5.6 R OLE AND I NFLUENCE OF U RBAN P LANNING IN THE A CTUAL E VACUATION P LANNING AND V ULNERABILITY R EDUCTION . 114
5.6.2 Role of Urban Planning and Linkages with Emergency Planning
The stakeholder analysis identified formal and actual roles of various government planning agencies in the evacuation planning process as presented in Table 5‐15. The analysis clearly indicated that efforts needed for the complete evacuation planning take more than one actor, and definitely does not solely involve the disaster management body. While the local disaster management body (BPBD) is primarily responsible for early warning facilities and emergency response, urban planning actors, especially the Urban Development Planning Agency (BAPPEDA), Spatial Planning and Urban Design body (TRTB), and Settlement, Infrastructure and Regional body (Kimpraswil/PU) play the leading role in controlling exposure as well as planning and implementing the provision of evacuation facilities and infrastructures. This has been confirmed by regulation as well as discussions with the corresponding local actors.
BPBD still defined themselves as emergency managers and acknowledged their lack of capacity at the moment. This is quite understandable in view of the fact that the establishment of the early warning and the development of evacuation plans in the city of Padang as well as the establishment of the agency itself were very recent at the time of the study. Although according to the regulations this agency is supposed to be in charge of monitoring risk with regard to spatial planning and environmental management as well as hold the leading role in the planning and operationalization of tsunami early warning and evacuation, it has not had the capacity to fully implement this task yet.
The agency rather perceived BAPPEDA and other sector‐related agencies as the focal points and main actors when it comes to long‐term planning and risk assessment. During the process, it received strong support from the existing government and non‐government agencies. Nevertheless, in future it should play the stronger role of coordinating and implementing the tsunami risk management prior to, during, and after hazard events, in cooperation with other relevant agencies.
BAPPEDA as coordinator of the development of the Spatial Plan and long‐term development programmes was the focal point in providing the information basis and assessments for long‐term objectives for programme allocation and budgeting. It plays the big role of harmonizing various risk reduction measures. However, although the Spatial Plan provides long‐term orientation for medium‐
and short‐term programmes, these programmes are influenced by the actual city government´s priority. BAPPEDA cannot control the implementation of the Spatial Plan by individual agencies. Moreover, some challenges exist due to the lack of a centralized database and limited capacity to assess activities in different agencies. In practice, assessment and planning activities had to involve and be supported by external consultants.
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TRTB as the technical and implementing hand of the Spatial Plan is in charge of controlling the spatial allocation for various city functions and the issuance of the corresponding permits. The agency is also involved in land clearing processes for particular land use allocation, e.g. new public facilities. This role is very crucial in the tsunami risk reduction; however, it also deals with the limitations of data management, as well as lack of capacity to monitor building uses once the permits have been issued.
With regard to the planning and construction of infrastructures and facilities, Kimpraswil/PU plays a major role and provides technical guidance. A building code for seismic hazards (not yet available for tsunamis) has been developed and improved by the agency. It was also involved in the planning and assessment of evacuation roads and shelters.
Support from non‐governmental agencies in the technical (such as technical assessment) and institutional issues (development of Standard Operational Procedures, capacity building of the community) was also significant. The local Disaster Study Centre of the University of Andalas (academic actors) and the non‐government organization KOGAMI were involved intensively throughout the planning process and provided strong technical support to the related government activities. Also, other agencies such as the Fishery and Marine Agency (DKP) from the provincial level influenced the development of an evacuation map due to its plan to provide vertical evacuation shelters. For efforts involving extreme natural hazards such as tsunamis and high investment as for instance the improvement of infrastructures and construction of evacuation shelters, support from the higher planning level was inevitably needed. This was also true for the case of Padang. Recently, the national level stated their interest and commitment in tsunami risk reduction and improvement of the early warning system. The National Body for Disaster Management (BNBP) has stated that planning activities are underway to construct evacuation shelters in the coastal areas including Padang (Ichsan; Burhani). Padang and the West Sumatra Province were mentioned as areas of concern, where there are no appropriate buildings that could be used as vertical evacuation shelters.
Allthough not included in the analysis below, external parties such as international NGOs like GTZ and international scientific communities from various countries also played significant roles from the background, among others the GITEWS and “Last‐Mile – Evacuation” projects from Germany, the GeoHazard International project, and also teams from Japan and USA. The capacity building and research activities contributed to shaping tsunami risk reduction and evacuation planning processes in the city of Padang. During the field stays, no significant involvement of private sectors and business actors was observed in the development of the tsunami hazard map and planning of vulnerability reduction measures. A few were rather involved in the operational activities, such as participating in tsunami drills.
Various on‐going and planned interventions involving various agencies were identified by local planning actors interviewed by the researcher and stated in the local action plan of disaster mitigation. The results clearly indicate that the urban planning agencies (BAPPEDA, TRTB, Kimpraswil/PU) play the main role in measures related with control of use in exposed zones, construction of transportation infrastructures for evacuation, and evacuation shelters. Additionally, TRTB plays the main role in involving the community in the overall disaster‐mitigation based spatial
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planning. On the other hand, the disaster management body (BPBD) is rather involved in the socialization of the activities to the community and provision of facilities such as evacuation maps and signs. This again emphasizes that urban planning agencies have to be involved in the evacuation planning since the beginning and that coordination among urban and emergency planning should be linked to each other.
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Table 5-15 Roles of Various Local Actors in Building Early Warning Response Capability of the People
AGENCIES ROLE
DEFINITION
EXPOSURE REDUCTION IMPROVING ACCESS TO SAFE PLACES
IMPROVING ACCESS TO WARNING
EVACUATION BEHAVIOUR Badan Penanggulangan Bencana
Daerah (BPBD) Kota Padang Disaster management body
By regulation Collection of relevant data Monitoring of spatial plan and environmental mgt
Preparing emergency response and relief
Installation and examination of early warning facilities
Planning, training and socialization
SOP In on‐going /
planned measures
Socialization of spatial plan, provision of land and infrastructures for relocation areas
Provision and installation of evacuation maps, billboards, and signs, socialization to community
Installation of sirens, development of radio FM‐RDS, communication devices for various agencies, development of community emergency teams and facilities.
Planning, training and socialization
SOP
Current state Lack of data and capacity, for planning and assessment referring to BAPPEDA
Needs strong support and continuous capacity building
Badan Perencanaan Pembangunan Daerah (BAPPEDA) Kota Padang Urban Development Planning agency
By regulation Coordination and development of spatial plan, long‐term development programs
In on‐going / planned measures
Development of disaster‐
mitigation based spatial plan and master plan/zoning Relocation and provision of facilities and infrastructures in safe areas, utilization of unused public buildings in hazard zone (e.g. for tourismus activities)
Current state lack of centralized database management, limited capacity to coordinate and assess various
Short‐ and medium‐term programs influenced by city government´s priority, cannot control the implementation Dinas Tata Ruang dan Tata
Bangunan (TRTB) Kota Padang Spatial Planning and Urban Design
By regulation Allocation plan of various facilities & infrastructures location permit, occupancy
Examination of traffic
density and
transportation network
Provision of
recommendations for electricity supply,
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body permit, demolition permit
Monitoring building use
Planning allocation of
facilities and
infrastructures Permits
telephone network, radio towers and mobile phone transmission
In on‐going / planned measures
Development of disaster‐
mitigation based spatial plan and master plan/zoning,
monitoring of its
implementation
Public hearing and dialogues in development of disaster‐
mitigation based spatial planning, socialization of spatial plan
Relocation and provision of facilities and infrastructures in safe areas, utilization of unused public buildings in hazard zone (e.g. for tourismus activities)
Land clearing and permits for new roads, widening of existing roads, vertical evacuation buildings, hills/tsunami deck
Maximalization of the street utilization by clearing the existing blockage causing traffics, e.g. control of building use at crossroads, alternative space for parking lots and street vendors
Current state No centralized database, limited resources Monitoring often problematic
land clearing difficult Will be involved for the permit
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Dinas Pekerjaan Umum Kota Padang Settlement, Infrastructure and Regional body
By regulation Assessment and
recommendation of permit Development of technical standard for settlement and infrastructure
Examination, technical guidance, and monitoring infrastructures and facilities, including roads and bridges
Development of technical standard for settlement and infrastructure
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In on‐going / planned measures
Socialization of spatial plan, provision of land and infrastructures for relocation areas
Relocation and provision of facilities and infrastructures in safe areas, utilization of
Construction of roads perpendicular to the coastline to the bypass road & widening of
existing roads
perpendicular to the coastline
123 unused public buildings in hazard zone (e.g. for tourismus activities)
Construction and
improvement of
connecting bridges Engineering examination of vertical evacuation buildings, hills/tsunami deck
Current state Need technical specifications on tsunami e.g. for Building codes
Need technical
specifications on tsunami e.g. for Building codes Need support from provincial & national level
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Source: Perwako Padang 2008 on roles and responsibilities of city government agencies, Stakeholder Analysis by Local Expert 2009, Non‐Structured Interviews with the Local Actors June‐August 2009, Telephone Interview in September 2012
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