAYOR OF DISTRICT OF PANAMA Today, rather than a phase coming to an end, it’s We are embarking on this new challenge that we the beginning of a new chapter, full of challenges are now undertaking with full awareness of its im- and opportunities for this capital District of our portance and the firm conviction of pursuing the beautiful country, Panama. Being both diverse and global, strategy outlined in each and every one of its in- tegral items. In 2016, when we received the great news of Pan- Panama city aspires to be more ama’s acceptance within the program, and thus sustainable, more human and more being the only city in Central America to be a part of it, I expressed that, for this local Govern- resilient. ment, it was a great honor but, above all, a huge challenge. A challenge that we have undertaken with great responsibility and enthusiasm. I wish to recognize the efforts made by our Resilience Division and by all the teams in the Mayor’s Of- The making of this Resilience Strategy has given fice taking part in the making of this Strategy, as us the opportunity to develop an inward-looking well as thank all the other governmental and pri- perspective. To evaluate ourselves both as citizens vate players, including the citizens who did their and as a city as a whole. To admit our defects and bit to help in the creation of such Strategy. feel proud of our virtues. The current situation has been ideal for us to define the concept of re- This Strategy is intended to serve as a guideline silience and how we will apply it “in the Panama- for any relevant course of action. It is not intended nian way”, but benefiting us from the experience to be a lifeless document to be shelved in a hidden of the other cities in the Network. drawer, but it aims to serve as a living guideline bound to spark debate and encourage the launch- Panama recognizes itself as a diverse and global ing of specific measures, with such actions having city aspiring to be more sustainable, more human a diverse approach, as in access to opportunities and more resilient. We have identified our major for citizens, the needs for infrastructure connect- risks as well as the main lines of action to tack- ing the citizens in the neighborhoods, our ecosys- le and prevent them, and always get back on our tems, and our preparedness for risks and liabilities feet, no matter how hard the circumstances we we all have in building this city. might have to face may be.

4 5 RESILIENT PANAMA

Resilient Panama, however, is trying to set Pan- Many of those beaches enjoyed by our own un- ama City at the forefront of the urban resilience cles and grandparents have been disappearing. practice. This strategy reflects the amazing prog- Both land fills and concrete belts have become ress that the city has achieved in understanding commonplace, while at the same time we ignore its natural assets and vulnerabilities, as well as our rivers and wetlands, which today, as we can how opportunities keep cropping up to develop see, are largely used as deposits of liquid and solid its strengths and adaptability. waste materials. We don’t see the possibility of creating systems that can adequately connect us, Panamanians play a key role in this resilience for instance, by public means of transportation, as strategy. Well-known for their solidarity, energy we have a deeply-rooted culture centered on the and inventiveness, Panamanians are also a truly use of cars. diverse people. Panama City has a large indige- Michael Berkowitz nous and Afro-Panamanian community, together Arturo Dominici Arosemena PRESIDENT OF 100 RESILIENT CITIES with a constant migration inflow from European RESILIENCE DIRECTOR, DISTRICT OF PANAMA and Asian countries. By acknowledging the di- On behalf of all teams at 100 Resilient Cities, I versity of its citizens, Panama’s Resilience Strate- This Resilience Strategy is a key would like to congratulate Panama City, its Mayor gy addresses inequalities and fosters an enhanced Panama City is located in an area of constant so- Mr. Blandon and the Resilience Director, Mr. quality of life for all Panamanian inhabitants. cial and environmental changes. It is a strip of instrument to addressing social, Arturo Dominici, on the launch of this strategy: land home to highly rich biodiversity comprised economic, and environmental risks Resilient Panama. Panama’s Resilience Strategy With other approaches, such as risk management, of living organisms evolving from both regions of establishes a clear vision of urban resilience that administrative improvement, the promotion of the Neotropics, living together within jungles and may serve as a role model for other cities around citizen engagement and the protection of natu- wetlands. the world. We’re excited to see how this ambitious ral resources, Panama City’s Resilience Strategy strategy takes shape and gets us ready for a more shows a many-sided and comprehensive vision of Ever since pre-Columbian times, it is a meeting flexible and dynamic Panama City. the building of resilience in its city. point for both persons and goods that play a key We still have lots of natural, cultural and human role across development and connectivity of hu- capital to discover, recover and preserve, as new Being both the capital and the largest city in Pan- This strategy is merely the beginning of the man populations. What originally seemed to be ordering plans have been developing at the local ama, we’re sure that it will be an example to be exciting work ahead and the long-lasting impact areas impossible to inhabit could later begin to level, in order to address decades of development followed as it expands this movement of global bound to be caused by this significant leap be settled thanks to the advances in eradicating restraints, as well as deficient urban planning. resilience throughout the country and beyond! forward, whether in the next few months, years yellow fever and malaria. Today, we can perceive or even decades to come. From now on, Panama a vibrant city, where many living organisms in- Decentralization brings about the opportunity for Panama City takes pride in having an intimate City may begin to implement, jointly with its tegrate within a single system, including waters, local authorities to provide support to all of the rapport with nature, as it is bounded by the Pa- allies, the actions and initiatives presented in this boats, merchants, immigrants, builders, fishermen players involved by engaging them in an integrat- cific Ocean. The Panama Canal -the largest infra- Strategy, which will have a positive impact upon and farmers, among others. ed fashion and encouraging them to participate structure project in history- has been one of the its citizens and will surely lead the way towards in the search for new schemes, experiences and most important commercial assets in the world resilient cities in the future. Congratulations Hidden nearby or away from skyscrapers and opportunities and, on this occasion, a comprehen- as well as a wonder of engineering ever since Panama City! modern shopping malls are some areas where our sive Resilience Strategy reaffirms and calls for civ- its opening in 1914. Nevertheless, the threats of fellow citizens suffer from the shortage of basic ic engagement in the execution of their projects. urban development and climate change have al- utility services, poverty and insecurity. These sit- ready started to bring about some acute shocks uations reveal that the benefits of our “booming” and chronic stresses to the natural infrastructure economy have yet to reach the bulk of our popu- built in Panama City, as well as on water supply lation as a whole. and citizenship as a whole.

6 7 RESILIENT PANAMA

This Strategy is a key instrument to setting I hereby express my thanks to the Mayor, Mr. priorities when tackling social, economic and José Isabel Blandón, the Vice Mayor, Ms. Raisa environmental risks, and even though it will Banfield, all the directors and officials of the Dis- not manage to provide us with a solution to all trict of Panama and of , as of them, we can indeed have a guiding course well as to the community leaders, entities and of- of action at hand. This course of action begins ficials forming part of the central government, the with the need for collective thoughtfulness and academy, NGOs and the international organiza- consensus opening the doors to new initiatives tions for all the collaborative support they have and alliances. provided to make this Strategy come true.

We are presenting a Strategy with working guide- I also wish to thank all the team of the 100 Resil- lines that address various initiatives concerning ient Cities Program for their support in the devel- transportation, education and basic needs, an opment and making of this Strategy. It has been insight into our environment, the appreciation of an extraordinary experience of joint, direct and ecosystems, a green infrastructure, a positive ap- coordinated work with novel ideas and insights. proach to prepare ourselves for the risks ahead, This has allowed us to envision change for our the enhancement of governance processes, citi- city and thus set an example for the other cities. zen participation and everybody’s responsibility In 10 years’ time, this city must be one which will, for all the people to have and enjoy the same in- regardless of any barriers ahead, share a vision of dividual and collective rights within a supportive growth based on an environment full of life, food, society. water, and biodiversity.

All in all, we are what we do to change what we are

EDUARDO GALEANO, THE BOOK OF HUGS

8 RESILIENT PANAMA

City has also been the seat of interna- Two additional development hubs were estab- the needs of its citizens. The city is increasing- Executive tional transactions for business, bank- lished, which allowed Panama City to be connect- ly endowed with the necessary tools that allow it ing and tourism, the trade of various ed from East to West by means of the Pan-Amer- to create policies, plans, programs, and projects Summary goods, besides having played a major ican highway. With this growing connectivity, intended to strengthen the stresses adoption and role in the route of spices, silver, silk, both formal and informal settlements forming incorporation of a resilience vision that includes, porcelain and gold. part of the urban pattern began to compete with not only the shocks, but also the that undermine The consolidation of the role the ecosystems, thus creating vulnerable areas its structure and functioning. played by Panama City as a connec- from the environmental, social, and economic Panama City is one of the cities included in tion platform for the drivers of world point of view for the present population. In par- the 100 Resilient Cities Program of the Rocke- development took place during the allel, the growing inequality also simultaneously feller Foundation, which is currently developing construction of the inter-oceanic ca- gave rise to two cities that enjoyed two different and implementing a Resilience Strategy. The nal. With the growth of its population, sets of rights and opportunities. strategy-making process consisted of a diagnosis Panama City evolved and expanded. In the face of these new challenges, urbaniza- of the city’s vulnerabilities, as well as surveys and In 1907, new villages emerged along tion opportunities and incentives for the auton- analyses of such issues and the outlining of actions the present boundary of the protect- omy of democratic local Governments, Panama contributing to the construction of the city’s resil- the City of Panama has been a strate- ed area within the canal’s basin, and a trans-isth- City’s administration begins a process consisting ience. This information was compiled and orga- gic route for maritime and trans-isth- mic highway was also built, which provided of the decentralization of the roles of the Pana- nized in 5 pillars, 11 goals and 45 actions that form T mic transit ever since the sixteenth ground communication from the Pacific Ocean manian State, thus acquiring governance and an integral part of this resilience strategy. century until today. Its geopolitical to the Caribbean. This would be the last stand- competence at a local level for many of the ar- wealth has boosted cultural, commercial and ing connection stronghold of the north-south eas formerly governed from the national sphere. technological exchange across the world. Panama route along which Panama’s railway would run. Thus, the city becomes liable for responding to

STRATEGY PILLARS 1 Access to opportunities 2 Infrastructure 3 Rediscovering our 4 Integral management 5 Joint responsibility in By connecting human capital with in neighborhoods wetland city By coexisting of risk the making of the city By welfare sources By making a city for everyone in a better way with our own By building and communicating empowering local management It includes projects related to the It consists of making territorial waters and environment for a safer city and its administration educational needs of Panamanian investments in projects making It includes projects intended to It contains initiatives intended It includes actions to build joint children and youngsters; everyone form an integral part understand the environment where to understand and share responsibility to manage the the Government staff, the of Panama City. It encompasses Panamanians live, to improve the information that will provide the city. These actions consider development of human capital projects seeking to meet the relationship citizens have with general population with greater the improvement of municipal water and water ecosystems, the and promoting accessibility and needs for infrastructure in order safety. It includes projects that governance, the decentralization management thereof and the miti- connectivity of citizens by means to integrate the most isolated help generate the necessary tools process, civic participation and gation of climate change. With the of various transportation systems. communities while seeking to to improve risk management and the reinforcement or awareness projects proposed, we aspire to: With the projects proposed, we integrate informal slums as well. create more knowledge about of fundamental rights. With the aspire to: With the projects proposed, we 3.1. Rethink the infrastructure that ourselves. With the projects projects proposed, we aspire to: aspire to: will protect us from the effects proposed, we aspire to: 1.1. Foster a better quality of life of climate change 5.1. Strengthen management by based on more integrated mobil- 2.1. Drive the integration of com- 3.2. Effectively communicate the 4.1. Lead local risk management in streamlining both processes and ity. munities through a broader and value of water as a resource the city. resources. 1.2. Enhance human capital so better social infrastructure. and that of the ecosystems 4.2. Create safety for residents 5.2. Foster participation in order as to improve access to job 2.2. Connect the population through protecting us. upon understanding their to build more co-responsible opportunities a new basic infrastructure. 3.3. Integrating and modernizing vulnerabilities. citizens. water coordination and management instruments and ecosystems.

10 11 RESILIENT PANAMA

Urban CONCEPTUAL FRAMEWORK OF Resilience URBAN RESILIENCE

Fosters long-term and Meets basic integrated needs planning DIMENSIONS Educates and empowers a Support broad range of livelihoods and actors employment LEADERSHIP AND STRATEGY

Processes that foster effective leadership, he term “urban resilience” has been inclusive decision-making, thus empowering defined by the 100 Resilient Cities T stakeholders to adopt comprehensive program (100RC) as the capacity of planning. individuals, communities, institu- Promotes tions, companies and systems coexisting in any leadership and Ensures public HEALTH AND WELLBEING effective health one city to survive, adapt and grow regardless of management All persons living and working in a city must any shocks and stresses that may take place with- have access to the goods and services they in their environment. Thus, resilience may be Leadership Health and and strategy wellbeing need to make a living and thrive. seen as the capacity of a city’s systems to keep their effectiveness and functioning when adapt- INFRASTRUCTURE AND ENVIRONMENT ing in the face of any given problem. Both natural and man-made systems 100RC promotes the use of a Conceptual Provides Promotes providing essential services protect and Framework of Urban Resilience as a way of de- communication cohesive and and reliable engaged connect urban goods, thereby allowing scribing the areas where cities must take action mobility communities for the free flow of foods, services and in order to become more resilient. This is an evi- knowledge. Infrastructure Economy dence-based tool that allows cities to bring their & environment and society challenges, opportunities and actions together ECONOMY AND SOCIETY from a resilient viewpoint. Ensures Social and financial systems allowing the The Resilience Framework is composed of 4 di- continuity of Endorses social critical stability, population to lead a peaceful coexistence security and mensions, 12 components, and 50 subcomponents services when acting collectively. helping to articulate the capabilities of the city’s justice processes for the building of resilience. These pro- Provides & Cultivates vide a common language that allows cities to share enhances natural & economic both their knowledge and experience. manmade assets prosperity

12 13 RESILIENT PANAMA

1. Funding to hire a Resilience Di- RESILIENCE QUALITIES 100 Resilient rector (or Chief Resilience Officer, Both thoughtfulness and ingeniousness characterize the systems that have managed to learn from their past and CRO), who acts as an advisor to the to act in an innovative way in times of hardship. Robustness, redundancy and flexibility help to conceive systems Cities Program city’s mayor or vice-mayor and oper- and assets that may withstand shocks and stresses, as well as the willingness to implement alternative strategies ational divisions by adopting a coordi- to make rapid recovery easier. Inclusive and integrated systems are associated with the processes of good gover- nating approach. He will be responsi- nance and effective leadership. These guarantee adequate investments and actions intended to meet the needs of ble for coordinating and implementing vulnerable groups and collective capability for creating a resilient city for everyone. the initiatives of the strategy.

REFLECTIVITY. This emphasizes the impor- FLEXIBILITY. This is the willingness and abil- 2. Access to experience, technical as- tance that both citizens and their leaders ity to adopt alternative strategies in response sistance and analytical tools to support should use their past experiences to make to changing circumstances or sudden crises. the development and implementation decisions and modify their standards and Systems can be made flexible through intro- of an appropriate strategy for the city, behaviors based on their lessons learned. For duction of new technologies or know-how, guidance in analysis design, work example, sensible planning processes are ca- including recognition of traditional practices. WHAT IS THE 100 RESILIENT CITIES pable of being more responsive to changing plans and direct strategic training for the city’s circumstances. PROGRAM? team. The city also has access to funding for con- INCLUSIVENESS. This highlights the need sultancies to respond to specific questions about to make broad consultation and take into he City of Panama was selected in the findings discussed in a Preliminary Resilience RESOURCEFULNESS. It means the capacity account different standpoints in order to gen- 2016 to take part in the 100 Resil- Analysis, with a network of international and na- to identify alternative methods to use re- erate a sense of shared ownership and a joint T ient Cities Program (100RC) of the tional specialists. sources in times of hardship, with the aim to vision for the city. cater for shortages and achieve goals. Rockefeller Foundation. It is the only city in Central America that forms part of 3. Contribution of pro-bono services from the INTEGRATION. This links players from both the program and will serve as a role model for oth- “platform partners” composed of selective mem- ROBUSTNESS. A robust design is one which public and private entities, which yields er cities across the region in the development of bers from the private, public, academic and has been properly conceived, built and man- additional benefits, resources are thus shared actions within the resilience framework. non-profit sectors. The partners offered services aged, including provisions to make sure that and encourages such players to be able for the construction of resilience, including spe- any failures may be foreseeable, safe and to work collaboratively to achieve better proportionate in relation to their causes. results. 100RC focuses on supporting cities in their cialized analyses and support for the application adoption and incorporation of a resilience vision of innovative ideas reflecting on the actions com- including not only acute shocks, whether trig- posing the strategy. REDUNDANCY. This is the additional capac- gered by natural disasters or caused by the ac- ity that is deliberately created to prevent tion of man, such as earthquakes, floods, disease 4. The 100RC network is formed by Resilience any possible disruptions due to external outbreaks, terrorist attacks, but also any stresses Directors from all the member cities. This is a dy- pressures, sudden overloads of demand or disorders triggered by external causes. This posed in the day-to-day challenges a city needs namic group of leaders who provide collaborative includes diversity, should there exist several to deal with, such as the obsolescence of its infra- work to the field of urban resilience professionals. ways to satisfy any given need. structure or unemployment. The network makes it possible to share knowl- edge and collaboration among colleagues from All the cities in the 100RC network receive the the cities involved both during and after the strat- following resources: egy-making process. Through this membership, 100RC does not only help Panama City to be more resilient, but it also facilitates the creation of a global resilience development practice in the short, medium and long term.

14 15 RESILIENT PANAMA

PHASES OF THE PROGRAM 100RC THE 100 RESILIENT CITIES

PHASE PHASE PHASE

1 2 3

City Guidance and Development Implementation and Preliminary Resilience and launch of the monitoring of the Panama City Analysis Resilience Strategy. Resilience Strategy.

This consists of a comprehensive The issues identified in phase 1 With the identification of oppor- preliminary diagnosis of the city, are delved into by means of a tunities and outlining of actions to which contains an identification of process engaging both players be developed in the strategy, the the areas in which the city needs and teams from the city, platform implementation process begins to make better efforts to build a partners and other cities in the with the identification of strategic resilient city. Additionally, a sup- network. Actions, working teams alliances and funding both at the port group with the Local Gov- and partnerships with new players local and international level. ernment is created. Likewise, the are proposed so that they can add Accra, Ghana Cape Town, South Africa Mandalay, Myanmar San Juan, Puerto Rico key players for development and up to and validate the process of Addis Ababa, Ethiopia Juarez, Medellin, St Louis, USA successful implementation of the building the city’s resilience. This Amman, Jordan Colima, Mexico Melbourne, Australia Santa Fe, strategy are identified. phase concludes with the publica- Athens, Greece Da Nang, Vietnam Milan, Italy de , Chile tion of the Resilience Strategy. Atlanta, USA Dakar, Senegal Minneapolis, USA Santiago de los Caballeros, Based on the shocks and stresses Bangkok, Thailand Dallas, USA Montevideo, Uruguay thus identified in the diagnosis, Barcelona, Spain Deyang, China Montreal, Canada Seattle, USA the strategy then seeks to spot Belfast, Northern Ireland Durban, South Africa Nairobi, Kenya Semarang, Indonesia specific actions taken by the local Belgrade, Serbia El Paso, USA Nashville, USA Seoul, South Korea Government and other players Berkeley, USA Glasgow, UK Norfolk, USA Sydney, Australia involved, tries to complete them Byblos, Lebanon Greater Manchester, UK New Orleans, USA Singapore and suggest any new ones, thus Boston, USA Guadalajara, Mexico New York, USA Surat, India consolidating a work plan. Boulder, USA Honolulu, USA Oakland, USA Tel Aviv, Israel Bristol, UK Huangshi, China Paris, France Thessaloniki, Greece Buenos Aires, Argentina Jaipur, India Paynesville, Liberia Tblisi, Georgia Calgary, Canada Kigali, Rwanda Pittsburgh, USA Toronto, Canada Cali, Colombia Kyoto, Japan Porto Alegre, Toyama, Japan Can Tho, Vietnam The Hague, Netherlands Pune, India Tulsa, USA Chennai, India Lagos, Nigeria Quito, Vancouver, Canada Chicago, USA Lisbon, Portugal Ramallah, Palestine Vejle, Denmark Christchurch, New Zealand London, UK Rio de Janeiro, Brazil Washington, D.C., USA Mexico City, Mexico Los Angeles, USA Rome, Italy Wellington, New Zealand Miami City and Miami Beach, Louisville, USA Rotterdam, Netherlands Jakarta, Indonesia USA Luxor, Egypt Salvador, Brazil Yiwu, China Panama City, Panama Malaka, Malaysia San Francisco, USA

16 17 RESILIENT PANAMA

that are then included in the resilience Tools and strategy. Following the strategy devel- Methodology opment process and a review of ex- isting data, interviews, inventory of resilience actions and insights, key issues to understand about Panama City, such as: equity, social cohesion, water resource management, climate change, physical vulnerabilities, gov- ernance and municipal administration are identified. In order to delve into under- standing key issues identified at the he process of creating the strategy beginning, some theme-based working groups has a comprehensive and holistic were formed with members from the various T approach. Engagement of players sectors involved. Once these groups have been from various sectors prevails, such as formed, the methodology of each was defined by groups of academic experts, (national and local) conducting reviews of laws, public policies, stra- Government, civil society and the private sector tegic plans, technical surveys, mappings of play- by means of interviews, workshops, meetings and ers, consultations with experts, close linkages with focus groups. In parallel, a thorough review of sec- 100RC platform partners and other researchers. ondary information and research studies, review of The activities performed also included workshops, CITY CONTEXT laws, public policies and strategic plans, is carried working round tables and interviews. The inputs out. Both the 100RC platform partners and con- from the various players involved are then written sultants come together, thus creating inputs and down in this strategy. identifying opportunities and recommendations

18 RESILIENT PANAMA CITY CONTEXT

Panama City gathers some archeological sites, the study of which has proven to be a long-established occupation throughout the East area of the present city. 1500 1600 1700 1800 1900 2000

Later, in 1513, when the Spaniards led The Isthmus of Panama became inde- Construction of the Canal of Panama balance of partisan political power, and by Vasco Nunez de Balboa got to see pendent from Spain in 1821 and volun- guaranteed the U.S.A. full jurisdiction twenty-nine years after the collapse THE PANAMA the so-called South Sea (Pacific Ocean), tarily joined Greater Colombia in 1822. over the Canal Zone created in 1904 of such regime, citizens still perceive CANAL he confirmed that they were at an The first transcontinental railway was and broad sovereign powers. Thus, the that corruption levels have increased isthmus. The presence of this unknown inaugurated in Panama in 1855, which United States leveraged the potential (Beluche, 2004). Much of the revenues ocean required an advanced position to was a technological leap forward with of the geographic and geopolitical of the Republic as a whole and of its be founded to conquest and control the significant effects on the local econo- importance of the Isthmus of Pana- capital city come from the Canal of newly-discovered lands. In response my as it grew more efficient than the ma in the Latin American region, and Panama, which has yielded net profits to this need, Pedrarias Davila founded Camino de Cruces, which was the route its long occupation lasted until the amounting to US$ 2.886 billion in the city of Our Lady of the Assumption connecting the Pacific with the Atlan- administration of the Canal of Panama 2017 from tolls, electric power supply, of Panama in 1519, the first port city in tic Ocean along the river Chagres. The and its surrounding stretches of land logistics and water supply. Out of those the South Sea. Panama City cemented following logistical advance of world- (military bases still remaining there) in proceeds, US$ 1.65 billion was paid to its great importance as a terminal and wide relevance was the construction of 1999 after the execution of the Panama the State by way of taxes (La Prensa connection hub for the various routes the Interoceanic Canal of Panama. This Canal Treaty in 1977 whereby it was journal, 2018). The Panama Canal’s of the Spanish empire for trade, trans- work was started by the French and transferred to Panama. The Basin of the GDP is projected to account for 2.2% Net profits portation of passengers and military completed by the Americans, after the Panama Canal provides water supply to 2.5% of the country’s GDP for 2018 strategic defense. Even after the end separation of Panama from Colombia for human consumption in the towns lo- (Gonzalez-Jimenes, 2017). Nevertheless, US$ 2.886 billion of the Spanish colonial period, Pana- on November 3, 1903. cated in the interoceanic region, and it Panama City hosts some other economic ma has remained relevant as a logistic is fundamental for the supply of water activities, such as international banking hub by playing its permanent role as a to the cities of Panama and Colon. and shopping tourism, especially due connection and destination enclave for From 1968 through 1989, there was to the presence of a duty-free zone and business routes worldwide. For all these a military regime ruling the country its connectivity by ground and air with Canal’s GDP reasons, it has consolidated itself as a which launched agrarian reform and Central and South America. The city also World Heritage Site, with the property peasant settlement programs that plays an important role in the marketing 2.2-2.5% entitled “Archeological Site of Panama finally penetrated into the urban basins and supply chain of fishery products, of the national GDP Viejo and Historic District of Panama” of the metropolitan region of Panama. for it has several ports and is located at (Osorio-Ugarte, 2012; UNESCO, 2017). The military regime collapsed with the an area of high fishing productivity. The The river Chagres in particular played overthrow of general Manuel Antonio city has a coastline outcrop entailing a a vital role in the establishment of the Noriega after the invasion conducted significant concentration of nutrients transportation network through the by the United States in 1981. The which bring about a broad availability isthmus and in its military defense (Old invasion is thought to have caused and large density of maritime species School Panama, 2014). a highly significant psychological of nutritional importance. Another shock on the population, which has important activity is port logistics, not been served in furtherance of a since it has large areas of containers nationwide reconciliation. In the wake surrounding the Canal of Panama. of dismemberment of the political Likewise, Panama City functions as an vision under the military regimen, air logistics center, both for passenger there ensued a restructuring of the and freight flights.

20 21 RESILIENTTimeline PANAMA of historic events in Panama CITY CONTEXT

HISTORIC EVENTS OF PANAMA

Construction of Death of Omar Torrijos, the Panama Canal General Noriega takes is completed control

Launching of the Resilience Strategy for First semi-structured Panama City pre-Columbian settlements Start of construction on the Canal with support from the United States Construction of the of America Interoceanic Railway Reversion of the Canal and its territory Pacific Ocean first seen (limiting bases that still by the Spanish remained) to the The Republic of Independence of the Republic of Panama Panama joins Gran Republic of Panama Canal Treaties Colombia from Gran Colombia

1850-1855 1500s 1800s 1900s 2000s 1513 1519 1821 1822 1881-1894 1903 1904 1906 1914 1968 1977 1979 1980 1989 1999 2018 2019

Elimination of the Canal Zone with U.S. control, France attempts to military bases remain Independence of the build a canal through Creation of the Canal Republic of Panama Panama Zone with U.S. military 2000 from Spain control The entire administration of the Canal passes into Panamanian hands

U.S. invasion of Quintennial Panama, overthrow of The city will Foundation of the city of General Noriega, and celebrate 500 years Our Lady of Asunción of end of military regime Panama since its founding

Overthrow of the oligarchy, beginning of military regime under General Omar Torrijos

22 23

Panama_Cathedral_Drawing construccion-canal-panama-10.jpg Jimmy_Carter_and_General_Omar_Torrijos_signing_the_Panama_Canal_Treaty.jpg container ship by Luis Prado from the Noun Project https://commons.wikimedia.org/wiki/File:Panama_Cathedral_Drawing.jpg https://www.panamaviejaescuela.com/historia-canal-panama/ https://commons.wikimedia.org/wiki/File:Jimmy_Carter_and_General_Omar_Torrijos_signing_the_Panama_Canal_Treaty.jpg

construccion-canal-panama-1.jpg Omar_Torrijos_with_Panamanian_farmers.jpg Manuel_Noriega_mugshot_cropped.jpg https://www.panamaviejaescuela.com/historia-canal-panama/ https://commons.wikimedia.org/wiki/File:Omar_Torrijos_with_Panamanian_farmers.jpg https://commons.wikimedia.org/wiki/File:Manuel_Noriega_mugshot_cropped.jpg RESILIENT PANAMA CITY CONTEXT

STRATEGIC POSITION OF PANAMA Banking Board of Panama, 2018). Migrations: Both banks and institutions related to the International Banking Center Cultures in a settled down along Via España and Melting Pot Calle 50, two of the major streets in Panama City. ATLANTIC OCEAN During the same period, San Metropolitan Miguelito became an area of informal area ATLANTIC slums for migrants to the city who OCEAN came from other regions in the coun- Caribbean try and it was designated as a Special Sea

PACIFIC District separated from the Munici- OCEAN pality of Panama, inserted at the cen- Panama ter of the Metropolitan Area. City he history of the city is closely related

to migrations that have led to a very PACIFIC OCEAN T diverse ethnographic and economic WATER CONNECTION composition of the population. The Built at the narrowest part of Panama, by leverag- manpower employed for the construction of the ing the course of river Chagres, is the Panama Ca- interoceanic railway between 1850 and 1855, and nal, which began operations in 1914 and accounts the Interoceanic Canal between 1906 and 1914, of- for 4% of Panama’s national territory. fered opportunities for migration to Panama City. The river Chagres was chosen as a major af-

After the creation of the Panama Canal Zone in fluent for the canal due to its historic rises, which Copyright © Free Vector Maps.com 1904, the urban area grew towards the east, the took place ever since c. 1870. One example was direction that the city is still growing today. Af- the rise of 1880, where the river reached a flow ter the elimination of the Canal Zone in 1979, volume of 2.266 cubic meters per second, thus Panama City started a process of development increasing by eight times its average flow volume northwards, along the trans-isthmic highway, and during the rainy season (Osorio-Ugarte, 2014). another development westwards, thus transform- Before the construction of the canal, the river RIVER CHAGRES ing a substantial part of the cities of Arraijan and Chagres used to drain towards the Atlantic along La Chorrera into “bedroom areas” where many of the mountain chain. The construction of the canal their inhabitants commute to work in the districts involved detonating the nearby mountain chain to of Panama and San Miguelito (Castro, 2006). create the access through locks and sluicegates for “The Banking Act of 1970 was conceived with ships and vessels towards the Pacific. This geolog- a spirit oriented to promote and attract the physical ic cut shortened the flood plain of the rises of river presence of new and prestigious international banks Chagres, both in distance and depth, confining from all over the world. Panama’s comparative them to the area nearby Lake Alhajuela. Alhajue- advantages afforded unique conditions for the la is an artificial lake withholding the flow volume creation and development of an International of river Chagres for its regulation and later use, Banking Center specialized in foreign transactions as a source of water to transport vessels from the and a modern telecommunications center that Atlantic to the Pacific and as a source of potable would allow our country to focus on processing water supply for at least two million inhabitants, countless international financial transactions and a which is equivalent to half the population of the U.S. dollar-based currency system” (Supervisory Republic of Panama (Osorio-Ugarte, 2014).

24 Photo: bgv23, flickr 25 RESILIENT PANAMA CITY CONTEXT

The water resource in Panama impacts the ca- THE URBAN PATTERN: nal’s protected areas and basins in the city, which PANAMA AND SAN MIGUELITO DISTRICTS form part of the capital city, as are the basins of Riv- er Abajo, River Matasnillo, River Juan Diaz, River Matias Hernandez, River Curundu, River Tocu- men, River Tapia, River , among others. The basins intertwine with a mountainous sys- tem separate from the Central Mountain Chain 40% of the population lives in the towards the north of the coastline strip occupied 40% by a humid rain forest with a rich biodiversity. metropolitan area of Panama City, Protected national parks form an integral part i.e. over 1.268 million inhabitants thereof, including the Metropolitan Natural Park at the center of the city, Sovereignty National Park, Camino de Cruces National Park, and An- con Hill. These hydrological, geographical and urban conditions result in a complex interaction between humans and the native flora and fauna of protected areas surrounding the city. Its connec- DISTRICT OF tivity provides the city with a landscape resource. PANAMA 191 KM2 (19,127 ha) 1 out of every 2 homes in the District of Panama are “Informal housing” means any home formal, whereas 1 in 3 are formal in San Miguelito. built in violation of the urbanization and construction rules currently in ECOSYSTEMS AND URBAN PATTERN 1,098,068 PEOPLE force; rapidly at the beginning, in an The growth of Panama’s urban pattern has been improvised way and with second- partly dictated by the changes occurring in water hand materials, and on lands which PANAMÁ ecosystems. During the construction of the canal, are not legally owned by their occupants. the nearby towns surrounding the River Chagres 540.6 inhabitants 2 were flooded, where the majority of the national per km FORMAL “Social housing” are those located and foreign workers employed in the canal were in neighborhoods originated from living. This caused new towns, which later be- a state-run housing project. It may came home to such workers, to emerge. SAN MIGUELITO consist of served plots of land, basis The areas closer to the coastline have been units, finished houses or apartments SAN MIGUELITO built by the State, which sold it to subject to urban development built on flood zones DISTRICT FORMAL their occupants. with predominant wetland plains, a network of 36 KM2 (3,628 ha). various tributaries and on areas near various hy- “Formal housing” refers to homes drographic basins. 355,429 PEOPLE Population of the metropolitan area per neighborhood origin of the located in neighborhoods originally The Panama Canal kept an indirect relation- home they live in built by private companies or individ- ship with Panama City, which isolated it from the uals, by following currently applica- District Formal housing Social housing Informal housing rest of the country, by constraining its growth di- ble urban development and building Panama 52.71% 9.92% 37.38% regulations. The development would recting it along the strip running between the Ca- San Miguelito 27.05% 21.31% 51.64% also occur in plots of land with the nal Zone and the sea towards the east. This pres- necessary authorization for such pur- sure caused much of the population to settle on poses, and having the minimum 7,094.3 inhabitants high risk zones. The disappearance of the Zone per km2 urban services (potable water, as determined in the Canal Treaty of 1977 made sewage and storm-water drainage system, and electric wiring). it possible for the city to expand towards the west Source: National Statistics and Census Institute (INEC, 2017). Source: FOBUR, 2015.

26 27 RESILIENT PANAMA CITY CONTEXT

GROWTH OF THE URBAN PATTERN POPULATION GROWTH OUTLOOK the east, where middle- and lower-class neighbor- (2035-2050) 1510-2014 hoods are adjoining large real estate projects, and golf courses built on sanitary landfills raised above six meters high. This difference in elevation has SANTA ISABEL 1,812,918 PORTOBELO increased the risks of flooding in nearby neigh- borhoods built below sea level. Additionally, the removal of wetlands to keep expanding the city 1,625,445 has also impacted fishing productivity. KUNA YALA INDIGENOUS COMMUNITY

2050 TOWARDS A LOCAL GOVERNANCE COLON In spite of the challenges and problems accrued from the past, the country has taken on a new direction 2035 COLON towards strengthening of Local Governments through the enforcement of the Municipal CHAGRES PANAMA Decentralization Act. This law was enacted in CHEPO 2006 and became effective in 2014 under the Sodelaro et al, 2015. leadership of the Municipality of Panama. New SAN MIGUELITO operating divisions were created, including those coastline of the canal and, especially, northwards. of Urban Planning, Environmental Management, So far, this expansion has taken place without Citizenship Participation and Transparency, a vision focused on the conservation of green and Culture and Education, among others. The areas. Even so, national parks are kept in good Social Management Division was strengthened condition, however, they are under high levels of and the Resilience Division was created in 2017.

COLON threat, such as the felling of woods, hunting and International organizations have also invested ARRAIJAN mining, among others. resources targeted at taking sustainable urban

LA CHORRERA The changes in the urban pattern are correlat- development actions, for instance, with the ed with a growth of urban areas towards the east Action Plan entitled “Metropolitan, Human and and the north. Middle-class Panamanians have Global Panama” in 2015. This survey is of utmost

PANAMA CANAL been settling down in neighborhoods of houses importance as it involves a joint effort made by the and massive housing complexes, which have lit- Mayor’s Office of Panama City and the initiative tle recreation space and reduced green areas and Emerging and Sustainable Cities (ICES, as per its experience an isolation of transportation systems official acronym in Spanish) of the Interamerican and employment and educational opportunities. Development Bank (Scodelaro et al, 2015). The TABOGA Map of Historical Change These neighborhoods are located in areas adjoin- study uses technical and statistical analyses to ing extreme poverty zones where many people arrive to the diagnosis of the city’s current situation settled illegally, thus creating a marked inequality and has supports sustainable and comprehensive Primary roads Old Panama City, 1510 problem and big difficulty for the Government to planning. This study also includes strategic lines Footprint, 1510 - 1941 Resilient Panama accomplish the supply of basic utilities. The priv- of analysis, such as mobility and transportation, Footprint, 1960 - 1995 ilege of residing on the seaside has spurred con- urban inequality and use of soil, vulnerability to Other districts Footprint, 2000 - 2014 struction of tall buildings on vulnerable coastline natural disasters, water management, cleanup and zones, thus increasing risks for people who live in drainage, solid waste disposal and modernization sea-level neighborhoods. This has contributed to of municipal management. deterioration of wetlands at Panama Bay towards On the other hand, the Comprehensive Plan Source: Preliminary Resilience Analysis, 2017.

28 29 RESILIENT PANAMA CITY CONTEXT for Sustainable Urban Mobility (PIMUS, as per In addition to this, the Municipality of Pan- its official acronym in Spanish) is a planning tool ama is already working on implementation of Native peoples in Panama City that defines mobility policies and programs re- the Eco-Protocol, which consists of developing quired by Panama’s metropolitan area in the next a system of green buildings to evaluate the envi- Panama City hosts the ethnic group Embera-Wounaan along the 30 years to come. In 2018, the making of the ronmental impact and performance of existing Curundu neighborhood, Lake Alajuela in and Pacora; the Ngabe- Bugle concentrate in the neighborhood Pacora (Las Garzas) and 24 Land Use Plan (POT), as per its official acronym buildings. It will provide a comprehensive frame- de Diciembre. The Gunas have mainly settled down in the villages of in Spanish) began, which is the core initiative to work that will give necessary input to assess the Calidonia, Santa Ana, and Ancon, with the latter containing Kuna Nega, finally provide the Municipality of Panama with overall environmental performance of the build- a neighborhood nearby Patacon Hill, which is the garbage dump of the the jurisdictional competences of local urban de- ings located in Panama. The assessment criteria province of Panama. velopment authority. The development of the of the Eco-Protocol evaluate social connectivity, Resilience Strategy is currently aligned with the existing infrastructure and management of the the definition of the strategic lines of said plan. site, energy-efficiency and conservation, water-ef- The plan will include participatory construction ficiency and conservation, organizational aware- Migrants for the World Bridge of a sustainable growth model and formulate the ness, procurement and operations, quality of inner drafting of the Legal Instrument of Territorial air, waste disposal and recycling, calculation of the Between 1904 and 1913, some 56,944 people worked ORIGIN OF THE WORKERS OF THE on the construction of the Panama Canal, of whom PANAMA CANAL Ordering and Management by means of public CO2 reduction, among other green and innovative consultations and coordination with national and features. The evaluation process aims to verify rel- 11,873 came from Europe, 31,071 from the Antilles; regional plans. Additionally, a proposal will be evant reports and pieces of evidence so that the 11,000 from the United States; 3,000 Chinese and some more from other unidentified places. Around made for legal support of the project portfolio and building complies with the intent pursued by those 27,000 workers died, mainly from malaria and yellow Europe 11,873 execution of training and publicity activities with- criteria, the minimum performance of the chapter fever. The accidental deaths occurred in relation to United in the framework of this plan. and the expected standard of certification. the failed French project resulted in a total of at least Antilles States 22,000 and more than 5,000 in the works performed 31,071 11,000 by the United States. The Afro-Antillean population China who continued their lives in the metropolitan area 3,000 settled down in neighborhoods such as Santa Ana, , El Marañon, Curundu and River Abajo.

Immigrants to the present

ETHNIC IMMIGRANTS IN RESIDENCE LOCATION, OF COMPOSITION THE COUNTRY PERMITS MIGRANTS

4% 9%

Asian

11% Black 38% White Mestizo 184,000 137,798 80% 12% indigenous mulatto From 2010 From 2010 through In the metropolitan area through 2016 2016 of the Pacific

half-breed 12% 24% Source: National Migration Service 2018; Lizcano-Fernandez, 2005; INEC, 2010.

30 31 RESILIENT PANAMA CITY CONTEXT

THE CITY IN FIGURES EDUCATION

ECONOMIC DATA

SPENDING ON EDUCATION SCHOOLING PERMANENCE

Primary 5% 3.5% (6- to 11-year-olds) 92% 2000 2012 PRO VI Pre-middle NC IA (12- to 15-year-olds) 73% D E P A N SAN MIGUELITO DISTRICT A Middle M Á (16- to 18-year-olds) 48% Income per capita 511.5 dollars GINI coefficient: 0.45

DISTRICT OF PANAMA

Income per capita 537.3 dollars GINI coefficient: 0.47

GDP INFLATION POVERTY

DOMESTIC 0.75% 13% national inflation general poverty, 37,471 (2017) district of Panama millions of dollars (147,519 people) (2017) 0.37% 2.5% PROVINCE OF PANAMÁ inflation districts extreme poverty in of Panamá and the district of 7,930 San Miguelito Panama (2017) dollars per capita (2017) 2.4% extreme poverty in San Miguelito

Sources: MEF, 2013; General Comptroller’s Office of the Republic, 2017; INEC, 2017; Scodelaro et al, 2015. Source: Sodelaro et al, 2016. Fuentes: MEF, 2013; Contraloría General de la República, 2017. INEC, 2017

32 33

• El gasto en educación (% del PIB) bajó del 5% en 2000 al 3.5% en 2012 • Edad 6 a 11 años en educación primaria: 92% (el más alto); en tanto que la del nivel de pre-me- Edad 12 a 15 años en pre-media: 73% • Edad 16 a 18 años en media: 48%, el más afectado por presión social y deserción por trabajo

Fuente: Scodelaro et al, 2016. RESILIENT PANAMA CITY CONTEXT

The economic value of natural capital in ECONOMIC VALUE OF NATURAL CAPITAL the basins and associated ecosystems of US$ 1.6 billion per year Panama City

The economy depends on natural wealth. With a population of almost 801,000 people, and one of the fastest growing economies in Latin America, Panama City receives nearly US$1.6 billion every year on critical ecosystemic services for the basins surrounding the city.

TYPES OF SOIL COVERAGE

RECREATION AND TOURISM US$ 577m

DISASTER REDUCTION US$ 24m

FOOD US$ 50m

CLIMATE STABILITY HABITAT US$ 380m US$ 106m

OTHER WETLANDS

GRASSLANDS SECONDARY FOREST

MATURE FOREST MANGROVE FOREST

POPULATED AREA Units represent annual values for 2015 in 10 types of ground coverage

Source: Ecosystemic Assessment Survey conducted by Earth Economics, 2018.

34 35 RESILIENT PANAMA

WATER FIGURES

57% 56% DENGUE MALARIA 7.5 19.4 Unaccounted water Delinquency percentage cases per every 100,000 percentage in the payment of water inhabitants utility

Source: Delgado 2014; Thompsom et al 2016.

DEVELOPMENT OF THE RESILIENCE STRATEGY

FLOOD DAMAGES PANAMA-SAN MIGUELITO SECTOR IN PRESENT SITUATION

Current scenario T10 T20 T50 T100 T500 PAE

Total damages (in US$M) 144.92 216.82 284.05 344.12 491.85 35.44 Affected persons 11,829 13,970 16,386 18,220 24,014 2,439 Economic damage index (% 0.95% 1.42% 1.87% 2.26% 3.23% 0.23% damages over revenues) Human damage index (%) 0.93% 1.10% 1.29% 1.43% 1.88% 0.19%

Source: IH Cantabria

36 RESILIENT PANAMA DEVELOPMENT OF RESILIENCE STRATEGY

For a better understanding of these Methodological issues, such evaluation was complet- ed with an online survey of 489 re- Process of spondents that helped the team to Panama’s determine insights into resilience. Likewise, the actions posed by the Strategy Action Plan for Metropolitan Panama were discussed: Sustainable, Human and Global (IDB, 2015). The 117 in- dicators included in the Action Plan were compared with the Conceptual Resilience Framework so that the rela- tionship between both methodologies could be understood. All these ele- he strategy development process ments were collated with the Conceptual Resil- began with a workshop organized in ience Framework provided by 100RC. T 2016 by the Municipality of Panama, This phase closed with the call for a Municipal jointly with 100 Resilient Cities. The Technical Board attended by 15 members, who objective of the workshop was to publicize the gave their support to the Preliminary Resilience concept of urban resilience and to identify on a Analysis, which identified five “discovery areas”, preliminary basis the shocks and stresses facing namely: equity, social cohesion, management of the city. This workshop was attended by various water resources, physical vulnerabilities and mu- officials of the Municipality, community leaders, nicipal governance. These “discovery areas” serve In order to answer these questions, 25 interviews ter, ecosystems, and risk management, was con- civil and academic organizations, businessper- as core ideas to guide research work conducted in person were conducted and 6 meetings were ducted with the attendance of 30 experts; and an- sons, 100RC program representatives, and resil- during the second phase of strategy development. held with working groups of experts concerning other workshop on the topics of equity, economy, ience directors from other cities involved in the A work plan based on these areas was drawn up various discovery areas, which were attended by transportation and social cohesion, with 18 ex- network. by taking into account the respective questions 111 people. Also, 6 community workshops were perts who took part in it. Finally, a call was made For phase 1, a Preliminary Resilience Anal- posed in the Preliminary Resilience Analysis. conducted in 6 neighborhoods (such as Alcal- to the Municipal Technical Resilience Board at- ysis was conducted, consisting of a preliminary de Diaz, Ernesto Cordoba, Pedregal, Tocumen, tended by 20 participants, who gave their recom- diagnosis of the city’s threats, from May through Pacora and in the community of the predominant mendations, feedback and ideas for programs and November 2017, which was complemented with ethnic group Guna based in the neighborhood of projects for the Resilience Strategy. The findings a total tally of 104 participants in 52 interviews, Kuna Nega located in the neighborhood of An- of these workshops, besides identification of op- 2 workshops, 4 forums (Dominici-Arosemena et con) with the participation of 129 community portunities based on the various reports quoted al 2017). During this first phase, several players leaders. Similarly, two synthesis workshops were in this strategy, gave rise to the project portfolio and specialists were involved from fields such as made, which were coordinated jointly with the found in this document. economics, urban, environmental and social plan- 100 Resilient Cities Program and with presenta- ning; central- and municipal-level governance tions delivered by both consultants and partners topics (specialists from the District of Panama and of the 100RC Platform. Additionally, a workshop San Miguelito District) as well as some academic about topics concerned with infrastructure, wa- representatives, NGOs and the private sector.

38 39 DEVELOPMENT OF RESILIENCE STRATEGY

Events and process of the development of the strategy

Initiative kick-off workshop 100 Resilient Cities

52 interviews, Online survey Analysis of 117 2 workshops, 489 PARTICIPANTS indicators for the IDB 4 forums ICES Action Plan

104 PARTICIPANTS

6 meetings with 25 interviews for the working discovery areas groups 111 PARTICIPANTS

6 community Workshops workshops 48 EXPERTS 129 COMMUNITY Resilience LEADERS Strategy

Photo: MUPA

41 RESILIENT PANAMA DEVELOPMENT OF RESILIENCE STRATEGY

Discovery Areas

Informal and mostly disconnected slums are in There is an important relationship between the Equity as a driver for a turn areas where poverty levels increase and satisfaction of basic need and social indicators better quality of life there is less availability of services. such as discrimination, economic prosperity and STRESSES access to reliable communication and mobility.

The cohesion of communities and the need to foster Cohesion as a trigger for a integration and to diminish discrimination against members SHOCKS better quality of life of various communities, is an important step to defining better policies for municipalities and the promotion of human rights in the metropolitan area.

It is necessary to raise Contamination of rivers and There is high use of water, awareness among the Pan- the coastline zone suggests and there are high leakage ACTIONS Management of the water amanian population of the that the water resource of it due to system fail- ures. Water supply does resource as a factor making water cycle, even though is not given enough not reach all sectors of the a city safer Panama is a city enclosed importance. within a network of basins population and lacks the with great variation and dy- necessary infrastructure for namism in the coastline zone. management and reuse of residual waters.

INSIGHTS Recurring floods suggest that these are Building and urban development codes perceived as an important stress, triggered are very closely related to the need to Understanding of physical by failures in the basic infrastructure and a understand physical vulnerabilities in the vulnerabilities as a basis historic shortage of integrated long term face of possible shocks, such as the risks of for a safer city planning, as well as the failure to comply earthquakes, tsunamis and landslides. with building codes and regulations, thereby disregarding climate change.

ONLINE SURVEY

Streamlining of administrative and budget planning processes would have an impact on the city’s economic Governance is an essential prosperity, leadership promotion and effective management; step for resilience as well as in social stability, safety and justice to prevent corruption, thus strengthening the functioning and effectiveness of municipalities and its various divisions.

IDB’s SURVEY

42 43 RESILIENT PANAMA DEVELOPMENT OF RESILIENCE STRATEGY

Contributions to the development of the strategy

PRO-BONO SERVICES CONSULTANCY SERVICES

EY: Proposal of intervention in Urban Mobility. Based on a CEASPA: Workshops held in five neighborhoods with the participatory process, EY proposed initiatives to improve attendance of community leaders and referents. These mobility between the economic development axis and the workshops focused on exploring both the physical and periphery of Panama City. cultural factors that contribute to social cohesion at a local level. Special emphasis was put on exploring the specific characteristics of each community, any ideas aiding to foster cohesion, and specific needs for social infrastructure. These workshops were attended by officials of the Municipality of Panama.

CSA GROUP: Pre-feasibility study conducted in relation to the discovery area: Coexistence with Water, Ecosystems, and Climate Change. CSA reviewed technical studies and consultancy reports concerned with the management of water resources and ecosystems, and it investigated available data about practices and techniques intended for EARTH ECONOMICS: Analysis of the economic value of effective management and protection of the quality of the natural capital in the basins and associated ecosystems of water resource, and adaptation to climate change. Panama City. Earth Economics created a spreadsheet with appraisal of the natural capital of Panama Bay and related basins.

CITYMART : Bidding process based on needs. It addressed the project for promoting waste disposal good practices at the North Municipal Park (PMN, as per its official acronym in Spanish) and informal settlements through an innovative bidding process proposed by Citymart and access to its ARUP: Technical analysis of the workforce and the urban solution platform. economy. Was focused on understanding the connection between economic dynamism and the setting built.

44 45 hocks are generally catastrophic rains during the rainy season running from May S events, such as: fires, earthquakes and through December. This season brings about on- floods. Stresses are factors that exert going floods affecting the lowest coastal zones. a frequent or recurrent pressure on Recent studies suggest that floods tend to con- the city, e.g. chronic shortage of food or water, centrate in the areas where the basins have been an overloaded transportation system, or high canalized and cemented (Scodelaro et al, 2015). unemployment. Every city has shocks and stresses In the past, Panama City suffered from large- with different levels of incidence, this is why it scale earthquakes. In 1621, the largest ever-re- is critical for Panama City to be well informed corded earthquake occurred, with a Richter-scale about its current situation with the aim to address magnitude of 7. In 1882 there was another seism priority issues that may impair its functioning and of magnitude 7.9 and the last one took place in development. 1971 with a magnitude of 5.6. After the latest one, there have been no other earthquakes that have caused serious damages in the infrastructure; SHOCKS TO THE ENVIRONMENT AND however, recent research suggests that there are INFRASTRUCTURE some active faults in the region (Bennett et al, Panama City’s geographic position (an inter-trop- 2014; Rockwell et al, 2010) with enough potential ical convergence zone) is characterized by heavy to cause earthquakes.

SHOCKS AND STRESSES OF THE CITY

FLOOD MAP

FLOOD AREAS IN THE METROPOLITAN AREA OF THE PACIFIC Mapa de Área de Inundación

ÁREA DE INUNDACIÓN (100 AÑOS)

HUELLA URBANA

VIAS PRIMARIAS

RÍO PRINCIPAL

AEROPUERTO TOCUMEN

Source: Municipality of Panama 2015. 47 RESILIENT PANAMA SHOCKS AND STRESSES

SHOCKS STRESSES

The overall poverty level Murder rates for every 10,000 Corruption increases with in the district of Panama is 13% inhabitants amounted to 252 deaths in money laundering, which then creates (147,519 people) and in San Miguelito, the district of Panama in 2014, and to a considerable negative effect on it reaches 12.7% (44,135 people). The 106 in San Miguelito (SIEC, 2014). the banking subsector. Between levels of extreme poverty amount to 2013 and 2015, a total number of 2.5% (29,590 people) and 2.4% (8,408 Racial and social 236 investigations were reported, people), respectively (MEF, 2017). discrimination in the involving drugs, embezzlement, Poverty increases in peripheral areas Panamanian society was fueled by the bribery of public officials, unjust to the north and east, canal-related military enclave. Afro- enrichment, white-collar crimes, which are rural in nature. descendents, Asians and indigenous transnational precedents, crimes Flood in the area nearby the Juan Diaz River Landslides in Nuevo Veranillo persons were (and still are) driven against copyright and related rights towards the poorest neighborhoods, (CNBC, 2016). Heavy rains bring about floods. The Landslides often occur (especially in the district and pushed to the lowest-paid jobs. most disastrous one in the last 10 years of San Miguelito) due to buildings made without took place in September 2004. It affected ordering, which would bring about situations that are The expansion of the 12,986 people, 2,770 houses and left a tally hard to control and could hinder the movement of urban pattern (northwards, of 13 casualties (IDB, 2015). people (Serracan, 2002). eastwards and westwards) is not accompanied by suitable structural and management measures. It is difficult to move in the farthest, Gender violence is also isolated, poorest, and unsafe areas. considered an important problem. Every year, hundreds of women There have been earthquakes of great are assaulted in the province of magnitude in Panama in 1621 (of magnitude 7 in the Panama, with a total tally of 11 women Richter scale), in 1882 (magnitude 7.9) and in 1971 (of murdered in 2016 (Public Prosecution magnitude 5.6). The risk of earthquakes is higher than Service, 2016). residents estimate, taking into account the results of Poor disposal of solid recent research studies that suggest the existence of Discrimination against sexual waste impairs the population’s active faults in the region (Bennett et al, 2014; Rock- minorities which translates into health, blocks drainage pipes and well et al, 2010). various forms of aggressive behavior, results in an increase of floods especially towards trans-gender (Thompson, 2016). persons (without having exact figures), and including, in many cases, Improper disposal of waste entails rapes (ICHR, 2015; Public Prosecution The decline of wetlands Impact of the 1882 earthquake on that extreme hydrometeorological Service, 2015). which help to control the hydrological the works of the Panama Canal phenomena bring about large regime, is caused by landfills that concentrations of suspended solid heighten risks, in addition to climate waste materials that affect the change (IH Cantabria, 2016). This Risks of tsunamis associated with seismic provision and quality of the potable decline, in turn, could also affect food activity in the Pacific Ocean, or the fire belt (Rosen- water supply (IDB, 2015). berg, 2017), endanger the buildings still under resources and fishing productivity, development in danger zones along the coastline whose related exports are estimated of the cities located across this region. The most Poorly controlled to amount by way of national immigration, with 137,798 economic revenues to 2,937 U.S. Strong winds affect houses of relevant case has been the tsunami of San Juan del residence permits issued to foreigners dollars/hectare/year for the fishing poor constructive quality, typical in Sur, , in 1992, with 170 casualties (INETER, between 2010 and 2016, and 184,000 resources coming from all over the these areas, with tile roofs and light 2005). Strategic sites have been established to per- immigrants. At this moment, there Pacific area (ANAM-ARAP 2013). enclosures that end up contributing to form drills mobilizing people with the corresponding is no evidence of planning and the destructive effect of the blowing signage of places to go after receiving notice of procedure to inform the population wind (IDB, 2015). evacuation (AMP, 2016). about this issue.

48 49 RESILIENT PANAMA SHOCKS AND STRESSES

The city has a plain topography towards the strip, without any coordination from the inter-in- the potable water supply (Scoderalo et al, 2015). Racial discrimination against Afro-descen- coast, which elevates towards the mountainous stitutional level and little intervention of Local Water courses contaminated by the concentration dents and indigenous people has brought about a range of Peñon Hill and Azul Hill, so it is possi- Governments. Said disorderly construction has of solid waste material foster the development of tendency to drive them towards the poorest neigh- ble to observe an increase in landslides towards restricted access to various zones and has resulted diseases, such as dengue and malaria (Thompson, borhoods. This population also tends to get low- the area of houses, as well as the collapse of infra- in low availability of public transport choices, a sit- 2016). In addition, soil has inadequate permeabili- er-paid jobs (OACNUDH, 2013; De León 2016). structure over weak foundations in raised zones. uation which has worsened in the farthest, isolated ty which has aggravated the effects of floods. One In Panama, gender violence still is a problem This has happened mainly in the district of San zones (Scodelaro et at, 2015). example of this practice is the removal of wetlands to be solved. In the Province of Panama, 11 wom- Miguelito and these effects have, in turn, been Informal housing has poor drainage systems for construction of buildings, roads and landfills. en were murdered in 2016 and 13 women were aggravated by the construction being performed that undergo interruptions to the potable wa- These, of course, function as natural controls of killed in 2017 (Public Prosecution Service 2016a, without the corresponding land-use planning (Ser- ter supply due to a lack of planning thereof and the hydrological regime, so the disappearance 2018). Also, sexual minorities are discriminated, racan, 2002). Moreover, Panama City also faces caused by fractures within the networks. The thereof can only worsen the effects of climate as their members are assaulted and restrained in strong winds ahead affecting low-quality housing lack of maintenance of the system is also a re- change (IH Cantabria, 2016). their citizenship rights (CIDH-OEA, 2015; Pub- (Scodelaro et al, 2015). sult of a high level of delinquency in payment of lic Prosecution Service 2015, 2016b). Security is utilities, since tax collection does not manage to relatively stable, since there are between 0 and provide sufficient funds for the maintenance of 100 crimes per year (SIEC, 2016) in most of the STRESSES CONCERNING those systems (Delgado, 2014). Poor disposal of ECONOMIC AND SOCIAL STRESSES City’s downtown; however, there are high crime INFRASTRUCTURE, BASIC UTILITIES, solid waste impairs the population’s health, blocks Despite the benefits of economic development, rates, between 101 and 520 crimes per year (SIEC, HEALTHCARE AND NATURAL drainage pipes and results in an increase of floods in comparison with the other cities in the region, 2016), in the areas with a higher level of poverty RESOURCES (Thompson, 2016). In this context, rivers tend to Panama City has the following characteristics (as in the farthest northern and eastern areas of The economic growth of the country encour- drag large concentrations of suspended solid waste (Arup, 2018): the city). Uncontrolled migration has also brought aged the building industry, which brought about during extreme hydrometeorological phenomena, about conflicts between immigrants and nationals, a high concentration of buildings in the coastline thus affecting both the provision and quality of - A high inequity as there has been no adequate integration of these - High poverty levels and extreme poverty groups within the local setting. - Low achievement results in reading and mathematics tests

“Money laundering” has brought about corrosive effects on the economy, for instance: the - bank ruptcy of legally established businesses, a distor- tion of economic growth, changes in inflation, destabilization of prices, social breakdown, loss of assets and violence (Journal La Estrella de Pana- má, 2011; CNBC, 2016).

Between 2009 and 2014 unemployment showed a downward tendency from 5.9% through 3.8%, which proves a significant decline since 2011 in Panama City (3.2% in the province of Panama and 2.2% across the country). However, in 2014, informal employment in the province of Panama reached 30%, i.e. there is one informal worker for every two formal employees. The high informal employment rate implies a loss of tax revenues for

Photo: MUPA the State (Arup, 2018).

50 51 RESILIENT PANAMA

Resilient Panama City Vision

To get ready for its next 500 years, Panama City, the World’s Bridge, will connect citizens and their RESILIENCE STRATEGY environment, thereby empowering OF PANAMA them to manage their human wealth, prosperity and ecosystems effectively.

52 53 RESILIENT PANAMA

How to Read the Resilience Strategy Actions account for a variety of programs, proj- Each and every one of the actions presented ects, and plans, which, given their value, have within the pillars are actions that give a resilience This resilience strategy presents five pillars made up of eleven been estimated as a top priority for the city and value for the city, while having a special value goals and forty-five actions. others as flagship to make it possible to establish for the working tasks of the Sustainable Devel- the evaluation logic. opment Growth, which must be aligned with the Action Plan.

Strategy Pillars Each pillar is envisaged as action lines in the TIMEFRAME construction of resilience for the City, one Implementation time which recognizes its own dynamics and power, TYPE Short term What method will the CONTRIBUTION TO THE in addition to its own strategic value. The goals 0 months-1 year implementation of this CITY’S RESILIENCE outline the target at which the results of actions action be subject to? What are the multiple Medium term are aimed. benefits of this action 1-4 years Program, Campaign, that add up to the building Plan, Public Policy, of the city’s resilience STATUS Long term Infrastructure Project, Action 5 years onwards Research Number Proposal: new action emerging from the Access to opportunities strategy process Connecting human capital with welfare sources Planning underway: RESPONSIBLE 1 action being studied ACTION 1.1.3. TYPE: RESEARCH AND PUBLIC POLICY Person either inside or outside the municipality in In progress: action New policy for carpooling in charge of developing the in process of action implementation neighborhoods

STATUS TIMEFRAME CONTRIBUTION TO THE CITY’S RESILIENCE It will reduce traffic load and moving times. Infrastructure of neighborhoods Medium term Proposal It will promote the social values of harmony, social PARTNERS Building a city for everyone cohesion and empathy. Participating addresses, It will benefit the air quality. private players, academia, 2 One of the transport issues identified in Panama City was that the initiatives to do carpooling are limited, for there is RESPONSIBLE AUTHORITY community, from 100RC no social communication about how it works and its main Urban Planning Division (MUPA) differences with respect to collective means of transport. platform partners. Description of action Carpooling is a global trend, which has been implemented PARTNERS in cities wishing to maximize transportation options for Resilience Division (MUPA), Citizenship Participation their citizens. and Transparency Division (MUPA), Community As an integral part of this action, the feasibility to Services Division (MUPA), Information Systems Sub- create a carpooling application will be analyzed in order Division (MUPA), Municipal Security Division (MUPA), to lower costs for users and integrate safety features and Traffic and Ground Transportation Authority (ATTT), lessons learned across the world. Georgia Tech Panama, Technological University of Panama (UTP). Rediscovering our wetland city INSPIRATION the application of cycle lanes in the city of : Melbourne and carpooling schemes in the city of Atlanta. NETWORK OF CITIES NETWORK OF CITIES Coexisting in a better way with our own waters Melbourne, Atlanta. Cities of the 100RC network and environment INDICATORS with similar actions that 3 The advance percentage in the feasibility study and options. have served or may serve Number of given options. Number of actions applied as a source of support and based on the study.

Number of people using shared transport per day. inspiration

Number of unused private cars per day.

RESILIENCE QUALITIES

Resourceful Redundant Inclusive Comprehensive risk management Integrated Building and communicating for a safer city INDICATORS 4 How the execution and effect of this action will be measured

Joint responsibility when building the city RESILIENCE QUALITIES Inspiration Empowering local management and its administration Reflective; Ingenious; 5 Robust; Flexible; Redundant; Inclusive; Integrated

54 55 RESILIENT PANAMA

Specific Goals Actions per pillar

Strategy Cornerstones 1.1.1. Design and implementation of the non-motorized mobility Master Plan for Panama City 1.1.2. Strategic Plan for the ordering of informal transport To foster a better quality of life based on a 1.1.3. New policy for carpooling in neighborhoods 1.1 more integrated mobility 1.1.4. Network of preferential lanes for the exclusive use of public transport 1.1.5. Heavy vehicle traffic control Access to opportunities 1.1.6. Metrocable in San Miguelito and Panama

It includes projects related to the educational needs of 1.2.1. Pilot Program for municipal charter schools Panamanian children and youngsters; the Government staff, 1.2.2. STEAM (activities involving science, technology, engineering, arts and mathematics) Program the development of human capital and promoting accessibility 1.2 Enhance human capital so as to improve 1.2.3. Panama, a Destination for Natural and Sustainable Tourism 1 and connectivity of citizens by means of various transportation access to job opportunities 1.2.4. Training exchange programs for nationals and foreigners 1.2.5. Plan intended to strengthen fishing and agricultural markets for systems. With the projects proposed, we aspire to: the benefit of community suppliers

2.1.1. Action Plan for an integrated city To drive the integration of communities through 2.1.2. Women’s centers 2.1 a broader and better social infrastructure 2.1.3. Municipal healthcare centers Infrastructure of neighborhoods 2.2.1. Municipal Corporation of Basic Utilities Consists of territorial investment in projects that make 2.2.2. Tactic Urban Planning in downtown neighborhoods To connect the population through a new basic 2.2.3. Accessibility Program in neighborhoods everyone an integral part of Panama City. It encompasses 2.2 infrastructure 2.2.4. Implementation of the Comprehensive Mobility Plan for the projects seeking to meet the needs for infrastructure in order Historic District (San Felipe Neighborhood) 2 to integrate the most isolated communities while seeking to 3.1.1. Green-Blue Micro-Infrastructure Program integrate informal slums as well. With the proposed projects , 3.1.2. Coastline System of Open Spaces we aspire to: 3.1.3. Map of vulnerabilities and risks in the basin of Tocumen River 3.1 To rethink the infrastructure that will protect us 3.1.4. Resilient urban Juan Díaz Basin from the effects of climate change 3.1.5. Integrated risk Atlas: Hydraulic models of municipal hydrographic basins

To effectively communicate the value of water as a 3.2.1. Communication and education plan on water, ecosystems and Rediscovering our wetland city 3.2 resource and that of the ecosystems protecting us biodiversity It includes projects intended to understand the environment 3.3.1. Land Use Plan (POT) for District of Panama where Panamanians live, to improve the relationship citizens 3.3.2. Comprehensive cost-benefit analysis of development options have with water and water ecosystems, the management 3.3 Integrating and modernizing water coordination around wetlands 3 and management instruments and ecosystems 3.3.3. Monitoring of the status of ecosystems in the wetlands and thereof and the mitigation of climate change. With the projects quality of water in the basins of the metropolitan area proposed, we aspire to: 3.3.4. Municipal Waste Management Plan

4.1.1. Municipal multi-department system of geographic information 4.1.2. Certificate of Prior Disclosures 4.1.3. Structural assessment: training and construction for vulnerable Comprehensive risk management Local leadership of risk management in the city areas 4.1 4.1.4. Municipal Comprehensive Contingency Plan It contains initiatives intended to understand and share 4.1.5. Comprehensive Disaster Risk Reduction Program information that will provide the general population with 4.1.6. Multi-Department Technical Board of Works & Infrastructures greater safety. It encompasses projects to generate the 4 necessary tools to streamline risk management and create more 4.2.1. Communication and Education Program for Disaster Risk To create safety for residents upon understanding Reduction knowledge about ourselves. With the projects proposed, we 4.2 of their vulnerabilities. 4.2.2. Early Alert Program for the boroughs of the Metropolitan Area aspire to:

5.1.1. How are we doing, Panama? 5.1.2. Bidding processes based on more and better opportunities 5.1.3. Collecting 110% for Panama To strengthen management by streamlining both 5.1.4. Strengthening our capabilities to implement better management Joint responsibility when building the city 5.1 processes and resources 5.1.5. Plan for joint management of projects with the Central Government It includes actions to build joint responsibility to manage the city. 5.1.6. Municipal Property Registry Office These actions consider the improvement of municipal governance, the 5.1.7. United Boroughs decentralization process, citizen participation and the reinforcement or 5 To foster participation in order to build more 5.2.1. Alliance for citizen security awareness of fundamental rights. With the projects proposed, we aspire to: 5.2 co-responsible citizens 5.2.2. Let’s watch out for human rights

56 57 1 Access to opportunities: Connecting human capital with welfare sources

Goals

1.1 To foster better quality of life based on 1.2 Enhance human capital so as to improve more integrated mobility. access to job opportunities.

Problem Statement

he Republic of Panama is one of the Over the years, a considerable gap has been fastest growing economies across the growing between labor supply and demand, which T world, but at the same time with the has been somehow mitigated thanks to foreign highest inequality rate (Arup, 2018). migration of skilled manpower (Hausmann, 2017). Both population and economic activities are con- Nevertheless, said economic concentration on centrated in the metropolitan area of the Pacific, services associated with foreign trade has made where roughly 44% of the population actually it vulnerable to foreign conditions. It is necessary reside. Panama City’s challenge is to promote to diversify the economic system so that it can broader access to opportunities both in terms of become sustainable and, therefore, have the education and infrastructure, in order to achieve capacity to include most of the population within better results that may improve its residents’ economic growth, thus capitalizing on synergies quality of working life. The lack of skilled human among various industries, such as ecotourism, capital (due to poor-quality education) has had agriculture and fishing for export. Also, it is negative effects both in terms of economic fair- mandatory to narrow the bonds between the ness and exploitation of present opportunities. private and education sectors so as to bridge The population is not being adequately trained the gap between job supply and demand (Arup, to satisfy the city’s economic demands. For in- 2018). Growth of the urban pattern in terms of stance, the building industry has been relying infrastructure and population, especially due to on abundant, but unskilled, manpower. While informal slums, has brought about some problems the sectors involving professional, financial, in- in the city that particularly affect marginalized surance, real estate and ICT services (which sectors in their capacity to develop their account for 30% of new jobs) need to rely on potential and access new opportunities. Lack skilled manpower (Arup, 2018) which is hardly of public transport options makes it difficult for furnished with the local work force. the population to occupy spaces in educational

59 RESILIENT PANAMA and labor settings. Nowadays, public transport Panama has both the infrastructure and will is inadequate both in the city’s downtown and within its institutions necessary to make a change. outskirts, mobility services are not integrated These features may contribute to obtain a better 1.1 To foster better quality of life and this causes costs to rise, the use of private education supply proposing short- and medi- transportation to be preferred, and the population’s um-term solutions in order to allow the population based on more integrated insecurity to increase since they are forced to to make the most of the fledgling opportunities use informal means of transport operating along arising during the process of economic growth. dangerous roads with high crime rates (EY, 2018). mobility

The city must establish policies supporting the infrastructure and existence of an Integrated Transportation System by specially focusing on quality in the operation of transport and including the most isolated areas so that they can also take part in said process of integration.

LUIS PINZÓN —DIRECTOR OF STUDIES AND ENGINEERING, COMPANY MIBUS

60 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.1.1. TYPE: PLAN Design and implementation of the non-motorized mobility Master Plan for Panama City

STATUS The Comprehensive Plan for Sustainable Urban Mobility Proposal (PIMUS, as per its official acronym in Spanish) proposes for

Photo: Ricardo Goldoni Panama City to adopt a policy targeted at fostering a new TIMEFRAME layout of road space, as well as the harmonic, efficient, and DESIGN OF THE PLAN IMPLEMENTATION OF THE PLAN safe coexistence of all the means of transport, including pe- Short term Medium term destrians and cyclists under a full-street model. The PIMUS provides the bases for promoting and installing non-motor- CONTRIBUTION TO THE CITY’S RESILIENCE ized mobility as an alternative mobility choice for the city, It will bring about an alternative to transportation and especially the use of bikes as an alternative mobility option to decongestion of road traffic. effectively move within the city. Non-motorized mobility will foster positive effects on The non-motorized mobility Master Plan will identify and public health. define a network of cycle pathways and lanes in Panama City in an integrated fashion within the framework of the city’s RESPONSIBLE Urban Planning Division (MUPA) transportation plans. The network will respond both to the de- mand and the needs of users who still don’t see this alternative PARTNERS means of transport as a resource for their own mobility. The Special Projects (MUPA’s Secretary General’s Office), plan will include the layout and technical, economic, financial, Social Management Division (MUPA), Citizenship Participation and Transparency Division (MUPA), environmental and legal feasibility for the execution and op- Traffic and Ground Transportation Authority (ATTT), Photo: Ricardo Goldoni eration of cycle pathways and lanes. A layout handbook will Cyclists’ Movement of Panama (MCCP), Panama be developed and institutional policies will be defined for the Metro. planning and execution of the cycling infrastructure networks. NETWORK OF CITIES In addition, cycling education and promotion plans will be Mexico City, Santiago de Chile, Thessaloniki, New proposed and the existing regulations will be reviewed. The York, Juarez, Melbourne. execution of all these components will enable the construction INDICATORS of cycle pathways in Panama City to be implemented in accor- Number of km2 built since the completion of the design dance with best global practices. At present, some cycle lanes of the Non-Motorized Mobility Master Plan / year. have been implemented in Ecuador Avenue, by way of tactic urban planning. However, the Plan will promote an integrated RESILIENCE QUALITIES Inclusive Integrated vision for sustainable mobility in Panama City. The design and implementation of the Plan will make it possible to position non-motorized mobility as a means of optimum and efficient means of transport both with environ- mental and public health benefits. Credit: UN ISDR

62 63 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.1.2. PLAN ACTION 1.1.3. RESEARCH AND PUBLIC POLICY

Strategic Plan for the ordering New policy for carpooling in of informal transport neighborhoods

STATUS TIMEFRAME STATUS TIMEFRAME The Plan proposes the ordering of public transportation Proposal Medium term One of the transport issues identified in Panama City was Proposal Medium term providers in the least connected neighborhoods, starting in CONTRIBUTION TO THE CITY’S RESILIENCE that the initiatives to do carpooling are limited, for there is CONTRIBUTION TO THE CITY’S RESILIENCE the north and east of the city. Currently, there is no smooth It will reduce the travelling times of people living in no social communication about how it works and its main It will reduce traffic load and moving times. functioning, or sufficient shuttle buses for the main public the farthest areas from the city. differences with respect to collective means of transport. It will promote the social values of harmony, social transportation routes. However, there are some providers It will improve and establish the income for drivers Carpooling is a global trend, which has been implement- cohesion and empathy. with some regulation by the ATTT, but without the en- offering transportation services. ed in cities wishing to maximize transportation options for It will benefit the air quality. gagement of local authority. It will improve the people’s health and quality of life. their citizens. This action consists of reorganizing the service of the It will augment safety and time availability for other As an integral part of this action, the feasibility of cre- existing collective transportation providers. The use of new recreational and entertainment activities. ating a carpooling application will be analyzed in order to RESPONSIBLE AUTHORITY Urban Planning Division (MUPA) technologies under study will play a fundamental role, in- It will contribute to improving the employment lower costs for users and integrate safety features and les- situation of service providers so as to generate cluding the use of centralized electronic backup, as well as sons learned across the world. PARTNERS further income. innovation systems to regularize the service frequency. Resilience Division (MUPA), Citizenship Participation and Transparency Division (MUPA), Community RESPONSIBLE AUTHORITY Services Division (MUPA), Information Systems Sub- Urban Planning Division (MUPA) Division (MUPA), Municipal Security Division (MUPA), Traffic and Ground Transportation Authority (ATTT), PARTNERS Georgia Tech Panama, Technological University of Community Services Division (MUPA), Citizenship Panama (UTP). Participation and Transparency Division (MUPA), Municipal Treasury Division (MUPA), Traffic and NETWORK OF CITIES Ground Transportation Authority (ATTT), Mibus, Melbourne, Atlanta. Panama Metro, Georgia Tech Panama, Technological University of Panama (UTP). INDICATORS Advance percentage in the feasibility study and NETWORK OF CITIES options. Santa Fe, Dakar, Semarang. Number of given options. Number of actions applied based on the study. INDICATORS Number of people transported from the last mile to Number of people using carpooling per day. the stops and subway stations associated with the Number of unused private cars per day. neighborhoods.

Number of suppliers entering the system. RESILIENCE QUALITIES

Credit: America Panama Resourceful Redundant Inclusive RESILIENCE QUALITIES Integrated Resourceful Redundant Inclusive Integrated

64 65 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.1.4. INFRASTRUCTURE PROGRAM

Thus, this action proposes the following interventions for Network of preferential lanes for the infrastructure of roads: exclusive use of public transport - To adjust the width of lanes or to eliminate the circula- tion or parking lane to be assigned as the exclusive lane. By making these changes, the city may incorporate a cycling lane and widen the sidewalks to give priority to pedestrians. STATUS TIMEFRAME Panama has some important transportation challenges - To demarcate exclusive lanes with physical elements. Planning underway Medium term ahead, associated with the excessive use of private vehi- These elements may be plants, shrubs and/or trees giv- cles to the detriment of other mobility means. The latest ing shade, thus cooling those areas and functioning as investment in new infrastructure (the Panama Metro, Mi- CONTRIBUTION TO THE CITY’S RESILIENCE carbon dioxide recollection agents. It will reduce the travelling time spent by citizens. Bus, Fast-Lanes) shows the positive effect new investment - To install vertical signals and cat’s eyes on the pavement It will reduce the stress triggered by traffic. has on public transportation. Therefore, opportunity arises to indicate the use of lanes with distinctive colors. at the local level to contribute to the creation of an integrat- It will decongest and order the general vehicle traffic. - To use permeable or porous pavement allowing water to ed transportation system with universal access. A part of PIMUS 2017 flow through it and thus promote water drainage. The RESPONSIBLE such initiative is to have fast-lanes giving priority to public ground surface stays relatively dry and without stagnant Urban Planning Division (MUPA) transportation. water. Within the context of PIMUS (Comprehensive Urban PARTNERS Mobility Plan), the ATTT, together with the Municipali- Urban Planning of San Miguelito Municipality, At transportation stops: Municipal Safety Division (Sub-Division of ty and other mobility agencies, will implement preferential Citizenship Safety, MUPA), MiBus, Traffic and Ground and/or exclusive lanes for the main corridors concentrating Transportation Authority (ATTT), Panama Metro. - To improve the distance between stations, which should bus routes. This system has the potential to be expanded to neither be any shorter than 0.3 km nor any longer than other important roads, such as Calle 50, Avenue Ricardo J. NETWORK OF CITIES 0.8 km (The Scorecard, n.d.). Amman, Santiago de Chile, Buenos Aires, Mexico City, michaelseangallagher.org Alfaro, Av. Simon Bolivar (trans isthmic highway), so as to London. - Stops must be both safe and comfortable for users. Four form an integrated network covering the whole city. The elements contribute to create good stations: width, implementation of exclusive public transportation lanes INDICATORS weather sheltering, safety and attractive look. In Pana- Arrival time for users from the shuttle bus system to also creates the opportunity to improve the urban land- ma, stop roofs may be green spaces absorbing water and their destination. scape. The stops may concentrate shelter areas for rains functioning as a cooling system for the waiting zone. Number of reports on traffic violations applied. and extreme weather conditions, as well as provide wireless - Stations must be designed to afford universal access, Users’ perception of the transportation system. connection to the Internet (Wi-Fi). The alterations of the including clients with disabilities or visual or hearing im- width or number of lanes also offer the opportunity to inte- pairments. RESILIENCE QUALITIES grate cycle lanes and forestry suitable for the city’s climate. Reflective Resourceful Integrated Consortium RMTC- Golania, Brazil In regard to coordination/planning:

- The Municipality will lead actions to improving mobil- ity and coordinate, jointly with the stake-holding au- thorities, a review of the applicable regulations. - Regulations will be implemented so that lanes are kept free of any parking vehicles.

66 67 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

In regard to communications: In regard to monitoring and evaluation: ACTION 1.1.5. PUBLIC POLICY

- The Municipality will lead a campaign for the use of ex- The Municipality will monitor the use of the existing lanes clusive lanes, massive transportation and active mobility (Justo Arosemena, Calle 50 and Cinta Costera -Coastline with the corresponding public hearings. Belt-) in order to streamline, improve, and redesign them. - In the long term, bus operators may provide information For such monitoring, there are several alternatives including: Heavy vehicle traffic control about the service schedule, changes of routes or delays and any other kind of dynamic information on electron- - To install surveillance OCT (Optical Character Recog- ic panels or by using the Wi-Fi zones available at stops. nition) cameras to detect misuse of exclusive lanes. - Static information at stops, routes, maps, and emergen- - Cameras on buses to monitor the use of lanes. This sys- cy information will be marked at every station. tem may be connected to MiBus and to the Municipal- STATUS TIMEFRAME ity’s Surveillance Center. The Comprehensive Sustainable Urban Mobility Plan (PI- Proposal Medium term - Police presence and/or traffic authority’s control to MUS) proposes adopting a program for the urban distri- watch out for proper use of lanes. bution of goods, with exclusive spaces for controlled loads - The municipality will have a monitoring system for the and unloads. Within this context, the Municipality has al- CONTRIBUTION TO THE CITY’S RESILIENCE It will reduce vehicle congestion. public so as to evaluate any further improvements. ready begun the ordering of parking spaces in certain areas It will reduce travelling times within the city. such as the Via España (Spain Road). This action implies the creation of a transfer center for large- and small-scale It will increase the joint responsibility of the private sector. freight vehicles. Working roundtables will be held with the participation of municipalities and authorities in order to review the current situation and propose necessary regu- RESPONSIBLE AUTHORITY Urban Planning Division (MUPA) lations and improvements. By way of contribution by the local authority to the manner in which regulations are being PARTNERS INSPIRATION FROM implemented, all the players involved will be convened in Urban Planning of San Miguelito Municipality, Traffic and Ground Transportation Authority (ATTT), Amman, Jordan order to review the examples where they could see how Logistical Cabinet of Panama, National Association

other cities have managed to act upon this issue. Thus, they of Business Executives (APEDE), National Council of The city of Amman, Jordan, is in the process of planning and building an will also review the way in which municipalities can be ca- Private Companies (CONEP), Chamber of Commerce efficient bus rapid transportation (BRT) system. The first phase of the and Industries and Agriculture (CCIP). project will create three routes in key areas; afterwards, it will expand to pable of complying with the time-schedule regulations in

cover all the neighborhoods of Amman. The resilience strategy initiative respect to the supply of commercial premises. NETWORK OF CITIES implies the creation of the city’s first BRT system, where high-capacity London, New York, Santiago de Chile. buses will run along exclusive and separate lanes; likewise, it will require the development and design of stops, stations, passenger information, INDICATORS vehicle specifications, and BRT exchanges and terminals. Once these first Number of regulations reviewed. three routes have been completed, a massive, safe, and attainable traffic Number of regulations to be implemented. system competing with the use of cars for all the citizens of Amman, Number of consolidation and logistic distribution also including vehicle owners, will be offered. The city’s goal is that this centers. system can increase the use of public transportation from 13% to 20% for 2019. Amman’s BRT system will not only offer new mobility options, Number of truck parking spaces implemented. but it will also improve citizens’ access to goods and services, as well Number of large-scale trucks found in times of peak as reduce polluting emissions thus improving the quality of air, and it vehicle congestion. will contribute in furtherance of Amman’s resilience goals concerning Number of small-scale vehicles found in times of peak efficiency, inclusion and sustainability. vehicle congestion.

RESILIENCE QUALITIES http://www.ammanbrt.jo/en/pic_gallery.asp Resourceful Robust Integrated

68 69 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.1.6. PLAN

Metrocable in San Miguelito and Panama

STATUS TIMEFRAME The Municipality of San Miguelito has taken the initial Planning underway Long term steps to carry out the evaluations and review the feasibility of the construction of the Metrocable; however, this must CONTRIBUTION TO THE CITY’S RESILIENCE be merged into a plan intended for the construction and It will connect inaccessible public transportation areas subsequent implementation thereof in the neighborhoods in order to improve the quality of life there. located in elevated areas. The neighborhoods of San Mi- It will reduce travelling times. guelito will thus have connection with the neighborhoods It will provide the inhabitants of neighborhoods associated with the District of Panama, for example: Er- in elevated areas with a public transportation nesto Córdoba, Alcalde Díaz and . The Mu- alternative. nicipality of Panama will coordinate with the Municipality It will leverage the city’s landscape resource and promote local tourism. of San Miguelito on the review of the advances, to jointly make a plan and to procure the financial resources for the RESPONSIBLE design, construction and implementation thereof, in coop- Municipality of San Miguelito eration with the public transportation authorities and com- panies. PARTNERS Urban Planning Division (MUPA), Traffic and Ground Transportation Authority (ATTT), Panama Metro, MiBus, World Bank (WB), Interamerican Development Bank (IDB), Latin American Development Bank (CAF), Technological University of Panama.

NETWORK OF CITIES Medellin.

INDICATORS Percentage of progress in the making of an action plan for the design of Metrocable.

Percentage of progress in the implementation of the plan.

RESILIENCE QUALITIES Resourceful Redundant Inclusive Integrated

Photo: Emilia Carrera

70 71 STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.2.1. PROGRAM 1.2 To enhance human capital so as to improve access to job Pilot Program for municipal charter schools opportunities.

STATUS TIMEFRAME Panama has reached a time in its history when its trans-isthmic Proposal Medium term capacity has gone against its road traffic. Efficient and sustained CONTRIBUTION TO THE CITY’S RESILIENCE operation of the Canal and the Platform of Global Services associated It will strengthen the educational basis and thus help to overcome the citizens’ training barriers.

with it will increasingly rely on the sustainable growth of the country New educational schemes will modernize educational management and create better citizens to help as a whole. And such development, unlike that based on its trans- improve their performance in various careers. isthmic capacity, demands all of the potential of its geographic position Photo: MUPA RESPONSIBLE AUTHORITY as well as our population’s full capabilities. Director of Culture and Education (MUPA). Charter schools are institutions that receive governmental PARTNERS GUILLERMO CASTRO funding, but they operate separately from the state-run Social Management Division (MUPA), Citizenship —VICE PRESIDENT OF RESEARCH & TRAINING, CIUDAD DEL SABER (CITY OF KNOWLEDGE) educational system. These are an example of public and Participation and Transparency Division (MUPA), private partnering in furtherance of formal schooling edu- Ministry of Education (MEDUCA), Ministry of Social Development (MIDES), City of Knowledge, National cation. Thus, this action focuses on implementing a pilot Secretariat of Science, Technology and Innovation program for charter schools, as an alternative to boost core (SENACYT), National Association of Business basic education. Said schools are half-autonomous and have Executives (APEDE). greater flexibility to choose their teachers and usually have Culture has always had the power to unite communities around INDICATORS high participation from students’ parents. These schools Quarterly achievement level of students based on the their memory and expressions, and it is thanks to such union that we raise private funds to serve educational needs, ranging from results of their school report cards for the system procurement of equipment to hiring of personnel. The Mu- established by the MEDUCA. can bring forth the necessary forms of governance required to solve nicipality will promote, jointly with Central Government Number of students entering this kind of training at community problems. institutions and the private sector, a pilot program with em- schools. phasis on educational centers where additional investments Number of schools entering the application of the have already started. The Municipality’s team will support pilot programs for charter schools. ALEXANDRA SCHELDERUP the creation of the respective programs and communication RESILIENCE QUALITIES —DIRECTOR OF CULTURE AND EDUCATION, MUNICIPALITY OF PANAMA with contacts in the international sphere so as to implement Reflective Resourceful Flexible these programs.

73 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.2.2. PROGRAM

STEAM (ACTIVITIES INVOLVING SCIENCE, TECHNOLOGY, ENGINEERING, ARTS AND MATHEMATICS) PROGRAM

This program will focus on the training of human resources STATUS TIMEFRAME with more skills to participate in the emerging labor market In progress Short term in the service, art and science sectors. This will also im- prove the diversification of the work force in Panama City. CONTRIBUTION TO THE CITY’S RESILIENCE The Municipality will explore sponsorships with the pro- It will foster trained citizens who will develop new ductive sector for the creation of extracurricular STEAM ways of leveraging job opportunities. programs and new schools in coordination with the private sector and universities or vocational technical career devel- RESPONSIBLE AUTHORITY opment centers, such as those of the INADEH. Culture and Education Division (MUPA). The Municipality of Panama, through the Culture and Photo: Karl Kaufmann PARTNERS Education Division, has already launched STEAM pro- Social Management Division (MUPA), Citizenship grams through Culture Points, which are given by virtue Participation Division (MUPA), Resilience Division of a framework agreement between MEDUCA and the (MUPA), Ministry of Education (MEDUCA), Ministry of Social Development (MIDES), Council of Municipality of Panama. Every official educational center University Presidents (CONARE), National Institute will become a cultural center once a week. In them, thou- of Professional Training for Human Development sands of children and adolescents may access, within their (INADEH), City of Knowledge, National Secretariat own neighborhoods, a wide variety of activities, such as: of Science, Technology and Innovation (SENACYT), Businesspersons Network SUMARSE, National painting, music, modern dance, hip hop, robotics or drama. Association of Business Executives (APEDE), These workshops will be led by specialists in social peda- Chamber of Commerce and Industries and Agriculture gogies, popular education and artistic techniques to stimu- (CCIP), Arup. late creativity and intelligence. This action will expand and NETWORK OF CITIES strengthen theme areas, by broadening coverage towards Melbourne, Medellin. neighborhoods that have not implemented this work yet. Extended school days will be considered jointly with the INDICATORS Number of training centers entering the application of schools, in order to strengthen the integration of artistic the STEAM systems promoted by the municipality. concepts with scientific fields. In this respect, art will be a tool to enhance the abilities of youngsters, thus promoting RESILIENCE QUALITIES critical thinking, integration of disciplines, teamwork ca- Reflective Resourceful Inclusive pacity and the appreciation of art.

Photo: Karl Kaufmann

74 75 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.2.3. TYPE: MUNICIPAL PROGRAM

Panama, a Destination for Natural and Sustainable Tourism

STATUS TIMEFRAME CONTRIBUTION TO THE CITY’S RESILIENCE In progress Medium term It will create training and economic development alternatives for those citizens living in vulnerable areas.

It will promote conservation and sustainable use of natural resources of the District of Panama.

The “Panama, a Destination for Natural and Sustainable It will boost the communities’ income from tourism. Tourism” Program proposes promoting empowerment of operators from vulnerable communities near natural areas RESPONSIBLE AUTHORITY (basins, seaside resorts, swamps with bird sighting) in the Municipal Corporation of Tourism (MUPA). northern and eastern area. In addition, communities with underexploited cultural elements (unknown monuments PARTNERS Resilience Division (MUPA), Environmental and pathways in the tropical rain forest, among others) will Management Division (MUPA), Culture and Education be sought. The program includes the making of a refer- Division (MUPA), Citizenship Participation and enced tourism guide both for tourist guides and promoters. Transparency Division (MUPA), National Institute Also, it seeks to provide new operators with useful tools. of Professional Training for Human Development (INADEH), Ministry of Environment, Tourism Another aspect proposed is to place existing promoters Authority of Panama, Chamber of Tourism of Panama, into programs or to calculate the odds of creating one or Panamanian Center of Studies and Human Services more associations within the community setting. (CEASPA), Audubon Society of Panama (SAP). For this purpose, a parallel diagnosis will be made in the NETWORK OF CITIES communities, marketing and business plans with the aim to Juarez, Santa Fe. guarantee sustainability of the program. Finally, it is pro- posed that municipalities should work with the divisions in INDICATORS Number of people from trained communities. the making of a plan intended to review the various ele- ments from all the players involved. Number of people working as guides. Number of tourism operators joining the initiative to connect these services to local tourism networks.

Percentage of income of the municipal corporation coming from these activities.

RESILIENCE QUALITIES Reflective Resourceful Inclusive Integrated

Photo: MUPA

76 77 RESILIENT PANAMA STRATEGY PILLARS 1 • ACCESS TO OPPORTUNITIES

ACTION 1.2.4. PROGRAM ACTION 1.2.5. PLAN AND PUBLIC POLICY

Plan intended to STATUS TIMEFRAME Training exchange programs for Proposal Medium term nationals and foreigners strengthen fishing CONTRIBUTION TO THE CITY’S RESILIENCE and agricultural It will improve the income of poorest citizens. It will improve the quality of products in local markets, markets thus strengthening communities.

STATUS TIMEFRAME It will enable the cohesion and partnering of citizens, The program puts forward some knowledge exchange and FOR THE BENEFIT OF COMMUNITY by ensuring the sustainability of products. Proposal Medium term SUPPLIERS intercultural dialog projects between immigrants and locals It will promote adequate protection and management with similar training levels and with a social integration ap- of resources. CONTRIBUTION TO THE CITY’S RESILIENCE proach. Evaluations conducted during development of the Learning from citizens from other countries will provide new ideas and lessons learned to improve strategy indicate that much of the specialized job positions RESPONSIBLE AUTHORITY the training of professionals from Panama City. are covered by foreign skilled personnel and, at the same Community Services Division (MUPA) and Resilience time, Panama has some difficulties in that respect, as it New opportunities and contacts will thus be Division (MUPA). generated between academic entities in order to doesn’t have enough skilled personnel. boost training programs in Panama. PARTNERS This program opens new opportunities to the youngsters Environmental Management Division (MUPA), It will promote social cohesion and integration of Citizenship Participation and Transparency Division of Panama City so as to receive a direct benefit of the skills, immigrants in the Panamanian society. experiences and knowledge of the foreign professionals re- (MUPA), Social Management Division (MUPA), Water Resources Authority (ARAP), Ministry of siding in Panama. This would give rise to a highly valuable RESPONSIBLE AUTHORITY Agricultural and Livestock Development (MIDA), setting to foster knowledge exchange and thus promote the Culture and Education Division (MUPA). National Secretariat of Science, Technology and valuable presence of immigrants for a better city. Innovation(SENACYT), University of Panama (UP), PARTNERS International Maritime University of Panama (UMIP), The pilot program will involve the Ciudad del Saber Resilience Division (MUPA), Citizenship Participation companies from the fishing and agricultural industries, Photo: Karl Kaufmann (City of Knowledge), an entity that gathers various interna- and Transparency Division (MUPA), City of MarViva, International Conservation, Wetlands tional organizations and institutions where foreigners from Knowledge, National Institute of Professional Training International Panama, Audubon Society of Panama, different walks of life work, and it will also seek to integrate for Human Development (INADEH), National Migration Marketing research study and development of financial and City of Knowledge. Service, National Secretariat of Science, Technology other technical training institutions, the National Migration and Innovation (SENACYT), Council of University business strategies are proposed to improve the productivi- INDICATORS Service, Universities and private sector. Presidents (CONARE), U.N.’s High Commissioner for ty and income of merchants at the community level. It will Percentage of progress in development of the Refugees (ACNUR), International Organization for seek to identify factors influencing the value chain and the strengthening plan. Migrations (OIM). feasibility to innovate in these local productive activities. Increase in the percentage of income of fishermen and farmers in the city. INDICATORS This process will be accompanied by programs aimed at Number of foreigners entering the program. underpinning associations, business plans of entrepreneurs, Number of fishermen and farmers organized at the partnering scheme level. Number of youngsters trained in information and participative evaluations all intended to boost sustain- exchange programs. able management of natural resources. RESILIENCE QUALITIES Number of academic initiatives resulting from such The Municipality will start this collaborative work with Reflective Resourceful Robust exchange programs. local providers of fish, seafood, fruits and vegetables who Inclusive Integrated work in the city. This work will be carried out jointly with RESILIENCE QUALITIES the fishing and agricultural authority, respectively. Reflective Resourceful Robust Flexible Inclusive Integrated

78 79 2 Infrastructure of neighborhoods: Building a city for everyone

Goals

2.1 To drive integration of communities 2.2 To connect everyone in Panama City through a broader and better social through a new infrastructure. infrastructure.

Problem Statement

ocial cohesion is a necessary condi- community participation, while new communi- tion for optimum community devel- ties and informal slums that have little govern- S opment and this is created, above mental support are constantly being developed all, when housing conditions are (CEASPA, 2018b). Sidewalks, streetlights and transformed into friendly spaces for coexistence. communication lines tend to wear out in pe- In other words, a community without spaces ripheral areas surrounding Panama City. Recent for interaction leaves no chance for neighbors efforts to improve connectivity of peripheral to mutually coexist and face problems togeth- neighborhoods through transportation have al- er (CEAPSA, 2018 b). The Local Government lowed citizens to integrate (CEASPA, 2018b). plays a key role in the creation of infrastructures The work done by workshops and direct promoting participation of its citizens, as well as consultation meetings with communities and the obligation to guarantee the quality of basic non-governmental organizations, held within the services, such as: healthcare, education, housing framework of this strategy, suggests a number of and security (elements that can all add up to so- projects with the potential to generate more cohe- cial cohesion) (CEASPA, 2018 b). sion within communities and provide the city with Cohesive communities facilitate interven- a sense of belonging. These ideas include cultur- tions of authorities and long-term permanence al, recreational and sports-related proposals. Em- of programs and projects. The main needs in phasis should also be placed on covering the basic this area are infrastructure projects, training mobility and cleanup needs, making an effort to programs, and service programs for vulnerable ensure everybody’s integration with the city. groups and greater mobility facilities for dis- abled people. The city has witnessed worsening

81 RESILIENT PANAMA

2.1 To drive integration of communities through a broader and better social infrastructure.

Social infrastructure is what we would call the “city’s hardware” because it helps to build physical spaces, both material and tangible, for coexistence and learning, where people can get together. When it comes to resilience, we mean social cohesion, identities and collectively shared visions. It is a topic not thoroughly understood in public policies, for we have to invest in human beings and their development, while creating the necessary conditions for the existence of social interaction and the construction of the social fabric that will make the communities strong enough to face any challenge.

ALONSO RAMOS —SUB-DIRECTOR OF CITIZENSHIP EDUCATION, MUNICIPALITY OF PANAMA

82 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

ALCALDE DIAZ NEIGHBORHOOD

Community infrastructure

1 La Medalla Milagrosa Park 2 Alcalde Díaz Cemetery 3 Construction of administrative offices and perimeter walls for the Alcalde Díaz cemetery 4 Synthetic court for Alcalde Mayor 5 Díaz Nursery School in Díaz Park 6 4th Street Park 7 Bolivar City Park 8 La Providencia Park 9 Las Cumbres del Norte

New infrastructure

DISTRICT OF PANAMA 1 Las Malvinas - Construction of lighting fixtures, sidewalks and streets - Sistema de abastecimiento de agua potable y alcantarillados 2 La Tormenta - Construction of lighting fixtures, sidewalks and streets - Drinking water and sewer system 3 Maria Henriquez 6 - Construction of lighting fixtures, sidewalks and streets 4 Calle H - Construcción de luminarias, veredas y calles 1 5 Cabima - Construction of lighting 2 fixtures, sidewalks and streets 2 3 6 5 4 6 El Chungal 7 - Drinking water and sewer system 4 1 8 9 Note (entire district): 5 Improvements to resource centers Ca 3 rr e te creative and artistic (CERCA) ra Tr arr an C ete sístmica r a Transístmica

C

a

r

r

e t e ra T ra n

84 85 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

ERNESTO CORDOBA CAMPOS NEIGHBORHOOD

Community infrastructure

1 Vehicular bridge Gonzalillo 2017 2 Basketball court 3 Gonzalillo Park 4 Alambra 5 Gonzalillo Court 6 Gonzalillo Sector 8 7 Naos 8 Edgardo Vernanza vehicular bridge 2017 9 Villa Alpina 10 La Rotonda 11 Villa Campestre 12 Santa Librada El Mirador 13 Jardines de Sevilla DISTRICT OF PANAMA 14 Casa Real 15 Santa Librada Quinta Etapa 1

New infrastructure

1 Promised land 1 - Infraestructure for sports

(multipurpose courts) C

a

r

r

e 2 Villa María t e 4 - Infraestructure for sports ra T 2 r 3 (multipurpose courts) a n

s

í

s

t

3 Barriada el Progreso m

i

c - Infraestructure for sports a 2

(multipurpose courts) C

a Rio Laja r

4 Gonzalillo r eter 3 6 7 - Infraestructure for sports

(multipurpose courts) a 4

T

r 5 a

n sí Río La s jas t Note (entire district): m ic 9 - Improvements to resource centers a creative and artistic (CERCA) 8 - Construction of new health care centers 10 Norte

12 13 14 edor Norte 11 orr

15

86 87 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

KUNA NEGA VICINITY PEDREGAL NEIGHBORHOOD

Community infrastructure Community infrastructure

a r 1 o La Paz Park 1 La Amistad Park ñ

e

S

2 Park 2 Las Madres Park o

í 3 R Kuna Nega Park 3 Pedregal nursery school 4 Pending park 4 La Aldea Park 5 La Florida Park 6 La Riviera Park New Infrastructure 7 Monteria Park ana ric e Río S 8 Villa Graciela Park 2 anam eñor a Note (entire district): 9 Balmoral Park - Improvements to Creative and Artistic Resource Centers (CERCA) - Arrangement and improvement of structures for the elderly and library Rio T - Construction of lighting fixtures, New infrastructure sidewalks, and streets Río Se apia ño 1 rEla Balmoral te a - Construction of cultural centerr r Nor ño edo e orr S C 2 Santa Cruz Río e r Nort - Construction of cultural center o 3 ed a - Constructionn of sports city and Corr u soccerg fields Río La 3 Villalobos - Construction of cultural center 1 - Construction of sports city and Norte soccer fields or ed rr o C 2 4 Santa Isabel 4 4 3 Autopista Panamá–Colón - Construction of sports city or Norte d e r and soccer fields r a o C

C a l le ín L id o ín Joaqu 1 n Calle qu a l Sa Jo a V n ip Juan ill c n al a n S o K Sa ri a b e P e C e all a o all lle 1 T s C le Ers C Call Cal ra p ichi to

2

Calle 3 Q La Ald e 4 a M CAlle N Cal lle le F Pedre CA O lle g CA 7 al O CAlle Call Parque e D 5 Industrial

on 1 Las Olas t 6

ayabi

u 1 n Calle G me 8 ocu commercial Vía T en cum To 9 Vía

DISTRICT OF PANAMA

a Díaz nid Ave 88 89 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

PACORA NEIGHBORHOOD

a

r 2 o ac P o l i a R p i

c

Community infrastructure n i

pr

e l l a 1 Utive playground c 2 Utive Cemetery 3 Villa de Santa Rita 2 park 4 Santa Rita park 5 Villa de Santa Rita 1 park 15 6 Villa de Santa Rita 3 park 7 El Trébol 2B park 8 Trébol #1 park 3 4 5 9 Trébol #3 park 6 11 10 Cabra Nuevo park 12 8 a a C 9 7 11 Santa Isabel park ieja hepo 10 313 eter 18 Carr 12 Santa Fé park 14 13 El Trébol 2C park 14 Cabra park

15 Los Lotes park DISTRICT OF PANAMA 16 Isleta Central Barriada Rio 1 de San Juan park 1 17 P 1 ac 17 Tatare playground 1 Carreter a Panamericana o 16 ra 18 Las Mireyas park 19 San Juan park 19 20 San Juan #2 park 20 21 República de Honduras park 22 Pacora Cemetery 1 2 23 Pacora Centro park 21 24 Sector 4 Pacora park 22 25 Las Garzas park 24 23 26 Paso Blanco park

New infrastructure

1 Sector 2 - Construction of cultural center 2 Sector 3 - Construction of cultural center 3 Caminos de Omar

a

- Construction of cultural center r o

1 c 2 a

P 2526 i o Note (entire district): R - Improvements to Creative and Artistic Resource Centers (CERCA) - Drinking water and sewer system

90 91

medales Tocumen RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

TOCUMEN NEIGHBORHOOD

Community infrastructure 1

1 Dos Ríos Park 14 Ciudad Belén 2 Park 2 2 Dos Ríos 2 15 Miguel Moreno Sector Autodromo de Panama 3 Benjamin Castillo Sur Park Carretera Panameric Park and Court 16 Ciudad Belén 3 Park ana 1 1 4 Punta del Este 17 Torremolino Park 2 3 5 La Siesta Playground 18 Ciudad Belén 1 Park 3 6 La Siesta roundabouts 19 Barriada Puerta del Este 1 4 7 La Siesta nursery school Park 20 6th and 7th Street Park Residencial 8 La Siesta 2 Trébol park Punta del Este 9 Villa la Siesta Park 21 Torremolino 1 Park 1 10 Buena Vista Park 22 Puerta del Este Park 11 La Siesta 2 Park 23 Ave. Principal Torremolino Park 1 5

12 Buena Vista 2 Park ta

s

ie

S

13 Buena Vista 1 Park a

lle L 5

a

C DISTRICT OF PANAMA Sector 4 6 14 15 New infrastructure 1 1 17 7 16 6 1 Santa Eduviges neighborhood 7 Via Luchín 8 - Construction of cultural center - Family centers and early 1 7 18 k 6 al e education communities 19 20 e M La Siesta de qu sta 12 2 Victoriano Lorenzo neighborhood 4 9 i Enri Tocumen V (CEFACEI) e 11 all a - Construction of cultural center C n 21 e - Recovery of public spaces and 1 10u

B

a

Altos de Cabuya parks in the communities id 3 22 n

e

- Construction of cultural center Av 23 - Family centers and early 1 Urbanizacion 13 Autodromo Santa Fe education communities de Panama arretera Paname Altos de Tocumen C r icana 1 Terminal (CEFACEI) Sector 3 de Pasajeros

- Recovery of public spaces and 1

parks in the communities Corr Residencial Punta del

Este edor Sur 1 4 Pantanal 1 Tocumen

ta

s

ie

- Construction of cultural center S

a

lle L

a

C Sector 4

1 o

uert 5 La Morelos p o r

e

A

lle a - Construction of cultural center C 1 k al e e M La Siesta de qu - Family centers and early sta i

Enri Tocumen V e all a C n Natural e

1 u

B

education communities a

id Forest

n

e

Av (CEFACEI) 1 Urbanizacion men Vía Tocu Santa Fe - Recovery of public spaces and Terminal de Pasajeros

parks in the communities Corr

edor Sur

Corr 6 Belén edor Sur - Family centers and early Natural education communities Forest (CEFACEI) - Recovery of public spaces and Note (entire district): parks in the communities - Improvements to the Creative and Artistic Resource Centers (CERCA) - Construction of new health care centers

92 93 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

ACTION 2.1.1. PROJECT

STATUS TIMEFRAME NETWORK OF CITIES In progress Medium term Los Angeles

Action plan for an integrated city CONTRIBUTION TO THE CITY’S RESILIENCE RESPONSIBLE AUTHORITY Cultural spaces will bring about cohesion among Culture and Education Division (MUPA), Social citizens and, therefore, reduce conflicts, which Management Division (Sub-Division of Sports MUPA). are violent all the more often and related to little socialization, solidarity and communication INDICATORS between neighbors. Number of buildings identified and refurbished.

Empathy between different cultures will thus be Number of cultural centers built. promoted, thereby creating more societies that Number of sports fields/courts built. are united and prepared to face any common challenges. Number of people using the infrastructures built or refurbished. The creation of spaces for sports will open opportunities for the young population to do Number of new social infrastructure projects identified alternative recreational activities. (mobility in neighborhoods, culture, sports, education, healthcare and basic utilities). It will promote good mental and physical health of citizens. RESILIENCE QUALITIES

PARTNERS Robust Inclusive Integrated Citizenship Participation and Transparency Division (MUPA), Urban Planning Division (MUPA), Works and Constructions Division (MUPA), Ministry of Education (MEDUCA), Ministry of Social Development (MIDES), Ministry of Public Works (MOP), Community Boards, National Institute of Culture (INAC), National Institute of Sports (INDE), CEASPA, Kuna Nega Association.

The city of Los Angeles, in the United States, is prioritizing a resilience strategy initiative that will connect community organizations with experts and resources, with the aim to INSPIRATION FROM effectively guide and support the development of resilience Los Angeles, centers in the surrounding vicinities. Chosen for their ease Photo: MUPA United States of access both for cycle and pedestrian lanes, as well as for their ability to reach vulnerable populations, these centers In order to monitor the construction of social infrastructure downtown (to the north and east). Said areas are deficient are conceived as physical spaces, located within reliable carried out by the local authority since 2014 and on the ba- in infrastructure and funding options will be sought with community organizations, which will add up to social and climate resilience, as well as to preparedness for and recovery sis of the diagnosis made within the framework of the Resil- the aim to broaden the reach and effectiveness of such im- from disasters. These centers will be reinforced with advanced ience Strategy, with the participation of community lead- provements. Proposals range from cultural centers, family technologies that will enhance electricity and water supply, communications, and seismic contingency services ers, surveys about the needs for infrastructure that make it centers and libraries to spaces for practicing sports. These with the aim to guarantee that critical services remain active during and after the occurrence of a disaster. The possible to create spaces to strengthen social cohesion and pilot projects, even though intended for Alcalde Diaz, Er- centers will foster social cohesion while addressing the usual stress factors in the community through education local identity, were carried out. The “Action Plan for an nesto Córdoba, Tocumen, Pacora and Kuna Nega neigh- and liaisons with existing programs and services of social and environmental management. Finally, the city of Integrated City” proposes a new portfolio of pilot projects borhoods, constitute the beginning of a similar process for Los Angeles will encourage the creation of resilience centers based in the vicinities by streamlining the relevant regulatory processes and connecting the organizations that have key stakeholders who can provide guidance, for prompt execution in the farthest areas from the city’s other communities of Panama. technical assistance and financial capacity.

94 95 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

ACTION 2.1.2. PROGRAM

Women’s Centers

STATUS TIMEFRAME This action consists in the unification of efforts for gender Proposal Medium term equality. On the one hand, through the refurbishment of infrastructures and performance of activities organized by CONTRIBUTION TO THE CITY’S RESILIENCE the National Women’s Institute (INAMU), an entity fo- It will promote social resilience by providing support cusing on equal opportunities for women and on the con- to women affected by gender violence and struction of Comprehensive Service Center for Women inequality issues. (CINAMU), in the Bella Vista neighborhood, and the seat It will allow for a space that facilitates settlement of of the San Miguelito District. On the other hand, the Mu- conflicts and their insertion into new opportunities for women. nicipality of Panama is currently developing the CEDIM’s It will boost human development of women project (Center for Entrepreneurship and Integral Develop- throughout educational levels. ment of Women), which will be in the sector of Juan Diaz It will enhance economic development through in Panama City, intended for women’s empowerment and women’s participation. training courses, as well as psychological, social and legal counseling. Then, there is an integration plan for joint pro- RESPONSIBLE AUTHORITY cesses and actions between the CINAMUs and the CED- Municipal Security Division (MUPA), (Sub-Division IM, accompanied by NGOs and other organizations pur- of Citizenship Security, CEDIM MUPA), Social Management Division (MUPA). suing empowerment of women and the reinforcement of the role played by such institutions. The adaptation of the PARTNERS infrastructure of the Bella Vista CINAMU in association National Women’s Institute (INAMU), Interamerican with the IDB’s representatives and those of the National Development Bank (IDB), Culture and Education Division (MUPA), Citizenship Participation and Women’s Institute, could boost their cooperative work and Transparency Division (MUPA), Municipality of thus bring about the strengthening of both initiatives, their San Miguelito, Ministry of Social Development infrastructures, programs, and ideas by means of a resil- (MIDES), Ministry of Education (MEDUCA), National Prosecution Service, PNUD. ience-oriented approach.

NETWORK OF CITIES Juarez.

INDICATORS Number of joint processes and actions among centers.

Number of women served.

Number of women benefited from the strengthening plans and social rescue

RESILIENCE QUALITIES Integrated Inclusive

Photo: Karl Kaufmann

96 97 RESILIENT PANAMA

ACTION 2.1.3. PROJECT 2.2 To connect the population Municipal healthcare centers through a new basic infrastructure

STATUS TIMEFRAME This project was one of the initiatives given priority by cit- Planning underway Medium term izens during the making of the consultations on the infra- structure needs for social cohesion in vulnerable communi- CONTRIBUTION TO THE CITY’S RESILIENCE Communities clearly understand the importance of infrastructure and ties located in the northern and eastern area of the District It will result in available access to integrated of Panama. emergency services. social programs in social cohesion conditions. Hence, the importance In the Ernesto Cordoba neighborhood, a new alternative It will connect citizens with a supply network to cater location is expected for a healthcare center, thus replacing to their basic healthcare needs, thus reducing the of meeting expectations and generating an active relationship of the existing facilities. In the Tocumen neighborhood, the risk for diseases and epidemics. participation and cooperation with local governments. This is the initiative seeks to improve and expand the infrastructure RESPONSIBLE AUTHORITY now heavily worn out. essence of success and the guarantee for a resilient city. Social Management Division (MUPA). The Municipality of Panama is expected, with the de- centralization process under way, to be able to start under- PARTNERS taking pilot projects intended to underpin the construction Community Boards of the Ernesto Cordoba and JOSE LASSO Tocumen neighborhoods, Ministry of Health (MINSA), ­—SOCIOLOGIST, SCHOOL OF HUMANITIES, UNIVERSITY OF PANAMA of infrastructure, which is prioritized by communities. Social Security Fund (CSS). Two pilot projects will be implemented in these two neighborhoods - one for construction and the other for re- NETWORK OF CITIES furbishment of infrastructure; once these two pilot projects Surat. have been finished, any new interventions in other neigh- INDICATORS borhoods can be assessed. Percentage of progress in the construction of healthcare infrastructure for Ernesto Cordoba.

Percentage of progress in refurbishment of the healthcare center for Tocumen.

Number of healthcare centers built.

Number of healthcare centers refurbished.

RESILIENCE QUALITIES Reflective Inclusive Redundant

98 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

ACTION 2.2.1. TYPE: PROGRAM ACTION 2.2.2. TYPE: PROJECT

Municipal corporation of basic Tactic urban development in utility services downtown neighborhoods

STATUS TIMEFRAME STATUS TIMEFRAME We propose that a municipal corporation be created based Planning underway Medium term The Municipality has recently implemented projects con- Planning underway Short term on the opportunities given by the Decentralization Act. cerning public space, infrastructure, and basic services in

Nowadays, basic utility services are managed from various CONTRIBUTION TO THE CITY’S RESILIENCE the different neighborhoods in the city’s downtown. Areas CONTRIBUTION TO THE CITY’S RESILIENCE institutions such as the IDAAN for aqueducts and sewage It will provide vulnerable zones with basic top-quality such as Salsipuedes, Santa Ana, Chorrillo, Curundu, El It will integrate citizens into the city spaces, thus systems, the Mi Ambiente and the ACP for the hydro- utility services. Marañon, San Sebastián, Brooklincito, Calidonia, Aveni- creating points of social cohesion. graphic basins, and the ASEP for the overall regulation of It will provide basic requirements for people’s da Central, Boca La Caja, Panama Viejo, among others, It will increase citizens’ commitment to care for the basic utility services, including private electric distribution healthcare and quality of life. have benefitted from new sidewalks, buried infrastructure city. companies. Central Government management requires It will enable citizens to have direct contact with the and landscape. These interventions are localized and have It will increase the level of citizenship participation in local government and their levels of participation, governmental processes. support from the Local Government so that these utilities the potential to be connected within a network of coherent for a better understanding of the population’s It will allow people to experience a novel use of public can reach the communities more effectively and prompt- needs. public spaces legible for citizens. space. ly. The priority will be on serving the vulnerable neigh- In order to enhance recent investments in public spaces, borhoods of Panama City. In this respect, the municipal RESPONSIBLE AUTHORITY implementing a pilot project of Tactic Urban Development RESPONSIBLE AUTHORITY Urban Planning Division (MUPA). corporation will give priority to providing the following in a downtown neighborhood is proposed, thereby con- Urban Planning Division (MUPA). utility services: potable water and sewage systems, green necting some of the interventions already implemented by PARTNERS PARTNERS energy (e.g. solar panels, LED) and cleanup of storm-water Social Management Division (MUPA), Works the Municipality. The Tactic Urban Development process Social Management Division (MUPA), Works and and Constructions Division (MUPA), Citizenship drainage systems, rivers and blocked ravines (e.g. removal centers on the fact that users and residents of any given Constructions Division (MUPA), Culture and Education Participation and Transparency Division (MUPA), of solid waste materials from the drains). The priority ap- area will define the vision of what is to be done with public Division (MUPA), Urban Planning and Transparency National Aqueducts and Sewage Systems Institute proach for establishment of those utility services shall be space in order to carry out low-cost interventions. These Division (MUPA), Citizenship Security Division (IDAAN), Public Utility Services Authority (ASEP), (MUPA). participatory. Ministry of Environment (Mi Ambiente), Panama Canal can include the widening of sidewalks, cycle lanes, recre- Authority, electric power distribution companies. ational spaces, green micro-areas, among others. NETWORK OF CITIES The methodology of Tactic Urban Development is New Orleans, Amman, Buenos Aires, San Francisco. NETWORK OF CITIES Amman, Byblos, New Orleans. based on an urban intervention approach to construction INDICATORS and start-up of neighborhoods and their communities. It is Number of participants in tactic urban development INDICATORS an open and interactive concept based on short-term, scal- processes. Number of houses benefited from the water supply. able, and low-cost interventions and policies. This arises Users’ perception of improvement of public space. Number of households benefited from the sustainable as a response to the limitations of the city’s conventional electric power systems (solar panels). Number of households benefited from improvements. development process, which is often slow and disconnected Number of systems implemented. among the different players involved. This process is divid- RESILIENCE QUALITIES Percentage of progress in the infrastructure for water, ed into small and incremental intervals, which then allows Reflective Inclusive Resourceful cleanup and electric power supply. for quicker implementation, greater citizenship participa- Number of storm-water drainage systems maintained. tion, and streamlining of resource allocation.

RESILIENCE QUALITIES Reflective Resourceful Robust Redundant Inclusive Integrated

100 101 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

It is proposed that the Resilience Division should conduct ACTION 2.2.3. INFRASTRUCTURE PROJECT workshops that enable neighbors and users to learn how to make a short-term change in their neighborhoods. These workshops will be important for the joint creation of inter- ventions in public spaces. At the same time, a monitoring and evaluation system must be established in order to un- Accessibility program in neighborhoods derstand the project’s results and thus proceed with any improvements. Once the intervention has been decided, a temporal, STATUS TIMEFRAME physical demonstration of the proposal involving all of the This action is sustained as a concrete recommendation to be In progress Medium term relevant players with the aim that any short-term measure implemented in the neighborhoods evaluated in 2018 with should thus become permanent in the long run. the participation of community leaders. There is a proposal CONTRIBUTION TO THE CITY’S RESILIENCE The implemented project must be measured and eval- centered on strengthening the work done by various divi- It will foster social cohesion and appropriation of the uated in order to show its impact so it can be scaled up to sions working on construction of sidewalk and pavement city through citizenship participation. other neighborhoods. projects, with their respective integration with decentral- It will provide a larger number of citizens from This pilot project is expected to end in 2019. ization projects and other means of financial resources. vulnerable areas with access to better services and appropriate infrastructure in order to offer Many projects are in the planning stage; however, the idea inclusion, welfare and development opportunities is to boost the effort and speed up its execution given the within the city.

urgency existing in the communities subject to evaluation. It will enhance citizen security.

Moreover, they suggest adding recommendations concern- It will boost connectivity among citizens and, ing the resilience approach, as well as the inclusion of an therefore, social cohesion. infrastructure refurbishment program for disabled people and the inclusion of streetlights (with a LED technolo- RESPONSIBLE AUTHORITY gy-based approach). Initially, pilot programs will be carried Social Management Division (MUPA).

out in the indigenous hamlet Kuna Nega, Gunglier Nega PARTNERS and the neighborhood Alcalde Diaz, where two thousand Urban Planning Division (MUPA), Citizenship square meters of sidewalks have already been built. These Participation and Transparency Division (MUPA), actions will then be evaluated and expanded to other com- Municipal Security Division (MUPA), Ministry of Social Development (MIDES), National Secretariat munities, based on needs and depending on the priorities Credit: Gehl, San Francisco Parklets for Disabled People (SENADIS), Community Boards, thus established. It should be mentioned that the Munici- Ministry of Public Works (MOP), Panamanian Center pality has already launched the construction of 95,000 m² of Studies and Human Services (CEASPA). in various neighborhoods, 40,000 m² for the northern area NETWORK OF CITIES and 55,000 m² are scheduled to be executed for the east Santiago de Chile, Athens, Quito. side. Nevertheless, 200,000 m² are required to cover the mobility infrastructure needs in the different boroughs of INDICATORS Square meters of sidewalks and streets built. the City, therefore, these programs are a beginning of a short-, medium-, and long-term process that must go hand Number of streetlights fitted. Number of people modifying their means of transport and using the in hand with other construction processes, such as the new new infrastructure.

subway lines. Infrastructure areas for disabled people.

RESILIENCE QUALITIES

Credit: Emerging City, Santiago de Chile, Shared Streets Reflective Inclusive Redundant Integrated

102 103 RESILIENT PANAMA STRATEGY PILLARS 2 • INFRASTRUCTURE OF NEIGHBORHOODS

ACTION 2.2.4. PLAN

Implementation of the Comprehensive Mobility Plan for the Historic District (SAN FELIPE NEIGHBORHOOD)

STATUS TIMEFRAME Through the IDB’s Integral Program of the Historical Cen- In progress Medium term ter, it is sought to implement actions within the framework

of the Center Plan for the neighborhood of San Felipe, His- CONTRIBUTION TO THE CITY’S RESILIENCE torical Center, since it presents three major mobility prob- This initiative will promote an active center that will lems in the area, namely: boost economic prosperity. It will develop a diverse and reliable mobility, thus - Reduced pedestrian space (70% of space is allocated making it possible for citizens from nearby neighborhoods to proceed with their integration. to cars); barriers that hinder integration with the pub- It will provide citizens with multiple mobility means. It lic transportation system, as there is no full service of will boost tourism. Improvements of public space internal transportation and adequate infrastructure for will give rise to an inhabitable and accessible center. non-motorized mobility. - Insecurity problems and deterioration of spaces. RESPONSIBLE AUTHORITY - Poor parking space management (demand from 4,200 Urban Planning Division (MUPA) / BID. vehicles/day v. total supply of 1,579 parking lots; 30% PARTNERS of cars are illegally parked on public roads). Social Management Division (MUPA), Culture and - The Mobility Plan for the Historical Center of Pana- Education Division (MUPA), Citizenship Participation ma (Center Plan) includes the neighborhoods of San- and Transparency Division (MUPA), Municipal Corporation of Tourism (MUPA), Community Board ta Ana, San Felipe, and El Chorrillo. It has seven lines of San Felipe, Historical Center Office, Ministry of the of interrelated actions including the creation of public Presidency, Ministry of Foreign Affairs, UNESCO. spaces, comprehensive management of parking space, improvements in public transportation, integration of NETWORK OF CITIES Quito, Santa Fe. the Historical Center with the coastline belt. INDICATORS There will be joint efforts by and between the various enti- Square meters of enhanced infrastructure. ties involved, thereby integrating new ideas from the Mu- Percentage of connectivity between nearby nicipality and recommendations with a resilience approach. neighborhoods. The Municipality would be the executor entity for this im- Number of circulating vehicles. plementation project concerning the Center Plan. Number of residents, institutions, and companies benefited in the area.

Number of buses acquired.

RESILIENCE QUALITIES Reflective Robust Inclusive Credit: MUPA Integrated

104 105 3 Rediscovering our wetland city: Coexisting in a better way with our own waters and environment

Goals

3.1 To rethink the 3.2 To effectively 3.3 Integrating and infrastructure that will communicate the value of modernizing water protect us from the water as a resource and coordination and effects of climate change. that of the ecosystems management instruments protecting us. and ecosystems.

Problem Statement

he City of Panama developed on the and improvement of drainage networks. In addi- flood plains of its rivers, which led to tion to technical studies, it is necessary to con- T the loss of riverbanks, deforestation solidate the capacity of action upon basins and of the natural habitat of species and ecosystems crossing and bordering the city (100 the formation of danger zones for the population. Resilient Cities, 2018a). Thus, the purpose is to Likewise, the infrastructure of slums is inade- contribute to an adequate management of such quate and the value of water and ecosystems is resource, and with a reduction of vulnerabilities, not well understood by the population, so good in order to promote a control of contamination education in that respect is required. It is also rel- from waste, to perform actions for the manage- evant to highlight that there are governance is- ment of the water capacity of rivers and basins, sues and decentralization offers opportunities for to prevent any damage to ecosystems, and to better local management. foster the restoration thereof. Civic engagement Since 2014, the municipality has conducted in environmental communication and education technical studies to understand problems con- will strengthen its capabilities, thus fostering its cerned with floods so as to design proposals aimed support. (100 Resilient Cities, 2018a). In order at mitigating them. Initially, these studies fo- to rediscover the natural environment, it will be cused on the basin of Juan Diaz River. It is there- sought to promote biodiversity and landscape by sought to recover and protect riverbanks and amenities, as well as the integration of wetland their ecosystem services provided by urban wet- ecosystems with the decision-making process in lands. The municipality has a sustainability vision danger zones. with investment proposals, city cleanup programs

107 RESILIENT PANAMA

3.1 To rethink the infrastructure that will protect us from the effects of climate change

Panama City is perched on five water basins, whose aquifers run along and bathe the city; however, its development has traditionally been treated by belittling this condition and, therefore, somehow “channeling” the water; to the point that, today, by way of a strainer effect, it overflows and oozes at various points across the 26 neighborhoods. In the middle of rapid population growth and urban development in areas which were formerly naturals drains, today, proposing within the framework of resilience to address water management as an essential part of a development process bound to be sustainable, is one of the greatest urban challenges that we could face in this 21st century. Because, in addition to this prior natural and anthropological condition, there is a situation caused by climate change, thus increasing our risk for floods. This is why we, as a city facing its future development, propose that this must include water, not as an element to be overcome, but as a portion of the spaces to be recovered with the urban landscape and as a vital element in risk mitigation. The proper management of water can provide us with countless opportunities, ranging from supply for the growing percentage of the population who do not have access to potable water, and the mitigation of floods, through the valuation of soil in terms of its landscape value adding up to recreational space and visual enjoyment, to the various types of possible development.

RAISA BANFIELD —VICE MAYOR, MUNICIPALITY OF PANAMA

Photo: Ennio Arcia

108 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.1.1. INFRASTRUCTURE PROGRAM ternative pilot projects: permeable pavement, bioretention fulfill all the necessary procedures with competent author- area and green roof. These kinds of interventions must be ities, such as the MOP and the IDAAN, in order to have implemented all around the city. the latest information supporting these initiatives, such as For the development of pilot projects, we are consider- the storm water drainage registry, to be coordinated by the Green-Blue Micro-Infrastructure ing 12 months for implementation and 24 months for main- authorities of the central government. Program tenance and monitoring of such systems. In parallel, we will

STATUS TIMEFRAME NETWORK OF CITIES Proposal Medium term Santa Fe, Oakland, Athens, Mexico City, and Atlanta.

CONTRIBUTION TO THE CITY’S RESILIENCE INDICATORS It will allow the landscape to play a key infrastructural Percentage of progress in the implementation of the role to aid in mitigating the risk of floods. Also, the green infrastructure pilot projects. areas will provide high quality public and recre- Percentage of flood areas for monitoring effectiveness. ational spaces. Retention volume in damping areas during the It will create public spaces that will end up integrating interventions. green infrastructure while preserving biodiversity in Annual percentage of progress in the maintenance of certain areas of the city. green infrastructure. It will face challenges posed by climate change by in- Number of pieces of equipment and properties tegrating an approach to green infrastructure, thus affected by floods. fostering healthy, safe, and sustainable settings.

RESILIENCE QUALITIES RESPONSIBLE AUTHORITY Urban Planning Division (MUPA). Resourceful Robust Redundant Integrated PARTNERS Works and Constructions Division (MUPA), Resilience Division (MUPA), Environmental Management Division (MUPA), Ministry of Public Works (MOP), National Aqueducts and Sewage Systems Institute (IDAAN), Ministry of Environment (Mi Ambiente), Technological University of Panama (UTP), Florida State University (FSU), Wetlands International Panama.

Photo: Karl Kaufmann

Floods can be reduced by means of interventions intend- planned underground areas by means of their infiltration. ed to encourage bioretention in parks and easement areas, The components of said areas are the following: pretreat- This initiative takes as benchmark some national and international analogous cases, such as del Northern such as islands, roundabouts and open spaces. These fa- ment, inflow runoff zone, storage zone, topsoil layer, soil INSPIRATION FROM Park of Santa Fe, Argentina, the Water Park in cilities serve as depressed basins located, for instance, in mixture for bioretention, vegetation, lower draining bed, Santa Fe, Argentina Rotterdam, the green Infrastructure Plan in Oakland, gardens, parks and other green areas allowing for storm additional storage in gravel layer, and water overflow out- USA, and Athens, Greece. Another example is the water runoffs to build up and seep through plants and soils let. In order to select suitable areas of the project, it is pro- strategy titled Towards a Water-Sensitive Mexico with a temporary storage layer (evaporation of perspiration posed that consultations be made and, should intervention City that promotes adequate water management by helps to deal with the volume). Said spaces make it possible agreements be struck with other entities involved, to pres- means of retention, storage, infiltration, and reuse. for waters usually spreading across undesired ground spac- ent the criteria for green infrastructure systems’ planning es, such as houses and commercial premises, to head for and design. These latter actions are divided into three al-

110 111 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.1.2. INFRASTRUCTURE PROGRAM

STATUS TIMEFRAME Coastline System of Open Spaces Planning underway Long term

CONTRIBUTION TO THE CITY’S RESILIENCE It will encompass mitigation actions for vulnerabilities in the coastline area nearest to tidal variations and Panama City is located on the shores of Panama Bay, which for vulnerabilities such as the effects caused by floods and runoffs of storm waterfall. occupies some 20 kilometers of waterfront. Over its histo- storms. This project involves reinforcing the protection of It will make the most of the landscape resource for more citizens’ enjoyment, while promoting the con- ry, the city has been developing different interfaces with coastal swamps and basins in order to improve the provision servation of ecosystems, their valuation and the use the Pacific Ocean, mostly invading and degrading coastal of local ecosystem services; thus enhancing the public’s ac- of environmental services, including, among others, swamps, and often constructing high-density buildings up cess to the coast, the enjoyment of the coastline landscape fishing, tourism, and environmental protection to the coastline. resource and available spaces for multimodal mobility. against the poundings of climate change. The Coastline Belt project was initiated in 2007 as an It will improve urban development by means of better distribution and integration of uses of soil. opportunity to establish a network of public spaces along The project includes three sections: Photo: 100RC the waterfront. The Action Plan titled Metropolitan Pana- RESPONSIBLE AUTHORITY ma, made by the Municipality of Panama, jointly with the 1. Central Zone with existing coastline interventions Urban Planning Division (MUPA). The city of Thessaloniki, in Interamerican Development Bank (IDB) in 2015, proposes (from Amador to Marbella): This segment is largely Greece, dedicated a complete PARTNERS the extension of this public space system towards the east. developed and interventions will consist of connec- INSPIRATION pillar of its resilience strategy World Bank (WB), Vice-Office, Resilience Division The waterfront taken into account for this stretch of land tivity and access. FROM to “rediscovering the city’s (MUPA), Environmental Management Division Thessaloniki, relationship with the sea”, by is located at a point where several significant environmental (MUPA), Works and Constructions Division (MUPA), factors converge, namely: the nearness to the Pacific ocean 2. Urban Expansion Zone without coastal treatment Citizenship Participation Division (MUPA), Ministry of Greece means of refurbishment of the Thermaikos bay, where the coast, the network of rivers flowing into this area, the rapid (from Punta Paitilla to Punta del Este): A section Environment (Mi Ambiente), Sponsoring Office for the Panama Viejo, Ministry of Public Works (MOP), water body along which the development of slums without a suitable control of the use with the interventions seeking to connect neighbor- Ministry of Housing (MIVIOT), Community Boards, city stretches extends throughout the coastline of soil, the degradation of swamps, the limited drainage and hoods, create public access to the pier, and improve Wetlands International, National Committee of edge. A recent refurbishment of the waterfront sewage systems, and the isolation of communities. the neighborhood at Boca La Caja. Wetlands of Panama (CNHP). gave Thermaikos a new and important role within Therefore, the city seeks to develop a large-scale proj- citizens’ daily life: now it is the most popular public NETWORK OF CITIES space in town. In its resilience work, however, ect, to be coordinated by means of the Urban Planning 3. Protection Zone of wetlands in Panama Bay (Ram- Boulder, Pittsburgh, Melbourne, Santiago de Chile. Thessaloniki recognized that all of the bay’s Division, jointly with the World Bank. The objective of sar Swamp Reserve): This section includes Juan Diaz potential was still underused in terms of economic, INDICATORS this initiative is to create an integration plan for the coast- River where interventions will focus on mitigating environmental and recreational exploitation. The Percentage of progress in project execution. line edge so as to foster measures intended for the mitiga- floods, protecting natural habitats, and connecting eleven initiatives within this pillar will combine to Coverage area of restored and recovered wetlands. tion of present and future risks, including a better drainage the coastline edge. accomplish the city’s objectives: to integrate the from slums into coastal plains, improvement of urban infra- Number of people annually benefiting from landscape bay’s economic and urban development; to improve resource. structure to create multimodal access to the coast, and the This project will be accompanied by a Resilience Commu- environmental monitoring and to restore the bay’s ecosystem, thereby launching new regional strengthening of the institutional capacity to move infra- nication Plan. Percentage of progress in cleanup infrastructure. governance systems for the management of coastal structure funding resources. activities; to grow the bay’s cultural and natural RESILIENCE QUALITIES The extension of the Coastline Belt and the System of capital to improve social cohesion and, in general, Robust Inclusive Integrated Open Spaces is then a comprehensive initiative for the re- the city’s quality of life. newal and transformation of the coastline zone through the introduction of green infrastructure by way of dampeners

112 113 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.1.3. RESEARCH STATUS TIMEFRAME Proposal Short term

CONTRIBUTION TO THE CITY’S RESILIENCE Map of It will provide the planning tools necessary to prevent risks for population and add up to key vulnerabilities and infrastructure, such as Tocumen airport. It will foster the application of the necessary risks in the basin of regulations to change poor development practices. It will allow for the conservation of basins, wetlands, Tocumen River and its environmental services. It will strengthen the existing protection schemes for wetlands in Panama Bay. The local authority will take the appropriate precautions to safeguard the populations’ security. This action consists of a survey intended to understand vul- nerability to floods in the expected urban development ar- It will be an input for the District Land Use Plan. eas to the east of the city. By means of a mapping of vulner- RESPONSIBLE AUTHORITY abilities to floods. The existing regulations concerning the Urban Planning Division (MUPA) use of soil will be evaluated, as well as the implementation thereof, in order to determine the scope of this develop- PARTNERS ment. One of the major critical spots in the area is Tocumen Vice-Office (MUPA), World Bank (WB), Resilience Division (MUPA), Environmental Management Division International Airport, which poses some threats and risks (MUPA), Works and Constructions Division (MUPA), for floods. This survey will contribute some key informa- Ministry of Environment (Mi Ambiente), Ministry of tion for other initiatives in Panama, such as the project for Public Works (MOP), Ministry of Housing (MIVIOT), National Aqueducts and Sewage Systems Institute reducing and mitigating floods in Juan Diaz River (funded (IDAAN), National Committee of Wetlands of Panama by IDB), the Coastline System of Open Spaces (funded by (CNHP), Technological University of Panama (UTP), WB), and some other assessments involving the drawing University of Panama (UP), Florida State University up of models and/or scenarios for the city’s water basins. (FSU).

This action is going to be performed in coordination with NETWORK OF CITIES the various sectors involved in the interventions due for the Bristol, Da Nang, Norfolk, Boston. area; advances will be communicated and key information will be shared so that it can help to achieve the maximum INDICATORS use of resources, thus avoiding the duplicity of efforts. Percentage of progress in the making of analyses and maps.

Number of properties affected by floods.

Number of proposals of interventions for shock mitigation.

Number of regulations reviewed and implemented with the technical support of the assessment.

Number of Environmental Impact Assessments approved for the Tocumen area.

RESILIENCE QUALITIES Reflective Integrated

Photo: Joao Carlos Medau

114 115 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.1.4. INFRASTRUCTURE PROGRAM

Resilient Urban Juan 2. Land Use (including a Basin Plan considering the iden- providing better protection of riparian spaces, such as Diaz Basin STATUS TIMEFRAME Planning underway Medium term tification of danger zones), which will seek to pursue a wetlands (floodplains and swamps). It is proposed to clear public policy in the basin’s strategic zones. The create a network of public spaces allowing for easy ac-

CONTRIBUTION TO THE CITY’S RESILIENCE ordering of these areas will make it possible to reduce cess to the river. The Juan Diaz River basin has undergone an accelerated It will promote the conservation and valuation of the vulnerabilities associated with the occupation of urbanization process, especially since 1960. The lack of environmental services and ecosystems in the face grounds subject to floods, thus permitting better adap- 3. Communications Plan to publicize the benefits from of the impact caused by climate change. ordering plans and loose enforcement of environmental tation to climate change. Thus, territorial ordering will having a holistic approach to a basin’s project and the protection regulations has resulted in a high degradation of It will reduce the number of people and houses affect- enable the promotion of mixed, medium-density devel- importance of its different components. ed by floods, due to the implementation of specific the river’s water course. At this moment, Juan Diaz River’s actions for the mitigation of the impact of climate opments, thus creating new housing opportunities while riverbanks present some illegal occupations, infrastructure change. works not matching the basin’s flows, and developments It will foster a planned urban ordering and adequate carried out in violation of the river protection easements; distribution of the uses of soil. hence, this results in frequent and raging floods, public and It will reduce contamination in the associated basins private property damage, and a low quality of public space. and the disposal of solid waste, while having a pos- itive effect on the population’s health and quality The project of regeneration of the urban basin of Juan of life. Diaz River aims at the design and construction of green and blue infrastructure measures intended to mitigate climate RESPONSIBLE AUTHORITY vulnerability, increase the value of environmental assets, and Urban Planning Division (MUPA). thus improve the quality of urban habitat along the basin. PARTNERS Vice-Office (MUPA), IDB, Resilience Division (MUPA), The project has three components: Environmental Management Division (MUPA), Works and Constructions Division (MUPA), Municipality of 1. Strategic canalizing of Juan Diaz River, which includes San Miguelito, Ministry of Environment (Mi Ambiente), Ministry of Public Works (MOP), Ministry of Housing developing retention ponds. This green infrastructure is (MIVIOT), Community Boards, National Committee of a low-impact measure to supplement strategic drainage Wetlands of Panama (CNHP) Advocacy Association works that are necessary in various sections of the river. for Juan Diaz River, Tocumen S.A. Credit: Resilient Vejle In the upper areas, it is proposed to create runoff mi- NETWORK OF CITIES cro-retention measures and works to reduce the speed Vejle, Bristol, Da Nang, Norfolk, Santiago de Chile. The city of Vejle, in Denmark, is facing risks caused by floods from the adjacent fjord. of water flows. In the intermediate sections, the con- The city is providing resilience to this challenge through the ambitious initiative called struction of green water absorption and retention infra- INDICATORS “Fjordbyen”, where they will use its waterfront areas as urban design laboratories to INSPIRATION FROM Percentage of progress in project execution. explore innovative and integrated solutions, e.g.: the adaptation of public spaces to structure, such as flood parks and green areas, will be Vejle, Denmark given priority, jointly with the landscape recovery and Protection area of swamps and other wetlands. improve the administration of water and thus boost economic growth while reducing risk. In particular, Vejle is planning to design defenses against floods that should also regularization of the river box. In the lower basin of Juan Coverage area of restored and recovered wetlands. encourage investments, developments and have a higher real estate worth. One example Diaz River, as in Radial City (a mostly low- and me- Homes protected from floods on account of these is the vicinity of Østbykvarteret, which has a testing area where interventions concerning measures. dium-income community) and Metro Park (a logistical floods have a recreational and community value; moreover, it is sought to protect the development with high income), specific infrastructure inner areas of river Grejs by installing solutions to floods, already integrated along the measures intended for reducing floods to a minimum, RESILIENCE QUALITIES road infrastructure so that they can reduce the water flow. The key to all this work will be such as the recovery of coastline meanders and swamps, Reflective Robust Integrated a broad commitment undertaken by the stakeholders, participating experts and citizens, and an inclusive community-oriented urban design. will be given priority.

116 117 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.1.5. RESEARCH STATUS TIMEFRAME Planning underway Medium term

Integrated risk Atlas: CONTRIBUTION TO THE CITY’S RESILIENCE It will generate the tools needed to manage risks in HYDRAULIC MODELS OF MUNICIPAL HYDROGRAPHIC BASINS the two districts of the metropolitan area.

This tool may be used by other entities on a consen- sus basis, in order to promote comprehensive risk management.

The availability of maps of all the basins will add up to technical support so that the institution can have tools providing for risk zoning and therefore appropriate decisions could be taken in response to the requests for approvals and permits for the development of infrastructure.

This tool will promote a better decision-making pro- cess to orient urban development.

RESPONSIBLE AUTHORITY Urban Planning Division (MUPA).

PARTNERS Resilience Division (MUPA), Works and Constructions Division (MUPA), Environmental Management Division (MUPA), Urban Planning of the Municipality of San Miguelito, Ministry of Public Works (MOP), National Aqueducts and Sewage Systems Institute (IDAAN), Ministry of Housing (MIVIOT), Ministry of Environment (Mi Ambiente), National Civil Protection System (SINAPROC), Technological University of Panama (UTP), University of Panama, Florida State University (FSU), Wetlands International Panama.

NETWORK OF CITIES New Orleans.

Photo: Karl Kaufmann Photo: Regional Center for the Western Hemisphere (CREHO) INDICATORS Variations in the occupation area of flood zones.

The changes in the use of soil and occupation of areas sub- observe the flood levels in rivers and floodplains for a recur- Number of basins under analysis. hydraulic models of the major hydrographic basins. The ject to floods with landfills, urbanizations and communica- rence between 2 to 500 years, thereby taking into account Construction percentage of the platform. necessary data for the making of a hydraulic model are the tion lines has reduced the hydraulic capacity of urban land, the changes in sea level. With this model, flood maps would Number of studies validated and integrated to the identification of water bodies, the materials lying on the bed thereby increasing floods. Local authorities do not have a be created in order to evaluate the impact of projects on analysis. and the banks of water bodies, types of soils in the basin, full map of risks in the urban basins; it requires a compre- danger zones. Number of resulting models. the vegetation and features of the flood valley, description, hensive, validated tool to integrate the map of risks to the The project will be conducted in phases by means of Number of officials and other specialists receiving dimensions and layout details of the hydraulic structures, ordering plans and thus foster an informed decision-making surveys and field measurements, collection of models, training for using the tool. bathymetry or cross sections of rivers and the use of land. process. The area under study encompasses basins such as modeling, analyses, calibration and training for the staff The Municipality of Panama will cooperate with other those of rivers Chagres, Matasnillo, Juan Diaz, and Pacora. so as to proceed with the assessment and updating of RESILIENCE QUALITIES entities that will have to collaborate and be impacted by The aim is to create a database containing hydraulic models information. For such purposes, it is necessary to validate all Reflective Redundant this project, such as the MOP, the IDAAN, the MIVIOT, of the basins and to develop a platform where users can of the existing studies and to create a database that contains and MiAmbiente.

118 119 RESILIENT PANAMA

3.2 To effectively communicate the value of water resource and that of the ecosystems protecting us

Not so long ago, the percentage of the world’s population living in cities outnumbered those who live in rural areas: today we are an essentially urban species. Cities and their inhabitants vary but they are somehow similar in the fact that most of them are far away from nature: we live as if we were not an integral part of the natural world. The truth is that even under adverse conditions, nature tries to find its way, and citizens can be interested in knowing and protecting it a little bit more.

JORGE VENTOCILLA —BIOLOGIST, NATURALIST AND WRITER

Photo: Ennio Arcia

120 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.2.1. CAMPAIGN, PLAN

Communication and education plan on water, ecosystems and biodiversity

PARTNERS Panama City requires a local communication and education STATUS TIMEFRAME Environmental Management Division (MUPA), Urban strategy covering the engagement of experts and celebri- In progress Medium term Planning Division (MUPA), Culture and Education ties in awareness campaigns targeted at promoting sustain- Division (MUPA), Citizenship Participation Division, able management of water and ecosystems. This strategy Ministry of Environment (Mi Ambiente), Water CONTRIBUTION TO THE CITY’S RESILIENCE Resources Authority (ARAP), Authority of the Panama will foster participation in social media activities and the Communication and awareness spaces will create Canal (ACP), Ministry of Health (MINSA), Ministry of creation of commemorative committees. Synergies will be alliances for specific actions pursuing the benefit of Agricultural and Livestock Development, (MIDA), natural resources. sought among the Awareness, Skill Enhancement and Edu- National Secretariat of Science, Technology and cation Plan, within the framework of the Convention Ram- The communication of the value of natural resources Innovation (SENACYT) Tourism Authority (ATP), sar (CeCop Plan, training courses of the Regional Center will foster a joint responsibility for the protection of International Union for the Conservation of Nature water, ecosystems and resources arising from them. (UICN), Panamanglar Network, Committee of the for the Western Hemisphere, (CREHO), and the programs Month of the Oceans (CMDO), National Committee of Both training and education of the players involved of the Municipal Summit Park, the Metropolitan Park, the Wetlands of Panama (CNHP), National Professional in decision-making will lead to better assessments Association of Biologists of Panama (COBIOPA), National Sovereignty Bar, National Park of Camino de for the rational management and use of natural Council of University Presidents (CONARE), Cruces, and the Recreational Omar Park, thereby promot- resources in the city. Smithsonian Institute of Tropical Investigations (STRI), ing the District Biodiversity. The implementation of good practices for productive City of Knowledge, Sumarse (Join) - Corporate Social Photo: MUPA Awareness campaigns will be launched to promote the activities will encourage the sustainability of food Responsibility. best use of potable water and conservation of wetlands. resources for citizens and the sustainability of the resource for its suppliers, thus improving their NETWORK OF CITIES These campaigns will publicize municipal programs, like quality of life. Quito, Wellington. Zero Trash, and compliance of regulations, as is the pro- hibition of using plastic bags. The communication strategy RESPONSIBLE AUTHORITY INDICATORS will encompass and include some concepts about ecosys- Resilience Division (MUPA) and Communications Number of promotion campaigns on social media over the year. tem services, valuation and adaptation to climate change, Division (MUPA). Number of participants in activities and events. as well as good practices for management of the fishing re- source and sustainable agriculture. Number of training courses and seminars per year. Number of players from government, civil society and private sector who participate in the training and awareness programs.

RESILIENCE QUALITIES Reflective Resourceful Inclusive

122 123 RESILIENT PANAMA

3.3 Integrating and modernizing water coordination and management instruments and ecosystems

We envisage a city projecting health for both people and ecosystems, that shouldn’t get flooded as a result of litter around the streets, sewers, and rivers, where its inhabitants feel at ease because they are not surrounded by litter, and garbage, instead of being a problem, could be turned into a raw material that could aid small businesses in fostering green economies. What is garbage nowadays could yield economic resources for communities.

ALIDA SPADAFORA —ZERO TRASH PROGRAM MANAGER, MUNICIPALITY OF PANAMA

Photo: MUPA

124 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.3.1. PLAN, PUBLIC POLICY

Land Use Plan (POT) for the District of Panama

PARTNERS Growth is estimated to go on and Panama City will, in STATUS TIMEFRAME All the Divisions of the MUPA, Community Boards the next few years, be undergoing an economic and de- In progress Short term of the 23 Neighborhoods, Ministry of Housing and mographic development process its infrastructure is not Territorial Ordering (MIVI), Ministry of Public Works ready for. Likewise, new challenges will crop up, including CONTRIBUTION TO THE CITY’S RESILIENCE (MOP), Ministry of Environment (Mi Ambiente), a new stage in the development of Panamanian logistics. In The District Ordering Plan is the key tool for ordering National Aqueducts and Sewage Systems Institute (IDAAN), Traffic and Ground Transportation Authority this context, it is vital to put forward an instrument able to of the territory and uses of soil. This shall reduce social and environmental risks. (ATTT), Panama Metro, MiBus Company, Public Utility channel this growth in an orderly and balanced fashion so Services Authority (ASEP), National Civil Protection It will lead to collaborative schemes among as to reach a competitive, inclusive, and sustainable city. System (SINAPROC), University of Panama (Institute institutions. This action is centered on the development of the District of Geosciences), Authority of the Panama Canal Adequate urban planning will promote a city better (ACP), Ministry of Health (MINSA), Panamanian Land Use Plan (POT), which will be accompanied by a prepared to face risks. Society of Engineers and Architects (SPIA), proposal of Municipal Agreement for legal support, a port- Panamanian Chamber of Construction (CAPAC), Panama may be an example for cities belonging to the Urban Citizenship Network, Sponsoring Office of folio of projects and a schedule encompassing the respec- network. tive performance of training and publicity activities. 2018 Panama Viejo, Historical Center Office, Chamber of Commerce, National Association of Business set the beginning of the initiative that vest the Municipali- RESPONSIBLE AUTHORITY Executives (APEDE), IDOM Consultancy. ty of Panama with jurisdictional authority over local urban Urban Planning Division (MUPA). matters and the development of such initiative is expected INDICATORS NETWORK OF CITIES Percentage of progress in POT’s execution. to end by 2019. The POT has simultaneously begun with Amman, Tel Aviv-Yafo, Glasgow. the development of this resilience strategy. Within this Number of integrated initiatives of the POT’s Resilience Strategy. framework, the necessary synergies will be built in order RESILIENCE QUALITIES Number of citizens who participate and engage in the to implement both instruments, with the aim to make sure Reflective Inclusive Integrated construction of the POT. that resilience should be the core transversal guideline of the POT. We will also foster integration of the Code for the Use of Soil in Flood Areas and the Green Code, as well as the ecosystem valuation within zoning schemes. Que- ries and meetings will be held on a regular basis with the consulting team, the Resilience Division, and other play- ers, with the respective aim to procure funding for projects deriving from the strategy, while underpinning the POT at the same time.

Photo: MUPA

126 127 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.3.2. RESEARCH Comprehensive cost-benefit analysis (CBA) of development options around wetlands

PARTNERS Traditional CBAs usually have a limited scope and only STATUS TIMEFRAME Resilience Division (MUPA), Works and Constructions include such elements as the construction costs of the Planning underway Medium term Division (MUPA), Environmental Management Division project, selling prices, fiscal revenues, and other common (MUPA), Municipality of San Miguelito, Ministry measurements of the project. This study proposes a com- of Environment (Mi Ambiente), Water Resources CONTRIBUTION TO THE CITY’S RESILIENCE Authority (ARAP), Authority of the Panama Canal prehensive CBA to capture a wider variety of benefits of The local authorities and communities may under- (ACP), Wetlands International, Regional Center for the wetlands in the project areas where it is sought to build stand and have valuation concepts of the natural the Western Hemisphere (CREHO), International capital and a supporting ground for the protection constructions; i.e. to make private uses of the soil, thus pro- Conservation, Natura Foundation, City of Knowledge, of natural resources as a clear understanding by moting the non-intervention of ecosystems by considering University of Panama (UP), International Maritime both developers and the private sector. the valuation of natural capital. University An adequate valuation scheme will lead to the review of Panama (UMIP), PNUD, IDB. Ecosystem services will be contemplated, such as the of projects so that these can reconsider the need reduction of rain and the runoff by contamination, or the for intervention of basins and ecosystems of wet- NETWORK OF CITIES enhancement of benefits for human health. These may lands. Rotterdam. integrate the ecosystem value in the decision-making pro- It will promote the conservations and restoration of INDICATORS ecosystems in wetlands, thus enhancing the pres- cess, since these values of natural capital and knock-on Percentage of progress in the CBA study. ence, permanence, and protection of services they effects of the loss of resources due to the development of provide people with in the face of the poundings of Number of management instruments integrating the infrastructure must be taken into account as a decrease in climate change. results of the CBA in their schemes for the approval and use of soil. the population’s benefits. For example, in regards to this It will assure the safety of the food resource by pro- setting, the approval of blueprints by the Urban Planning tecting fishing resource recruitment zones. Number of initiatives in the POT integrating the results of the CBA for land use plans. Division would be considered, as well as construction per- It will enhance the carbon sequestration potential of mits by the Works and Constructions Division (MUPA), the ecosystems of urban wetlands, thus reducing and the assessment criteria for environmental impact in the impact of polluting gases on the atmosphere. RESILIENCE QUALITIES order to promote their integration in the Interinstitutional Reflective Integrated RESPONSIBLE AUTHORITY Evaluation System. Urban Planning Division (MUPA). The results of the CBA will be a key input for the land use plan within the framework of the Land Use Plan (POT), as per its official acronym in Spanish).

Photo: Karl Kaufmann

128 129 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.3.3. PLAN Monitoring of the status of ecosystems in wetlands and the quality of water in the basins of the metropolitan area

STATUS TIMEFRAME NETWORK OF CITIES Proposal Long term Surat. Instruments such as the Panama’s swamp restoration guide, drafted by the Ministry of Environment jointly CONTRIBUTION TO THE CITY’S RESILIENCE INDICATORS A tool will be made available in order to measure the Area of recovered wetlands. with the PNUD, as well as the wetland restoration hand- effectiveness of urban interventions. Variations in densities and frequency of species books issued by the Convention Ramsar, will be taken The results of the monitoring procedures will be a indicating the status of ecosystems (flora and fauna into account and integrated as useful tools for the project piece of scientific evidence to direct decision-mak- associated with ecosystems). for the programs consisting of restoration of wetlands and ing processes. Variations of the hydrological flow in the ecosystems follow-up of habitat conditions. The monitoring of water It will enable strengthening of the decentralization of wetlands. quality will consider the findings and methodologies posed process by redesigning the technical capacity of Variations in the Biological Integrity Index of Basins in recent research studies on the basins of Panama, as well the institution to lead technical assessment systems (IBI). jointly with other institutions. as any diagnoses of the environmental conditions of the Variations in the number of species indicating the ground tributary rivers (Cornejo et al, 2017), and the work Photo: Karl Kaufmann The engagement of communities in the monitoring quality of water for invertebrate species and fish. procedures and restoration programs will allow for of organizations experienced in the field. It will be sought Variations in the tolerance levels of species indicating Projects of monitoring programs that in turn propose in- greater acknowledgment of the value of natural to engage community leaders by means of training courses the quality of water for fish and invertebrates. vestments for the conservation and restoration of degrad- resources and promotion of their conservation in based on the use of easy and simple indicators, such as order to bolster the city’s resilience and visualize Variations in the water quality index. ed wetlands within the district. An initial baseline will be healthy basins to have and use the respective water the experience of the centers CATHALAC and Regional established for the status of ecosystems in order to create resource. Center for the Western Hemisphere CREHO in the river RESILIENCE QUALITIES indicators aimed at verifying habitat conditions on a year- La Villa, province of Los Santos. Reflective Inclusive Integrated ly-time scale. Furthermore, the monitoring of biological RESPONSIBLE AUTHORITY indicators (e.g. fish and invertebrates) will be taken into Environmental Management Division (MUPA) / Resilience Division (MUPA). account to compare them with the status of the ecosys- tems and the tolerance limits of biological indicators to the PARTNERS city’s water variation. Physical-chemical indicators will Urban Planning Division (MUPA), Works and also be pondered with the aim to determine any variations Constructions Division (MUPA), Municipality of San Miguelito, Community Boards, Ministry of Environment in the concentration of chemicals, organic and inorganic (Mi Ambiente), Water Resources Authority (ARAP), compounds, metals, among others, as elements serving to National Secretariat of Science, Technology and check the quality of water in the urban basins. Innovation (SENACYT), Commemorative Gorgas Institute, PNUD, Regional Center for the Western The monitoring will include an early alerting evaluation Hemisphere (CREHO), CATHALAC, International system intended to take action in case of any hazard signals Maritime University of Panama (UMIP), University concerning both the quality of water and the components of Panama (UP), Florida State University (FSU), of biodiversity and structure of ecosystems. Wetlands International Panamal, National Committee of Wetlands of Panama (CNHP), and community leaders.

130 131 RESILIENT PANAMA STRATEGY PILLARS 3 • REDISCOVERING OUR WETLAND CITY

ACTION 3.3.4. PLAN, PUBLIC POLICY

STATUS TIMEFRAME PARTNERS Municipal Waste Management Plan Planning underway Short term Resilience Division (MUPA), Urban Planning Division (MUPA), Social Management Division (MUPA), Culture and Education Division (MUPA), Urban and Household Cleaning Authority (AAUD), Ministry of CONTRIBUTION TO THE CITY’S RESILIENCE Health (MINSA), National Aqueducts and Sewage It will bring about improvements in the population’s Systems Institute (IDAAN), MarViva, Foundation health. for the Protection of the Sea (PROMAR), National It will reduce the incidence of diseases such as cancer Association of Business Executives (APEDE), Chamber (from burns), allergies and infections. of Commerce and Industries and Agriculture (CCIP), University of Panama (UP), Technological University It will preserve maritime environment, ecosystems, of Panama (UTP), National Committee of Wetlands of and their biodiversity. Panama (CNHP), Committee of the Month of Oceans It will mitigate the impact of floods by preventing the (CMDO), PNUD, IDB, Interamerican Development Bank blockage of sewage and drainage systems. (IDB). It will reduce the percentage of greenhouse gases, such as methane. NETWORK OF CITIES Santiago de Chile. It will control fires by preventing any burning of garbage. INDICATORS It will lower soil contamination and, therefore, the Percentage of progress in the making of the Municipal impact on agricultural resources. Integral Waste Disposal Plan.

It will reduce the contamination of fishing resources, Percentage of execution of the Zero Trash Program. especially from microplastics. Percentage of progress in the implementation of the It will reduce the impact on the city’s landscape local plan. resource and will promote tourism, as well as yield Number of regulations bound to reduce waste in final greater economic revenues for the city. disposal. The garbage issue is a transversal problem, so its disposal will entail various benefits in various social, economic, and environmental aspects. RESILIENCE QUALITIES Reflective Integrated

RESPONSIBLE AUTHORITY Environmental Management Division (MUPA).

Photo: Karl Kaufmann

The Municipality of Panama will undertake the manage- These actions will include the establishment of a citi- ment of garbage within its own jurisdiction in 2019. For zenship surveillance program for the disposal of liquid and such purpose, it must elaborate a Municipal Waste Man- solid waste, recycling of solid waste, use of organic waste agement Plan. Hence, the necessary procedures must be for compost, energy, collection and disposal of waste. This guaranteed (by means of actions ordained within the frame- action seeks to provide comprehensive management of work of the existing municipal efforts, as is the case of the waste for Panama City. Zero Trash program) so as to undertake this duty.

132 133 4 Comprehensive risk management: Building and communicating for a safer city

Goals

4.1 Local leadership of risk management in 4.2 To create safety for residents upon the city. understanding of their vulnerabilities.

Problem Statement

istorically in Panama, the duties con- municipalities in regard to risk management. This cerning risk management have been will be written down as the new Land Use Plan H centralized in national institutions; (POT) for District of Panama. An effective col- however, it is high time we increased laboration with institutions of the national gov- engagement of local governments in the reduc- ernment, academia, and community and civil so- tion of vulnerabilities through actions intended to ciety organizations, is going to be a fundamental face and address both threats and disasters. This factor for the operation of the existing planning proposal is to build better coordination in the face instruments, thus playing an effective role for the of the frequent impact caused by climate change, Municipality in the reduction of risks for disasters as well as to diminish the uncertainty arising from (100 Resilient Cities, 2018b). the lack of information about potential threats. The Municipality will obtain instruments For the Municipality, the Public Manage- through which it can socialize technical territorial ment Decentralization Act represents a unique information (whether seismic, hydrological or in- opportunity to create local leadership in risk frastructural), currently generated by specialized management. The National Civil Protection academic and professional organizations, but with System (SINAPROC), an entity focused on re- the consequential problem of being piecemeal sponding to disasters of any origin, is a valuable and drafted in highly specialized languages. The ally. The understanding of threats and vulner- communication of risk factors will play a key role abilities in the territory, based on scientific evi- in the effective action taken by municipalities. dence, is a key element of the actions taken by 4.1 Local leadership of risk management in the City

If we start from the fact that human settlements are the result of a transformation from the natural environment to the man-built environment, in the case of our city, the little integration of the former to the processes concerned with the use and occupation of the soil becomes crystal-clear. The city’s limited capacity to recover from the shocks and stresses is often subject to warns us that we should be more resilient. Hence, we are liable for implementing better territory planning instruments whose design should recognize and integrate the risk of and vulnerability to the effects of climate change.

MANUEL TRUTE —DIRECTOR OF URBAN PLANNING, MUNICIPALITY OF PANAMA

Photo: Karl Kaufmann RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.1.1. PROJECT

Municipal multi-department system STATUS TIMEFRAME of geographic information Planning underway Medium term

CONTRIBUTION TO THE CITY’S RESILIENCE Accelerated growth in Panama City has led to a signifi- It will maximize both public resources and manage- cant number of buildings situated in danger zones. Rapid ment know-how to reduce risk. development also poses an important challenge to make It will create the tools to analyze the various risks posed by a city whose urban pattern is expanding decisions on the territory, for there is a shortage of updat- hand in hand with rapid economic development. ed information. Within the Municipality of Panama, there With decentralization, the Municipality of Panama will are various sectors used as sources of geographical informa- undertake the duties concerned with risk manage- tion that have the potential to be coordinated and unified ment, thereby showing technical capabilities by to offer a more integrated, useful, and thorough system for integrating new tools for risk management. identifying risks. It will be a proposal of paradigm change for the The initiative focuses on the integration of geospatial benefit of all the sectors involved, which will result in greater and better options for decision making, data in a unique geographic data system (SIG) for District while being a valuable support, with robust techni- of Panama. This will allow a larger amount of information cal foundations, for the Central Government. to be made available to public officials and citizens upon making their decisions. Some of these tools are already in RESPONSIBLE AUTHORITY progress and are driven by the Environmental Management Higher Office (MUPA) and Urban Planning Division (MUPA). Division and the Urban Planning Division.

The SIG platform will have free access and contain lay- PARTNERS ers with cadastral information (road and premises manage- Resilience Division (MUPA), Works and Constructions ment), risk information (types of soils and flood areas) and, Division (MUPA), Environmental Management Division (Sub-Division of Climate Change and Vulnerability in the future, dynamic information about the vulnerabilities MUPA), and Social Management Division (MUPA). existing in the city (water-table level, river flows and levels, rain meters, among others). This information will be made NETWORK OF CITIES available to any user of the system in real time and it will Quito, Santiago de Chile and .Thessaloniki provide access to historical data stored for sensitivity anal- INDICATORS yses and monitoring of changes, as well as inputs from local Percentage of progress in the development of the academic and scientific organizations will be found. platform. Percentage of progress in the feasibility study and opportunities to apply the system.

SIG territory coverage percentage of District of Panama

RESILIENCE QUALITIES Reflective Robust Integrated

Photo: Ennio Arcia

138 139 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.1.2. PUBLIC POLICY

Certificate of Prior Disclosures

STATUS TIMEFRAME PARTNERS Planning underway Medium term Resilience Division (MUPA), and Environmental Management Division (Sub-Division of Climate Change and Vulnerability MUPA).

CONTRIBUTION TO THE CITY’S RESILIENCE A system that will prevent the creation of new risks NETWORK OF CITIES and reduce environmental decline. Santiago de Chile.

It will prevent social problems and contribute to the INDICATORS development of a more cost-effective and effi- Percentage of progress in development and approval ciently running city both for the local and central of the procedure and guideline to obtain the certifi- governments and investments as well. cate of prior disclosures.

It will maximize both public resources and manage- Number of applications for certificate that were ment know-how to reduce risk, thereby preventing responded to. redundant processes. Number of applications for construction permits sup- It will help to guarantee sustainable investments. ported by a certificate of prior disclosures. It will boost civilian confidence in institutions.

RESILIENCE QUALITIES

Photo: MUPA RESPONSIBLE AUTHORITY Inclusive Integrated Robust Urban Planning Division (MUPA) and Works and Constructions Division (MUPA). Panama City has a dynamic real estate industry that is schemes more effectively, in its capacity as planning enti- attractive for investing; however, a portion of such invest- ty, whilst promoting safer real estate developments. This ments are usually made in danger zones due to unawareness system will articulate on the basis of key tools, such as the of existing natural threats, as well as regulatory restrictions. Land Use Plan (POT), danger zone maps and the constant In order to promote proactive use of information, this action updating of the databases of a Municipal Geographic Infor- focuses on the implementation of a system allowing the real mation System. estate owners to have clear collection of the permitted uses, In practice, residents, land owners and interested devel- urban conditions, and risk circumstances concerning them. opers are believed to have access to this information at any This report shall be used as a starting point in the planning time. The Certificate of Prior Disclosures shall be attached processes of projects consisting in the new development, to every municipal submission of paperwork associated densification or refurbishment of properties. This will allow with any given property, together with the project scheme investors and property owners to understand the potential proposal, its locations and both technical and SIG-related for developing a site and its restrictions before conducting information from the very beginning of the whole process. any surveys and investments. This system is going to be made official by means of a Mu- As a result, the local authority may apply its ordering nicipal decree.

140 141 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.1.3. PROGRAM

STATUS TIMEFRAME Structural assessment: Proposal Short term

TRAINING AND CONSTRUCTION FOR VULNERABLE AREAS CONTRIBUTION TO THE CITY’S RESILIENCE The graduates from this program will act as a multi- plying entity for the strengthening of risk man- agement capabilities at neighborhood level, while promoting the implementation of both ordering In Panama City, the houses most vulnerable to floods are plans and contingency plans. located in the east zone. Given its geography and plain to- It will engage people from the community in order to pography, very close to sea level, these shocks have been establish the necessary priorities for the infrastruc- exacerbated with the advent of climate change and even in- ture to be the most appropriate one to face the present challenges. Credit: BuildChange creased in some other areas of the city. On the other hand, in the northern and central areas, many edifices are vulner- It will strengthen the vision regarding how the city is to continue its growth. able to landslides, mudslides and strong winds. These risks It will foster citizenship participation and offer oppor- are localized in the most elevated areas of San Miguelito tunities for sustainable and human development, INSPIRATION FROM In Colombia, the city of and neighborhoods such as Ernesto Cordoba, Las Cumbres which will in turn have a knock-on effect on the Medellin, Colombia Medellin is collaborating and Alcalde Diaz. city’s increased resilience. with the residents of This initiative seeks to carry out training programs of informal slums in regard trades related to construction and technical support in the RESPONSIBLE AUTHORITY to house refurbishment, Resilience Division (MUPA) and Municipality of San with the aim to improve building of works for inhabitants of informal slums. The pro- Miguelito (MUPA). their living conditions, gram will be centered on creating a tool, as well as in training besides incorporating their houses into the rest of people, for rapid structural characterization of buildings. The PARTNERS the city and thus mitigating the risk of mudslides rapid evaluation tool would consider a checklist to determine Works and Constructions Division (MUPA), Urban or earthquakes. Together with Build Change, a Planning Division (MUPA), Citizenship Participation if it is necessary or not to conduct a structural evaluation of Partner of the 100RC Platform, an organization that and Transparency Division (MUPA), Environmental endorses the efforts made by cities to improve the the houses and/or a structural reinforcement thereof. Such Management Division (Sub-Division of Climate safety of buildings by means of seismic adaptations, evaluation will be used as an initial instrument. Change and Vulnerability MUPA), Social Management Medellin’s Resilience Office created a handbook The program will teach how to use the evaluation tool Division (MUPA), National Civil Protection System (SINAPROC), Panamanian Chamber of Construction establishing the technical procedures and guidelines and thus give relevant skills to the local population involved (CAPAC), Panamanian Society of Engineers and for the adaptation of houses to seismic resistance in this type of construction. The training of people in con- Architects (SPIA). in Colombia. The national government approved struction-related trades helps to create future job opportu- these guidelines and provided funding to update nities and thus enhance the knowledge of the people who NETWORK OF CITIES pilot programs in 50 households. Nowadays, the city Quito, Medellin and Mexico City. is working with the World Bank to obtain funds and are currently performing this task. Evaluators are expected expand the pilot program to thousands of informal INDICATORS to identify the structural system of the houses visited, cate- households for the next years to come. Build Change Number of workshops organized for builders. gorize them, identify and document their vulnerabilities in is also training builders from different communities Photo: MUPA terms of resistance to earthquakes and floods and direct the Number of workshops organized for instructors. in construction techniques and methods, since these need for a more detailed investigation. Number of households whose infrastructure has been are necessary to evaluate and modernize houses. The program will carry out training workshops in the evaluated. Therefore, this initiative will boost the local economy, raise awareness and improve risk management across most vulnerable communities and the long-term goal is to im- In order to ensure this program’s sustainability, training Number of inhabitants of the communities participat- ing in the training programs. the community, while underpinning the investment prove the building capacity of the city’s lower-income com- courses “to instruct instructors” will be held, so that their capacity of residents in their own communities. munities, so they can improve the construction quality of the participants could then become instructors who can repli- RESILIENCE QUALITIES houses and thus make them more resilient to the shocks and cate these workshops in other communities. Reflective Robust Inclusive physical stresses they may experience in the future.

142 143 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.1.4. PLAN

Municipal Comprehensive Contingency Plan

The Municipal Guide to Risks of Disasters in Panama for STATUS TIMEFRAME RESPONSIBLE AUTHORITY Planning underway Medium term Higher Office (MUPA), Environmental Management 2016 is a document that has just been published to sup- Division (Sub-Division of Climate Change and port the work of local governments on the area of disas- Vulnerability MUPA) and Resilience Division (MUPA). ter response and recovery. It is a methodological proposal CONTRIBUTION TO THE CITY’S RESILIENCE It will reaffirm the local authority’s commitment to presented by the SINAPROC, with the endorsement of PARTNERS facing the existing risks and effects of climate Social Management Division (MUPA), Works and CEPREDENAC, with the aim to provide municipal gov- change. Constructions Division (MUPA), Urban Planning ernments with a tool that facilitates the analysis of risk It will serve, besides the players involved, citizens and Division (MUPA), National Civil Protection System conditions in their own territories and the identification of their own property. (SINAPROC), Authority of the Panama Canal (ACP), Coordination for the Prevention of Natural Disasters actions oriented towards the mitigation of risks of disasters. An orderly management of risks in the city will thus in Central America (CEPREDENAC), Panamanian Red The Municipal Guide promotes municipalities’ active role help: to make better use of resources, to prevent Cross, Japan’s International Cooperation Agency in preparedness and response to disasters. any duplicity of efforts and to streamline interac- (JICA), and the U.N. International Strategy for Disaster tions upon serving citizens in case of any threaten- Reduction (UNISDR). This action proposes an integral management of risk ing event. based on a plan to be implemented at local level. The Con- A city surrounded by wetlands, located on a coastline NETWORK OF CITIES tingency Plan will be designed within the framework of area and with potential risks for its infrastructure, Santa Fe. the recommendations provided by the Municipal Guide to does require its local authority to make the most Risks of Disasters in Panama and will include the actions to of the opportunities given by decentralization in INDICATORS order to guarantee the safety of its residents. This Percentage of progress in the making of TDRs for the take, the tasks to perform, the necessary resources and in- will be accomplished by means of robust support Plan. dications for the population to prevent any known threats. positioning the entity as a leader of local risk man- Percentage of progress in the making of the Plan. The goal is to have a local plan in accordance with the agement and as a governmental entity with wide Number of actions implemented and derived from the new guidelines given by the Sendai Framework for the Re- availability to endorse management conducted by the SINAPROC. Plan. duction of Risk of Disasters 2015-2030, with special em- A city with all the considerations and variables thus Percentage of progress in establishing a reporting phasis on awareness and training in prevention to be con- studied and applied in a single instrument will system of weather and climate conditions for ducted jointly with the relevant communities. boost its resilience to short-, medium- and long- citizens. term shocks. Photo: Ennio Arcia RESILIENCE QUALITIES Robust Inclusive Integrated

144 145 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.1.5. PROGRAM

Comprehensive Disaster Risk Reduction Program

STATUS TIMEFRAME PARTNERS Planning underway Medium term Social Management Division (MUPA), Urban Planning Division (MUPA), Citizenship Participation and Transparency Division (MUPA), Urban Planning CONTRIBUTION TO THE CITY’S RESILIENCE and Risk Management Division of the Municipality It will make it possible to initiate an intermunicipal of San Miguelito, Community Boards, National Civil coordination process to take actions to face these Protection System (SINAPROC), Technological threats posing a risk for a significant portion of the University of Panama (UTP), University of Panama citizenship. (Institute of Geosciences), Florida State University (Urban Risk Center), the U.N. International Strategy It will boost collaboration between local authorities for Disaster Reduction (UNISDR), Coordination for with the technical support of both their operating the Prevention of Natural Disasters in Central America divisions and international experiences. (CEPREDENAC). It will involve and train civilians in risk management.

A roadmap involving communities that will enable NETWORK OF CITIES the city to be better prepared for any risks related Los Angeles, Rio de Janeiro, Santiago de Chile. to climate change, as these recent events show an increase in the incidence of these impacts. INDICATORS Percentage of progress in pilot programs and making of the Action Plan. RESPONSIBLE AUTHORITY Higher Office (MUPA), Higher Office of the Number of meetings of the intermunicipal work round Municipality of San Miguelito, Resilience Division table. (MUPA), and Environmental Management Division Number of people participating in training and aware- (Sub-Division of Climate Change and Vulnerability ness programs on the risks of mudslides and other MUPA). vulnerabilities.

Credit: MUPA RESILIENCE QUALITIES Reflective Robust Inclusive As a result of the city’s rapid growth and lack of integrated duction (UNISDR), and the Rockefeller Foundation, this Integrated planning, families in the municipalities of Panama and San action seeks to maximize the role of communities and their Miguelito have been settling down in danger zones in the citizens in the development of resilience at the local level. last few decades. Every year, many of these communities Community work will not only focus on improving services undergo a significant number of drawbacks due to floods, and infrastructures locally, but also on strengthening some landslides and highly strong winds. So far, there is no ade- other ‘soft’ aspects targeted at empowered individuals and quate information available to understand the scale of these families in the lowest-income communities. This includes drawbacks, or any coordination scheme for the control of aspects such as: understanding of citizens’ rights and du- such shocks. ties, health and self-care and understanding of the setting. Guided by the best resilience practices in communi- ties promoted by the International Federation of the Red Within this context, the program will focus on three major Cross, the U.N. International Strategy for Disaster Re- components:

146 147 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

In Vietnam, the city of Da Nang is facing a substantial risk of INSPIRATION FROM typhoons and severe storms, Da Nang, Vietnam which typically cause strong winds and floods that damage communities, especially the homes of people living in poverty conditions. In its resilience strategy, Da Nang is pursuing a series of complementary initiatives that will address the needs of such neighborhoods. These will map and assess the exposure of houses to storms, with the aim to produce disaster adaptation plans for the highest-risk vicinities. In order to put the information to work, training courses will be developed in the community concerning the recommended construction materials and the best building practices for resistant houses. Afterwards, efforts will be made to guarantee that residents could make use of these practices by expanding the funding available for loans. Finally, Da Nang will promote the scope, awareness and education intended to augment the community’s resilience and social cohesion, especially in regard to climate change and risk mitigation in case of natural disasters.

Credit: MUPA Credit: Resilient Da Nang

1. Learning with the communities 2. Technical learning and governance 3. Action plans On the other hand, the municipalities of Panama and San Miguelito will, in collaboration with the participants of the Community workshops and campaigns to identify risks, A survey requested by the municipalities to synthesize The communities will make a Local Action Plan, so as 100 Resilient Cities network, provide support and moni- necessary capabilities and existing skills to offer a timely the existing technical knowledge required in respect to to spot shelters, escape routes, early alerting systems and toring aimed at implementing major works where foreign and effective action for risky situations. Community map- soil conditions, construction typologies, and forms of set- measures to reinforce community networks. The commu- funding and support are required as mitigation measures; ping methods will be used for residents to identify danger tlement that exacerbate the vulnerabilities of houses and nication of this plan will be a component of utmost impor- for instance: legalization processes for landholding or instal- zones and the factors contributing to determine them. infrastructure in the and San Miguelito. tance for the benefit citizens may reap from this initiative, lation of aqueducts. Likewise, we will explore which practices, assets, and in- Intermunicipal coordination board to define a roadmap so that they can adopt this learning in their daily life. Given the complexity of the work required and the frastructures actually make the community safer, and we designed to implement medium- and long-term actions, es- The Action Plan will also identify public spaces and scales of needs existing in informal neighborhoods within will try to identify the needs for information and training in pecially for any actions targeted at strengthening commu- priority infrastructures for the community and the neces- the city of Panama, the work will start by carrying out a ‘soft’ issues, such as legal aid, self-care in community health nity organizations and implementing risk mitigation works. sary supports for the formalization and consolidation of small number of pilot programs. Once these methods, re- and organization. the community in the medium term. The themes to be ex- quired alliances and community support processes have Technical support for an evaluation of the critical infra- plored and articulated will include, but not be limited to, been tested and streamlined, the program will be replicated structure present in the community, especially that which landholding, accesses to potable water and sewage systems. in a larger number of communities. can play a key role during emergencies, such as healthcare workstations, schools, kindergartens, and potable water and cleanup systems.

148 149 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.1.6. PROGRAM, PUBLIC POLICY

Multi-Department Technical Board of Works & Infrastructures

The planning system in Panama is characterized by partici- STATUS TIMEFRAME pation of various entities, both national and municipal. Given Planning underway Short term the diversity of these entities and the limited role of munic- ipalities, much of the insight into risks within the territory CONTRIBUTION TO THE CITY’S RESILIENCE generated locally is not integrated into the project develop- It will maximize both public resources and manage- ment know-how to reduce risk. ment and approval process. This action focuses on the creation and implementation It will provide the necessary tools to consider risks at a multidimensional level in a city whose infrastruc- of a municipal scheme providing technical contribution, and ture moves forward driven by rapid economic with a multidisciplinary perspective, to the development and development. evaluation of projects in District of Panama. A multi-sector It will prevent risks for projects, which will in turn group will be created and formalized by way of a Technical benefit both for the public sector and the field of Board, which will generate both contents and ideas for the business, for it guarantees sustainable investments. review of projects. The objective of this effort will be to min- The Municipality of Panama will undertake the duties concerned with risk management, thereby showing imize risks in the implementation of the project, by encour- technical capability by integrating new tools for risk aging good environmental design and collaboration practic- management. es, as well as creation of technical dialogue spaces with the private sector and organizations from the civil society. RESPONSIBLE AUTHORITY This process has already started with meetings between Higher Officer (MUPA). the various divisions to review specific projects in flood zones PARTNERS with the support of an online platform. In the future, the Works and Constructions Division (MUPA), Urban work of such board is expected to mean a proactive contri- Planning Division (MUPA), Resilience Division bution to participate in the development of relevant projects (MUPA), Environmental Management Division, Social Management Division (MUPA) and Legal and Justice for the city. By implementing a multidisciplinary team, ap- Division (MUPA). proval authority levels may also integrate information from organizations of the civil society, the private sector and aca- NETWORK OF CITIES Quito, Santiago de Chile and Thessaloniki. demic and/or scientific knowledge. Thus, the Municipality will not only play an approval role, but also take part in the INDICATORS improvement of the quality of the proposals made for the Number of construction permits evaluated by the city. This work will be supported by the SIG platform of the system. Municipality of Panama. Number of construction permits granted. The monitoring of evaluations will include real estate Number of Environmental Impact Assessments for and mining projects, as well as applications for landslides, review. blueprints and permits granted or sought to be granted, RESILIENCE QUALITIES and any other analysis requested, including environmental Reflective Robust Integrated impact assessments. Photo: Ennio Arcia

150 151 RESILIENT PANAMA

4.2 To create safety for residents upon understanding of their vulnerabilities.

To develop a resilient Panama City is not only a long building process, but also a democratic exercise, where citizens stop playing a walk-on part and become a protagonist in the design of their own capacity to resist, recover, and adapt to the threats posed by their own setting.

ENRIQUE VARGAS —SUB-DIRECTOR OF CLIMATE CHANGE AND VULNERABILITY, MUNICIPALITY OF PANAMA

Photo: MUPA

152 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.2.1. CAMPAIGN

Communication and Education Program for Disaster Risk Reduction

STATUS TIMEFRAME PARTNERS Proposal Medium term Culture and Education Division (MUPA), Citizenship Participation and Transparency Division (MUPA), Social Management Division (MUPA), Ministry of CONTRIBUTION TO THE CITY’S RESILIENCE Education (MEDUCA), National Civil Protection It will allow for an alignment of all the players with System (SINAPROC), United Nations (UNISRD), Urban respect to a common goal for the preparedness of Citizenship Network, CATHALAC, Red Cross, Japan’s the city in the face of risks. It will augment the joint International Cooperation Agency (JICA), ICLEI, and responsibility of civilians and authorities, with a the City of Knowledge. maximization of resources in case of any threat. INDICATORS It will strengthen awareness of risks since childhood, Percentage of progress in designing the in order to bolster and inform future leaders in risk communications and education plan. management. Percentage of progress in the implementation of the A city well informed about risks prepares its citizens communications and education plan. to be rapidly and effectively responsive to any threat. Number of people participating in awareness activities.

RESPONSIBLE AUTHORITY Number of schools and educational centers Resilience Division (MUPA), Communications Division incorporating risk management in their curricula. (MUPA) and Environmental Management Division (Sub-Division of Climate Change and Vulnerability RESILIENCE QUALITIES MUPA). Reflective Resourceful Inclusive NETWORK OF CITIES Photo: MUPA Bangkok, Santiago de Chile and Surat.

At this moment, the Local Government’s communication • school programs for an education integrated to the gen- of risk to civilians is carried out in an incidental manner. eral schooling curricula, Nevertheless, municipal actions to support civilians have an • annual campaign for the prevention of disasters, in coor- impact and are recognized by communities, this brings a dination with the authorities of the central government, valuable opportunity to connect municipal authorities with • online communications plan to boost community par- their residents, thus empowering the latter to be better pre- ticipation in risk management, pared for facing risks. • media campaign (TV, radio, social networks) for a safer city This action proposes establishing a risk communication • and articles on local magazines and newspapers. and education campaign enabling citizens to have a better understanding of the existing vulnerabilities and natural A coordination will be established with the educational threats. programs of academic entities, programs and networks of the City of Knowledge and other interinstitutional educa- The main components of this plan will include: tional programs, especially with NGOs.

154 155 RESILIENT PANAMA STRATEGY PILLARS 4 • COMPREHENSIVE RISK MANAGEMENT

ACTION 4.2.2. PROGRAM

Early Alert Program for the boroughs of the Metropolitan Area

This initiative proposes creating a community program in- STATUS TIMEFRAME PARTNERS tended to assure the effective functioning and use of early Planning underway Medium term Social Management Division (MUPA), Citizenship Participation and Transparency Division (MUPA), alert systems (SATs). SINAPROC has already started its National Civil Protection System (SINAPROC), efforts to implement early alert tools for floods in rivers lo- CONTRIBUTION TO THE CITY’S RESILIENCE Municipality of San Miguelito, Community Boards, cated to the east of the city, as is the case of Juan Diaz Riv- It will make it possible to initiate a joint intermunicipal Authority of the Panama Canal (ACP), University coordination process to take actions to face these of Panama (Institute of Geosciences), Florida State er, with training given to the nearby communities. These threats. University (Urban Risk Center), Technological should be extended to more zones in Panama City and San University, City of Knowledge, Urban Citizenship It will boost collaboration between local authorities Network, Wetlands International, CATHALAC and the Miguelito. with the technical support of both their operating Panamanian Red Cross. This action seeks to enhance the work undertaken by divisions and that derived from leveraging interna- tional experiences. SINAPROC, by establishing a local joint responsibility for NETWORK OF CITIES the early alert tools. The municipalities of Panama and San It will involve and train residents in risk management Medellin, Da Nang, Los Angeles, Ramallah and Dakar. Miguelito, in collaboration with the competent national in a direct and tangible manner. authorities, will cooperate to review, understand, improve, An Early Alert System involving communities that will INDICATORS enable the city to be better prepared for risks. Percentage of progress in development of the SAT and expand the alert systems to other areas of the city. community program. In line with the studies derived from SATs and per- It will augment joint responsibility levels between the government and residents for risk management. Number of level measuring systems installed in basins. formed earlier, we will include systems associated with It will also augment community empathy levels and Number of tools for the SATs applied in mudslide three key threats for Panama City: landslides, tsunamis, the sense of connectivity and cohesion among zones. and floods. citizens for everyone’s safety. Number of technology and surveillance tools priori- On a complementary basis, it is proposed that quarterly To know of risks in time will entail immediate actions tized for zones with a higher potential of seismic training courses be offered to the public at the municipal resulting in a maximization of resources and a re- risk. seats of Panama, San Miguelito and allied institutions. The duction of casualties and property damages. Number of tsunami alerting technology systems program schedule will be publicized on the websites of each installed in higher risk coastline zones. municipality. RESPONSIBLE AUTHORITY Higher Office (MUPA), Higher Office of the RESILIENCE QUALITIES Municipality of San Miguelito, Environmental Reflective Robust Integrated Management Division (Sub-Division of Climate Change and Vulnerability MUPA), Resilience Division (MUPA), and Risk Management Division of the Municipality of San Miguelito.

Photo: Ennio Arcia

156 157 5 Joint responsibility when building the city Empowering local management and its administration

Goals

5.1 To strengthen management by 5.2 To foster participation in order to build streamlining both processes and more co-responsible residents. resources.

Problem Statement

he public administration decentraliza- highlight the advance of projects, create greater trans- tion process (as established by Law No. parency and/or seek funding. Likewise, it is necessary T 66 of October 29, 2015, as amended by to elaborate a plan oriented towards a multi-year de- Law No. 37 of 2009), promotes local de- velopment where resources should be allocated and velopment, enhances transparency, transfers admin- evaluated in accordance with a plan. istrative and fiscal jurisdictional competencies, and A sustainable development leverages the impor- strengthens governance on the part of local institu- tance of community engagement. This entails un- tions. This change places Panama City at a moment derstanding of topics concerning human rights which of structural and budgetary transition. This means involve all citizens, regardless of their ethnic group of that the city has the chance to lay the foundations origin, sex, sexual orientation, nationality and social and establish processes potentially leading to a more condition (CEASPA, 2018c). In order to address empowered, efficient, organized, and result-driven these issues and be able to evaluate what may happen management. in the future, a proposal of social cohesion indicators The Municipality has the potential to grow as a has been made (CEASPA, 2018a). Facing these chal- governmental entity and conduct a modern public lenges, strengthening the linkage between the various administration, based on evidence and functioning levels of Central and Local Governments becomes transparently and accessible for everyone. This new the key to promoting positive shared management decentralization stage is going to make it possible to and build a city for everyone. create processes that will make a long-term mark on When inclusive management is boosted by effi- local administration with significant engagement of ciently leveraging resources, it thus strengthens its ca- the civil society. pacity to measure impacts and improvements of its in- The Municipality does not have a robust project stitutional capacity. Thus, the municipality becomes monitoring and evaluation system. Projects do not an organization of greater relevance and highlights include results or impact indicators, which makes it the need for more autonomous local governments. harder to perform a real assessment that may help us

159 RESILIENT PANAMA

5.1 To strengthen management by streamlining both processes and resources

It is of utmost importance that at management level, especially the municipal one, budgets prioritize resources for actions targeted at helping to mitigate and prevent any social or natural disaster. The vision lies in the fact that we should keep supporting both divisions and their own departments for the execution of risk management projects and the necessary resources to tell the whole community about the goals and achievements reached by said projects, as I consider that budget priority for resilience is an issue that goes beyond administrations, as it is a governance issue that deserved to be trusted by the various sectors of municipal management.

VERUSCHKA RAMOS —DIRECTOR OF STRATEGIC PLANNING AND BUDGET

160 RESILIENT PANAMA STRATEGY PILLARS 5 • SHARED MANAGEMENT: BUILDING THE CITY

ACTION 5.1.1. PROGRAM

STATUS TIMEFRAME How are we doing, In progress Medium term Panama? CONTRIBUTION TO THE CITY’S RESILIENCE This will enhance transparency by informing and engaging citizens in the issues having an impact on Since April 2018, the Municipality, jointly with the Na- the sustainable development of the city. tional Competitiveness Center (CNC), have coordinated It will provide data and strengthen decision-making a program attended by presidents of organizations from the processes in the city. business field and representatives of the labor and govern- It will enhance resources by complementing know- mental sectors. The program is aimed at fostering actions how and underpinning the capabilities of the insti- leading the entities to a better and greater production, tution in its various fields of work. within a suitable atmosphere for local and foreign invest- RESPONSIBLE AUTHORITY ments, thus promoting the population’s welfare. National Competitiveness Center (CNC). As a part of this program, a civic monitoring system is being developed, the goals of which seek to foster informed, PARTNERS responsible, and participative residents through monitoring Higher Office (MUPA), Citizenship Participation and Transparency Division (MUPA) and Resilience Division and evaluation of the city’s quality of life. Through the (MUPA). creation of a citizenship observatory, a monitoring and follow-up exercise through development indicators will be NETWORK OF CITIES Mexico City. conducted on a regular basis.

An evaluation of indicators by sectors is being proposed, INDICATORS with the respective making of opinion surveys, preparation Number of management reports made and shared. of advance and systemic follow-up reports on the current Number of opinion surveys conducted. condition of the city, including social cohesion and eq- Photo: MUPA uity indicators. The follow-up of indicators will promote RESILIENCE QUALITIES informed decisions and an accountability process from the Reflective Inclusive municipal government to the citizen.

162 163 RESILIENT PANAMA STRATEGY PILLARS 5 • SHARED MANAGEMENT: BUILDING THE CITY

ACTION 5.1.2. PROGRAM ACTION 5.1.3. PROGRAM

Bidding processes based on more and better opportunities Collecting 110% for Panama

Panama City wishes to obtain better solutions and options STATUS TIMEFRAME STATUS TIMEFRAME to the bidding processes it launches. The goal of this pro- In progress Medium term Planning underway Medium term gram consists of increasing the number of participating companies, regaining trust in the idea that the city is a good CONTRIBUTION TO THE CITY’S RESILIENCE CONTRIBUTION TO THE CITY’S RESILIENCE business partner, implementing innovation to achieve bet- This is a model that will strengthen municipal manage- A better management of revenues will increase the ter results, and making the whole process fair. ment by providing more opportunities to maximize availability of resources for the city. resources. We are working on a platform intended to help the mu- An increase in the city’s own revenues will reduce its It will boost better outlined and founded projects. dependence on other funding sources. nicipal government officials to offer better services, by con- necting them to solutions, projects, departments, and cities It will promote a wider and more diverse variety of Due to the increase in funds available for investing, choices for projects to be executed with greater the Municipality will be capable of improving the across the world. speed and effectiveness in the case of the urgen- infrastructure of highways, education, healthcare In this new model, the bidding process starts with a cies facing the city in the execution of works. and recreational facilities. declaration of opportunity, which generates an overview of any given project to be shared with the working teams. RESPONSIBLE AUTHORITY RESPONSIBLE AUTHORITY Then, we seek to enhance the engagement of new groups Secretary General’s Office (Sub-Division of Public Municipal Treasury (MUPA). Procurement, MUPA), Environmental Management Photo: MUPA of supplies and thus multiply the results of the bidding Division (Zero Trash Program, MUPA), Resilience PARTNERS process. The municipal Zero Trash Program, jointly with Division (MUPA). Strategic and Budget Planning Division the Sub-Division of Public Procurement, are working on The goal of this initiative is to create and underpin (MUPA), Community Services Division (MUPA), a pilot project of innovative bidding processes with the en- PARTNERS incentives for a better tax collection. This action would Communications Division (MUPA), Citizenship Higher Office (North Park Office, MUPA), and Participation and Transparency Division (MUPA), dorsement of CityMart, which supports the making of the Citymart. have three components: Legal and Justice Division (MUPA), Works and project and the bidding process for the solid waste disposal Constructions Division (MUPA), and Urban Planning program. We have made the proposal of the project based INDICATORS - Creation of the “110% for Panama” communication cam- Division (MUPA). Percentage of progress in the pilot bidding process. on an initial problem, a transparent communication strate- paign, promoting the idea that public revenues are useful INDICATORS Number of interested suppliers. gy in the bidding process, and methodologies to maximize for public welfare and encouraging taxpayers to pay at will Number of cases of tax delinquency. Number of new projects joining the bidding system suppliers’ bids for this type of service. an additional 10% over their tax assessments. Number of communication campaigns implemented. based on opportunities. Percentage of increase in tax collection. - Implementation of an accountability and transparency RESILIENCE QUALITIES system to connect the taxes paid by people with improve- Reflective Integrated RESILIENCE QUALITIES ments in services. Integrated

- Generation of a comparison of tax payment and collec- tion data where these are triangulated with other means to spot cases of delinquency and thus being able to trace and investigate any reasons for such arrears.

164 165 RESILIENT PANAMA STRATEGY PILLARS 5 • SHARED MANAGEMENT: BUILDING THE CITY

ACTION 5.1.4. PROGRAM

Strengthening our capabilities to implement a better management

This initiative seeks to bolster municipal careers, underpin STATUS TIMEFRAME RESPONSIBLE AUTHORITY the knowledge and awareness of municipal and decentral- Proposal Medium term Strategic and Budget Planning Division (MUPA), Secretary General’s Office (Sub-Division of Public ization laws and requirements, while improving administra- Procurement, MUPA) and Municipal Treasury (MUPA), tive processes, with the aim to empower the Municipality CONTRIBUTION TO THE CITY’S RESILIENCE and Strategic and Budget Planning Division (MUPA). to start up new office duties. This action consists of three Thus, we will manage to streamline processes, PARTNERS components: prioritize needs and approaches for sustainable investments. Human Resources Division (MUPA), Resilience Division (MUPA). Both a planning and budget based on results and - To develop tools and drafting of handbooks of processes evidence will be developed with a holistic vision INDICATORS and procedures for the Procurement, Acquisition, Strate- with the aim to make a better implementation and Number and quality of process handbooks made. gic Planning and Budget Divisions. monitoring of the plans. Accomplishing the moni- toring and follow-up of projects and programs will Number of officials trained in processes. result in a leadership of trust in the actions being Percentage of progress in the making of theme mod- - To provide knowledge and develop skills for the perfor- implemented. ules for training courses. mance of specific positions, with new tools that will help There will be a reduction of administrative timeframes, Number of officials trained. the personnel to use them, thus promoting the continu- thus enhancing accountability processes and creat- ance of administrations, through the establishment of ing more transparency. Percentage of progress in the making of a modernized multi-year budget. expected timeframes for preparedness, strengthening of It will keep public officials updated with technolog- socialization processes, execution of processes and stan- ical advances, thus boosting their initiative and creativity. RESILIENCE QUALITIES dardization of the presentation of project profiles. It will underpin municipal careers and allow for the Reflective Flexible Integrated continuity of both administrative and technical staff - Based on the tools and training, one of the priorities in case of political changes. Having well-trained would be the creation of a multi-year result-based budget officials makes it possible to streamline and mod- establishing goals with indicators of results and impacts. ernize processes, which then influences efficiency when executing multidisciplinary projects. This will be accompanied by a program of performance incentives based on the achievement of the goals of the

Municipal Plan. Photo: MUPA

166 167 RESILIENT PANAMA STRATEGY PILLARS 5 • SHARED MANAGEMENT: BUILDING THE CITY

ACTION 5.1.5. PLAN ACTION 5.1.6. PUBLIC POLICY

STATUS TIMEFRAME STATUS TIMEFRAME Plan for the joint In progress Medium term Municipal Property Proposal Medium term management of Registry Office CONTRIBUTION TO THE CITY’S RESILIENCE CONTRIBUTION TO THE CITY’S RESILIENCE projects with the The generation of opportunities for projects regarding It will drive an administrative streamlining with a the resilience issue will be maximized. unified and updated cartography that will make it possible to measure the incidence of the munici- Central Government There will be an opportunity for a prioritization of pality in the development of social actions and the impact projects to improve risk management. appraisal of the value of soil. Processes will be facilitated by means of a roadmap It will provide capability to diversify the types of taxes The Municipality of Panama is taking part in a decentral- established in order to cater for the specific needs based on each zone and type of population. ization process requiring coordination and communication of the population and their continuity over time. This procedure will not only help to bolster processes An adequate mapping of the properties in the city will with the Central Government. It is key to keep open and and fund management by the Central Government allow us to target city planning so as to guarantee fluent communication to avoid the lack of coordination, for with the Municipality in relation to the decentraliza- the population’s safety. tion process, but it may also lay the foundations of this impacts the efficacy and efficiency in the making and A department that will provide supplies to different how to define joint work when it comes to programs implementation of public policies. Coordination and com- divisions within the municipality and will even executed by entities of the Central Government or enable the institution to project its own planning of munication are based on the need to present projects by the external bodies that administer or execute financial municipal infrastructure. local Government, including Community Boards, to vari- resources with the endorsement and monitoring of ous governmental agencies. At present, there is a liaison at the Central or Local Government. RESPONSIBLE AUTHORITY municipal level for decentralization issues, but there is no Works and Constructions Division (MUPA) and Urban RESPONSIBLE AUTHORITY formal structure of coordination for these schemes. Planning Division (MUPA). Higher Officer (MUPA) and Executive Secretariat (MUPA). In order to complete the various decentralization phases Photo: Steven Paton PARTNERS and be able to establish better synergies to undertake duties PARTNERS Environmental Management Division (MUPA), Secretary General’s Office (MUPA), Strategic and at the local level, a program and project-based management The goal is to consolidate the geo-referenced information Resilience Division (MUPA), National Civil Protection Budget Planning Division (MUPA), Human Resources will be established with the Central Government, as well as about each property, storm-water infrastructure, and other System (SINAPROC), Ministry of Environment (Mi Division (MUPA), Citizenship Participation Division Ambiente), Institute of Geosciences, National Lands interinstitutional planning processes. This initiative proposes: (MUPA), Resilience Division (MUPA), National city assets, in order to know the location thereof and be Authority (ANATI), Ministry of Housing (MIVIOT). Secretariat of Decentralization and Institutions of the able to foresee their development chances and the feasibili- Central Government. - A procedure to create a specific department for interin- ty to build in those areas. NETWORK OF CITIES stitutional planning processes, encompassing an adequate The Municipal Property Registry Office will be con- Santiago de Chile, Santa Fe. INDICATORS organizational chart, duties, and direct needs to proceed Percentage of progress in the TDRs for the creation of nected to a platform of the Geographic Information Sys- INDICATORS a new department. with its operation. tem (SIG), which will make it possible to generate a risk Office created and running with a staff already estab- Percentage of progress in the drafting of the joint factbook or vulnerable areas and updated documents about lished. management guide between the Central and Local - A guide to technical and administrative processes for the the various buildings within the municipality. Number of properties and premises recorded on Governments with an analysis of present instru- making and planning of projects, maximization of resourc- This office will facilitate urban planning and risk man- cadastral registers. ments and gaps. es and bidding processes, among others. agement, while integrating a joint work with other divisions Number of SIG maps made with the updating derived Number of projects jointly made and executed by the related to the social and environmental setting. This office from the Property Registry. Local Government with the accompaniment of the Central Government and vice versa. will work in coordination with the Central Government and

Number of projects made by the Local Government other key institutions in dealing with information making it with funding provided by the authorities of the possible to demarcate and geo-reference both premises and Central Government. danger zones.

RESILIENCE QUALITIES Reflective Integrated

168 169 RESILIENT PANAMA

ACTION 5.1.7. PUBLIC POLICY

STATUS TIMEFRAME 5.2 To foster participation in order Planning underway Medium term United Boroughs to build more co-responsible CONTRIBUTION TO THE CITY’S RESILIENCE It will promote the strengthening of alliances for a better quality of life for citizens. citizens It will foster the knowledge of the current situation at a macro level and the measurement of changes after the implementation of intermunicipal projects. It will guarantee the transfer of know-how and a resil- Citizenship participation is a key factor for the making of a resilience ience vision for both the interconnected municipali- ties and the rest of boroughs nationwide. strategy, since it is the essence and material reality of the populations

RESPONSIBLE AUTHORITY and communities living within them, so it is in their own people. Higher Office (MUPA) and Resilience Division (MUPA). The engagement dimension in public policymaking extending beyond PARTNERS Urban Planning Division (MUPA), Social Management administrations is of utmost importance through democratic, open, Division (MUPA), Environmental Management Division (MUPA), Municipality of San Miguelito, Municipality accessible, and adaptable methodologies so as to achieve a genuine joint of Arraijan, Municipality of Chorrera, Municipality of Colon, Association of Boroughs of Panama (AMUPA), social responsibility and the strengthening of social fabric, in search for National Decentralization Secretariat, Traffic and societies that can proactively develop innovation capabilities and fair, Ground Transportation Authority (ATTT), Ministry Photo: MUPA of Environment (Mi Ambiente), Authority of Panama integral and sustainable solutions. Canal (ACP), Chamber of Commerce, National Associ- This action focuses on defining opportunities to increase ation of Business Executives (APEDE), Sumarse (Join) the resilience of the Metropolitan Area of Panama by cre- Business Network SUMARSE, Panama Metro, MiBus. ating a medium- and long-term roadmap that will facilitate LIZVEIKA LEZCANO NETWORK OF CITIES the resolution of priority problems affecting the boroughs Mexico City. —DIRECTOR OF CITIZENSHIP PARTICIPATION AND TRANSPARENCY of the Metropolitan Area. These may include the mobility issue, water management, ecosystems and natural resourc- INDICATORS Number of collaboration agreements between es, among others. These are shared topics that consider municipalities. biophysical connectivity between the basins associated Percentage of execution of the annual work plans. with the Panama Canal and social connectivity due to the Number of municipalities creating offices with a large number of citizens normally commuting between resilience approach. these cities. The Resilience Division of the MUPA will serve as an RESILIENCE QUALITIES advisor for the other boroughs so as to share the lessons Integrated learned from the construction of a Resilience Strategy, as well as to promote the creation of resilience offices in the rest of the municipalities and their respective instruments.

170 RESILIENT PANAMA STRATEGY PILLARS 5 • SHARED MANAGEMENT: BUILDING THE CITY

ACTION 5.2.1. PROGRAM ACTION 5.2.2. PLAN

STATUS TIMEFRAME STATUS TIMEFRAME Alliance for resident In progress Medium term Let’s watch out for In progress Medium term

CONTRIBUTION TO THE CITY’S RESILIENCE security CONTRIBUTION TO THE CITY’S RESILIENCE human rights It will promote community integration and participation. It will strengthen residents’ security in the most vulner- able communities and facilitate better integration of It will foster the exchange of know-how and learning the community whilst boosting social resilience. from different perspectives in order to create a The Municipality of Panama is making progress in human more democratic and inclusive city. It will develop leadership capacity among individuals. rights issues by endorsing and sponsoring events where It will foster public communication of the situation It will develop dynamics for the promotion of human there is strong promotion of respect for the different groups and most pressing needs of the discriminated sec- rights, higher percentages of access to justice, tors, for the creation of public policies intended to better service and follow-up for victims. making up its population. respond to these issues. It will promote creation of regulations for enhance- This initiative seeks to implement a Citizenship Secu- ment actions and eradication of violence. rity Plan that will boost efforts to communicate and raise RESPONSIBLE AUTHORITY It will increase joint responsibility for a safer and more awareness about human rights and equality. All the sectors Municipal Security Division (MUPA), (Sub-Division resilient city. and communities will be taken into account, while foster- of Citizenship Security, CEDIM MUPA), Culture and ing security and peaceful coexistence within the district, Education Division (MUPA). RESPONSIBLE AUTHORITY regardless of race, sexual orientation, physical condition, Higher Office (MUPA) and Municipal Security Division PARTNERS gender or nationality. (MUPA). Resilience Division (MUPA), Communications Division Photo: MUPA The Plan focuses on strengthening the compliance of (MUPA), Citizenship Participation (MUPA), Social Man- PARTNERS the Mayor’s Decree Number 28 of 2015 whereby measures agement Division (MUPA), Ombudsman’s Office, Minis- try of Education (MEDUCA), Ministry of Social Develop- This proposes enhancing the programs executed with the Citizenship Participation and Transparency Division to prevent discrimination in the District of Panama have (MUPA), Resilience Division (MUPA), Ministry of ment (MIDES), National Secretariat for the Development Municipal Security Division and the Sub-Division of Cit- Public Security, Public Prosecution Service, National been adopted. of Afro-Panamanians (SENADAP), Vice Ministry of izenship Security so as to coordinate joint actions taking Police, Watchful Neighbors Program, Association of The Citizenship Security Plan covers gender equality Indigenous Affairs, Pro-Equality Alliance, National Wom- into account various groups of citizens within the different Criminology and Victimology of Panama, Pro-Equality issues with training courses, in alliance with the Culture en’s Institute (INAMU), National Secretariat for Disabled People (SENADIS), IDB, PNUD, U.N. High Commission- security schemes, by developing actions intended to en- Alliance, National Women’s Institute (INAMU), Urban and Education Division and the development of programs Citizenship Network of Panama, National Migration er’s Office for Human Rights (OACNUDH), Panamanian courage leadership and development of individuals’ capa- Service, Panamanian Center of Studies and Human such as the Safe Women one. Synergies will be established Center of Studies and Human Services (CEASPA). bilities, both for public officials and the civil society. Services (CEASPA). with other programs, such as the so-called Together for a Participatory workshops discussing the protection and Community Free of Violence of the United Nations (U.N. NETWORK OF CITIES NETWORK OF CITIES Medellin. equality of all persons, both nationals and foreigners, will Citizenship Security Program - SECOPA). Medellin. be implemented. The creation of the Plan includes coordination of work- INDICATORS The point is to update and provide the programs cur- INDICATORS shops, seminars, conferences, forums, discussions, and Percentage of progress in the making of the Municipal Action Plan for Human Rights. rently implemented with new ideas concerning equality, Percentage of communities involved in surveillance films to promote human rights. programs in neighborhoods. cultural coexistence between all the citizens residing in the Also, the need to create local public policies will be Advance in the implementation of the Action Plan. district and a no violence approach. The strengthening of Number of surveillance devices and systems installed. evaluated, as well as a series of guidelines to foster non-dis- Number of training courses and seminars. monitoring and surveillance systems in zones identified as Number of new initiatives with exclusive methodolo- crimination of the most vulnerable and segregated groups Number of events and activities promoting equality gies that foster peace and a no violence approach. highly prone to violence will be coordinated with agencies in the city. and non-discrimination. of the Central Government and civil society. Community Number of incidents resolved. Number of municipal public policies derived from action for human rights and no discrimination. networks will be taken into account for surveillance around Number of successful cases of collaboration between the central government, local government and the Number of publications and audiovisual material produced. neighborhoods and technological resources of the Munici- civilians. pal Surveillance System will be used. RESILIENCE QUALITIES RESILIENCE QUALITIES Reflective Inclusive Integrated Reflective Inclusive Integrated

172 173 This is the first resilience strategy for District of Panama, in collaboration with the District of San Miguelito. This document helps to consolidate the proposal of a series of projects and initiatives that will enable us to focus on priorities and actions intended to achieve the change required for the city. Efforts will be made to undertake these responsibilities with leadership, thereby consolidating economic resources, overcoming political barriers and making full use of its new competences. This work will not be possible without the participation of the various sectors that have already consolidated a close collaboration with the local authority.

The vision for this strategy is that it should serve as an instrument FOLLOWING STEPS to overcome the barriers posed by any change of governmental administration in the next ten years to come. A follow-up of the implementation of each and every one of these actions will be conducted. As a whole, these actions show that this city, in spite of being located in danger zones, can develop in a sustainable fashion, while preserving its natural resources and leveraging the goods and services that the ecosystems around it provide us.

Given this historic opportunity to decide on the ordering of our territory, the Resilience Strategy proposes a series of first steps to take for a change of paradigm in the way we are building our city. This will in turn produce a knock-on effect on the rest of the cities across our country in favor of a resilient nation.

175 RESILIENT PANAMA

ABBREVIATIONS AND ACRONYMS

100RC CEASPA DGS MINSA SENADIS Engineers and Architects UMIP for Disaster Reduction The 100 Resilient Cities Panamanian Center Social Management Ministry of Health National Secretariat of STRI International Maritime UP AAUD of Studies and Human Division - MUPA MITRADEL Disabled People Smithsonian Institute of University of Panama University of Panama Urban and Household Services DO&C Ministry of Labor SIG Tropical Investigations UNESCO UTP Cleaning Authority of CEDIM Works and Constructions MIVIOT Geographic Integration Sumarse RSE United Nations Education, Technological University of Panama Center for Division - MUPA Ministry of Housing System Sumarse (Join) - Corporate Science and Culture Panama Entrepreneurship and Organization ACP DPU MOP SINAPROC Social Responsibility WETLANDS Integral Development of Authority of the Panama Urban Planning Division - Ministry of Public Works National Civil Protection Wetlands International Canal Women MUPA System MP UICN Panama CEPREDENAC ACNUR EY Public Prosecution Service SPIA International Union for the UNISDR WRI U.N.’s High Commissioner Coordination for the Ernst & Young Panamanian Society of Conservation of Nature U.N. International Strategy World Resource Institute Prevention of Natural MUPA for Refugees FCDS Disasters in Central Municipality/Borough/City ANATI City of Knowledge America Hall of Panama National Lands Authority Foundation CI NYC ANCON FSU International Conservation New York City National Association for the Florida State University CIAM OACNUDH Conservation of Nature ICLEI Center of Environmental U.N. High Commissioner’s APEDE Local Governments for Incidence Office for Human Rights National Association of Sustainability CIMUF OCT Business Executives IDAAN International Coalition of Optical Character APLAFA National Aqueducts and Women and Families Recognition Panamanian Association for Sewage Systems Institute CINAMU OIM Family Planning IDOM Comprehensive Service International Organization ARAP Professional Services Center for Women for Migrations Water Resources Authority Company CMDO NGOs ASEP INAC Committee of the Month of Non-Governmental Public Utility Services National Institute of Culture Oceans Organizations Authority INADEH CNC ORU ATP National Institute of National Competitiveness Urban Resilience Office Tourism Authority Professional Training for Center PNUD ATTT Human Development CNHP U.N. Development Program Traffic and Ground INAMU National Committee of POT Transportation Authority National Women’s Institute Wetlands of Panama Land Use Plan CBA INDE COBIOPA PROMAR Cost-Benefit Analysis National Institute of Sports National Professional Foundation for the IDB Association of Biologists of IPDH Protection of the Sea Interamerican Development Pro-Human Rights Panama RAMSAR CREHO Bank Independent Individuals CONADES Regional Center Ramsar for WB National Council for JICA Training and Research on World Bank Sustainable Development Japan’s International Wetlands in the Western Cooperation Agency CAF CONAGUA Hemisphere Latin American National Water Council MCCP RCUP Development Bank Cyclists’ Movement of CONARE Urban Citizenship Network Panama CAPAC Council of University of Panama Panamanian Chamber of Presidents MDA SAP Construction Ministry of Agricultural and CONEP Audubon Society of Livestock Development CATHALAC National Council of Private Panama Humid Tropical Water Companies MEDUCA SECOPA Center for Latin America Ministry of Education CREHO U.N. Citizenship Security and the Caribbean Regional Center for the MEF Program CCIP Western Hemisphere Ministry of Economy and SENACYT Chamber of Commerce and Finance CSS National Secretariat of Industries and Agriculture Social Security Fund MI AMBIENTE Science, Technology and CDMX Ministry of Environment Innovation DGA Mexico City Environmental MIDES SENADAP Management Division - Ministry of Social National Secretariat for MUPA Development the Development of Afro- Panamanians

176 177 RESILIENT PANAMA

ACKNOWLEDGEMENTS

Panama City wishes to thank all the following MUNICIPALITY OF PANAMA tamaria, Didio Chávez, Diannett Chavez, Julio (Harold Robinson, Jessica Young, Isis Pinto, persons, institutions, and organizations who Pon), Community Services Division (Mariela José García). have somehow made their contribution Commission 500 years of the Foundation of Villa, Nini Moreno, Luz De La Espriella, Fidelina for this document to come true: Panama City (Mónica Mora, Jonathan Hernán- Chavez, Mitzi Castillo, Luciana de la Rosa, Jose- dez), Higher Office (Yivett Fernandez, Magali line Vivas, Raúl Sanchez, Elvia Ramos, Solangel ORGANIZATIONS OF THE CIVIL SOCIETY Jurado, Ada Vergara, Alida Spadafora, Daniel Quintero, Jordán Barrios, Rosalio Arrocha, Car- Pro Equality Alliance / Human Rights Net- TECHNICAL RESILIENCE BOARD A. Nikolaev J., Luis Carlos Cleghorn, Adrian los Nuñez, Edna , Danilka McCarthy), work (Celia Moreno), Alliance for Conserva- Escobar, Miguel Garcia de Paredes, Hellen Cue- Internal Services (Carmen Cotes, Alex Neu- tion and Development-ACD (Osvaldo Jordán), Internal Level, members of the Municipality vas, Jeanne Asyn, Jairo Moran, Margarita Perez, man, Irvin Herrera, Dimitri Espino, Ruben Ma- ANCON (Rita Spadafora), Panamanian Asso- of Panama: Mayor (José I. Blandon), Vice May- Thais Carrera, Cinthia De Franco, Víctor Sauce- tos, Wilfredo Mcfarlane, Fermín Lucero, Albino ciation for Family Planning - APLAFA (Paul or (Raisa Banfield), Urban Planning Division do), Communications and Public Relations Góndola), Empresa Metropolitana de Turis- A. Córdoba), Association for the Advoca- (Manuel Trute), Environmental Management Division (Marisol Velazco, Edgar Figueroa, mo, S.A. (Efraín Tapage), International Coop- cy of Disabled People (Xiomara de Ortega), Division (Ennio Arcia), Municipality/Bor- Kimberly Palmer, Emir Lebedev, Cristobal Perez, eration Office (Magda Pinilla, Elida Moreno), Criminology and Victimology Association ough/City Hall of Panama (MUPA) (Antonio Jonathan Hooker, Yerasmi Fuentes, Jaime Leonel Government Accountability and Audit Office of Panama (Jonathan Riggs), Association of Docabo), Social Management Division (Isaac Díaz), Culture and Citizenship Education Di- (Deyanira Bravo de Barrios, Miguel García), Sec- Immigrants – Colombia is a Passion (Darío Atencio), Strategic Planning and Budget (Ver- vision (Claudia Cordero, M. Alonso Ramos, Sara retary General’s Office (Guillermo Bermudez, Fernando Tobar), Panamanian Association of uschka Ramos), Citizenship Participation and Montenegro), Environmental Management Di- Betty Galvez, Yodalis Puello, Javier Almengor, Patients and Relatives with Blood Conditions Transparency Division (Lizveyka Lezcano), vision (Enrique Vargas, Wilfredo Delgado, Kath- Richie Goldori, Oris Salazar, Jeykiury Mc Don- (Arianna Urieta, Faustina Díaz), Treacher Col- Community Services Division (Giovana Del- erine Mazulis, Viviana Rodriguez, Nando Urriola, ald, Eric Díaz), Municipal Treasury (Eliades lins Syndrome Association of Panama/Alan- gado), Citizenship Culture and Education Di- Raúl Sánchez, José Aviles, Juan Peñaranda, Erick Serrano, Florita Ciniglio, Jorge Castillero, Heidy na Muñoz (Diana Gittens), Panamanian Cen- vision (Alexandra Schjelderup), Municipal Se- Guerrero, Lynn Carranza), Social Management Simiti). ter of Studies and Human Services-CEASPA curity Division (Aivin Singh), President of the Division (Candy Chen, Mitzi Castillo, Joselin Vi- (Daniel Holness, Francisco Herrera), Center of City Council (Zaidi Quintero). vas, Elaine Olaya, Cecilia Mejia, Marisol Rivas Environmental Incidence -CIAM (Sonia Mon- V, Haydee Gómez, Dalila Batista), Legal and INTERNATIONAL ORGANIZATIONS tenegro, Isaías Ramos, Joana Rames), National Extended level: Municipality of San Migueli- Justice Division (Agapito Gonzalez), Works Latin American Development Bank - CAF Water Council-CONAGUA (Jennifer Salazar), to (Mayor Gerald Cumberbatch), National Civil and Construction Division (MUPA) (Carla Sal- (Harvey Scorcia, Helena Castañeda, Nara International Conservation – Panama Office Protection System of the Republic of Panama vatierra, Michelle del Carmen Palomo A.), Cit- Vargas), Interamerican Development Bank (Ricardo Montenegro), International Coalition (José Donderis), the Authority of the Panama izenship Participation and Transparency Di- (Antonio Goncalves, Patricio Zambrano of Women and Families – CIMUF (Samirah Canal (Jorge Luis Quijano), Public Utility Ser- vision (Luis Laguna, Carla Garcia), Strategic Barragán, Ana Victoria de Obaldía, Nerys Armengol), Coordinator of the Black Ethnicity vices Authority (Roberto Meana), Urban and Planning and Budget Division(Juan Pacheco), Gaitán), World Bank (Abel Caamaño, Horacio (Eric Moses), Committee of Advocacy for the Household Cleaning Authority (Eladio Guar- Urban Planning Division(Giselle Araúz Haydee Terraza), Humid Tropical Water Center for Juan Diaz Basin (Ricardo Mejía), Red Cross dia), Council of University Presidents (Bruno Osorio, Amarilis Ulloa Espino, Rolando Mendo- Latin America and the Caribbean-CATHALAC Panama (José Baquero), City of Knowledge Garisto), Citizenship Network (Maria Chávez za, María Lombardo, Lourdes Amores), Human (Freddy Picado), International Red Cross Foundation (Jorge Arosemena, Guillermo Cas- V.), Panamanian Chamber of Construction Resources Division (Mitzy Tello, Leslie Re- (Krystell Santa María, Jan Gelfand), Regional tro, Sandy P. Mosquera, Alessa Stablile, Myriam (Héctor Ortega), Chamber of Commerce, In- bolledo, Alberto Henríquez, Ariel Sanchez, Jair Center for the Western Hemisphere-CREHO Calvo), Natura Foundation (Rosa Montañez, dustry and Agriculture (Gabriel Barletta). Salas, Fermina Solís, Itzenith D. Quijada Pinilla, (Rebeca Magaña), Smithsonian Institute Ricardo Mazzocchi), Pro-Human Rights Inde- Yamilka Guevara, Wendy Yap), Resilience Divi- of Tropical Investigations - STRI (Juan pendent Individuals – IPDH (Naschelly Beitia) sion (Arturo Dominici Arosemena, Celisa Lopez, L. Maté, Matthew Larsen), International Cyclists’ Movement on the Streets of Pana- Plashka Meade Webster), Citizenship Security Organization for Migrations (Santiago ma (Juventino Quiroz), Panamanglar (Lourdes Division (Aivin Singh, Lorena Gomez, José San- Paz), U.N. Development Program-PNUD Lozano) Metropolitan Natural Park (Dionora

178 179 RESILIENT PANAMA

Viquez, Elva Denvers) Foundation for the Pro- UNIVERSITIES el Sansón G., Eurípides Amaya, David Ramos), COMMUNITY LEADERS OF THE tection of the Sea PROMAR (Ricardo Wong), Council of University Presidents (Bruno Garis- (Tomás Fernández, FOLLOWING NEIGHBORHOODS Foundation for Labor (Miguel Del Cid), Audu- to), Florida State University (Alexander Coles), Emilio Messina, Mónica Cordovez), Traffic Alcalde Díaz, Ernesto Córdoba, Ancón (Kuna bon Society of Panamá (Rosabel Miró R.), ISAE University (Celis Oses), School for Inter- and Ground Transportation Authority (Julio Nega), Pacora, Pedregal, Tocumen. Panamanian Society of Engineers and Archi- national Training (Alison Dagang, Rhaydem- González, Umar Farak, Carmen Mudarra, Enith tects-SPIA (María Lombardo), Wetlands In- werdt Kepler Perez Cuello), American Univer- González, Osvaldo Peñalver), Maritime Author- ternational Panama (Mayté Gonzalez), Jenifer sity (Alvaro Hernández, Rubén Sousa, Vanesa ity of Panama (Jorge Barakat Pitty, José Miguel STRATEGY WORKING TEAM Navarro. Ortega M.), University of Panama-Institute of Rovira, Tomás Duncan), Corporation Mi Bus Geosciences (Ricardo Bolaños, Néstor Luque (Ignasi Armengol, Luis Pinzón), Ombudsman’s Prepared by: Arturo Dominici Arosemena, Abril Méndez, Celeste de Hernández ), Univer- Office (Alfredo Castillero Hoyos, Giancarlo Ba- Resilience Director for the Municipality of Pana- TRAINEES sity of Panama-Institute of Criminology (Sev- tista), National Institute of Professional Train- ma (MUPA); Plashka Meade Webster, Resilience Adrian Escobar (Technological University of erino Mejía), University of Santander (Leidy ing for Human Development- INADEH (Sam- Coordination and Planning, Resilience Division Panama), Danilo Tejada (Technological Institute Perez R., Vivian A. Montes), Universidad Lati- uel Rivera) The Panama Metro (Roberto Roy, (MUPA); Celisa López Martínez, Technical-Ad- of Monterrey), Olivia Staples (Hampton Uni- na (Belkis Lara), International Maritime Uni- Ana L. Morais, Álvaro Uribe), National Aque- ministrative Coordination Office, Resilience Di- versity), Selwin Wainaina (University of Notre versity of Panama (Humberto Garcés, Leyri- ducts and Sewage Systems Institute- IDAAN vision (MUPA). Dame). beth Rosas, Víctor Hernández), Technological (Juan Felipe Iglesias, Abilio Pitti, Edgardo Pérez, University of Panama (Gisela Barahona, Danilo Roberto Arosemena), Ministry of Environ- Edition and Review: Adriana Chavez of Toro). ment (Emilio Sempris, María Bajura), Ministry the Urban Resilience Office (ORU), Braulio E PRIVATE SECTOR of Economy and Finance- MEF (Luis Batis- Morera, Emilia Carrera, Hector Cordero, Helena Panamanian Association of Business Exec- ta) Ministry of Education (Marcela Paredes, Monteiro, Maria Ortiz, Haydee Osorio. utives (Héctor Cotes, Eduardo Reyes, Natalia 100 RESILIENT CITIES Marisa de Talavera, Carmen Forero, Adilia de Young), Chamber of Commerce, Industries Michael Berkowitz, Andrew Salkin, Eugene Pérez), Ministry of Government (Carlos Rubio, Contributions: Raisa Banfield, Vice Mayor and Agriculture (Gabriel Barletta, Jaime de Zapata, Helena Monteiro, Isabel Beltran, Roberto Lino), Ministry of Public Works MOP (MUPA); Giselle Araúz, specialist in Geomat- Saint Malo, Michell Espinosa, Manuel Ferreira), Braulio Eduardo Morera, Emilia Carrera, Héctor (Ramón L. Arosemena Crespo, David E. Vergara ics-Urban Planning Division (MUPA). Trainees: Panamanian Chamber of Construction (Julio Cordero, Brett Mons, María Ortiz, Alex Quinto, L.), Ministry of Health (Miguel Mayo Di Bello, Olivia Staples (Hampton University), Selwin A. Aizprúa G., Iván de Icaza, Guillermo Quijano, Alvaro Soldevila, Tessa Lee, Ana Peñalosa, Tom Átala S. Milord, Amaya Barahona), Ministry of Wainaina (University of Notre Dame). Julio Aizpurua, Ivone de Leon), GAEA Attor- Lindsay, Mauricio Magana, Michael Schwebel. Labor- MITRADEL (Hernando Rodríguez, An- neys-at-Law (Harley J. Mitchell, Bethzaida E. drés Salazar), Executive Secretariat for Decen- Carranza Morán), SUMARSE (Zoraida Chong), tralization (Ericka Gonzalez, Raquel Medrano), Sultán El Filme S.A. (Enrique Castro Ríos). CONSULTANTS National Secretariat for the Development of Arup (Abigail Rolón, Pablo Lazo, Pablo Posada, Afro-Panamanians (Urenna Best Gayle, Ariel Maria Paula Rincón), CEASPA (José Lasso, Flor- Hamilton, Egbert Wetherborne), National Mi- PARTNERS OF THE PLATFORM encio Díaz), Earth Economics (Matt Chadsey, gration Service (Javier Carrillo, Jennifer Sandi- CSA Group (Braulio Mejía, Hans Figueroa, Juan Maya Kocian Corrine Armistead), ORU (Adriana no, Ricardo A. Rios), National Civil Protection de Dios Henríquez, Emilio Ángeles, Joann Vega, Chávez y Elena Tudela). System SINAPROC (Yira Campos). María Lee, Juana Perez, Jeremías Acevedo, Or- NATIONAL GOVERNMENT LOCAL GOVERNMENTS lando Rivera, Jesús Otero), Ernest & Young LLP International Tocumen Airport (Carlos Du- Mayor’s Office of San Miguelito (Ernesto (Jennifer Alfaro Portuguez, Ernesto Cabalceta boy, Claudio Dutary, Vanessa Anguizola), Vice Jordán, Karla Campos, Vladimir Herrera, Alberto Piedra, Laureen Fernandez Vargas, Carlos Gal- Ministry of Indigenous Affairs (Roberto Lino), Domínguez), Mayor’s Office of Arraiján (Pedro legos Echeverria), CityMart (Jake Phillips, Julia Urban and Household Cleaning Authority Sanchez Moró, Livia Herrera de Barrios, Carlos Haselmayer). -AAUD (Ana Lisa Palacios, Lilian Ayala), Water Morán), Mayor’s Office of La Chorrera (Tomás Resources Authority (Zuleika Pinzón), Public Velásquez), Community Board of Juan Díaz Utility Services Authority (David A. Ramos R., (Mitzucka Fuentes, Javier Sucre). Eduardo Barría S., Fernando A. Vargas D., Rafa-

180 181 RESILIENT PANAMA

BIBLIOGRAPHY

Arup (2018). Technical Analysis of Panama’s Economy economia/Aumentan-ingresos-Canal_0_4978752132. Public Prosecution Service (2016b). Number of cases Development Bank (IDB). 288pp. and Workforce. Report made for the 100RC Program. html registered nationwide as per type of crime involving Serracán. (2002). San Miguelito presents a higher risk 25 pp. Diaz, J. M. (2018). Financial Pacific: 18 new accused. freedom and sexual integrity. Circuit Prosecutor’s of landslides. Newspaper Panama America, Retrieved National Authority of Environment and Water Resources Newspaper La Prensa. Retrieved from: https://impresa. Office specialized in sex crimes. Retrieved from: http:// from: http://www.panamaamerica.com.pa/content/san- Authority -ANAMA-ARAP (2013). Swamps of Panama: prensa.com/panorama/Financial-Pacific-nuevos- ministeriopublico.gob.pa miguelito-presenta-más-riesgo-de-deslizamientos their importance, best practices and currently acusados_0_5016248426.html Public Prosecution Service (2017). Report on Femicide National Migration Service (2018). Data on immigration. applicable regulations. Panama: Ed. Novo Art, S.A., 75 Dominici-Arosemena, A.; Meade-Webster; Lopez- Victims. Retrieved from: http://ministeriopublico. Retrieved from: http://www.migracion.gob.pa pp. gob.pa/wp-content/multimedia/2018/01/Informe- Martínez, C. (2017). Preliminary Resilience Analysis Integrated System of Crime Statistics-SIEC (2016). Estad%C3%ADstico-V%C3%ADctimas-Femicidio-Enero- Bacon, C. D.; Silvestro, D.; Jaramillo, C.; Tilston Smith, for Panama City. Resilience Division-Municipality of Number of crimes per area. Retrieved from: http:// a-Diciembre-2017.pdf B.; Chakrabartye, P. & Antonelli, A. (2015). Biological Panama-100RC Program. 58 pp. www.siec.gob.pa evidence supports an early and complex emergence Public Prosecution Service (2018). Press release: Blue EY (2018). Proposal of Urban Mobility Intervention for Supervisory Body of Banks (2018). Website with of the Isthmus of Panama. Proc. Natl. Acad. Sci. USA Apple Case. Retrieved from: http://ministeriopublico. the Municipality of Panama. Report made for the 100RC information on this entity in charge of coordinating 112(19):6110–6115. gob.pa/comunicado-caso-blue-apple/ Program. 17 pp. the banking industry. Retrieved from: https://www. Beluche, O. (2004). The truth about the Invasion. Fifth FOBUR, 2015. Forum and Urban Observatory of Panama- U.N. High Commissioner’s Office for Human Rights- superbancos.gob.pa Edition Editorial Manfer, S.A. (ISBN: 84-8385- 009-5) OACNUDH (2013). Report by the Working Group FOBUR (2015) Research Report No. 1. UNESCO, McGill, The Scorecard. (n.d.). Retrieved from: Institute for 110pp of Experts on Afro-descendents concerning their USMA, STRI, INDICASAT 30 pp. Transportation & Development Policy : https://www. 12th period of sessions. Retrieved from: http://www. Bennett, R. A.; Spinler, J. C.; Compton, K.; Rockwell, T. K. Forum and Urban Observatory of Panama-FOBUR (2015) itdp.org/library/standards-and-guides/the-bus-rapid- oacnudh.org/presentan-informe-del-grupo-de-trabajo- & Gath, E. (2014). Global Positioning System Constraints Research Report No. 1. UNESCO, McGill, USMA, STRI, transit-standard/the-scorecard/ on Active Crustal Deformation in Central Panama. de-expertos-de-la-onu-sobre-la-situacion-de-los- INDICASAT 30 pp. Thompson, M., Meneses, V., Del Rosario, I. (2016). Seismological Research Letters 85 (2). 278-283. afrodescendientes-en-panama/ González-Jiménez, R. (2017) FAP will not receive any Healthcare Inequalities and Inequities in District of Osorio-Ugarte, K. (2012). The attributes of the Castro, G. (2006). The Isthmus in the World. Some contributions from the Canal. Retrieved from: https:// Panama. Report coordinated between the Municipality Exceptional Universal Value of a property considered to Elements for an Environmental . impresa.prensa.com/economia/FAP-recibiria-aportes- of Panama and the Pan-American Health Organization, be World Heritage. The case of the “Archeological Site Signos Históricos (UNAM) 8 (16): 152-183. Canal_0_4777772265.html General Coordination: Rosales, C.; Thompson, M.; López, of Panama Viejo and Historic District of Panama” (Canto Panamanian Center of Studies and Human Services- C. MUPA-OPS 177 pp. Hausmann, R. (2017). Appraising the economic potential Rodado, 7:1-27). CEASPA (2018a). Report on the findings of the of Panama: Policy recommendations for sustainable and UNESCO-NOOA (2016) Historic Tsunamis (from 1530 Osorio-Ugarte, H. (2014). Synthesis of the Hydrological Evaluation of Social Cohesion Indicators, Evaluation of inclusive growth. CID Faculty Working Paper No. 334. to 2016) the Caribbean, Central America, Mexico and System of River Chagres, Republic of Panama. Ph.D. Social Cohesion for Panama City. 80 pp. Nearby Regions. ftp://ftp.ngdc.noaa.gov/hazards/ Environmental Hydraulics Institute of the University of Thesis. Universidad de Concepción, Chile. 100pp. Panamanian Center of Studies and Human Services- Cantabria-IH Cantabria (2016). Comprehensive Study publications/CCAMAR-2017-esp-low-res.pdf Old School Panama (2015). Historic Days of CEASPA (2018b). Report on the findings of Community of Flood Mitigation Actions in the Juan Diaz Basin. UNESCO (2017). Archaeological Site of Panamá Viejo and Panama. E-book. Retrieved from: https://www. Workshops, Evaluation of Social Cohesion for Panama Municipality of Panama - Interamerican Development Historic District of Panama. Retrieved from: http://whc. panamaviejaescuela.com/historia-de-panama/ City. 80 pp. Bank (IDB). 58pp unesco.org/en/list/790 Rockwell, T.; Gath, E.; González, T.; Madden, C.; Verdugo, Panamanian Center of Studies and Human Services- National Statistics and Census Institute-INEC. (2010). 100 Resilient Cities (2018a). Coexistence with water: D.; Lippincott, C.; Dawson, T.; Owen, L. A.; Fuchs, M.; CEASPA (2018c). Report on the findings of Workshop 2010 Census Results. Auditor General’s Office of practices, coordination and communication. Report for Cadena, A.; Williams, P.; Weldon, E. & Franceschi, P. with NGOs, Evaluation of Social Cohesion for Panama the Republic of Panama. Retrieved from: https:// Panama City. 100 RC-SDU. 37pp. (2010). Neotectonics and paleoseismology of the Limón City. 14 pp. www.contraloria.gob.pa/INEC/Publicaciones/ and Pedro Miguel faults in Panama: Earthquake hazard 100 Resilient Cities (2018b). Field work: Vulnerabilities Interamerican Commission of Human Rights-ICHR/ Publicaciones.aspx?ID_SUBCATEGORIA=59&ID_ to the Panama Canal, Bull. Seismol. Soc. Am. 100, no. 6, and knowledge. Report for Panama City. 100RC-SDU. Organization of American States-OEA (2015). Report on PUBLICACION=360&ID_IDIOMA=1&ID_CATEGORIA=13 3097–3129, doi: 10.1785/0120090342. 25pp sexual orientation violence in the Americas. Obtained National Statistics and Census Institute-INEC. (2017). Scodelaro, F.; Gaitán N.; Terraza, H.; Leaño J. M.; Banfield, 100 Resilient Cities (2018c). Field work: Municipal from: http://www.oas.org/es/cidh/informes/pdfs/ Indicators. Auditor General’s Office of the Republic of R.; Treuherz; Mendoza, R. & Trute, M. (2015). Action governance and administration Report for Panama City. violenciapersonaslgbti.pdf Panama. Retrieved from: https://www.contraloria.gob. Plan for Metropolitan Panama: Sustainable, Human 41 pp. DeLeón, 2016. Apartheid: Racism in Panama in the 21st pa/inec/ and Global Municipality of Panama - Interamerican Century. Retrieved from: http://laestrella.com.pa/ Lizcano-Fernandez, F. (2005). Ethnic Composition of the opinion/columnistas/apartheid-racismo-panama- Three Cultural Areas of the American Continent at the siglo/23942939 Beginning of the 21st Century. Convergence. Research Delgado, J. (2014). 170 thousand clients of the capital city Center on Social and Human Sciences, UAEM. 38 pp. do not pay IDAAN for their water supply. Newspaper 185-232. El Siglo, Panama. November 18, 2014. Obtained from: Mendizábal Archibold, T. E. (2004). Panama Viejo: An http://elsiglo. com.pa/panama/170-clientes-capital- Analysis of the Construction of Archaeological Time in pagan-agua- idaan/23821537. Eastern Panama. Ph.D. Thesis University of London 323 Cornejo, A., E. Lopez-Lopez, R. A., Ruiz-Picos, J. E. pp. Sedeno-Díaz, B. Armitage, T. Arefina, C. Nieto, A. Tuñn, Public Prosecution Service (2015). Number of cases M. Molinar, T. Ábrego, E. Pérez, A.R. Tuñn, J. Magué, registered nationwide as per type of crime involving A. Rodríguez, J. Pineda, J. Cubilla & I. M. Avila Quintero. freedom and sexual integrity. Circuit Prosecutor’s 2017. Diagnosis of the Environmental Conditions of Office specialized in sex crimes. Retrieved from: http:// Ground Affluents of Panama. 326 p. ministeriopublico.gob.pa Newspaper La Estrella de Panamá (2011). Consequences Public Prosecution Service (2016a). Report on Femicide of Money Laundering. Retrieved from: http://laestrella. Victims. Retrieved from: http://ministeriopublico. com.pa/economia/consecuencias-blanqueo/23574197 gob.pa/wp-content/multimedia/2017/01/Informe- Newspaper La Prensa (2018). The Canal’s revenues Estad%C3%ADstico-V%C3%ADctimas-de-Femicidio- increase. Retrieved from: https://impresa.prensa.com/ Enero-a-Diciembre-2016.pdf

182 183 CREDITS FOR IMAGES

Drawing of Panama Cathedral Unknown author. Published by Harper & Brothers. New York. Written by Thomas Wallace Know (1835-1896). https://commons. wikimedia.org/wiki/ File:Panama_Cathedral_ Drawing.jpg

Photos of the construction of the Panama Canal https://www. panamaviejaescuela.com/ historia-canal-panama/

Photo by Omar Torrijos Library of Congress Country Study for Panama. https://commons. wikimedia.org/wiki/ File:Omar_Torrijos_with_ Panamanian_farmers.jpg

Photo of Jimmy Carter and General Omar Torrijos ARC Identifier 176083; From collection JC-WHSP: Carter White House Photographs Collection, 01/20/1977 - 01/22/1981. President (1977-1981: Carter). White House Staff Photographers. https:// commons.wikimedia.org/ wiki/File:Jimmy_Carter_ and_General_Omar_ Torrijos_signing_the_ Panama_Canal_Treaty.jpg

Photo of the Panama Canal Karl Kaufmann

Icons Mozquito: Alex Auda Samora; Stop: un·delivered, Noun Project

Other images

p. 46 Karl Kaufmann p. 19, 52-53, 82 174 Ennio Arcia p. 136, 158, 174 MUPA p. 111 Resilient Santa Fe