With regard to the role of urban planning in disaster risk reduction, the new Disaster Management Law (UU 24/2007) clearly indicates that disaster mitigation should also be conducted through spatial planning (UU 24/2007, verse 47). Parallel to this Law, a new Law on Spatial Planning (UU 26 /2007) was also passed. It emphasizes the incorporation of disaster mitigation in the Spatial Plan.
The spatial plan according to the new law is valid for 20 years and to be revised every five years. It consists of spatial structures and spatial patterns. The first deals with settlement and network of infrastructure and facilities that support socio‐economic activities of the people with interrelated functions, while the latter concerns the distribution of space allocation for conservation and utilized functions. The Spatial Plan serves as a basis for permits issuance for the location of development, green or non‐green open spaces, public infrastructure and facilities. Moreover, the spatial planning process (development of the plan, utilization of space and its control) should be participatory and involve the community. The new law has explicitly incorporated disaster risk reduction as one criteria of spatial planning, which had been included only to a limited extent in the former law on spatial planning (UU 24/1992). In the new law it is clearly stated to allocate conservation land use and incorporate disaster management in disaster prone areas. The derivation of the new law, the Government Regulation on Spatial Planning (PP 15/2010) mentions the identification of disaster prone areas in spatial planning and control of their use through zoning regulations. In the regulations, it is stated that disaster prone areas should be mapped separately based on their typology and used as planning basis. It also specifically mentions the allocation of space for evacuation. Some relevant technical guidelines were developed, particularly the Public Work Ministry´s Regulation on the development of detailed spatial plans and zoning regulations (Permen PU 20/PRT/M/2011) and on infrastructure planning for tsunami prone areas (Permen PU 6/PRT/M/2009). However, so far the criteria of tsunami risk zoning in the guidelines (Permen PU 20/PRT/M/2011) mainly focuses on hazard (the biophysical aspect) and does not give clear guidance on how to incorporate vulnerability in spatial planning.
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This study attempts to link vulnerability assessment and required interventions in the context of tsunami early warning (see the conceptual framework in the previous Sub‐chapter 1.1) that should be incorporated in the spatial planning. There are three main points where the study contributes to the spatial planning process within the Indonesian context: 1) informing spatial planning on specific criteria to assess vulnerability in the context of early warning and identify prone areas; 2) utilization of these criteria to develop interventions such as land‐use allocation for exposure control and evacuation routes (spatial pattern) and provision of additional infrastructure and facilities (structure plan) to be incorporated in the spatial plan; and 3) understanding of the issues of perception to enhance community participation in the spatial planning process in this scope.
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4 Methodological Approach
The main goal of the case study and data analysis was to utilize the developed conceptual framework to provide an information basis for the development of effective urban planning interventions within the early warning system and evacuation plans. At a later phase, it was intended to evaluate the conceptual framework and assessment methods based on the findings.
The research activities and information generated consist of three assessment blocks representing the main research questions (Sub‐Chapter 1.3) and the conceptual framework (Sub‐Chapter 1.1):
1. What are the conditions that influence people´s early warning and response capability at the local level?
2. What are the conditions that enable or influence the effectiveness of vulnerability reduction within the on‐going interventions (related with issues of perception)?
3. What is the role and influence of urban planning on the vulnerability and response capability of the people?
Figure 4‐1 visualises the assessment blocks and their components.
The upper assessment block (yellow) assesses conditions influencing the vulnerability and response capability of the people to tsunami early warning. It covers the thematic areas of the whole early warning chain at the local level: dynamic exposure, access to the warning, access to safe places, and evacuation behaviour. Spatial hotspots and bottlenecks within social conditions were assessed to identify the required interventions and specific criteria that urban planning should address in cooperation with emergency planning. It was assumed at the beginning that urban planning interventions related with land use and infrastructure planning are directly linked only with the three components of dynamic exposure, access to the warning, and access to safe places, while the evacuation behaviour is linked with community education, evacuation procedures and drill activities under the main responsibility of emergency planning. Nevertheless, in order to get the overall picture of the vulnerability and response capability of the people, and later on to understand the bottlenecks within social conditions that may have influence on the effectiveness of interventions on spatial and physical aspect, this component was also assessed in this study.
The middle assessment block (green) indicates “filter” conditions that enable the reduction of the current vulnerability and improvement of response capability through urban planning interventions. The study attempted to look at it from the people´s point of view and assessed the possible hindrances caused by challenges related with subjective factors or people’s perception of the interventions to reduce vulnerability. In this matter, risk communication criteria on how to promote the involvement of the people in the urban planning interventions were assessed. It was done with reference to the identified specific interventions in the next (blue) assessment block.
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The bottom assessment block (blue) assesses how urban planning plays a role and influences the vulnerability and response capacity of the people with regard to exposure threshold, providing space and infrastructure for warning devices, as well as space and infrastructure for evacuation routes and facilities.
This study only focused on the interventions that involve urban planning directly, i.e. spatial and infrastructure requirements of evacuation and corresponding criteria with regard to people´s vulnerability. Interventions related with standard operational procedures from the Local Disaster Management Body, evacuation drills, etc. were not part of this study. The assessment also gives an indication of the cooperation between urban and emergency planning in the current efforts.
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Figure 4-1 Linkage between research questions, conceptual framework and the structure of data analysis
Source: own figure
What are the conditions that influence people´s early warning response capability at the local level?
People´s exposure and lack of early warning response capability Dynamic exposure
Spatial setting of various urban functions Activity pattern, mobility
Access to the warning
Availability of media
Effectiveness of media
Evacuation behaviour
Past behaviour Existing knowledge and
intention Access to safe places
Evacuation road Evacuation shelters
What are the role and influence of urban planning on the
vulnerability and response capability of the people?
Assessment of spatial hotspots
Assessment of bottlenecks within social conditions
Assessment of role and influence of urban planning in the actual evacuation planning and vulnerability reduction Vulnerability reduction measures
urban planning
Human‐cognitive factors Socio‐economic status What are conditions that enable
or influence effectiveness of vulnerability reduction from people´s perspective?
Assessment issues of perception in the current efforts to reduce vulnerability Issues of perception related with vulnerability reduction
Improvement of access to warning Improvement of access
to safe places Exposure monitoring
and reduction
Promoting appropriate behaviour considerations in overall development planning, integration of emergency response
interests, support in infrastructure, risk communication
provision and maintenance of emergency facilities, disaster preparedness activities
emergency planning
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The study was based on an in‐depth case study in one selected area to get a better understanding of the specific context and to reflect it in a wider sense. The study targeted to find ways to apply the assessment framework in a medium‐sized city in the context of a developing country. The city of Padang, province of West Sumatra, Indonesia, was selected as a representative case study with regard to the on‐going processes in developing early warning and tsunami risk reduction systems at the local level (see sub‐chapter 3). The study aimed to learn from experiences in the city of Padang and generate new knowledge for improvement of the conceptual framework and derive practical recommendations. The results of the research were expected to allow in the first place to derive recommendations for application in Padang, but also to draw lessons in a wider sense for other medium‐sized cities with similar context. With regard to the methodological issues, the development of a comprehensive knowledge basis for decision making in such a city like Padang is still challenging due to often unavailable highly sophisticated data and the lack of centralized information on risk and vulnerability. Thus, a tailor‐made and mixed approach for data collection and analysis was a logical consequence, which fits well in the reality of many medium cities in developing countries. This was another important aspect to be addressed through the case study.
The study was conducted at the local scale, describing situations and deriving recommendations at the city level. The boundary of the spatial scope in this study, especially for the quantitative analysis, follows the boundary determined by the research project “Last‐Mile – Evacuation”, since only for this part of the city detailed data on tsunami hazards and remotely sensed building information was made available within the “Last Mile” research project (see Figure 4‐2). Nevertheless, the study area provides good coverage of the main part of the city which is mostly densely built, economically active and exposed to tsunami hazards. Thus, the context of and the recommendations that will be derived for tsunami risk reduction and evacuation planning used for this analysis apply not only to the situation in the study area, but to the whole city of Padang.
44 Figure 4-2 Study area in Padang city, Indonesia
Source: BAPPEDA Kota Padang Map of administrative boundaries of the City of Padang, 2008
The analysis was done to provide a “screen‐shot” situation during the study period (especially during the main data collection in 2007‐2009, and limited qualitative update in 2010) and to address potential challenges for the on‐going and future vulnerability reduction measures.
In order to assess different thematic areas, an interdisciplinary approach was required. The study used approaches from engineering and social behavioural sciences. Therefore, the combination of qualitative and quantitative data collection and analysis methods from these disciplines was used.
For each thematic area, an analysis framework or specific approach was developed and a different set of data was used. The next sections describe the analysis frameworks and data sources in more detail.