GFDRR – SDV Elena Correa February 4, 2010. Global Facility for Disaster Reduction and Recovery...
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Transcript of GFDRR – SDV Elena Correa February 4, 2010. Global Facility for Disaster Reduction and Recovery...
Resettlement as a tool for Disaster Risk Reduction
GFDRR – SDV
Elena CorreaFebruary 4, 2010
The Assignment
Global Facility for Disaster Reduction and Recovery (GFDRR) approved the proposal to study existing resettlement programs for disaster risk reduction in four LAC countries. The main objectives are to identify main lessons-learned and prepare a tool-kit for planning and implementing resettlement programs for disaster risk reduction.
SDV included this activity in the work program (FY09-10) of the Social Sustainability and Safeguards team and allocated staff weeks to implement this initiative
Task TeamInitial research
Dianna MoyerPaivi Koskinen-Lewis
Case studiesIgnacio Zeltmeister y Rómulo Pérez (Argentina)Marilia Scombatti y Ronaldo Marques(Brazil)Narzha Poveda (Colombia)Eduardo Aguirre (Guatemala)Sergio Carmona (technical reviewer)
ToolkitFernando Ramírez Margarita De CastroElena Correa
TTLElena Correa
Outline
Global and LAC natural disasters trends and consequences
LAC – Vulnerability factors
DRR - A preventive approach
Preventive Resettlement
Brief summary of the case studies
Outline of the toolkit
Global and LAC
Natural Disasters Trends
Global Natural Disasters EventsGraph 1: Total Disaster Occurence (1970-2009)
3,926
843
1,656
2,592
3,533
0
1000
2000
3000
4000
5000
1970-1979 1980-1989 1990-1999 2000-2008
Decade
Num
ber o
f Nat
ural
Disa
sters
Estimated natural disasters 2000-2009 (projections for 2009 based on decade average)
Actual 1970-2008 natural disasters
Source: EMDAT, Emergency Events Database 2009
People Affected by Natural Disasters in the World
0
1,000,000,000
2,000,000,000
3,000,000,000
4,000,000,000
5,000,000,000
6,000,000,000
7,000,000,000
70 79 80 89 90 99 00 09'
No
.of P
eo
ple
Decade
People Affected by Natural Disasters 1970-2009
World Population People Affected
LAC – Natural Disasters
LAC region is hit on average by 40.7 major disasters per year (1)
LAC is one of the most highly natural disaster prone regions in the world, second only to Asia (2)
(1) ECLAC, IDB 2000(2) Center of Research of Natural Disaster, 2004
LAC - Natural Disasters Events
Graph 5a: Occurrence of Natural Disasters in LAC by Decade (1970-2009)
589
452
167
314
654
0
100
200
300
400
500
600
700
1970-1979 1980-1989 1990-1999 2000-2009
Decade
Num
ber
of N
atura
l Dis
aste
rs
Occurrence of Natural Disasters in LAC by decade (1970-2008)
Estimated Occurence 2000-2009 (projections for 2009 based on decade average)
Source: EM-DAT: The OFDA/CRED International Disaster Database Created on: Apr-19-2009. - Data version: v12.07
LAC – Type of Natural Disaster
Graph 6: Natural Disasters Occurence by Type in LAC (1970-2008)
Complex Disasters; 2; 0%
Drought; 84; 6%
Extreme Temperature; 49; 3%
Volcano; 62; 4%
Wild Fires; 38; 2%
Flood; 598; 40%
Wind Storm; 415; 27%
Slides; 120; 8%
Earthquake; 151; 10%
Wave / Surge; 3; 0%
Source: EM-DAT: The OFDA/CRED International Disaster Database Created on: Apr-19-2009. - Data version: v12.07
LAC – People Affected by Natural Disasters
Graph 9: Total People Affected in LAC by Natural Disasters by Decade (1970-2009)
43,091,03539,384,83437,594,450
61,199,976
43,760,927
-
10,000,000
20,000,000
30,000,000
40,000,000
50,000,000
60,000,000
70,000,000
1970-1979 1980-1989 1990-1999 2000-2009
Decade
Num
ber o
f Peo
ple
Affe
cted
People Affected by Natural Disasters in LAC 1970-2008
Estimated People Affected 2000-2009 (projections for 2009 are based on decade average)
LAC – Deaths by Natural Disaster
Graph 7: Deaths by Natural Disaster Type in LAC (1970-2008)
Drought; 73 ; 0%
Volcano; 21,990 ; 9%
Wave / Surge; 10 ; 0%
Wild Fires; 104 ; 0%
Wind Storm; 41,402 ; 17%
Flood; 49,913 ; 20%
Extreme Temperature; 2,031 ; 1%
Earthquake; 122,140 ; 48%
Slides; 11,374 ; 5%
Source: EM-DAT: The OFDA/CRED International Disaster Database Created on: Apr-19-2009. - Data version: v12.07
LAC – Vulnerability FactorsNatural factors
Four active tectonic platesSignificant portion of the earth’s seismic and volcanic activity takes place thereLand slides relate to the geological age of mountains ranges Flooding related to a complex river basin systemsTropical storms and hurricanes (Atlantic and Pacific Ocean)El Niño and la Niña phenomena exacerbate certain weather patterns
LAC – Human-made Factors
Rapid urbanizationFrom 41% of urban population in 1950 to 78% in 2007
Poverty40 percent of population lives in povertyPoverty and vulnerability to disasters are inherently linked
Environmental degradationDeforestation Loss of natural drainage systems in urban areasLack of adequate solid waste management and disposal
Climate change
LAC – Human-made Factors
Lack of effective policies to reduce vulnerabilityLack of land use planningInadequate quality of construction building codesWeak enforcement of regulations when they existLack of housing programs for low income population
Lack of preventive strategiesReactive responses instead of proactive responsesPrevention is perceived as a cost rather than an investment (only 20% of decision makers ranked prevention as a high priority )
DISASTER RISK REDUCTION: A PREVENTIVE APPROACH
“An ounce of prevention is worth a pound of cure”
Disaster Risk Reduction Framework and Measures
Components MeasuresRisk assessment Studies, monitoring, modeling, maps, databases, information
systems, perception surveys
Risk reduction Planning and awareness: Land use planning, construction codes and regulations, public information and education.Physical intervention in the territory: retro fitting, home improvements, vulnerability reduction, preventive resettlement.
Financial protection Financial mechanisms (credits, reserve funds, taxes, etc.)Financial transfer mechanisms (insurances, etc.)
Emergency preparedness and response
Early warning systemsEmergency and contingency plansTechnology, communications and logistic infrastructureShelter – Temporary Resettlement
Post - Disaster Reconstruction
Specific norms and regulationsStrategiesReconstruction plansPermanent Resettlement
Preventive Resettlement
Main Principles
Resettlement becomes a risk reduction measure when it is not possible to mitigate the risk through other interventions (structural, non-structural)
Preventive resettlement should be articulated into a comprehensive risk reduction strategy and should be planned and implemented properly
If not, it is inefficient, unsustainable and leads to frustration of people and governmentsIf yes, it becomes an opportunity to safe lives, assets and improve the standards of living of people living in high risk areas
Benefits of Preventive Resettlement
Preventive resettlement diminishes the damage, losses and impacts caused by natural disasters in both monetary and non-monetary terms on human life, structures and assets
Savings from Preventive Resettlement
Monetary Non - Monetary
Direct Indirect Direct Indirect
Human life (deaths, injuries)
Saving Saving Saving Saving
Structures (private, public, productive)
Cost Saving Saving Saving
Assets (private, public)
Saving Saving Saving Saving
Pertinence of Resettlement
Characteristics of the hazard Pertinence of Resettlement
Spatial distribution of the hazard
The larger the area of influence of the hazard, the greater the amount of population exposed, then resettlement becomes very complex
Energy of the impact The greater the energy of the impact, higher vulnerability and lower possibility of mitigating it, the higher pertinence of resettlement
Level of uncertainty The lower level of uncertainty, the higher pertinence of resettlement
Possibility of mitigation The lower possibility of mitigation through other measures, resettlement becomes the only possible risk reduction measure
CASE STUDIES: Argentina, Brazil, Colombia, Guatemala
Preventive Resettlement
Case studies - MethodologyDescription and analysis of the national context
Natural hazards, events, consequencesPopulation, geographical distribution, povertyInstitutional and legal frameworks for disaster risk reduction and recovery
Resettlement case studyEvent that originated the resettlementDisaster risk reduction strategy and articulation of resettlement into the main strategyInstitutional arrangementsSources of fundingResettlement optionsResultsControl of recovered areasLessons learned
ArgentinaFlooding hazards
11, 911 families (69,000 persons) 120 cities, 7 provinces
Resettlement strategySelf – construction
Institutional OrganizationCoordination of national and local levels
Main lesson learnedThe self – construction strategy which generate important value addedPossibility of intervene large areas
BrazilSao Paulo - Flooding hazards
7,544 families (69,000 persons) from several slums (favelas)
Resettlement strategyNew developments (large vertical solutions)Resettlement in the same neighborhoods but in safe areasCash compensation
Institutional OrganizationMunicipal institutions (2)
Main lesson learnedCash compensation is not an adequate optionResettlement in large vertical solutions entails several social problemsResettlement in same neighborhoods are the best option
Brazil - Resettlement options
GuatemalaDepartment of Sololá – Panajab and Tzanchaj counties
915 families (5,400 persons) – Mayan descendants287 affected by the hurricane Stan628 preventive resettlement
Resettlement strategyLand acquisition and construction of new settlementParticipation of indigenous leaders, communities
Institutional OrganizationInter - institutional coordination, participation of academia, NGOs,
Main lesson learnedLegacy issues matterImportance of trust between government and affected communitiesImportance of cultural dimensionAccountability mechanisms
Chuck Muk – Resettlement
ColombiaBogotá – Landslides hazards 1,069 families (4,600 persons)
Part of of a larger resettlement program of families living in high risk-areas (15,000 families)
Resettlement strategyUse of real state market (city and places of origin of families)Construction of new developments through alliances with private investors and NGOSConstruction by the implementing agency
Institutional OrganizationAn institution responsible of preparing and implementing resettlement plansInter - institutional coordination
Main lesson learnedResettlement incorporated into a comprehensive risk reduction strategyA long term vision and an effective strategiesEffective land use planningImportance of several resettlement options
Resettlement and recovered area
Argentina
Recurrent Flooding and the Housing Problem in Argentina
The problem
The Provinces of La Plata river basin face recurrent flooding
Five of the ten worst floods in the XX Century have occurred since 1983
The problemRapid urbanization
90% people live in urban areas
Lack of housing programs for poor people
Human settlements in flood-prone areas
Flood Protection ProgramObjectives
Improve the security of economic assets and persons living in flood-prone areas by constructing defense facilities to reduce future losses due to floods, and by strengthening national and provincial institutions and systems for dealing with future floods
Components Structural measures (dikes, pumping stations, control gates, flood storages)Housing program: Resettlement of families living in flood-prone areas About 12,000 families (120 urban areas, 7 provinces)
Implementing agenciesMinistry of Federal Planning, Public Investment and Services; Provinces; Municipalities
Resettlement strategy: assisted self-construction
Land provided by the municipality
Training provided by local governmental institutions (23.822 persons were trained in construction. After the project, 41% reported temporary jobs thanks to the new skills)
Design of houses adapted to cultural characteristics of each region and prepared by the technical team of the Ministry
Strategy: assisted self-construction
Construction materials: subsidized by the program, and delivered through alliances with local providers through vouchers
Community organization and strengthening of social networks. 100 families organized 5 constructing teams to build 20 houses each team
Results: 11,911 housesBefore After
Costs and time frame
Time frame: 1992 – 2004
Total cost: U$ 420 millionHousing component: US$ 31 million Maximum cost per house: $13,300
Minimum size: 42 m2 (continuous expansion housing units)Public services: water, energy, sewerageSource of funding: external credit (WB), national and municipal resources
Control of new settlements in recovered areas
Municipalities assigned the use of flood-prone areas (parks, soccer fields, green areas)
Municipalities committed to control the flood-prone areas
Lessons learned
Trust the client’s proposals (during several months the WB did not endorse the self-construction strategy and promoted different solutions –pre-built houses, tents – which caused delays)Self-construction is possible and generates an important value added (beneficiaries with new labor skills, stimulus for the local economy, high level ownership and self-esteem in beneficiaries) It is possible to assist populations in a large area and living in different municipalities (coordination between national and local levels)Dependency on external credits cause delays and interruptions in the program implementation
Colombia
Bogota. Nueva Esperanza. A experience of resettlement, rehabilitation and development
The Country
44.5 million inhabitants75% of population live in urban areas (2005)
Major natural disastersEarthquakes in 1983, 1992, 1994, 1999Volcano eruption and mud slide 1985
Armed conflict1946 – 19661985 – to date
A National Disaster Risk Reduction Policy
Major disasters generated the preparation of a “National Disaster Preparedness and Response System” (SNAPD) in 1988.
SNAPD is a very comprehensive system (policies, hazards assessment and monitoring, mapping, early warning systems, information systems and a national disaster prevention and assistance plan)
A National Disaster Fund was crated in 1984. It receives resources from oil and mining royalties and the national budget
A housing subsidy policy was created in 2005 for poor families living in high-risk areas
Disaster risk reduction was incorporated in the land use planning law (1997)
Preventive resettlement was incorporated as a disaster risk reduction measure (about 130,000 people had been resettled)
Case Study - BogotaBogota is the capital of the country
7.5 million inhabitantsMain hazards: flooding and land slides
Bogota has developed a comprehensive Disaster Preparedness and Response System (inter- sectoral and inter-institutional)
Disaster Preparedness and Response System and Programs
The land use plan incorporated risk reduction strategiesSlum upgrading programsHousing and building retrofitting programs Information systems Monitoring systemsA fund for prevent disasters and assist affected people (funded by the 0.5% of the taxes collected by the city)
Control of human settlements in high-risk areas
Control of human settlements in high-risk areas was included in the disaster risk reduction strategy as well as resettlement of people living in high risk areas. Responsibility for these programs was assigned to specific institutions
A housing subsidy program for people living in high risk areas was created
9.154 families were identified living in high-risk areas in 1997, 82% of them had been resettled as of 2008
Case Study – Nueva Esperanza
Population in high-risk: 1,069 families (4,600 people) without legal titles
Land use and geological studies determined that the neighborhood was invading a a natural park, creeks’ buffer zones and located in a high-risk area (landslides)
Case Study – Nueva Esperanza
A rehabilitation, reconstruction and sustainable development plan was prepared
Land and environmental recoveryCommunity organization and participationResettlement of families
Resettlement OptionsReal state market in the city and in the places of origin
New developmentsBuilt by private investors or NGOs Built by the implementing agencyFair housing
ResettlementBefore After
ResettlementBefore After
Development programs
Social assistance before, during and after relocation
Health and education Productive projectsAccess to educational and health servicesIntegration with host communitiesHouse maintenance and improvements
Monitoring and evaluation systems
Recovered area
Control of new settlementsReforestationCommunity participationEnvironmental guides
Lessons learned
Sustainable disaster risk reductions programs (articulated with land use planning and development plans, control of human settlement in high-risk areas, permanent sources of funding, legal frameworks, institutional capacity)
Importance of sectoral and institutional coordination
Several resettlement options facilitates the process
Resettlement went beyond physical relocation and incorporated development programs
Importance of contingency plans to relocate people in case of emergency
Resettlement toolkit for disaster risk reduction
OutlineResettlement into a comprehensive disaster risk reduction strategy
Module 1. Design of a risk reduction strategy and definition of preventive resettlement Module 2. Preparedness phase Module 3. Resettlement planningModule 4. Resettlement implementationModule 5. EvaluationModule 6. Control and use of recovered areas