71075 Flood Risk Management and Urban Resilience Workshop Managing the Risks of DisasteRs in east asia anD the Pacific May 2-3, 2012 Jakarta, Indonesia WORKSHOP PROCEEDINGS ©2012 The World Bank The International Bank for Reconstruction and Development The World Bank Group 1818 H Street, NW Washington, DC 20433, USA June 2012 Disclaimer: This report is a product of the staff of the World Bank with external contributions. The findings, interpretations, and conclu- sions expressed in this volume do not necessarily reflect the views of the World Bank, its Board of Executive Directors, or the governments they represent, or those of the National Disaster Emergency Agency of the Republic of Korea. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgments on the part of the World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Design: miki@ultradesigns.com Cover photos: Anna Burzykowska. Map: Yannick Douet, Altamira Information. Back Cover photos: Left/Rinsan Tobing; Anna Burzykowska. Map: Yannick Douet, Altamira Information. Photo by Thinkstock.com Contents Acronyms and Abbreviations ..................................................................................................................... 2 Acknowledgements .................................................................................................................................. 3 EXECUTIVE SUMMARY .......................................................................................................................... 4 OPENING AND WELCOME REMARKS.................................................................................................... 7 Stefan G. Koeberle, Country Director for Indonesia, World Bank ....................................................... 7 Bang Ki-Sung, Deputy Administrator, National Emergency Management Agency (NEMA), Republic of Korea.............................................................................................................................. 8 Fauzi Bowo, Governor of DKI Jakarta ................................................................................................ 9 PRESENTATION SUMMARIES Session I: Overview of “Cities and Flooding: A Guide to Integrated Urban Flood Risk Management for the 21st Century� ................................................................................................................................ 11 Session II: Show cases from Countries/Cities .............................................................................................. 12 Panel Session 1: Understanding Flood Hazard and Its Impact ............................................................. 12 Panel Session 2: The Components of Integrated Flood Risk Management .......................................... 18 Session III: The International Development Partner View ............................................................................ 24 Special Session: Flood Preparedness Mapping Presentation........................................................................ 29 Session IV: Implementing Integrated Urban Flood Risk Management ......................................................... 32 Session V: Challenges, Opportunities and Risks ......................................................................................... 34 Session VI: Follow-up and the Way Forward .............................................................................................. 37 Special Session: Field Trip .......................................................................................................................... 39 ANNEX 1: Workshop Agenda ................................................................................................................ 41 List of Figures Figure 1 Cities and Flooding..................................................................................................................... 11 Figure 2 Thailand – Flood Risk and Drought Risk Areas ............................................................................. 13 Figure 3 Case Study – Structural Countermeasures................................................................................... 15 Figure 4 Ho Chi Minh City – Strategy Analysis .......................................................................................... 19 Figure 5 Jakarta – Sea Wall Rehabilitation Plan ......................................................................................... 21 Figure 6 Japan – Comprehensive Flood Management – Reserve Water in the City .................................... 22 Figure 7 Decision-Support System in the Republic of Korea ...................................................................... 25 Figure 8 A Comparison of the Deterministic Approach and the Probabilistic Approach ............................. 27 Figure 9 Case study: Ho Chi Minh City – Urban Risk Management ........................................................... 28 List of Boxes Box 1 Guiding Principles for an Integrated Urban Risk Management ......................................................... 12 Box 2 Lessons from GEJE 2011 ................................................................................................................. 26 Flood Risk Management and Urban Resilience Workshop Acronyms and Abbreviations AIFDR Australia-Indonesia Facility for Disaster Risk Reduction ARC American Red Cross ARWS Automated Rainfall Warning System BMG Badan Meteorologi dan Geofisika (Indonesian Meteorology and Geophysics Body) BNPB Badan Nasional Penanggulangan Bencana Indonesia (Indonesia National Agency for Disaster Management) CCA Climate change adaptation CoP Community of Practice CSR Corporate social responsibility DKI Daerah Khusus Ibukota (Special Capital Region) DRM Disaster risk management DRR Disaster risk reduction EAP East Asia and Pacific EO Earth observation ENSO El Niño-Southern Oscillation GFDRR Global Facility for Disaster Reduction and Recovery GEJE Great East Japan Earthquake GIS Geographic Information System HAII Hydro and Agro Informatics Institute IDM Iterative decision making InaSAFE Indonesia Scenario Assessment for Emergencies InSAR Interferometric Synthetic Aperture Radar JICA Japan International Cooperation Agency JUFMP Jakarta Urgent Flood Mitigation Program LGU Local Government Unit MENA Middle East and North Africa MoPAS Ministry of Public Administration and Security MoU Memorandum of Understanding NEMA National Emergency Management Agency NDMC National Disaster Management Committee NDMI National Disaster Management Institute NDMO National Disaster Management Office NGO Nongovernmental organization NGPES National Growth and Poverty Eradication Strategy PPP Public Private Partnership P.R. China People’s Republic of China PT Perseroan Terbatas/ Limited Liability Company SCFC Steering Center of Flood Control Sqkm Square kilometer UNOCHA United Nations Office for the Coordination of Humanitarian Affairs 2 Acknowledgements The organization of the workshop in Jakarta was led by the Disaster Risk Management (DRM) team in the East Asia and Pacific (EAP) region of the World Bank, supported by GFDRR and funded by the Republic of Korea. The team is grateful for the organizational support of the World Bank Disaster Risk Management team in Jakarta. This report summarizes the presentations and discussions which took place as part of the Flood Risk Manage- ment and Urban Resilience Workshop in Jakarta, Indonesia in May 2012. The report was compiled by Eiko Wataya and Irene Wijaya. The graphic design of this publication was carried out by Miki Fernandez, Ultradesigns. Photo by Thinkstock.com EXECUTIVE SUMMARY The “Flood Risk Management and Urban Resilience Workshop,� held on May 2-3, 2012 at the Shangri-La Hotel, Jakarta, Indonesia, brought together over 50 policy makers from national and local levels from seven East Asian countries (Indonesia, Laos PDR, the Philippines, Viet- nam, Thailand, China and the Republic of Korea), as well as experts, donors and partner organizations. The workshop was held to increase technical knowledge, share good practice from around the region, and foster a community of committed leaders dealing with flood risks. Photo by Thinkstock.com. September 2, 2010 - Tropical Storm Kompasu over Korea and China. May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS T he “Flood Risk Management and Urban Resil- their cities and dwellers, and informed them of the ience Workshop,� held on May 2-3, 2012 measures currently being implemented by various at the Shangri-La Hotel, Jakarta, Indonesia, countries in the region.2 The event highlighted the brought together over 50 policy makers from following global best practices and lessons learned in national and local levels from seven East Asian coun- the field of urban flood risk management: tries (Indonesia, Laos PDR, the Philippines, Vietnam, Accurate identification and communication of Thailand, China and the Republic of Korea), as well as disaster risks to stakeholders, particularly policy experts, donors and partner organizations. The work- makers, is crucial. Sophisticated technologies and shop was held to increase technical knowledge, share detailed data are available to identify disaster risks. good practice from around the region, and foster a Nevertheless, due to rapid urbanization, complexi- community of committed leaders dealing with flood ties of the urban environment and climate change, risks. risks can never be fully ascertained. The development The workshop is part of a comprehensive program of multiple risk scenarios based on available data is known as the “Joint program implementation of an important step in understanding the probability subregional projects in Asia“ – an initiative sup- and consequences of risks. Accurate communica- ported by the Republic of Korea and the World Bank/ tion of risk information to key stakeholders is a vital Global Facility for Disaster Reduction and Recovery step in allowing policy makers to make informed (GFDRR). The program is implemented in 15 coun- decisions on structural and non-structural flood risk tries and includes three subregional projects focusing management measures. It also allows the public to on the issues of Glacier Lake Outburst Flood (GLOF) understand the risks that it is facing and decide on in the Himalayan region, Typhoons in the Pacific, and appropriate actions or behaviors. Graphical informa- Flooding and Resilience in East Asia. The organization tion of risks, which can be created based on different of the workshop in Jakarta was led by the Disaster scenarios, is considered as a preferable decision-sup- Risk Management (DRM) team in the East Asia and port tool for policy makers and disaster managers. Pacific (EAP) region of the World Bank, supported by The use of open-source data and applications would GFDRR, and funded by the Republic of Korea. This contribute to the sustainability of an integrated flood flagship program supports knowledge sharing, tech- risk management system. nology transfer, capacity development, and learning Lack of coordination among stakeholders is one specific to strengthening flood risk management and of the most common challenges in flood risk urban resilience. management. A lack of coordination often exists The workshop, which was held as part of a series of between government levels, sectoral agencies, gov- launch events, is the first step towards implement- ernments and NGOs, and the private sector and ing the recommendations presented in the recently developers. Increased coordination may lead to stan- published World Bank report “Cities and Flooding: A dardized data formats, procedures, and tools for risk Guide to Integrated Urban Flood Risk Management analysis, harmonized policies and regulations, and for the 21st Century�.1 Echoing the key messages of identification of joint or complementary programs, the report, this two-day training event strengthened which can subsequently enhance the effectiveness the knowledge of participants on the issues facing and sustainability of chosen flood risk manage- ment measures. Coordination among government 1 World Bank Guidebook Cities and Flooding can down- loaded from the following website: www.gfdrr.org/ 2 All the presentations can downloaded from the follow- urbanflooding. ing website: http://www.gfdrr.org/gfdrr/node/1185. 5 Flood Risk Management and Urban Resilience Workshop Photos by Rinsan Tobing Workshop participants. agencies can be improved by mainstreaming flood future risks. Structural (hard-engineered) measures risk management into the sustainable development face certain limitations as they are costly and can only agenda. This can provide each agency with a com- effectively address hazard up to a certain level. Struc- mon, yet specific, higher-level goal that directly or tural measures may fail in the face of unprecedented indirectly addresses flood risks. hazard, which is always a probability. Non-struc- tural (non-engineered) measures are more cost- Appropriate incentives are necessary to address efficient and can be highly effective in reducing the the political and social context of flood risk man- agement. The adoption of a flood risk management consequence of hazards. A combination of structural agenda is shaped by the specific political context. Pol- and non-structural measures is therefore required to iticians, the private sector, and developers respond to build a robust flood risk management system that incentives. Appropriate incentives must be identified can accommodate residual risk, uncertainties, and and used to promote the adoption and implemen- extremities. tation of flood risk management among stakehold- A number of follow-up actions were identified ers, such as politicians and policy makers, the public to implement an integrated flood risk manage- and private sectors and developers. A social develop- ment approach in the countries participating at ment approach, incorporating incentives as well as the workshop. A virtual system will be put in place law enforcement, is required to influence the behav- as an initial form of a community of practice (CoP) ior of populations living in high-risk areas, especially for urban flood risk management to encourage fur- the poor and socially disadvantaged. ther peer-to-peer knowledge exchange and foster Robustness is a key consideration in striking a regional cooperation. This report summarizing the balance between structural and non-structural proceedings of the workshop serves as a knowledge measures. Rapid and unplanned urbanization, cli- resource for participants, as well as those members mate change, and the complexity of urban systems of the public that are interested in flood risk manage- are generating uncertainties linked to current and ment and urban resilience. 6 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS OPENING AND WELCOME REMARKS Stefan G. Koeberle, Country Director for Indonesia, World Bank Photo by Rinsan Tobing ■■ Jakarta is often confronted with frequent flood- ■■ The single solution model of flood control using ing, and has taken bold steps to address the structural mitigation measures is very expensive issue, notably by focusing on the social aspects of and often creates new problems, both upstream communities at risk. The World Bank is privileged and downstream. With one of the highest eco- to provide support and assistance to the city of nomic growth rates in the world, the region has a Jakarta as part of its flood mitigation efforts. unique opportunity to consider flood mitigation as a sound investment that not only has a direct ■■ The theme of this workshop – flood risk man- economic value but also contributes to prevent- agement and urban resilience – is very pertinent ing losses. considering the frequency of the occurrence and the impact of flooding in recent years in many ■■ City representatives, national governments, and of the rapidly growing cities in developing coun- private sectors participating in the workshop tries. With a higher degree of economic inte- were invited to exchange their views and experi- gration and connectivity in the East Asia and ences in addressing urban flooding problems and Pacific (EAP) region, major flooding in one city building resilience. There is much innovation in will unfortunately have significant economic and the region that can be shared in this forum, with social impacts in other cities, regions, and coun- opportunities to scale up and replicate successful tries. experiences in other cities as well, while at the same time avoiding the mistakes of the past. ■■ The World Bank sees rapid urbanization as both an opportunity and a challenge. Urbanization ■■ This initiative is one of the many South-South creates opportunities for increasing economic knowledge exchange opportunities that are growth and poverty reduction. At the same time, being encouraged in the East Asia region, espe- with the imminent threat of climate change and cially across low- and middle-income coun- increased vulnerability to disasters, urbanization tries facing similar problems. The World Bank also potentially exposes a greater number of peo- is very happy and privileged to facilitate these ple to the risk of serious catastrophic events. exchanges. 7 Flood Risk Management and Urban Resilience Workshop OPENING AND WELCOME REMARKS Bang Ki-Sung, Deputy Administrator, National Emergency Management Agency (NEMA), Republic of Korea Photo by Rinsan Tobing ■■ Flood risk in the Asia Region, especially in the Incheon Agreement and Action Plan, which was South East Asia, is significant. The region is highly adopted by all Asian ministers during this minis- prone to various typhoons and storms. Urban terial conference. flooding has in recent years become acute due to extreme weather events. Flooding hinders ■■ This workshop is part of a comprehensive pro- growth in individual countries, the region, and gram that supports three subregional projects in the world. Asia focused on flood risk management. These projects are being implemented in 15 countries ■■ In this context, this workshop is a very important and regions and include the Glacier Lake Outburst event as the experience of participants will pro- Flood (GLOF) project in the Himalayan region, vide good guidance for flood risk management typhoons in the Pacific region, and the East Asia and disaster resilience in South East Asia. Program on Flooding. This unique regional-level program supports knowledge sharing, technol- ■■ In 2010, the Republic of Korea hosted the 4th ogy transfer, capacity development, and learning Asian Ministerial Conference on Disaster Risk on flood risk management and disaster resil- Reduction (AMCDRR) in Incheon, with the sup- ience. This unique program for the Republic of port of GFDRR. NEMA and the World Bank have Korea and GFDRR has been expanded to other signed a MoU on the implementation of the parts of the region. 8 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Fauzi Bowo, Governor of DKI Jakarta Photo by Rinsan Tobing ■■ The publication of “Cities and Flooding: a Guide policies and priorities. There is increasing rec- of Urban Flood Risk Management for the 21st ognition that cities and urban regions are key Century,� which provides guidance on the prob- engines in the economic growth of countries and lem of flooding in the urban environment, is long regions, and that flood reduction plays an inte- overdue. gral part in this. ■■ One of the greatest challenges faced in Jakarta ■■ Jakarta has been forced to be innovative in com- today is climate change. ing up with solutions. For example, to be safe from the threat of climate change and flood- ■■ When Jakarta suffered massive floods in 2007, ing, Jakarta must find an area of 50 sqkm to it paralyzed the city for five days and forced accommodate excess water that causes floods. more than 400,000 people to leave their homes, At the same time Jakarta is experiencing sub- resulting in an estimated loss of US$635 mil- stantial land subsidence due to the extraction of lion; the people who suffered the most were the ground water. Parts of Jakarta have subsided 2 urban poor. At the time, the city administration meters, and there is no further room for the city of Jakarta was still struggling with land acquisi- to expand. Jakarta is therefore planning to con- tion to complete the construction of the Eastern struct a giant sea wall in the bay of Jakarta. Flood Canal. The construction of this canal in the East of Jakarta was not only focused on build- ■■ An integrated approach is being taken with ing infrastructure, but also about reviving river- regard to climate change and the environment; ine communities which had been devastated by this approach takes into account human and annual floods. The completion of the East Flood welfare dimensions. Eradicating poverty and Canal in 2010 has successfully reduced flooding addressing welfare issues must go hand in hand by 30 percent in Jakarta and improved the lives with managing floods. of 2.5 million people. ■■ Jakarta’s experience shows that the success ■■ Flood risk management implemented by cities of flood risk management lies in community and local government is crucial. Cities and local involvement. Policy makers and urban develop- governments have the opportunity to design ment experts must listen to the communities and solutions that are adaptable to the needs of their empower them so that they can be part of the local communities and are consistent with local solution. 9 Flood Risk Management and Urban Resilience Workshop PRESENTATION SUMMARIES Photo by Thinkstock.com 10 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Session I: Overview of “Cities and The Cities and Flooding guidebook proposes an inte- grated approach to urban flood risk management. Flooding: A Guide to Integrated The guidebook targets practitioners and people Urban Flood Risk Management on the ground dealing with issues related to urban for the 21st Century� flooding. It offers operational guidance and includes over 50 case studies, how-to sections, and 12 guid- Abhas K. Jha, Lead Urban Specialist and ing principles that illustrate the state-of-the-art on Program Leader, Disaster Risk Management for integrated urban flood risk management. the World Bank East Asia and Pacific Region Among the 12 principles, listed in Box 1, there are Flooding is the most common of all natural disasters. Flooding is an Asian phenomenon, as 90 percent important points to highlight. Principle 6 states of people affected by floods live in Asia. Rapid and that it is impossible to entirely eliminate the risk unplanned urbanization in the region is a significant of flooding. This is particularly important as it sig- contributing factor to flood disaster, as it puts more nals a shift away from the myth that we can build people and assets in harm’s way. With the currently our way to safety. Preparedness for an unexpected staggering growth of urban areas in many countries, hazard level is always necessary. Infrastructure and urban flooding is going to be a growing challenge systems should be designed in such a manner as to for development and poverty reduction in the com- allow them to fail gracefully should an unexpected ing decades. hazard occur. Principle 11 states that continu- ous communication to raise awareness and rein- force preparedness is necessary. People’s memory Cities and Flooding of disasters is short, so communication tools are needed to keep these memories alive and ensure A Guide to Integrated Urban Flood Risk Management for that people behave in an appropriate manner. Risk the 21st Century information, in the form of flood hazard maps and A Summary for Policy Makers flood forecasting, is also a very worthy investment Abhas K Jha | Robin Bloch to increase disaster preparedness. Jessica Lamond Decision making should be based on robustness, and a proper balance should be achieved between structural and non-structural measures. Examples of non-structural measures include the “When flooded turn around don’t drown� campaign in the United States, the German Flood Control Act 2005, the LiFE project and the Pacific Catastrophe Risk Assessment and Financing Initiative. An example of mixed measures is the Integrated Flood Risk Man- agement initiative in Ho Chi Minh City, Vietnam. The way forward and challenges on the implementa- tion of an integrated flood risk management relies on THE WORLD BANK SKU 32664 the identification of appropriate instruments, invest- ments, and incentives. 1/20/12 9:51 AM Figure 1 Cities and Flooding 11 Flood Risk Management and Urban Resilience Workshop BOX 1. Guiding Principles for an Session II: Show cases from Integrated Urban Risk Management Countries/Cities Panel Session 1: Understanding Flood Hazard and Its Impact Moderator: Victor Rembeth Speakers: Dr. Royol Chitradon, Hydro and Agro Informatics Institute (HAII), Thailand Khamhou Phanthavong, Ministry of Agriculture 1. Every flood risk scenario is different: there and Forestry, Lao PDR is no flood management blueprint. 2. Designs for flood management must be Catalina E, Cabral Ph.D., Department of Public able to cope with a changing and uncer- Works and Highways, the Philippines tain future. Yumei Deng, Ministry of Water Resources, P.R. 3. Rapid urbanization requires the integra- China tion of flood risk management into regu- lar urban planning and governance. Dr. Ole Nielsen, Australia-Indonesia Facility for 4. An integrated strategy requires the use of Disaster Reduction, Jakarta. both structural and non-structural mea- sures and good metrics for “getting the Key Points balance right.� 5. Heavily engineered structural measures ■■ Rapid urbanization is the root of many factors can transfer risk upstream and down- contributing to urban flood risk. stream. It is impossible to entirely elimi- ■■ Multi-hazard and bottom-up participatory nate the risk from flooding. approaches are crucial for the implementation 6. Many flood management measures have of efficient and effective measures. Communi- multiple co-benefits over and above their ties need to be empowered to actively contribute flood management role. to the design and implementation of flood man- 7. It is important to consider the wider social agement measures. and ecological consequences of flood management spending. ■■ A social perspective should be integrated into 8. Clarity of responsibility for constructing flood risk management measures. Law enforce- and running flood risk programs is critical. ment alone may not be effective in changing 9. Implementing flood risk management human behavior. measures requires multi-stakeholder cooperation. ■■ Proper tools and appropriate technologies are 10. Continuous communication to raise crucial in understanding flood hazards and their awareness and reinforce preparedness is impacts. necessary. 11. Plan to recover quickly after flooding and ■■ Information on flood risk and potential impacts use the recovery to build capacity. must be made openly available for decision mak- ing purposes, preferably using open-source data Source: Cities and Flooding: A Guide to Integrated Urban Flood Risk Management for the 21st Century. and applications to improve sustainability. 12 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Climate Change Technology Needs and Thailand needs to simultaneously manage both Community Water Management in droughts and floods in order to avoid redundant Northeastern Thailand investments and ensure water security for all user groups, both at the macro-level for irrigated agri- Dr. Royol Chitradon, Hydro and Agro cultural areas, industrial sector and urban/municipal Informatics Institute (HAII), Ministry of Science areas, and at the micro level for rain-fed agricul- and Technology, Thailand tural areas. Thailand has worked with other coun- tries, including China and multilateral organizations, Thailand has experienced an increasing trend of rain- to reach a better understanding of water cycles and fall intensity and variability that causes some areas to improve seasonal projections. To address challenges suffer both droughts and floods, sometimes in the in infrastructure development, forest conservation same year (see Figure 2). Extreme events, such as and management of catchment areas, Thailand is the ENSO cycle, have occurred more frequently. This currently adopting a bottom-up approach at the micro level by identifying best practices and strength- significantly affects the agricultural sector in Thai- ening them with the help of low-cost open source land. Only 17 percent of Thailand’s agricultural land GIS mapping and micro irrigation systems. is irrigated, while the rest is rain-fed. It is therefore important for Thailand to properly manage its water The bottom-up community-level approach adopted resources. in water management in northeastern Thailand can Flood risk area Drought risk area Low drought risk area Low flooding risk area Medium drought risk area Medium flooding risk area High drought risk area High flooding risk area No risk area Dam and Reservior Dam and Reservior Main river Main river Regional boundary Regional boundary Figure 2 Thailand - Flood Risk and Drought Risk Areas Source: PowerPoint presentation, Dr. Royol Chitradon, Department of Disaster Prevention and Mitigation. 13 Flood Risk Management and Urban Resilience Workshop be considered as best practice. Northeastern Thailand Disaster risk management (DRM) has been integrated covers an area of 166,370 sqkm and is crossed by the into Lao PDR’s development plans, namely the Lao Kong, Chi and Moon rivers; the region experiences National Growth and Poverty Eradication Strategy floods and droughts as a result of increasing rainfall (NGPES-2004) and the Lao PDR’s Sixth National Socio- and seasonal variability. The construction of large res- Economic Development Plan (2006-2010). DRM will ervoirs is not feasible for topographical reasons. Sim- also be integrated into the Seventh National Socio- ple community-based traditional micro infrastructure Economic Development Plan and the Country Part- was considered the most cost-effective solution. nership Strategy which is currently being prepared. The latter document will include environment, cli- In the Ban Limthong Community Water Management mate change and disaster management as its priority. in Burirum province, measures such as dredging, ren- ovating waterways, building network of people and Institutional structures have also been put in place. utilizing technology to plan production processes, The National Disaster Management Committee have successfully tripled the income of villages and (NDMC), an inter-ministerial committee was estab- reduced the frequency of floods and droughts. This lished in 1999 to develop policies and coordinate community water management practice has been disaster risk reduction activities throughout the coun- replicated in other areas. Through networking and try. A National Disaster Management Office (NDMO), cooperation, the number of villages (rais) applying under the Ministry of Labor and Social Welfare, was community water resource management is expected established in 2000 to serve as the secretariat of to increase from 3,000-4,000 rais to about 60,000 NDMC. rais over a period of 5 to 6 years. Lao PDR is committed to implementing its disaster The above concept forms part of the Monkey Cheek risk reduction efforts. It acknowledges the support of initiative launched by the King of Thailand; this ini- its development DRM partners, and will continue to tiative promotes a multi-hazard community-level further develop and scale up its disaster preparedness approach in local water retention systems. programs to strengthen national and local capacity to manage and cope with future natural disasters. Status of Lao PDR’s Flood Risk Management and Case Studies Structural Measures for Flood Management in the Philippines Khamhou Phanthavong, Ministry of Agriculture and Forestry, Lao PDR Catalina E. Cabral Ph.D., Department of Public Works and Highways, the Philippines Lao PDR regularly experiences floods and droughts. River basin floods in areas located along the Mekong The Philippines is ranked third among the highest River and its tributaries, as well as flash floods in risk countries in Asia for floods. Despite the gov- mountainous regions, are common. It is estimated ernment’s commitment to flood risk management, that the south and central regions, where about two challenges still exist in the areas of infrastructure con- thirds of the country’s population live, experience an struction and maintenance, watershed/river basin average of 1.5 serious floods or droughts every year. management, land use planning, strengthening of As a developing country with a per capita income of institutional and local capacities for flood mitiga- US$753, Lao PDR struggles to provide the human- tion, forecasting technology, governance and law itarian response and recovery efforts required for enforcement, mapping for decision making support most sectors to reach the pre-disaster level. Given purposes, public and private sector awareness, and the significant changes in the regional mean temper- understanding the impacts of climate change. ature and rainfall, Lao PDR will face even bigger chal- lenges in natural resource management, especially in National flood risk management strategies have been water and forest resources that are major drivers of integrated into the Philippine Disaster Risk Reduction its economy. and Management Act of 2010, Climate Change Act 14 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS of 2009 and the Philippine Development Plan 2011- A case study focusing on the 1991 flash floods in the 2016. A National Disaster Risk Reduction and Man- city of Ormoc, Leyte underlines the following impor- agement Council was created as an effort to move tant lessons: (i) Construction of comprehensive infra- away from a top-down approach towards a bottom- structure can effectively mitigate flood disaster and up participatory approach for disaster risk reduction, protect communities, but may not always be feasible following the shift from disaster response to a more due to the high cost of the investment; (ii) Aid from integrated approach of social and human devel- international organizations is critical, particularly for opment, and a stronger focus on the vulnerability technology transfer; and (iii) Dense population set- aspect of disasters. The Climate Change Commis- tings in high-risk areas contribute to high casualties. sion is working closely with the National Disaster Risk A social development approach, with strong political Reduction and Management Council, both of which will and support from local government, is required are chaired by the President, in the areas of gover- to address this issue. nance, capacity development, knowledge manage- ment, and risk and vulnerability reduction. There is also a stronger push towards empowering local gov- ernments and civil societies in DRM. anilao slit Dam Malbasag slit Dam Biliboy slit Dam Structural Countermeasures Figure 3 Case Study – Structural Countermeasures Source: PowerPoint presentation, Catalina Cabral, Department of Public Works and Highways. 15 Flood Risk Management and Urban Resilience Workshop Status of China’s Flood Risk Management China for pilot practice on flood hazard mapping and and Case Studies flood risk management practices. An exercise aimed at identifying drivers of urban floods, challenges and the Yumei Deng, the Office of State Flood Control set of actions for integrating flood risk management and Drought Relief Headquarters, P.R. China has also been carried out. China experiences frequent flood disasters due to its topography, climate, and distribution of assets and Impact Assessment Tools population. Since 1949, an average of 3,700 peo- Dr. Ole Nielsen, Australia-Indonesia Facility for ple died, and 2.5 million homes are damaged due Disaster Reduction, Jakarta to floods. China experiences various types of floods, including rainstorm floods, flash floods, typhoons, The Indonesia Scenario Assessment for Emergencies storm tide floods and urban floods. The latter is a par- (InaSAFE) system was developed through the collab- ticularly pressing problem due to the rapid economic oration of the Indonesian Agency for Disaster Man- development of cities and the massive urbanization agement (BNPB), the World Bank GFDRR Labs/EAP that has taken place over the past three decades. The DRM teams and the Australia Indonesia Facility for amount of loss due to urban floods has been consis- Disaster Reduction (AIFDR) of AusAID. InaSAFE is a tently increasing over the past few years. graphical information system that overlays data on The Government of China has adopted a strategic hazard levels with data on people and assets to pro- approach to flood control and disaster mitigation. Pol- duce a reliable estimate of disaster impact. InaSAFE icies were developed in 2003 to simultaneously tackle was developed to obtain the best available science floods and droughts and move away from flood con- and data to support disaster management decision trol towards flood management. Among the struc- making. The system can generate realistic disaster tural measures taken are amendment of plans for scenarios for use in contingency planning and pro- flood control and disaster mitigation, improvement vide evidence-based quantitative impact assessments. of engineering systems, expansion of flood ways to increase flow and storage, construction of dikes, res- InaSAFE requires input in the form of hazard data (e.g. ervoirs and flood diversion area. These measures are earthquake ground shaking and inundation maps) complemented by non-structural measures, such as which are commonly available through science agen- scientific management systems, social security sys- cies, and people/asset exposure data (e.g. population tems, technological supporting systems, as well as density, important buildings and infrastructure, etc.) regulation, policy and legal systems. Flood control that can be taken from the bureau of statistics, local institutional structures at the state, provincial, city, data, or public sources. Challenges related to these and county level have also been established. These data requirements include the availability of hazard institutional structures report to the State Flood Con- and exposure data, and standardization of formats, trol and Drought Relief Headquarters, which consists metadata and distribution methods. These challenges of 21 central government sector representatives. can, to a certain extent, be solved by using open- source data and application such as OpenStreetMap. China has a set of flood management-related laws The use of free, open-source data and application will and regulations. It has also initiated the development increase sustainability in the long run. of a National Information System for Flood Control and Drought Relief. Hydrological monitoring, flood forecast- ing and warning system, flood dispatch, 3-D digital sys- Summary of Discussions tem for flood management, flood loss assessment and The discussion focused on the kinds of informa- flood hazard maps, are among the features being devel- tion required for decision makers to strike a balance oped for the information system. Other efforts include between structural and non-structural measures. the development of urban flood control schemes, land- use planning and adjustments, management of flood ■■ An evaluation of past experiences is required impact assessment, and the selection of 35 regions in to strike a balance between structural and 16 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS non-structural measures. In the case of the impacts, and intervention into a single platform. 2011 floods in Thailand, it was difficult to assess It is important to have a technology that allows whether the main cause was structural or non- agencies who own relevant data to easily share it structural. According to Dr. Chitradon, the first with other agencies without the need to be too step is to have good mapping system and develop proactive, as well as make data publicly available, a strategy to integrate hazard and social data. without the public having to ask for it. ■■ Dr. Cabral stated that the Government of the Phil- ■■ The American Red Cross (ARC), in collabora- ippines needs an asset management system to tion with the Indonesian Red Cross, is launch- account for and monitor the flood control struc- ing a flood mitigation program in the greater tures that have been built on its many rivers. The Jakarta area. The program focuses on non-struc- system will make it possible for the government tural measures and working with communities to understand the amount of investment and along the Ciliwung river basin. One component the frequency and cost of damages and consider of the program is solid waste management. Mr. alternative designs or approaches, as necessary. Tom Alsea of ARC would like to hear any experi- A database of waterways is also important for ences related to non-structural measures for solid identifying the institutions responsible for each waste management. waterway and the tributaries. This should be a col- laborative effort between national and local gov- ■■ According to Dr. Chitradon, prevention and mit- ernments. The national government also needs a igation is more conflict-prone than adaptation. good database that should be shared with local Adaptation is also better for promoting coordina- governments. Some local governments already tion. Dr. Chitradon shared the experience during have this database but it needs to be updated. the floods in northeastern Thailand, and western and eastern districts of Bangkok. In the western ■■ Dr. Nielsen added that when dealing with disas- district of Bangkok, the collaboration between ter managers, access to basic risk information is local administrations, international organiza- important for determining non-structural mea- tions, the army, and the private sector focused sures and the overall risk management system. on measures that were geared less on prevention and more on adaptation. Compared to the full ■■ According to Mr. Bhanja, there are matters to be prevention efforts carried out in eastern districts considered when determining structural and non- of Bangkok, previous efforts were more success- structural measures. Structural measures require ful in avoiding conflict. big investments, while non-structural measures must involve the community. In any disaster sce- ■■ Dr. Chitradon added that jurisdiction and law nario, the community’s capacity and involvement enforcement were difficult to implement during in the decision-making process is important. a natural disaster. It was therefore important to Community-level initiatives, particularly local build up and strengthen disaster management at coping mechanisms, should be integrated into all levels of government, including at the local local and national policies. Good community-led level, ministry level, and central government initiatives have been seen, for example, during level. Cyclone Nargis in Myanmar. Similarly, national and subnational initiatives must percolate to ■■ Dr. Cabral gave an example of a law enforcement community level. problem in Metro Manila that deals with litter- ing and indiscriminate dumping by people living ■■ Some of the causes of flood, such as climate vari- along the waterways, which contributes to flood- ability and climate change, are dealt with in the ing. In one local government unit (LGU), there is course of interventions and measures managed by a law that bans the use of plastics. During the different agencies and jurisdictions. Mr. Gunawan flood, this LGU did not experience flooding. Ban- stressed the importance of linking the causes, ning plastics is not easy as plastic manufacturers 17 Flood Risk Management and Urban Resilience Workshop will oppose the initiative. The cooperation of Jenny Enrika and Agus Nuryadi, Pembangunan local and national government, local NGOs and Jaya Group. the private sector is needed to help enforce solid waste management, segregation of waste and Key points reduction of indiscriminate dumping. A database ■■ A combination of structural and non-structural on important buildings and factories impacted by measures is required to ensure the highest level flooding will help facilitate such cooperation. of protection against flood risk. ■■ Dr. Nielsen, based on his discussions with the ■■ Measures need to be flexible and robust in order Indonesian National Agency for Disaster Man- to adapt to uncertainties. agement (BNPB), added that the determination of a threshold is necessary in order to identify ■■ Uncertainties, presented in the form of multiple which public buildings or institutions, such as scenarios and probability percentages, should be hospitals and schools, will be closed or impacted clearly communicated to disaster managers to under certain scenarios. ensure informed decision making. ■■ Mr. Santiago suggested that levels of risk percep- ■■ Multi-stakeholder coordination will be more tion, specifically the risk acceptance or aversion effective when guided by specific shared goals of the affected communities, as well as the public and objectives, and supported through standard- in general, should be taken into account as this ized data and systems, a clear division of roles affects the perception of success in implement- and responsibility and good leadership. ing structural or non-structural measures. Mr. Santiago proposed the possible launch of a pub- ■■ Flood risk management should be mainstreamed lic information and awareness raising campaign into sustainable development policies and prac- focusing on the affected communities, particu- tices. larly the poor and vulnerable, in order to inform and change their risk perception. ■■ The private sector and developers should be included in the dialogue on flood risk management. ■■ Multi-level and multi-sector coordination among Panel Session 2: The Components of government agencies promotes an integrated Integrated Flood Risk Management approach to flood risk management. To promote coordination, a basin-oriented or community-ori- Moderator: Victor Rembeth ented approach can be used. Speakers: ■■ Policy makers play an important role in deter- Dr. Ho Long Phi, Steering Center of Flood Control mining flood risk management investment. Program Director, Ho Chi Minh city, Vietnam Practitioners should provide policy makers with decision-support tools and supply sufficient Dr. Cheong Tae Sung, National Disaster incentive to promote commitment on longer- Management Institute (NDMI), Ministry of term flood prevention, mitigation, and prepared- Public Administration and Security (MoPAS), ness measures. Rep. of Korea ■■ Technological innovations, such as those devel- Dudi Gardesi, Department of Public Works, DKI oped in the Republic of Korea and Japan, can Jakarta greatly enhance flood prevention and mitigation Takaya Tanaka, Japan International efforts. Cooperation Agency (JICA) 18 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Evaluating Alternative Flood Risk to the uncertainty of future risks. Adaptation aims to Management Options maintain the current protection level over time, while resilience, which addresses risk rather than hazard, Dr. Ho Long Phi, Steering Center of Flood aims to increase the protection level to 100 percent Control Program Director, Ho Chi Minh City, and reduce the damage under extremity. Adaptation Vietnam and resilience are mostly non-structural measures, implemented through a multi-stakeholder approach. Ho Chi Minh City lies in a lowland area and faces increasing risk from upstream floods, increasing rain- The three components of this strategy have to be fall, increasing tidal effect, sea- and water-level rise, supplemented with a decision-support system. and land subsidence. Urbanization further aggra- The integrated flood management strategy does vates inappropriate land use, which in turn heightens not entirely rely on a ‘predict and act’ approach, flood risk. The risk uncertainties make it difficult to which is conventionally used for the design of struc- determine appropriate structural measures. tural protection measure. Greater attention is given The city has an integrated urban flood management to adaptation and resilience measures as they are strategy designed to deal with uncertainties. The more appropriate for dealing with uncertainties and strategy has three components: protection, adapta- extremities of future risks. When designing struc- tion, and resilience. The main component is protec- tural measures, it is important not to encourage tion, which focuses on technical, structural measures, over-confidence as this reduces adaptability and such as construction of dikes, sewers, and water preparedness. The potential risks, which are often retention infrastructure, in order to ensure people’s perceived as small in terms of probability, can be safety at 80-95 percent protection levels. The protec- very dangerous if not considered in the design of tion level of these structures decreases with time due structural measures. Figure 4 Ho Chi Minh City – Strategy Analysis Source: PowerPoint presentation, Dr. Ho Long Phi. 19 Flood Risk Management and Urban Resilience Workshop An iterative decision-making (IDM) process is used water shortage due to a decreasing number of rainy to decide on the selection of the protection strategy, days and increasing water needs, coastal floods due which can be a combination of measures. The process to sea-level rise and erosion of sandy beaches. involves identification of candidate protection strate- In 2011, the Prime Minister’s office was tasked with gies (see Figure 4), development of multiple scenarios setting up a task force consisting of relevant minis- for each strategy to analyze vulnerability and calcu- tries, local governments, and experts to address the late potential damages, and analysis of candidate issue of climate change and improve existing institu- protection strategies based on protection, adaptation tions such as resetting disaster prevention standards. and resilience criteria as well as social and economic risk analysis. Social and economic risk analysis is car- A number of policies to be developed will include a ried out through an overlay of vulnerability maps, new guideline for disaster risk reduction (DRR) and hazard maps and exposure maps to identify the vul- climate change adaptation (CCA), a new design code nerability and indirect cost index. The final strategy is for public facility and social infrastructures, enhance- then selected based on robustness rather than opti- ment of guidelines on sewer systems, and strength- mality, criterion or probability. ening erosion control to reduce debris. The Republic of Korea is also developing its flood risk manage- In conclusion: (i) the eventual purpose of flood man- ment system, such as an Automated Rainfall Warn- agement is to reduce risk not hazard; (ii) integrated ing System (ARWS) and a warning and dissemination strategy should consider uncertainty and extremity; system, which will allow wire/wireless warning dis- (iii) economic-favored and social-favored strategies semination by the Disaster Information Management should be justified by a multi-stakeholder process; Center. A flash flood forecasting system, landslide and (iv) to deal with complexity, choice should come forecasting and monitoring system and a typhoon before prediction. disaster management system are also being devel- oped. These policies and systems will identify local- Flood Risk Management Policies and ized risk and estimate GIS-based damage information Systems for CCA and DRR for the purpose of decision making on DRR and CCA. Mr. Jha commented that laws should ensure the Tae Sung Cheong Ph.D., Climate Change availability of permeable spaces. In the case of cit- Research, National Disaster Management ies in India, green spaces are often built on top of Institute (NDMI), Ministry of Public concrete. It is therefore important to focus on per- Administration and Security (MoPAS), Republic meable ground, not just greening. Rain water har- of Korea vesting is seen as a good solution for ground water The Republic of Korea has recently developed its discharge. In the city of Delhi, for instance, all 2050 climate change projection which indicates a houses are required to have rain water harvesting, significant potential increase in disaster risk and vul- yet enforcement of this regulation is still weak. In nerability due to rising temperatures, increasing pre- other Indian cities, e.g. Chennai, this effort has been cipitation, seasonal changes and sea-level rise. There more successful. In Toronto, 60 percent of commer- will be higher probability for extreme weather events, cial building areas are required to be green, which is such as heat waves and downpours, which may something that the Republic of Korea is also trying to cause droughts and floods, as well as increase the enforce. This effort is easier to implement in new cit- risk of more frequent, large-scale natural disasters. ies, while in older cities such as Seoul, many houses Over the years, there have been fewer fatalities fol- and factories were built in high-risk areas during the lowing natural disasters in the Republic of Korea, but country’s rapid development in the 1960s. Accord- higher amounts of financial losses due to changes in ing to Mr. Cheong, the government is trying to con- the social structure. Most damage has been caused vert existing areas into green areas, improve sewer by floods and landslides in river basins and urban systems, and develop underground storage facilities areas following torrential rain, drought caused by similar to those built in Japan. 20 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Flood management in Jakarta: Case from Jakarta has initiated a number of structural and non- Jakarta Urgent Flood Mitigation Program structural flood control measures. The measures (JUFMP) include the creation of new water catchment areas, sea walls (see Figure 5) and a polder system; some Dudi Gardesi, Ministry of Public Works, DKI Jakarta of these measures are collaborations between the Ministry and the provincial government through the Jakarta, the capital city of Indonesia, is a low-lying support of development partners. An example is the delta area traversed by 13 rivers. Forty percent of construction of eight sea walls built by the provin- Jakarta is affected by high tide. The city generally cial government on a piece of land that was acquired experiences medium-to-heavy intensity rainfall in the by the provincial government. The compensation for rainy season. With massive urban development tak- land varies depending on land ownership. When the ing place, Jakarta faces significant flood risk. Land land is owned by the State, compensation is given subsidence, clogged river and sewerage, slum forma- only for the relocation of inhabitants, whereas when tion in high risk areas, and sea-level rise are just a few the land is privately-owned, compensation is based of the factors that are contributing to the flood risk. on the price of the land and the price it would cost to build on the land. Figure 5 Jakarta – Sea Wall Rehabilitation Plan Source: PowerPoint presentation, Dudi Gardesi. 21 Flood Risk Management and Urban Resilience Workshop Comprehensive Flood Management in an the river basin, the river itself and drainage systems. The Urban River – A Successful Experience in three measures incorporate a range of structural mea- Japan sures, such as landfill control, preservation of green area, river improvement, permeable pavement, multipurpose Takaya Tanaka, Japan International retarding basin, reservoir, park storage, underground Cooperation Agency (JICA) reservoir, and construction of gates and pumps. The Tsurumi river basin is affected by the East Asian mon- As part of the river basin measures, the government soon and has experienced rapid urbanization between works with the private sector to build flood control res- the 1960s and the 1980s. Peak run-off discharge has ervoirs. All private developers are required by national more than doubled within that same period, resulting law to construct a 500-cubic meter pond per hectare in frequent floods – a similar challenge to the one faced of land. The government also uses new technology in the Ciliwung river basin in Jakarta. Urbanization and for ground material that allows water storage under- settlement in Tsurumi is predicted to increase by 14 per- ground. The river measure includes the construction of cent between 2008 and 2030, along with a 50 percent the 84-hectare Tsurumi multi-purpose retarding basin increase of run-off discharge. that accommodates 3.9 million cubic meter of water. One contributing factor to urban flooding is the lack of The drainage measure includes the construction of space for water, particularly in densely populated areas. pumping stations and drainage rainwater storage pipes. A comprehensive flood management system which As a result of this comprehensive set of flood preven- essentially aims to increase space for water has been tion measures, the number of houses inundated during put in place in the Tsurumi river basin (see Figure 6). floods has consistently decreased over the years, from The system consists of three types of measures covering more than 7,500 in 1966 to close to none in 2004. Figure 6 Japan – Comprehensive Flood Management – Reserve Water in the City Source: PowerPoint presentation, Takaya Tanaka. 22 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Flood Risk Management at PT. city level to relocate populations to the city boundary Pembangunan Jaya Ancol, Tbk. areas, or in areas in adjoining provinces. There are still issues with communications, as in some areas, Jenny Enrika, Pembangunan Jaya Group communities are reluctant to relocate. Recent talks Agus Nuryadi, Pembangunan Jaya Group with informal sector groups have shown that com- munities are taking a more positive stance and that PT Pembangunan Jaya Ancol, Tbk, is a private com- attitudes on relocation-related issues have improved. pany that operates a 552-hectare seaside property and The challenge is to cover the relatively high cost of recreation/resort area in Ancol, north Jakarta. PT Pem- resettlement in Metro Manila. Another challenge is bangunan Jaya Ancol adopts a strategic management to find sufficient space to devote to these initiatives. framework that places no burden on the city’s systems. An AusAID-supported project is currently addressing It discharges no water into the city drainage system this issue. The project employs a multi-tier approach and produces its own drinking water from sea water to developing relocation units, which are not uni- through a reverse osmosis system and without extract- form. Several models are available, depending on the ing any water from the land. It constructed its own willingness of those being relocated to pay and the sea walls, dikes, canals, polders and a pumping system using hydro meteorological data from the Indonesian size of their respective families. The national housing Meteorology and Geophysics Body (BMG). agency and several city governments have expressed an interest in replicating this initiative. PT Pembangunan Jaya collaborates with the Jakarta city government in the maintenance of water gates According to Mr. Tanaka, another challenge is the and pumps systems in the Ancol area to support the ‘wall between agencies’, e.g. between sectoral agen- city’s drainage. It also allocates a portion of its land cies and the planning agency, which exists in Japan as for the city’s waste disposal. Seventy percent of its well as Indonesia. Mr. Cheong agreed that this issue land is designated as a green area, with paving blocks needed to be resolved. A consensus has to be reached used throughout to increase water absorption. between the national government, local governments, and the private sector. Focusing on basin-oriented and community-oriented measures may help to promote Summary of Discussions such a consensus. Hardware/structural measures are The discussion focused on the challenges in integrat- easier to agree on as they rely mainly on budget, so ing flood risk management. the focus can be placed on consolidating software/ non-structural measures, such as capacity-building, Resettlement of populations at risk is a challenge. early warning and decision-making systems. Informa- Dr. Santiago explained that in Metro Manila, 75,000 tion and knowledge sharing should take place within a families, who are either affected by floods or are common DRM objective. Mr. Tanaka agreed that there implicated in causing them, are to be relocated. A should a common goal between the various agencies; fund of 15 million pesos has been already allocated this common goal should be a concrete numerical goal for this purpose. The options for resettlement are on- and not merely a conceptual goal. site resettlement, in-city resettlement or resettlement along the limits or outside of Metro Manila. Each Mr. Jha added that developers are often neglected in option has its own risks and benefits. A rule now the dialogue between stakeholders, and this should requires the preparation of hazard maps for resettle- be corrected as they are a key partner in this process. ment to areas outside of Metro Manila, as spaces out- A high degree of informality exists in this sector. In side of Metro Manila may not be necessarily better Istanbul, for instance, 50 percent of housing is infor- for resettlement purposes, although costs are lower. mal. An informal developer community exists, so it is Another option would be constructing medium-rise important to get them involved in flood risk manage- buildings for resettlement within Metro Manila. This ment. Mr. Jha also included political aspects as part option is more costly and the area is still exposed to of the uncertainty in flood risk management. Policy existing hazards. Local governments in Metro Manila makers are mostly concerned with current pressing are coming up with programs to generate funds at the issues, and not with future potential impacts. This 23 Flood Risk Management and Urban Resilience Workshop is particularly true in developing countries, such as Nielsen is considering assigning a rating to the input Indonesia, India, and Brazil, where policy makers face data, for instance by giving stars. The more stars, a trade-off between providing for current needs, the higher the certainty and the level of trust put on such as sanitation and drinking water and preparing the data for decision making purposes. The level of for future risk that may or may not happen. Practi- uncertainty has to be clearly communicated before tioners should therefore provide policy makers with any decision is made. tools to link these trade-offs, but in the final account, Ms. Enrika said that PT. Pembangunan Jaya’s strategy decisions are taken on political grounds and not on has had little impact on Jakarta’s flood risk manage- technical grounds. ment as a whole. Jakarta’s problem is that it is lacks Dr. Nielsen added that when developing models and a green area. She proposed that countries jointly maps, there needs to be clear understanding that decide on a common policy, for example on a green they represent a probability, and not a certainty. Dr. area requirement for all cities. Session III: The International ■■ A shift from a deterministic approach towards a probabilistic approach is crucial to ensure robustness. Development Partner View – Pannel Session ■■ Satellite data and technology is now available to support more accurate prediction of hazard and Speakers: risk analysis. Tae Sung Cheong Ph.D., Climate Change Research, National Disaster Management Institute (NDMI), Ministry of Public Korean Technology on Flood Forecasting Administration and Security (MoPAS), Rep. of Model and Faster Decision-making Process Korea Tae Sung Cheong Ph.D., Climate Change Dr. Hitoshi Baba, Japan International Research, National Disaster Management Cooperation Agency (JICA) Institute (NDMI), Ministry of Public Administration and Security (MoPAS), Republic Yannick Douet, Altamira Information. of Korea Key Points The decision-support system for DRM in the Republic of Korea consists of three components: (i) an infor- ■■ Decisions must be made based on good quality mation-based DRM system; (ii) a model-based DRM information. It is therefore useful to have GIS- system; and (iii) a decision-support system. based decision-support systems based on mul- tiple scenarios. For the collection and sharing of information for the information-based DRM system, a standard format ■■ Flood management strategy should be contextual needs to be introduced, such as GIS-based infor- and should consider the local natural and social mation. Data is collected from related agencies and context and continually adapt to the changing merged to perform analysis for decision making. local context through the process of continuous learning (the Kaizen principle). The modeling-based DRM system is basically a numeri- cal model. The modeling based system can be easily ■■ Accurate calculation of risk and accurate com- calibrated according to the input data and validated in munication of risk to all stakeholders is critical for different locations. In the case of the Bo Chung Chun prevention, mitigation, and preparedness. basin, the rainfall-runoff modeling is used to compare discharge at different bridges in the basin area. ■■ A safe-side early warning, redundant designs, multi-player and multi-disciplinary approach are The decision-support system produces animations of important to address uncertainty. simulation results, which can provide an automatic 24 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS estimation of damage, both in terms of casualties There are two different scales for mapping in the and damage to properties (see Figure 7). The system Republic of Korea: a national decision-support sys- can be used for early warning, emergency response, tem for general use, and more detailed systems at the and early recovery. subnational level. Both maps are initially established by the national government. Technology is trans- ferred to the local government level through training, education, and information sharing. Figure 7 Decision-Support System in the Republic of Korea Source: PowerPoint presentation, Tae Sung Cheong. Lessons Learned from GEJE 2011 Japan Earthquake (GEJE) of 2011, and to extract new and additional perspectives for effective DRM that is Dr. Hitoshi Baba, Japan International equally applicable to the international community. Cooperation Agency (JICA) Box 2 provides a list of these lessons. The lessons learned from disaster experiences need A number of lessons learned in the GEJE 2011 were to be identified in order to contribute to the five underlined. Points b2 and h1 relate to the need to actions of the Hyogo Framework of Action. JICA has apply progressive adaptation against changing condi- launched a study on the effective countermeasures tions (the Kaizen principle). Changes related to ele- against mega-disasters to obtain lessons from vari- ments such as local natural and social conditions, ous catastrophic events, particularly the Great East as well as population, generation, lifestyles, risk 25 Flood Risk Management and Urban Resilience Workshop BOX 2 Lessons from GEJE 2011 a1: Probabilistic risk analysis with scientific f2: Disaster education, including capacity knowledge development of individuals b1: Continuous revision and upgrading of disaster g1: Hazard map for understanding hazard management standard instance and for evacuation drills, but not as b2: Risk analysis under changing local natural and deterministic hazard assumptions social condition g2: Continuous and regular risk communication c1: Comprehensive geological, archaeological, to raise awareness of the possibility of and historical research hazards exceeding the hazard maps c2: Safe-side early warning of the largest possible h1: Adaptation to changing community’s hazard conditions, such as population, generation, lifestyles, risk awareness, and capacity of self- c3: Realistic explanation of warning and disaster support activities information h2: Risk communication between aging c4: Redundant information delivery in population and new generation cooperation with various practitioners h3: Risk communication between mature d1: Multiple structural measures supported by residents and newcomers subfunctional structures i1: Local disaster management plans continually d2: Redundant combination of structural and revised on the basis of multiple damage non-structural measures to minimize hazard scenarios d3: Risk communication to raise awareness of i2: Community disaster management capabilities disaster management measures, limitations, enhancement through probabilistic hazard and probable risks identification, disaster education, evacuation e1: Construction of evacuation sites and escape drills, and construction of evacuation sites, routes integrated with city planning buildings and evacuation routes e2: Multi-combination of evacuation routes and j1: Joint efforts of multiple local governments facilities j2: Central level agency to carry out e3: Land use planning with the lowest risks as reconstruction projects residential areas incorporated with building k1: Handing down lessons learned on disaster regulations experiences and knowledge over generations e4: Evacuation system developed with disaster k2: Inducement of appropriate land use and preparedness including management of restrictions, regulations on building structures buildings and facilities in combination with city development plans f1: ‘Self Rescue First’ principle Source: PowerPoint presentation, Dr. Hitoshi Baba, Japan International Cooperation Agency (JICA). awareness and capacity for self-support, must be con- those affected of what a hazard map really means. sidered in the assessment of risk and identification of Points c4, d1, d2, e1, e2, i2 highlight the need to counter measures. Points c2, c3, d3, g1, g2 relate to have redundant prevention/mitigation measures and risk literacy. Safe-side early warning systems to warn disaster management operations. Redundancy does of the largest possible hazard was recommended, as not mean costly overlapping measures. Based on the well as updated and more accurate communication of study, redundant designs, multi-player, and a multi- risk and estimation of risk. For example, there should disciplinary approach works effectively in the context be an appropriate level of understanding among all of uncertain and extreme events. JICA uses the three 26 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS principles of Kaizen, risk literacy and redundancy in mitigation measures. This can be dangerous in the its approach towards securing finance and main- face of uncertainty. The probability approach uses streaming disaster risk management. multiple scenarios based on probabilistic hazard pro- jection to determine the hazard level. Through the A shift is needed from a deterministic to a prob- probability approach, damages and losses based on ability approach (see Figure 8). The deterministic multiple scenarios can be minimized through a seam- approach uses a target protection level for a planned less combination of structural and non-structural and designed hazard to determine protection and measures and redundant measures. Figure 8 A Comparison of the Deterministic Approach and the Probabilistic Approach Source: PowerPoint presentation, Dr. Hitoshi Baba, Japan International Cooperation Agency (JICA). Ground Displacement Monitoring Using This technology can provide site information and Radar Satellite Images features, as well as historical information on ground deformation and subsidence, which is a key input for Yannick Douet, Altamira Information. identifying and predicting disaster risk and vulner- ability. It has been used, for example, for analyzing Altamira Information is an earth observation company impact of earthquake on land subsidence in Yogya- that provides ground deformation measurements karta, the impact of urban development in Ho Chi with millimeter precision and mapping solutions Minh City (see Figure 9), the impact of groundwater using satellite images. Altamira uses Interferomet- extraction in Semarang, coastal zone vulnerability in ric Synthetic Aperture Radar (InSAR) methodology Alexandria, Egypt, and for measuring settlement of to measure vertical changes in land surface. Satellite the southern dike port of Barcelona. data are collected at intervals and analyzed to pro- duce graphical information that can be used for a To measure difficult areas, such as buildings or range of purposes within various sectors, including grounds covered with dense vegetation or snow, new infrastructures, mining, oil, and gas. The methodol- points of reference and corner reflectors will need to ogy offers high-quality measurement, large coverage, be added to the calculation. retrospective analysis, and up-to-date information in a cost efficient way. 27 Flood Risk Management and Urban Resilience Workshop Summary of Discussions ■■ When asked about the cost of the ground defor- mation measurement technology, Mr. Douet ■■ According to Mr. Santiago, the use of a probabi- explained that the cost will depend on the degree listic approach may pose additional challenge to of complexity and the kind of the study to be communicating risk and eliciting response from undertaken. Dr. Nielsen added that to improve those affected, when compared to the determin- sustainability, donors should ensure that pur- istic approach. Dr. Baba explained that risks are chased datasets or technology should be made sometimes misunderstood and that, at times, publicly available so that beneficiary countries are authorities do not properly explain the possibil- not burdened with subsequent licensing costs. ity of higher risk or extreme events that exceed Dr. Baba recommended that countries should our assumptions or previous calculation of risk enter into collaboration with research institutes depending on a single scenario. This is why mul- in Asia or in their respective countries to obtain tiple scenarios are necessary. For instance, when access to basic datasets at minimal cost. producing a hazard map, the possibility of differ- ent scenarios must be communicated, as well as ■■ As a result of climate change, it is no longer pos- the fact that these maps do not yet capture the sible to use past trends to predict the future, as maximum probable risk. in the case of 50-year or 100-year predictions. These kinds of prediction are not good for risk ■■ Dr. Nielsen stated that disaster managers do not communication, as it does not help people to need to know the maximum possible risk but fully understand probability and risks. Mr. Jha maximum credible risk. He inquired about best underlined the importance of shifting towards ways to identify plausible maximum risk levels. a probabilistic approach and move away from a Dr. Baba responded that the design of structural deterministic approach in which structural mea- measures should be based on maximum prob- sures are designed to respond to a specific haz- ability, and should take into account the esti- ard level, which may or may not be correct. mation on when the bigger hazard may occur. This is the practice of most scenario strategy and probabilistic approach of risk management. Binh Tanh District. Deformations up to 20mm/year triggered by rapid urban development Figure 9 Case study: Ho Chi Minh City - Urban Risk Management Source: Yannick Douet, Altamira Information. 28 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Special Session: Flood Preparedness Mapping Presentation Photos by Rinsan Tobing 29 Flood Risk Management and Urban Resilience Workshop Photos by Rinsan Tobing Remarks by Franz R. Drees-Gross, Sector ■■ This workshop is not a one-off event. Through the Manager, World Bank, Jakarta support of the Government of Korea and the gov- ernment of DKI Jakarta, a community of practi- ■■ Practitioners of urban flood risk management tioners from different countries can be formed to and urban resilience work at the intersection share knowledge and experience. By continuing of two megatrends in East Asia: a historically this information sharing after the workshop, the unprecedented urbanization trend and challeng- flood risk management agenda can gain visibility ing natural resource management issues. Urban- and buy-in from political decision makers, not just ization has meant that larger numbers of people here in Jakarta but also in other Asian cities. are placed in harm’s way, and more assets are at risk. This, combined with the natural phe- nomena, such as the sinking of Jakarta and sev- Remarks by Bang Ki-Sung, Deputy eral other cities in Asia, adds to the recurrence Administrator, National Emergency of flooding events. This is a huge challenge for Management Agency (NEMA), Republic. urban resilience and flood risk management. Of Korea ■■ There were good discussions on using risk infor- ■■ The Republic of Korea is facing changing disaster mation data and software and placing them in risks due to climate change. Located in the East the public domain for decision makers and plan- Asia Pacific region, 70 percent of the Republic of ners, as well as extending the discussion beyond Korea’s surface is mountainous terrain. In sum- flood risk management into the realm of urban mer, the country is often hit by typhoons coming design and planning and infrastructure invest- from the Pacific region, causing significant dam- ments. ages due to winds and concentrated rainfalls. 30 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS ■■ As part of disaster risk reduction and prevention, construction of the East Flood Canal, river normaliza- NEMA implemented hardware measures and soft- tion, retention dams, flood gates and pump systems ware measures. The hardware measures include, and dikes. These measures were able to bring down the disaster prone area enhancement project, the the number of flood prone points from 78 in 2007 steep slope plane national project to reduce land- to 62 points. This was not considered sufficient and slide and risk for flood disaster, and small stream urgent work is still needed on a common understand- management projects. Relevant policies and disas- ing of the risks among all stakeholders, particularly ter risk management systems have been presented among those at the community and subdistrict levels by Dr. Tae Sung Cheong. Software measures that are on the front lines during natural disasters. include the development of disaster risk manage- This reveals the need for stakeholders to have access ment regulations on: (i) an assessment of disas- to spatial data for infrastructure, village administra- ter risk for every development plan in the Republic tive boundaries, and public buildings such as schools, of Korea; (ii) a comprehensive integrated flood offices, clinics, hospitals and places of worship. reduction plan to support local government in To respond to this need, the Jakarta provincial disas- establishing long-term prevention measures; and ter management agency developed a participatory (iii) an insurance system to pay disaster compensa- flood risk map. This effort is supported by the World tion and minimize damages resulting from natural Bank through the GFDRR, the Indonesia National disasters. NEMA has also established design codes Agency for Disaster Management (BNPB), UNOCHA, and guidelines for facility and utility providers. and AIFDR. ■■ NEMA would like to share its experience and tech- The starting point of the mapping exercise was the nology. It will continue to strengthen the cooper- village-level (kelurahan) base maps produced by the ation and partnership agreements between the Department of Spatial Planning. This was followed Republic of Korea and GFDRR in various disaster by the collection of data on important assets from management initiatives. various sectoral departments. This data was then analyzed during several workshops held in each Visual demonstration on the administrative city. These workshops were attended OpenStreetMap flood preparedness by local government departments and heads of dis- mapping tricts and villages. Each head of village was assisted by a mapping assistant and supported by students S. Arfan Arkilie, DKI Jakarta Local Agency from the statistics department of the University of for Disaster Management Indonesia. This process successfully identified flood prone areas and safe locations for evacuations; the Jakarta first experienced flooding in 1654. It experi- data was then used to prepare 267 village-level flood enced a massive flood in 2007, with losses amounting risk maps. The maps are publicly available through to US$500 million. Jakarta subsequently implemented the OpenStreetMap application. a number of structural measures, including the 31 Flood Risk Management and Urban Resilience Workshop Session IV: Implementing (step-by-step) interventions and learning by doing is a good approach to flood risk management. Dr. Integrated Urban Flood Risk Chitradon added that by nature, hazard and dam- Management age control are deterministic, but development of Moderator: Victor Rembeth multiple scenarios is probabilistic. The capacity to develop a good set of scenarios, including a sce- The discussion focused on the use of a probabilistic nario in mismanagement of hazard, is therefore a approach in the context of uncertainty, the types of very important requirement for adopting a proba- information required for the adoption of a probabi- bilistic approach. In the case of Thailand, complete listic approach, the balance between structural and datasets are available, but that there were no mid- non-structural measures, and the importance of dle management layers and tools to develop the coordination across different agencies. set of scenarios. ■■ Probability is difficult to forecast and hard to ■■ A probabilistic approach, which includes sets communicate in a way that is easily understood. of scenarios instead of one scenario based on a Information provided must be reliable but not determined hazard level, is more difficult to com- deterministic. In the case of AIFDR, the informa- municate to stakeholders. Dr. Baba agreed that tion describes the event that may happen, the there was still a need to further develop a stan- impacts, and the probability of the event hap- dard methodology and identify the best combina- pening within a year. Dr. Nielsen added that tion of structural and non-structural measures. In emergency managers frequently preferred infor- Japan, many structural measures have been put mation on the maximum credible event, not the in place. Each set of infrastructure addressed a maximum probable event. specific target hazard level. Following the proba- bilistic approach, it is important not to rely on a ■■ A key requirement for the probabilistic approach single measure but to identify new methodologies is the availability of a database that is publicly to respond to different target hazard levels. In the accessible. A common approach should be iden- case of evacuation, for instance, there needs to tified in order to access available data, regard- be several evacuation routes and sites, and people less of where they are located. There are many need to have sufficient capacity to determine the different ways to collect data with unique capa- best route by themselves. Mr. Jha emphasized that bilities and features, such as historical data on a package of measures need to be available and ground changes and remote sensing data. Ms. presented in a visual format, with variables that Burzykowska from the European Space Agency/ can be easily played with or adjusted, so that pol- World Bank confirmed that the applications icy makers can understand the risks and measures developed on these data were very valuable for and how the combination of measures affect the regional knowledge sharing, and could be imple- risks. Such a presentation tool must incorporate mented as best practices and that the technolo- advanced back-end technology, but very simple gies could be replicated, when appropriate. front-end interaction for ease of use. ■■ A probabilistic approach can be reflected in the ■■ Dr. Cabral recommended a realistic balance design or the selection of flood risk management between structural and non-structural measures measures/strategies. All measures, both structural as the balance between the two is context-spe- and non-structural, need to be flexible and adapt- cific. The Philippines, for instance, rely more on able and based on multiple scenarios. Infrastruc- non-structural measures as they address differ- ture measures, which are often fixed or based on ent hazards simultaneously and require lower a determined level of hazard, can be designed investments, which is appropriate for the coun- to be flexible enough to adopt a probabilistic try. Measures that are currently being prioritized approach. An example is the case of dike over- in the Philippines include early warning, improv- flow. Dr. Phi advised against using projections in ing the accuracy of hazard warning, commu- identifying measures, particularly long-term pro- nity development, and raising awareness among jections that may not be accurate. Flexible, phased high-risk communities. 32 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS ■■ A deterministic approach can be useful for pol- upstream are reserved with dams, reservoirs and icy makers in determining a risk acceptance level catchment basins, and released only during the and the size of a given investment. Mr. Santiago dry season for irrigation purposes. This initiative proposed that a deterministic approach should has been successful for all the ministries involved. not be completely abandoned, but integrated The Ministry of Agriculture is able to better man- with a probabilistic approach to address hazard age irrigation areas that are experiencing flood- uncertainties. A probabilistic approach, with its ing, while supporting the watershed program of multiple scenarios, introduces a lot of uncertain- the Ministry of the Environment. Success is par- ties which, in turn, poses challenges in the com- ticularly noted in the provincial cities that are munication of risk, the identification of the risk mostly located in the lowlands. The program is acceptance level and the size of economic/finan- owned by all ministries involved, including the cial investment. The introduction of a probabilis- Ministry of Home Affairs that is responsible for tic approach into a deterministic one would be community development. The challenge in the preferable. Mr. Jha added that risk acceptance implementation of the convergence program is assumed a willingness to live with the conse- to ensure coordination between the different quences of failure. Clear communication of such ministries so that each ministry’s programs can be consequences, i.e. in the form of number of complement each other and timed appropriately. deaths and amount of asset loss, is required. ■■ Dr. Cheong agreed that many ministries and ■■ In the case of flood management in Jakarta, pol- organizations are involved in DRM, as can be icy makers did not respond positively to scenar- seen in the Republic of Korea, yet each has dif- ios. They preferred to deal only with the currently ferent perspective and needs, as well as datasets. identified hazard as they considered hazard sce- To ensure coordination among all stakeholders, narios reflections of their failure as policy mak- Dr. Cheong suggested the appointment of a gov- ers. Mr. Gunawan agreed that a visualization ernment or group to take the lead in DRM. This tool with customizable front-end was a worthy group will be responsible to ensure multi-stake- investment as it has been to be a very useful, holder ownership of DRM. This relates to the con- non-threatening tool for policy makers to iden- cept of national platforms that forms part of the tify flood risk measures. Investments in data and Hyogo Framework of Action. Mr. Bhanja added scenario updates should also be a priority. that knowledge exchange among policy makers and line ministries is very important at the incep- ■■ The combination of hardware and software mea- tion stage in order to promote this coordination. sures is good for prevention but gaps still existed Strong involvement or leadership of an agency between prevention and response at the project with experience in disaster management would level. To bridge the gap, Dr. Cheong proposed to be very useful in promoting an evidence-based place a flood risk management approach within approach, as well as increasing our understand- the higher context of sustainable development, ing of what works and what does not work, rather than the context of DRM. and how it would directly affect the ministries involved. Training, capacity development, and ■■ Water is an important resource for the city knowledge sharing will help boost this effort. of Metro Manila. Although flood hazards are always imminent, Metro Manila suffered from ■■ Practitioners need to think about how to influ- a lack of water supply more than 2 years ago. ence governments to adopt practical risk man- It needs a strategy to strike a balance between agement approach, particularly among those water abundance and water scarcity. A conver- governments that have no incentive to do so. gence program between the Ministry of Public Mr. Jha stated that legislators can support this Works, Agricultural and Environment Depart- effort by compelling people and ministries to ments has been initiated in the Philippines. share information. In the Philippines, for exam- Through the program, flood control structures ple, the NDRRMC oversees all DRM-related mat- are built upstream, thereby catching the source ters. Leadership from such a powerful agency will of water that may lead to a high-risk flood. Water help promote overall coordination. 33 Flood Risk Management and Urban Resilience Workshop Session V: Challenges, ■■ Conflicting policies between central, provincial and city/district governments. Opportunities and Risks Moderator: Mr. Victor Rembeth Vietnam: Challenges were found in the implementation of all Discussions on existing challenges, opportunities, the 12 principles listed in the guidebook, except for and risks were conducted in small groups. Partici- Principle 5, which states that “heavily engineered pants provided the following conclusions: structural measures can transfer risk upstream and downstream.� Dr. Phi underlined the importance of this point in order to shift perspective from one-time CHALLENGES intervention to a phased/step-wise intervention. General: The Philippines: ■■ Existing infrastructure, such as pipes, drainage 1. Similarly to Indonesia, the first challenge is systems and canals, are often not up to date and coordination and cooperation among local cannot meet increasing urban challenges. government units (LGUs) and the absence of a coordinating body to link the different issues and ■■ Lack of coordinated efforts among line minis- priorities. In the Philippines, many institutions tries, donor agencies, and civil societies. have different responsibilities in relation to ■■ Lack of awareness on existing gaps, oppor- water and flood management. There should tunities, and risks subsequently leads to a lack be shared goals and responsibility at different of incentives. For instance, a Ministry of Public levels within each ministry, along with each Works should see the benefits of developing the sector’s responsibility. There should also be an infrastructure to counter floods or mitigate the appropriate level of leadership to bring all the effects of floods. efforts together. In the Philippines, the President is the lead person who directs all agencies to play ■■ Lack of awareness among communities. important roles in flood management. Lao PDR: 2. The lack of a disposal site in Metro Manila is a In 2009, five provinces experienced floods in the south problem for solid waste management. of the country. In response, the government assigned the Deputy Prime Minister to chair a group of four line 3. The absence of an asset management system. ministries (public work, irrigation, labor and social wel- A database is needed on existing flood control fare, and education); the group was coordinated by facilities to support decision making and prioritize the Ministry of Welfare as it was responsible for the investment. emergency response. In 2011, 12 provinces border- 4. Increasing ownership by LGUs to allow them to ing Thailand were flooded. The four key sectors were share the burden of operational maintenance involved in the recovery, with a total budget require- and sustainability and ease the financial bur- ment of US$220 million. The government also pro- den on the national government. An operational vided an emergency reserve fund of US$42 million. maintenance budget should already be consid- Majority was used to rehabilitate infrastructure, such ered at the project design stage. as roads and bridges. Lao PDR is still in need of funds to cover the remaining US$220 million. 5. Risk information and hazard mapping are some- times not well-received by the general public, Indonesia: particularly by those directly affected by the haz- ■■ In Semarang, private sector companies and fac- ard. tories located on river banks affected by floods have refused to relocate. 6. Political interventions. National government reg- ulations will have to be adopted by local gov- ■■ Inconsistencies in existing regulations and law ernments, which may sometimes cause friction. enforcement. In the case of Metro Manila, the Metro Manila 34 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Development Authority acts as a link to LGUs for the needs of private sector and communities. communicating national government plans. ■■ When a local action plan exist, synchroniza- 7. Land use planning, particularly around water- tion between central policy and local policy is ways. Due to permit issues, there are now already required. many buildings constructed near waterways. ■■ Promote opportunities for the private sector to contribute through their corporate social respon- sibility (CSR) program, and recruitment of people OPPORTUNITIES affected by the disaster or in vicinity of the disas- ter prone areas. General: ■■ Flood risk management is increasingly seen as Vietnam: an integrated issue within cities, and there is a Dr. Phi highlighted Principle 7, “many flood manage- momentum that can be built upon. ment measures have multiple co-benefits over and above their flood management role� as a principle ■■ The recurrent floods faced in various countries that can be applied to a multipurpose project which and cities can help to raise greater interest for an can create long-term opportunities and benefits. agenda that promotes a shift from response to preparedness and mitigation. The Philippines: ■■ Intensified coordination among different sectors, ■■ Access to and generation of information is as well as with LGUs that have been affected by increasing globally, including the growing use of disaster. open data platforms. Governments can benefit from global resources. ■■ Potential support from development partners to finance flood control projects. ■■ Knowledge sharing and best practices exchanges are increasing due to media networks and out- ■■ The national government has been more proac- reach. Knowledge sharing events, such as this tive in flood risk management. workshop, can be utilized to identify best prac- tices and lessons learned. ■■ According to Mr. Jha, the issue of political inter- RISKS vention can be considered as an opportunity. General: There is a way to persuade politicians to get on ■■ Clarity of available human and financial resources board with the flood risk management agenda, within each city and country for effective plan- as politicians respond to incentives. Once on ning and investment. board, politicians can help to educate the public and increase public awareness. ■■ Assumption of ‘one size fits all’ solution. As there is no blueprint, solutions must always be adapted Lao PDR: to the needs of a particular city. ■■ As with most developing countries, the Gov- ernment of Lao PDR is focusing on emergency ■■ Conflicting interests, e.g. within government response rather than on preparedness and mitiga- ministries, between the public and private sec- tion. The government needs to shift their invest- tor, and between national government and com- ments from emergency response and recovery munities. to preparedness and mitigation. Information on risks is required for prioritizing investments. ■■ Inappropriate communication of risk may lead to panic and implementation of differing activities. Indonesia: ■■ The government is willing to collaborate with Indonesia: the private sector and communities. However, it ■■ Law enforcement implementation versus political needs to think ‘outside the box’ to accommodate interests. 35 Flood Risk Management and Urban Resilience Workshop Vietnam: The Philippines: According to Dr. Phi, there is a risk in the interpreta- ■■ Continue and intensify coordination through the tion and implementation of Principle 1 of the Guide- convergence program with various agencies. book, which states that “every flood risk scenario is different: there is no flood management blueprint�. Although there is no blueprint for managing floods, there is still a need for guidance aimed at technical RESOURCES REQUIRED people to allow them to transfer a concept into prac- Role of the development agency: tice. The application of Principle 1, if it leads to the ■■ Bring all stakeholders, including the government, unavailability of guidance, could generate risk. civil society, and the donor community together The Philippines: into the dialogue to identify gaps and areas in ■■ Political intervention, social issues, and financial which the government is interested to invest, as constraints. well as identify possible donor contributions. ■■ Facilitate knowledge exchange. PRIORITIES ■■ Bring technical assistance to countries and cities from the global scientific community. General: ■■ Investment in a media and communication strat- Lao PDR: egy to build awareness. ■■ Knowledge sharing and transfer of technology, in particular procedures and tools for data collec- ■■ Capacity development, e.g. training on structural tion, risk analysis, and development of scenarios and non-structural measures. on flood risks. ■■ Increase donor emphasis on risk management. ■■ Permanent institutional set-up to institutionalize flood risk management. ■■ Investment in pilot initiatives for replication in dif- ferent parts of the country and globally. ■■ Fundamental satellite datasets to be made avail- able. Lao PDR: ■■ Data collection for risk analysis. Indonesia: ■■ Different partners facilitate involvement of multi- ■■ Infrastructure designs for roads, bridge, and stakeholder working groups from the planning drainage as part of ‘build back better’ approach. to the evaluation stage of actions. Mr. Jha under- lined the importance of this multi-stakeholder ■■ Hydrological data collection and institutionaliza- working group. This approach was applied in tion of that process through the identification of New York City and has helped the identification the agency accountable for data collection and of new risks. conservation. Vietnam: Indonesia: ■■ Support to solve cross-boundary issues, establish ■■ Create multi-stakeholder working group, includ- policy and facility/backbone to involve stakehold- ing government, universities, NGOs, communi- ers, for instance through the establishment of an ties, and the private sector. information system. Vietnam: The Philippines: ■■ Principle 3, “rapid urbanization requires the inte- ■■ Support the implementation of priority actions in gration of flood risk management into regular the Master Plan for Metro Manila and surround- urban planning and governance,� should be pri- ing areas that is currently being prepared. oritized. ■■ Cross-boundary and regional, multi-stakeholder approach. 36 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Session VI: Follow-up and the ■■ Lao PDR: Identification of priority locations based on cost-benefit calculation in Lao PDR. Respond- Way Forward ing to this statement, Mr. Jha cautioned against the use of cost-benefit terminology as costs are Moderator: Mr. Abhas K. Jha often not borne by those who reap the benefits. Therefore cost-benefit calculation must clearly Follow-up actions were identified on the following identify the bearer of the costs and the recipient three topics: of the benefits. 1. Specific points of entry and next steps in ■■ Vietnam: Promote involvement of urban plan- each country and city to apply the inte- ning in flood management activity in Vietnam. grated flood risk management approach Dr. Phi underlined the need to have shared goals and responsibility between urban planning and ■■ China: Further discussion on urban flood risk flood risk management planning. The inclusion management. of flood risk management into urban planning ■■ Application of lessons learned in other regions. requires political commitment and awareness. Ms. Banerjee (World Bank, MENA Region) will Mr. Jha suggested that practitioners could help to promote ownership of flood risk manage- take the knowledge and learning aspect of this ment among politicians by strategically identi- workshop, particularly lessons from Jakarta and fying quick wins that politicians can use to get Metro Manila, to enhance disaster risk manage- re-elected. ment efforts in Morocco and Algiers as part of a South-South initiative. ■■ Indonesia: Harmonize flood risk management rules and regulations between local, provincial ■■ Continue and enhance knowledge sharing among and national government. participants. Mr. Bhanja (World Bank, stationed in the Republic of Korea) stated that knowledge ■■ The Philippines: Benchmark activities with sharing has not been implemented to the level respect of cities and planning based on guidance that it should be. He proposes organizing simi- from the World Bank. According to Dr. Santi- lar activities in different locations, identifying best ago, an entry point for the Metro Manila is the practices and translating them into local language Metro Manila Green Print 2030 that is currently for country dissemination, establishing commu- supported by AusAID and the World Bank. Green nity of practice (CoP) website, and organizing a Print already embodies some major practices and similar set of initiatives according to the strengths undertakings, such as risk assessment and impact and unique context of each country. analysis, and extended coordination beyond the boundaries of metro manila. The experience can be shared with other major cities for replication and collecting input. Green Print is unique in rela- tion to previous plans as it is risk-sensitive. It inte- grates risk assessment as part of development process and does not address flood risk manage- ment in isolation from other hazards. Green Print also takes into consideration the flood impact caused by developments in the greater area beyond the Metro Manila region. The risk assess- Photo by Rinsan Tobing ment makes use of new technologies that helps decision making down to the city level. Green Print also makes reference to international policies so it has international context. Discussion on the next steps. 37 Flood Risk Management and Urban Resilience Workshop ■■ Mr. Jha added that the development of database the form of a forum, and then be further enhanced of assets would be useful for decision making, into another format, as necessary. Dr. Cheong con- that is, for the Department of Public Works to firmed that the Republic of Korea would like to share know the state of current assets and where to its knowledge and transfer its technology and needs prioritize. Many developed countries have such a platform to do so. The World Bank has developed a database and it is relatively quick and easy to such system and Dr. Cheong proposed utilizing that develop. system. Ms. Wataya added that there is currently a platform on Integrated Flood Risk Management that 2. Candidate city for the application of key contains information, presentations, and discussions. methodology contained in the “Cities and All workshop participants will be included in the plat- Flooding� guidebook form. This will be an initial step towards creating a Candidate cities identified for the application of Inte- CoP that is open not only to the workshop partici- grated Flood Risk Management are Beijing (China), pants but also to any interested party; Ms. Wataya Ho Chi Minh City (Vietnam), Semarang (Indonesia), asked all participants to use the platform to share Can Tho (Vietnam), Vientiane (Lao PDR), and Metro information and experience as their contributions Manila (Philippines). represented the lifeline of the community of practice. Ms. Wataya explained that the current workshop 3. Establishment of a community of practice was an opportunity to move towards the application Ms. Wataya (World Bank) proposed the idea of estab- of integrated flood risk management in cities. The lishing a community of practice (CoP), which is a vir- launch stage of the “Cities and Flooding� guidebook tual platform that can support a continuing dialogue is now concluding and would be followed by the among participants in an efficient manner, and help implementation of the recommendations and princi- cities share activities and experiences. The platform ples. For this purpose, a good collection of informa- will require commitment and contribution from all tion on best practices and lessons learned from the cities. In response to the idea, Dr. Santiago proposed cities, as well as growing interest and active participa- that participants of this workshop could initially take tion in the communities was necessary. 38 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS Special Session: Field Trip Photos by Anna Burzykowska 39 Flood Risk Management and Urban Resilience Workshop Photos by Anna Burzykowska A field trip to the Pluit and West Flood Canal of The second and last stop was the water pump sta- Jakarta was organized. The first stop was the conser- tion in the Penjaringan Area, right next to the Java vation area in Pantai Indah Kapuk, which falls under Sea. At the time of observation, the sea-water level the purview of the Ministry of Forestry. The conserva- was already higher than ground level. A sea wall was tion area lies next to the Muara Angke River, not far erected in 2003 to protect the communities in the downstream is the Java Sea. The river is moderately Penjaringan district, yet its height is now no longer polluted with solid waste, and a small slum area has adequate to ensure protection of these communities. formed across the conservation area. Responsibility The sea-water level has regularly been seen to rise up for river management falls under the Ministry of Pub- to the top of the wall. The water pump, located right lic Works. Right behind the slum area is a middle- behind the sea wall, is used on permanent basis to class residential area, which falls under the purview pump water out to sea. of the Ministry of Public Housing. There is no coor- dination between the three ministries on addressing The visit illustrates the complexity of urban flood risk the challenges of this particular area. management, particularly in large, densely populated cities like Jakarta. 40 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS ANNEX 1: Workshop Agenda DAY 1: May 2, 2012 8:30-9:00 Registration 9:00-9:30 Opening and Welcome Remarks 9:00-9:10 Mr. Stefan G. Koeberle, Country Director for Indonesia, World Bank 9:10-9:20 Mr. Bang Ki-Sung Deputy Administrator National Emergency Management Agency (NEMA) 9:20-9:30 Mr. Fauzi Bowo The Governor of DKI Jakarta 9:30-10:00 Session 1: Overview of “Cities and Flooding: A guide to integrated Urban Flood Risk Management for the 21st Century� Moderator: Mr. Victor Rembeth Mr. Abhas K. Jha Outline of the guidebook, sharing key policy and World Bank methodologies and tools. 10:00-10:15 Break Session 2: Show cases from Countries/Cities - Panel sessions Moderator: Mr. Victor Rembeth 10:15-12:15 Panel session 1: Understanding flood hazard and its impact 10:20-10:40 Thailand Climate Change Technology Needs and Community Water Dr. Royol Chitradon, Management in Northeastern Part of Thailand Hydro and Agro Informatics Institute Q&A (HAII) 10:40-11:00 Lao PDR Status of Lao PDR’s Flood Risk Management and Case Studies Mr. Khamhou Phanthavong Q&A Ministry of Agriculture and Forestry 11:00-11:20 The Philippines Structural Measures for Ms. Maria Catalina Cabral Flood Management in the Philippines Department of Public Works and Q&A Highways 11:20-11:40 China Status of China’s Flood Risk Management and Case Studies Ms. Yumei Deng Q&A Ministry of Water Resources 11:40-11:50 Indonesia Scenario Assessment for Emergencies Dr. Ole Nielsen InaSAFE Australia-Indonesia Facility for Disaster Reduction (AIFDR) 11:50-12:15 All presenters Discussion 12:15-13:40 Lunch 41 Flood Risk Management and Urban Resilience Workshop 13:40-15:45 Panel session 2: The Components of integrated flood risk management 13:40-14:00 Vietnam Integrated Flood Management Strategies for HCMC: Dr. Ho Long Phi Evaluating Alternative Flood Risk Management Options Steering Center of Flood Control Q&A Program, Ho Chi Minh City 14:00-14:20 Korea Flood Risk Management Policies and Systems for CCA and DRR Dr. Cheong Tae Sung Q&A National Disaster Management Insti- tute (NDMI), Ministry of Public Administration and Security (MoPAS) 14:20-14:40 Indonesia Jakarta’s Flood Management Mr. Dudi Gardesi Q&A Department of Public Work DKI Jakarta 14:40-14:50 Jakarta Coastal Defence Strategy (JCDS) study Mr. JanJaap Brinkman Flood Risk Management and Urban Resilience Deltares 14:50-15:00 Comprehensive Flood Management Mr. Takaya Tanaka in Urban River-Successful Experience in Japanese Japan International Cooperation Agency (JICA) 15:00-15:10 Flood Risk Management at PT PEMBANGUNAN JAYA ANCOL, Ms. Jenny Enrika Tbk Mr. Agus Nuryadi Pembangunan Jaya Group 15:10-15:45 All presenters Discussion 15:45-16:00 Break 16:00-17:30 Session 3: The International Development Partner View – Panel session Moderator: Mr. Victor Rembeth 16:05-16:25 Korean Technology on flood forecasting model and faster Dr. Cheong Tae Sung decision making process National Disaster Management Insti- tute (NDMI), Ministry of Public Administration and Security (MoPAS) 16:25-16:45 Introducing the principle approach that JICA has formulated Dr. Hitoshi Baba after learning from the GEJE, reflecting comparatively to Japan International Cooperation the 12 key principles of the guidebook, and promoting the Agency (JICA) management process 16:45-17:05 Ground displacement monitoring Mr. Yannick Douet using radar satellite images Altamira-information 17:05-17:30 All presenters Discussion 18:00 Reception Welcome speech, Mr. Franz R. Drees-Gross, Sector Manager, The World Bank Jakarta Mr. Bang Ki-Sung, Deputy Administrator, National Emergency Management Agency (NEMA) Visual demonstration on the Open Street Map flood preparedness mapping, Jakarta Disaster Management Agency 20:00 End of Day 1 42 May 2-3, 2012 / Jakarta, Indonesia / WORKSHOP PROCEEDINGS DAY 2: May 3, 2012 9:00-10:30 Session 4: Implementing Integrated Urban Flood Risk Management - Panel session Moderator: Mr. Victor Rembeth All panelists Reflection of key issues from the DAY 1 discussion (country representatives and partner organizations) Questions to the Panels of DAY 1 Open discussion 10:30-11:00 Break 11:00-12:30 Session 5: Challenges, Opportunities and Risks - Panel session Moderator: Mr. Victor Rembeth All panelists (country representatives and partner Questions to the Panels organizations) of DAY 1 Open discussion 12:30-13:30 Session 6: Way forward and Wrap-up Moderator: Mr. Abhas K. Jha 13:30 – Lunch 14:30 Site visit - Pluit and Banjir Kanal Barat, North Jakarta 17:00 End of Day 2 Venue of the Workshop SHANGRI-LA, Ballroom A, Kota BNI JL. Jend. Sudirman Kav. 1, Jakarta, 10220, Indonesia. 43 Photo by Anna Burzykowska Managing the Risks of DisasteRs in east asia anD the Pacific Disaster Risk Management Team East Asia and Pacific Infrastructure Unit (EASIN) The World Bank 1818 H Street NW, Washington DC 20433 Telephone: +1 202 458 7382 E-mail: eapdrm@worldbank.org Internet: www.worldbank.org/eapdisasters