100980 ADDIS ABABA, ETHIOPIA Enhancing Urban Resilience JULY 2015 Addis Ababa, Ethiopia THE RESILIENT CITIES PROGRAM was launched by the World Bank Group in December 2013 to help cities strengthen their Enhancing Urban Resilience ability to prepare for and adapt to changing conditions, and to withstand and recover rapidly from disruptions related to climate change, natural disasters, and other shocks and stresses. The Program serves as an umbrella for delivering the analysis, rationale, and support local governments need to make resilience part of their urban management agendas. THE CITYSTRENGTH DIAGNOSTIC was developed as a means of engaging with cities on the complex issue of resilience by using a holistic approach to identifying priority actions and investments to strengthen urban systems. Designed to be implemented by sectoral specialists, the rapid diagnostic process draws upon ideas and data from a multitude of July 2015 existing tools. A longer-term goal of CityStrength is to promote alignment in approaches to urban resilience to improve awareness of resilience considerations among local leaders and development partners. Financial and technical support for the development of the Diagnostic was provided by the Global Facility for Disaster Reduction and Recovery (GFDRR). © 2015 Global Practice on Social, Urban, Rural and Resilience The World Bank Group 1818 H Street NW Washington, DC 20433 USA www.worldbank.org/urban Note to the Reader Acknowledgements Addis Ababa is urbanizing and growing at a rapid pace. The city faces potential shocks and stresses The World Bank team would like to acknowledge the participation of the Ethiopian Federal that could hinder it from achieving its development goals. These include urban flooding, fire, Government, the Addis Ababa City Government and civil society in implementing the CityStrength earthquakes, rapid urbanization, water scarcity, unemployment, and social vulnerability. In February Diagnostic, including: 2015, Addis Ababa invited a team of specialists from the World Bank Group to implement the CityStrength Diagnostic in close collaboration with local officials, technical staff, and stakeholders. The objective of this publication is to share the findings of the diagnostic and the priority actions and ETHIOPIAN FEDERAL GOVERNMENT Ato Nuri Mohammed Water Quality Expert, Addis Ababa Water and Sewerage investments agreed with local leaders. Authority Ato Henok Ketema Designed to be accessible to a broad audience, this publication presents the most relevant and Senior Expert, Ministry of Finance and Economic Development Ato Abebaw Sentie actionable information that emerged from the diagnostic process. Although the implementation Director, Addis Ababa Urban Planning Institute Ato Tiomezghi Berhe of CityStrength in Addis Ababa leveraged a substantial collection of studies, research, and plans Al Director, Urban Governance and Capacity Building Bureau prepared by multiple development partners, this publication does not go into detail on each. Ato Haregot Alemu Ministry of Urban Development, Housing and Construction Where applicable, those studies are highlighted within this text and readers are invited to seek out Director, Land Development and Urban Renewal Agency the original files for more in-depth information (see Resources on Addis Ababa at the end of this Borja Santos Porras publication). Program Advisor, Disaster Risk Management Ato Mesfin Hassen Head of Social Protection, Addis Ababa Bureau of Labor and Social and Food Security Sector Affairs CityStrength is an interview-based methodology; as such, a significant portion of the findings captured in this publication are based on statements made by local officials, experts, and Adesh Golash Head (CP), Ethiopian Electric Utility Mathewos Bekele stakeholders during the launch workshop, individual and group interviews, and field visits. General Manager, Addis Ababa Master Plan Project Office Asit Kumar Tyagi Head (RB), Ethiopian Electric Utility Teshome Godabo Core Process, Addis Ababa City Planning Project Office Wondwossen Regassa Project Coordinator of Addis Ababa Power System Master Plan Fekade Haile General Manager, Addis Ababa City Roads Authority Study, Ethiopian Electric Power Melaku Mengish CITY OF ADDIS ABABA Technical adviser, Addis Ababa City Roads Authority Ato Deriba Kuma Solomon Kidane Mayor, Addis Ababa City Government General Manager, Parking and Traffic Management Ato Abate Sitotaw Beto Dima Deputy Mayor, Addis Ababa City Government Deputy Director, Fire and Emergency Prevention and Rescue Authority Ato Fikre Tekeste Deputy Head, Addis Ababa Water and Sewerage Authority Nesibu Yasin Ato Yirga Tadesse Technical Head, Training Institute, Fire and Emergency Prevention Hydrogeologist, Addis Ababa Water and Sewerage Authority and Rescue Authority Getenesh Dagne Tekle W/Gerima Ato Hole Fole Qaiser M. Khan Sub Process Head, Bureau of Finance and Economic Development Director, Gullele Botanic Garden Executive Director, Consortium of Reproductive Health Associations Program Leader Member, Ethiopia Social Accountability Program Steering Desalegn Atnafu Daniel Tessema Committee Samuel Lule Demsash Officer, Addis Ababa City Greenery, Beautification and Cemetery Expert, Integrated Land Information Center Social Development Consultant Administration Agency THE WORLD BANK Seid Melesse Yalemzewud Simachew Tiruneh Haileselassie Sebehatu Hailu Expert, Integrated Land Information Center Social Development Consultant General Manager, Addis Ababa Environmental Protection Authority The World Bank team that undertook the Yonas Tibebu implementation of the CityStrength Diagnostic in Laura Campbell Said Abdella Expert, Information and Communication Technology Addis Ababa included: Social Protection Consultant V. Coordinator, Environmental Protection Authority Development Agency Abebaw Alemayehu Fernando Armendaris Samson Nebiyat Hailekeiros Alemu Senior Urban Development Specialist, Task Team Leader Junior Professional Associate Natural Resource Officer, Environmental Protection Authority Executive Director, Knowledge Eth-BENE Catherine Lynch Manjusha Rai Wobayehu Girma Mulugeta Abrham Senior Urban Development Specialist, CityStrength Coordinator Urban Development Consultant Planning, Environmental Protection Authority Head, Design Department, Addis Ababa City Roads Authority Rosanna Nitti Ahmed Alkadir Degamlak Dender Senior Urban Specialist Disaster Risk Management Consultant Project Manager, Addis Ababa Abattoirs Enterprise LOCAL ORGANIZATIONS Dinkneh Tefera Astrid Westerlind Wigstrom Atiku Legase Messeret Assafaoh Urban Development Specialist Climate Change Adaptation Consultant Process Owner, Addis Ababa Solid Waste Recycling and Assistant Professor, Addis Ababa University Disposal Project Office James Markland Yodit Rezene Woubekassoye CDAJ Senior Transport Specialist Team Assistant Nega Fantahun Assistant Professor, Addis Ababa University Manager, Addis Ababa Solid Waste Recycling and Roger Gorham Disposal Project Office Haile Worku Transport Economist Associate Professor, Addis Ababa University Tesfaye Haile Gulilat Berhane General Director, Addis Ababa ICT Development Agency Solomon Benti Senior Water & Sanitation Specialist Lecturer, Addis Ababa University Amare Shibeshi Alex Kamurase Manager, Cobblestone Project Office Tefele Senior Social Protection Specialist Lecturer, Addis Ababa University Monduter Abauy Chukwudi Okafor Deputy Manager, Cobblestone Project Coordination Office Kumelachew Yeshitela Senior Social Development Specialist Chair, Ethiopian Institute of Architecture, Building Construction and Baryau Kiros City Development, Addis Ababa University Issa Diaw Work Process Head, Gullele Botanic Garden Senior Energy Specialist Solomon Tesfay Dereje Gusetd Deputy Director of Urban Planning, Elisa Portale Civil Engineer, Gullele Botanic Garden Ethiopian Civil Service University Energy Specialist Messir Hailu Molla Aynabeba Deputy Director, Gullele Botanic Garden Deputy Head, Ethiopian Civil Service University Letter from the Mayor Ethiopia is engaged in rapid and comprehensive development activities to transition from poverty to sustainable and reliable growth and prosperity. Our cities are projected to play an increasing role in the economic transition of the country. Strengthening urban resilience to multiple shocks and stresses will therefore prove crucial to the success of this transition and to ensure improved living conditions for residents and at the same time increase attractiveness for investments and job creation. As part of the resilience agenda, Ethiopia plays a prominent role in the struggle to mitigate and adapt to climate change, as shown by the active engagement of the government and its collaboration with multiple actors to reduce the country’s vulnerabilities. Climate change impacts in Ethiopia, such as the increase in average temperature and changes in rainfall distribution, exacerbates current vulnerabilities that are highly interlinked with other shocks and stresses such as rapid urbanization. To support our cities in their pursuit of sustainable development it is a necessity as well as an opportunity for our country to embark on a resilient development path. Addis Ababa is the country’s capital and home to 25% of the country’s urban population. With the current pace of urbanization, the city’s population is expected to double in the coming 10 to 15 years. This presents a number of challenges but also opportunities for the city that need to be better understood. For this reason, we welcomed the World Bank initiative—the CityStrength Diagnostic. Through this process, the Addis Ababa City Government engaged in open dialogue with World Bank specialists and key urban stakeholders about risks in our city, urban growth, delivery of basic services, and vulnerable groups. It was our wish that this engagement would lead to the identification of specific actionable projects that we can implement with support of the World Bank or other development partners. This document describes the process we undertook and presents the recommended actions and investments to enhance resilience in Addis Ababa. Ato Deriba Kuma Mayor of Addis Ababa 9 Table of Contents Acronyms 12 Executive Summary AACG Addis Ababa City Government AACRA Addis Ababa City Roads Authority 18 What is a Resilient City? AADMP Addis Ababa Distribution System Master Plan Study AAWSA Addis Ababa Water and Sewerage Authority 22 CityStrength Diagnostic Methodology BoFED Bureau of Finance and Economic Development BOLSA Bureau of Labor and Social Affairs 24 About Addis Ababa BRT Bus Rapid Transit CCA Climate Change Adaptation 34 Findings of the CityStrength Diagnostic CSA Central Statistical Agency DCC Distribution Control Centre 76 Priority Actions and Investments DRM Disaster Risk Management DRMFSS Disaster Risk Management and Food Security Sector 84 Immediate Measures DRR Disaster Risk Reduction EEA Ethiopian Electricity Authority 86 Resources on Addis Ababa EEP Ethiopia Electric Power EEU Ethiopia Electric Utility EPA Environmental Protection Agency FEPRA Fire and Emergency Prevention and Rescue Authority GDP Gross Domestic Product GOE Government of Ethiopia GTP Growth and Transformation Plan LRT Light Rail Transit MoFED Ministry of Finance and Economic Development MUDHCo Ministry of Urban Development, Housing, and Construction NPS-DRM National Policy and Strategy on Disaster Risk Management UNDP United Nations Development Programme UNISDR United Nations International Strategy for Disaster Reduction USAID United States Agency for International Development Enhancing Urban Resilience: Addis Ababa Executive Summary EXECUTIVE SUMMARY Cities are vulnerable to many types of and managing infrastructure. This creates cutting recommendations. As the second shocks and stresses, including natural substantial demands for coordination. pilot of the methodology, lessons learned hazards like storms and sea level rise, Business as usual is not an option; Addis from Addis Ababa will inform the future use but also man-made ones like economic needs to make a concerted and coordinated of CityStrength in Africa and around the transformation and rapid urbanization. effort to be one step ahead of the world. These shocks and stresses have the anticipated growth. potential to bring cities to a halt and reverse How can Addis Ababa years of socio-economic development In February 2015, a team of specialists gains. Cities that are to grow and thrive in from the World Bank Group worked become more resilient? the future must take steps to address these with government officials, experts and stakeholders in Addis Ababa to identify Enhancing resilience in Addis requires shocks and stresses. Simply put, a resilient the priority actions and investments actions and investments that are city is one that can adapt to these types of that will enhance the city’s resilience to oriented toward implementing existing changing conditions and withstand shocks these current and future challenges. They plans and regulations, establishing while still providing essential services to its explored options to transform planned or clear and capacitated leadership on risk residents. A resilient city can keep moving aspirational projects into initiatives that management topics, and investing in toward its long-term goals despite the will also enhance the city’s resilience. As infrastructure that meets existing and challenges it meets along the way. the largest city in Ethiopia and one of the future needs. Priority actions include: the The unprecedented urban growth that fastest growing cities in Africa, Addis Ababa effective implementation of the Integrated Addis Ababa will face over the coming plays an important role in promoting the Development Plan and related regulations, decades could create the agglomeration of well-being of the country and economic establishment of a risk management unit people and economies that can catapult prosperity in the region. For Addis Ababa, under the Mayor, strengthening of transport the city towards its long-term goals, but if efforts to promote greater resilience must agencies (including their role in stormwater not well managed, it could also exacerbate be closely aligned with the city’s vision to be management), and strengthening of existing shocks and stresses related to a safe and livable city, ensure the national citizen engagement in disaster risk natural hazards, access to basic services, goal of becoming a middle-income country management. These actions need to congestion, economic opportunity, and by 2025, and become Africa’s diplomatic be coupled with investments in water individual well-being. The provision of capital. supply and sanitation, transit oriented infrastructure, which underpins urban development, flood reduction, energy economic productivity and service delivery, To identify the bundle of actions and system upgrades, and urban productive is significantly lagging despite the major investments needed to enhance resilience safety nets. As a collection of initiatives, investments being made by the city. in Addis Ababa, the World Bank team implemented by AACG with strengthened Moreover, the overall organization of the used the new CityStrength Diagnostic coordination among city departments and city government is complex—comprising methodology, a qualitative, rapid diagnostic development partners, these actions and agencies, authorities, and city and federal process that uses a combination of guided investments could have a transformational government enterprises with a range of interviews, exercises, and review of existing impact on the resilience of the city and roles and responsibilities in constructing studies to determine sectoral and cross- provide manifold economic, social, and environmental co-benefits. 12 13 Enhancing Urban Resilience: Addis Ababa Executive Summary Priority Actions implementing the NPS-DRM currently lies drainage system will require improvements communities, however, implementation is with FEPRA, a relatively new institution in solid waste management to ensure that weak. There are also informal initiatives at Address unprecedented urban growth by that does not currently have the capacity drains are not clogged by waste. the sub-city and community level for service quickly focusing on the implementation to live up to its mandate. Establishing a delivery. The city needs to leverage informal of the new Integrated Development Plan. coordination unit under the Mayor will Perform an extensive study of the most initiatives and strengthen formal ones in The draft Plan is quite comprehensive ensure the desired coordination, assure vulnerable groups with special attention order to have more efficient engagements. and technically sound. Like most harmonization of efforts, and ultimately to existing social service programs and This includes capacity building for city cities, the challenge will be its effective result into improved effectiveness in dealing access to housing and inform a possible officials and community members alike as implementation and the prioritization with risk management and climate change integrated strategy to address the needs of well as stronger coordination efforts since of interventions. To catalyze the challenges. the different vulnerable groups. Currently, there are many fragmented initiatives. implementation process, it is recommended the most vulnerable groups in Addis cannot that AACG creates an implementation Address localized flooding due to surface benefit from many of the social services ‘business plan’ that articulates the phasing water run-off by developing a stormwater available because they are inaccessible Priority Investments of works, costs and financing sources, and drainage master plan and supporting or unaffordable. Analysis is needed to Address water scarcity with a multi- roles and responsibilities. This could be AACRA in assuming its new mandate to better understand vulnerable groups of pronged approach focusing on improved accompanied by a strong communication manage drainage in the city. There is the population in Addis and elaborate an efficiency and protection of the existing plan that promotes the participation of a strong dependency between urban integrated strategy to provide them with supply system, demand management, and a broad range of stakeholders including development, roads and drainage, as appropriate support consistent with the identification of additional water sources. non-state organizations, enhancing existing and new roads interrupt natural overall government agenda. In addition, Currently, Addis Ababa has two sources transparency, and accountability drainage patterns. Moreover, stormwater an inclusive housing strategy, including a of water—surface and groundwater—and mechanisms by creating a website for public drainage infrastructure is often installed review of household affordability and the failure of either would result in a crisis. information dissemination, monitoring, and under or adjacent to the road network. on- and off-budget subsidies associated Addis Ababa must address the estimated provision of updates on the Plan’s progress. The intention of the city to give AACRA with the condominium program, should be 36.5 percent leakage of water supply in the mandate to manage drainage in developed specifically for Addis given its the system as a means of ensuring that Establish a disaster risk management Addis Ababa is therefore logical from a unique context within the country. more potable water is made available for and climate change adaptation technical standpoint. Run-off has been the population, through a combination of coordination unit under the Mayor to increasing due to the expanding areas of Strengthen citizen engagement efforts methods, including improved maintenance strengthen, promote, and mainstream hard landscape, resulting in more frequent, using disaster risk management and and faster response to reported breakages. risk management initiatives across but short-lived, flash floods, leading to climate change adaptation as a point of At the same time, the city needs to improve municipal agencies. At the regional level, widespread disruption to the road network. entry. A functioning neighborhood-level the operational efficiency and monitoring Ethiopia is recognized as an emerging An approach to urban drainage needs to be early warning system should be established at well fields to maximize their potential leader within Africa on systematically taken at a city-wide scale, and a new urban for residential areas along rivers and in and avoid over extraction. In addition to advancing climate change measures and drainage master plan should be coordinated densely populated zones. There are limited improved efficiency and protection of DRM, an example being the adoption of with the Integrated Development Plan, awareness-raising activities and no early existing water supply, Addis Ababa will a new National Policy and Strategy on based on hydraulic modelling that includes warning system in place – communities need to develop new sources of water. Disaster Risk Management (NPS - DRM) in anticipated impacts due to climate change. are highly vulnerable. The government has The examination of surface water sources July 2013. In Addis, the responsibility for Moreover, the effective operation of the frameworks in place for engagement with 14 15 Enhancing Urban Resilience: Addis Ababa Executive Summary further away from the city should be Ensure coverage and reliability of basic disasters. Existing poverty alleviation coupled with exploration of rainwater and services, including wastewater collection programs in Addis Ababa are fragmented, stormwater catchments for grey-water uses and treatment and energy distribution. It is ineffectively targeted and with very low such as industry, landscaping, and cleaning. estimated that only 25-30% of households coverage. Recent analyses have revealed in Addis have wastewater collection, either that the urban population is growing Pilot urban densification using a transit through piped sewer line or vacuum trucks. rapidly at a rate of 3.8% per annum and oriented development and integrated The city’s goal is to reach 50% coverage by unemployment and poverty are both high, municipal management approach. 2020. This will require continued investment estimated at 23.5% and 22% respectively. As part of the implementation of the in piped sewerage and decentralized In addition, the national food poverty head Integrated Development Plan, AACG should treatment facilities. Treatment capacity count index is 33.6% on average (34.7% select targeted sites for intensive public is currently exceeded and excess waste is rural and 27.9% in urban areas). As more of investments, private sector engagement, deposited in water bodies. In regard to the urban poor live in large urban centers, and institutional coordination. These pilots energy, stakeholders highlighted service expanding development programs to for urban densification should be aligned disruption as a stress in the city. The address key challenges to urban poverty with transport investments, especially electricity access rate is close to 100%, but reduction is imperative. Moreover, it is public transportation, and supported by outages and interruptions are very frequent. important to note that shocks and stresses cross-agency technical teams to ensure The projected rapid growth in population impact the poor more severely due to pre- the quality of local development plans, and intensity of urbanization will require an existing vulnerabilities, social inequality, adequacy of infrastructure delivery, increase in generation capacity and efficient and lack of opportunities. enforcement of building and safety codes, transmission and distribution system. and readiness of private sector to take Both AACG and the utilities should put in advantage of opportunities for investment. place a collaboration mechanism to ensure proper and timely planning of needed Establish mass transport skeletal services infrastructure for basic services to match to shape metropolitan growth. While the city development. upgrading and redevelopment in the city center is laudable and should be pursued, Introduce an effectively targeted productive it will not be possible to meet the pace safety net and complementary livelihoods of expected urban growth solely through interventions in Addis Ababa to support measures aimed at redevelopment of extremely poor and vulnerable groups existing core areas. Efforts need to be taken and households impacted by shocks. The to ensure that fringe growth is orderly and delivery of a predictable, timely, adequate that viable and affordable transportation and productive safety net through options exist. This includes moving quickly conditional and unconditional transfers to establish mass transport skeletal services is a fundamental building block of urban to shape metropolitan growth. resilience and can serve as a buffer in the face of economic shocks and natural 16 17 WHAT IS A RESILIENT CITY? Resilience is the capacity of individuals, damage and loss of life. Acute shocks and communities, institutions, businesses, chronic stresses can also have a deep and and systems within a city to survive, lasting impact on human development. adapt, and grow no matter what kinds Disaster losses are often linked with, or of chronic stresses and acute shocks exacerbated by, poverty and vulnerability they experience.1 A resilient city can of the poor that stem from socio- adapt to a variety of shocks and stresses economic and environmental imbalances. while still providing essential services to its residents, especially the poor and Cities are complex systems; and, like all vulnerable. systems, a city depends on the smooth functioning of its constituent elements With most of the global population and the larger organization in which it and capital goods concentrated in is nested. A city’s resilience is therefore urban areas, cities are key to social affected by the resilience of those smaller development and economic prosperity. and larger systems. Disruptions to the They are drivers of national economic basic services they provide can have growth and innovation and act as cultural cascading impacts well beyond the city and creative centers. But urbanization itself. The complexity of cities also makes also brings challenges. With a greater resilience building especially challenging. concentration of people, assets, and Focusing on one policy goal, such as infrastructure in urban areas, an climate protection, without considering increasingly complex range of shocks and others can lead to undesirable outcomes. stresses can put in jeopardy human well- These decisions may come as explicit being and hard-won development gains. trade-offs, unintended consequences, or some combination of the two. Building a Natural disasters like storms, droughts, resilient city therefore requires a holistic, and earthquakes are not the only risks multi-sectoral, and flexible approach to that cities face. Cities are also vulnerable urban development. to economic downturns, crime and violence, public health epidemics, and infrastructure failure. These shocks and 1 100 Resilient Cities pioneered by the stresses can have devastating effects, Rockefeller Foundation. bringing some or all of an urban system to a halt, and possibly causing asset 19 Enhancing Urban Resilience: Addis Ababa What is a Resilient City? Qualities of Resilience Robust Robust systems include well-conceived, constructed and managed physical assets, so that they can withstand the impacts of shocks without significant damage or loss of function. Robust design anticipates potential failures in systems, making provision to ensure failure is predictable, safe, and not disproportionate to the cause. Overreliance on a single asset, cascading failure and design thresholds that might lead to catastrophic collapse if exceeded are actively avoided. An What makes a city resilient? The CityStrength Diagnostic is premised on the idea that it is possible important aspect of robustness is proper operations and maintenance to ensure that systems are functioning properly. (E.g. to consider how well each element of a city reflects qualities that are typically present in resilient A building is designed to accommodate a seismic event without collapse or excessive damage.) systems. The evidence that underpins the qualities listed below has emerged empirically from research on resilient systems; generally, as well as specifically in cities. They can be used to describe physical assets, human behavior, network systems, and institutional processes. Coordinated Coordination between city systems and agencies means that knowledge is shared, planning is collaborative and strategic, and decision-making is based on investments that are mutually supportive towards a common outcome. Exchange of information between systems enables them to function collectively and respond rapidly through feedback loops occurring throughout the city. (E.g. A coordinated transport systems is not only aligned with urban growth dynamics and land use but also has open communication with other agencies so that it can divert user traffic to different modes of transport based on changing conditions.) Inclusive Being inclusive recognizes that risk is perceived differently by different stakeholders and that shocks and stresses affect the most vulnerable the most. An inclusive approach contributes to a sense of shared ownership or joint vision to build a resilient city. This can be achieved through consultation and engagement with a wide range of stakeholders, including the most vulnerable groups, to ensure that systems are more resilient by considering a wider range of vulnerabilities, risk management capacities, and localized information. Equity in access to infrastructure and services underpins social cohesion and opportunity. (E.g. An inclusive budgeting process could help ensure that the allocation of city resources reflects community priorities.) Redundant A redundant network or system has a belt and braces approach which includes spare capacity or back-up to accommodate disruption, extreme pressures or surges in demand. Providing diverse ways of achieving a given need or fulfilling a particular function is a means to achieving a redundant system. If one service channel gets disrupted, another can be used. (E.g. A power distribution network is able to rebalance to respond to a surge in demand in a particular area.) Reflective Resilient urban systems examine, learn, and evolve based on their past experiences and new information, modifying standards or norms based on emerging evidence rather than seeking permanent solutions based on the status quo. As a result, people and institutions examine and systematically learn from their past experiences, and leverage this learning to inform future decision-making. (E.g. A financial management system might make use of information on past shocks and stresses to improve budget reserving policies.) 20 21 CityStrength Diagnostic Methodology CityStrength Diagnostic Stage One PRE-DIAGNOSTIC REVIEW Methodology The first stage focuses on collecting information and leveraging efforts that have already been undertaken in the city. A review of all relevant studies, reports, or plans developed by the city, the World Bank, or other development partners is conducted. Who prepared it? Why? And how was it used? Key findings are summarized in order to brief participants during the Launch Workshop as well as Bank specialists supporting the implementation of the diagnostic. Specific background studies or data collection initiatives The CityStrength Diagnostic methodology could also be undertaken during this stage depending on the context. facilitates a dialogue among stakeholders about risks in their city and the performance of urban Stage Two LAUNCH WORKSHOP systems. It helps identify priority actions and investments that will enhance the city’s resilience The second stage is a Launch Workshop. The objectives of the workshop are to ‘officially’ launch the as well as transform planned or aspirational CityStrength Diagnostic process in the city, to explain the concept of urban resilience, to learn about the projects into projects that will also help to build city’s goals and objectives, to verify the initial findings from the first stage, to introduce the multi-sectoral resilience. CityStrength stresses a holistic and Bank team, and to engage with a broad set of stakeholders. integrated approach that encourages cross- sectoral collaborations to more efficiently tackle Stage Three INTERVIEWS AND FIELD VISITS existing issues and to unlock opportunities within the city. The third stage consists of interviews and site visits to help the Bank specialists better understand the challenges and opportunities in the city and to qualitatively assess how well key systems are performing in To cover topics within the city and metropolitan relation to defined Qualities of Resilience. It is also meant to give the city departments the opportunity to area purview, CityStrength Diagnostic modules learn about each other’s work programs and ongoing resilience activities. include Urban Planning and Development, Community and Social Protection, Disaster Risk Stage Four PRIORITIZATION Management and Climate Change Adaptation, Education, Energy, Environment, Health, The fourth stage is the identification and prioritization of actions and investments to enhance Information and Communications Technology, resilience in the city. This is done using multiple “lenses” to qualitatively identify measures that the Bank Local Economy, Logistics, Municipal Finance, Solid specialists recommend as the most important for the city leaders to consider. While the ultimate goal of Waste, Transport, and Water and Sanitation. These the CityStrength Diagnostic is to enhance the city’s long-term resilience, it is important to understand the nature of any immediate threats to people and assets (Lens 1). It is also crucial to understand modules were created based on a review of about dependencies and interdependencies within urban services and systems, which can cause cascading 40 tools and methodologies related to resilience disruption or failure, or compound existing vulnerabilities (Lens 2). Thinking holistically (rather than and the analysis of over 600 indicators contained sectorally) about the city’s resilience (Lens 3) is necessary to identify critical gaps or areas of weakness at within them. the city scale. Finally, aligning recommended actions and investments with local goals and objectives (Lens 4) increases the likelihood that the recommendations will have sufficient stakeholder support to become a The CityStrength Diagnostic consists of 5 stages, reality. book-ended by leadership commitment for resilience on the front-end and a longer-term engagement with development partners through Stage Five DISCUSSION AND NEXT STEPS financing or technical assistance at the back-end. The fifth stage is a meeting with local leadership and other stakeholders to present the findings of the diagnostic, discuss recommendations, and agree on priorities and next steps. 23 ABOUT ADDIS ABABA Addis Ababa is home to 25% of the urban providing clean water to only 44% of population in Ethiopia and is one of the the population and sewerage services ADDIS fastest growing cities in Africa. It is the growth to less than 30%. Moreover, the physical engine for Ethiopia and a major pillar in the development patterns witnessed in recent country’s vision to become a middle-income, years are driving up the cost of infrastructure carbon-neutral, and resilient economy by delivery. Addis is expanding in a sprawling 2025. Addis Ababa’s economy is growing manner, with growth in urban extent annually by 14%. The city alone currently outpacing population growth. The result of contributes approximately 50% towards the this growth is an estimated 46% of vacant ABABA national GDP, highlighting its strategic role or underutilized land. At the same time, the within the overall economic development of city center has extremely high density (up to the country. 30,000 people per km), concentrating around 30% of the population on 8% of the land, Despite the strong economic growth trends, generally with poor living conditions. Addis Ababa faces significant development challenges. For example, unemployment and Recognizing the strategic importance of poverty levels in Addis Ababa remain high, Addis Ababa, the government is taking steps estimated at 23.5% and 22% respectively. to address important urban issues such More than one in four households report an as improved land-use and transportation unemployed adult compared to one in 10 planning, the development of low- households in other urban areas, and the income housing, expansion of wastewater informal sector employs about 30% of the collection and treatment facilities, efficiency economically active labor force in the city. enhancements to the water supply system, and establishment of an urban safety net. The local government is also struggling to deliver basic services to all its residents, 25 Enhancing Urban Resilience: Addis Ababa About Addis Ababa GOALS The Addis Ababa and Oromia Special Zone Integrated Development Master Plan presents a vision for the future of Addis: • TO BE A SAFE AND LIVEABLE CITY, • TO ENSURE THE NATIONAL GOAL OF BECOMING A MIDDLE-INCOME COUNTRY, AND • TO BECOME AFRICA’S DIPLOMATIC CAPITAL AND A WORLD CLASS CITY. 26 27 Sources: 2 3 4 Central Statistical Agency 5 The report acknowledges that the data on safe water access in Addis Ababa, as indicated in the 2015 Ethiopia Urbanization Review, stems from 2012. At the time of publication there may be more up to date figures available. 6 Growth and Transformation Plan II, 2015 7 Data collected by SuDCA Development Consultants for evaluation of municipal delivery services of cities participating in the ULGDP, for the FY 2011/2012 8 11 Ethiopia Urbanization Review, 2015 9 10 12 Growth and Transformation Plan II, 2015 13 14 Climate Change and Vulnerability of African Cities, 2013 Enhancing Urban Resilience: Addis Ababa About Addis Ababa Land Underused or Vacant 46% 15 Addis Ababa Urban Expansion Total Housing Land Allocated Stock Comprised to Streets of Low Quality 20% 17 Housing 70-80% 16 Urban Land Expansion Rate 3.2% per year 18 Maximum Density 30,000 people/km2 19 Addis Ababa Urbanization Along Road Corridors 15 18 19 Ethiopia Urbanization Review, 2015 16 The 2007 Population and Housing Census, 2010 17 Growth and Transformation Plan II, 2015 30 31 Enhancing Urban Resilience: Addis Ababa About Addis Ababa PRIMARY SHOCKS AND STRESSES Stresses The primary shocks and stresses that Addis Ababa faces are listed below. These were identified Addis Ababa faces a multitude of stresses, many of which are directly related to its based on a review of existing studies and reports, frequency and impact on people and assets, current level of development. During the launch workshop and in follow-up interviews, a group discussions at the launch workshop, interviews, site visits, and discussion among World broad set of stresses were identified. The linkages and causalities among them are quite Bank specialists. For clarification, a shock is a single unpredictable event and a stress is an complex. The three listed below were determined to be the most significant in terms of ongoing hardship that a community experiences every day. their potential to inhibit the city’s ability to reach its goals. Unprecedented Urban Growth Addis Ababa is expected to double its population by 2030. This will put a significant strain Shocks on the city’s ability to deliver on the goal of being a livable and safe city. Urban growth is not a stress in and of itself, and is often positively linked to economic development, but Flooding the unprecedented rapidity of growth that Addis Ababa is experiencing is putting a stress Addis Ababa is exposed to both riverine and flash floods due to river overflow caused on the delivery of services and quality of life in the city. Bundled within this stress are by extreme rainfall events and upper catchment activities. Climate change projections several challenges related to housing supply, mobility and traffic congestion, sanitation show that flood risk will increase in the future due to more frequent extreme rainfalls. services, and dependable energy distribution. The vulnerability to flooding is intimately linked with encroaching housing development along river banks, vulnerable housing material such as mud and wood, and poor Water Scarcity drainage systems along roadways. Addis Ababa is already suffering from water scarcity, which is expected to become even more significant due to rapid urbanization, increased individual water demand Urban Fire as incomes rise, and the impacts of climate change. Production of 450,000 m3 /day is Most parts of the city are exposed to fires caused by, among others, unsafe cooking sourced from surface and groundwater, and it is estimated that about 36.5 percent of this practices (use of kerosene and open fires) and unsafe electrical wiring. The fire hazard water is lost due to leakage and other system inefficiencies. The per capita distribution is in the city is exacerbated by the density of neighborhoods (mostly informal settlements estimated to be around 40 liters/day, well below the city’s goal of 110 liters/day. AAWSA is or slum areas such as Merkato), poor housing quality, and lack of road access and traffic currently supplying water to certain parts of the city on a rotating basis, with some areas congestion which prevents mobility of people including emergency responders.  receiving water only two days a week through distribution lines or water trucks. Earthquake Unemployment and Social Vulnerability Addis Ababa is only 75-100 km away from the western edge of the Main Ethiopian Rift There are high levels of poverty, unemployment, and social vulnerability in Addis. It Valley. Numerous earthquakes of varying magnitude have occurred over the years, some is estimated that 22% of the population is living below the poverty line and 29% of of which have impacted the city. While the likelihood of a substantial earthquake in the households in Addis report having an unemployed adult (higher than the national future is not known, the impact of an earthquake were it to hit Addis Ababa could be urban average of 15%). Moreover, current programs that provide support to poor and devastating. Lack of enforcement of earthquake standards for housing developments, in vulnerable households are not effectively targeted, have low coverage, are fragmented, combination with low preparedness and capacity, make Addis Ababa highly vulnerable. and largely focus on categories of vulnerable groups, such as the elderly and disabled (many of which are disabled due to occupational hazard). In addition to the daily stress that this presents for individuals, the cumulative impact among segments of society could reverse gains made on the inclusive growth agenda and result in social unrest. 32 33 During the CityStrength Diagnostic process, sectoral specialists developed a snapshot of the performance of urban systems in Addis Ababa in relation to the qualities of resilience. Better understanding of the strengths and weaknesses within each of the systems served as an input to the overall prioritization process. The following pages provide an overview of the key resilience characteristics for each sector in Addis Ababa. Urban Planning and Development Pg. 36 Disaster Risk Management and Climate Change Adaptation Pg. 42 Community and Social Protection Pg. 48 Energy Pg. 56 Transportation Pg. 64 FINDINGS OF THE Water and Sanitation CITYSTRENGTH DIAGNOSTIC Pg. 70 35 URBAN PLANNING AND DEVELOPMENT In a resilient city, physical and socio-economic planning processes are well-coordinated, Addis Ababa is urbanizing at an exponential rate, and is expected to transform into a legally enforced, inclusive, and cross-sectoral. Key stakeholders are involved to align megacity of almost 10 million people by 2037. Recent growth has been sprawling with plans with sector priorities and to ensure that the interests of all societal groups are low density, with the rate of spatial expansion outpacing the rate of population growth. taken into consideration. Coordination between departments and other agencies This has implications for the cost of infrastructure and service delivery, traffic congestion, enables the use of existing knowledge and data across the city to better understand land management, social inclusion, and overall liability. AACG’s institutional capacity and current and future vulnerabilities. Urban planning and development ensures a holistic resources are also being stretched thin by the pressures of rapid urban growth, and the city and long-term approach to urban growth, factoring in potential shocks and stresses is struggling to provide basic services to all of its residents. and encouraging proactive mitigation measures. Multiple strategies are in place to At the same time, the city core has extremely high density (from around 15,000-30,000 ensure that primary urban development goals can be achieved in the face of changing people per km), concentrating around 30% of the population on 8% of the land in Addis demographics, urbanization rates, or economic shifts. Ababa, generally with poor living conditions. This high density of population, poor quality Findings of the CityStrength Diagnostic of construction materials and inaccessibility of emergency services, contribute to urban fire DEVELOPMENT PARTNER ACTIVITIES: vulnerability. The unprecedented rate of growth also puts pressure on the housing sector, especially the Primary Government Time Type Title Sponsor Counterpart Period lowest income segments. Poor quality housing built in chika (a wood and mud mixture) makes up approximately 70-80% of the total housing stock.20 This includes informal housing but also the government-owned kebele housing which was built and extended informally Ministry of Urban before and while under government ownership.21 There is a high concentration of poor quality Technical Ethiopia Urbanization World Bank Development, Housing, and 2015 housing in peri-urban areas and some city neighborhoods are comprised entirely of poor Assistance Review Construction quality settlements. Informal and kebele housing is often overcrowded, constructed of poor quality materials, and located in relatively higher-risk areas such as along river banks. All Addis Ababa and these factors make them very vulnerable to shocks such as fire and flooding. While attempts Surrounding Oromia are being made by the city to provide condominium housing, the demand far exceeds the Addis Ababa Urban and Integrated Development current supply. Technical Metropolitan Transport World Bank Plan Project Office, 2013- 2015 Assistance and Land Use Linkages Ministry of Transport, Strategy Review Addis Ababa City Roads 20 The 2007 Population and Housing Census, 2010 Authority 21 Stocktaking of the Housing Sector in Sub-Saharan Africa, 2015. Addis Ababa and Surrounding Oromia Integrated Urban Technical Integrated Development Planning to Foster Green World Bank 2014- 2015 Assistance Plan Project Office, Growth Addis Ababa Transport Program Management Office Ethiopia Local Ministry of Urban Project Government World Bank Development, Housing and 2013- 2019 Development Project II Construction Technical Ethiopia: Addis Ababa Ministry of Finance & UN-Habitat 2008 Assistance Urban Profile Economic Development 39 URBAN PLANNING AND DEVELOPMENT Findings of the CityStrength Diagnostic Qualities of Resilience Inclusive As part of the revision of the Integrated Development Plan, the project office organized more than 150 meetings and consultations with stakeholders, including informal housing communities. This was important for building trust in the planning process, as well as providing an opportunity to share input and concerns. However, the degree to which stakeholder input influenced the revision is not known. Reflective The rapidity of population growth and land consumption, coupled with inconsistent or unavailable data, makes planning and management of growth quite difficult. For example, it was mentioned that the official population growth rate of 3.8% per annum from the CSA underestimated reality; World Bank estimates that population growth will exceed 5% per annum. A variation this large could impact the quality and utility of planning efforts. Another example is the integration of risk data in decision-making. City departments are generally aware of potential flood and landslide hazards, but detailed information and analysis is not available. As such, consideration of these risks in local development plans is limited. Improved and formalized coordination with FEPRA and national agencies developing risk assessments would facilitate the identification of vulnerable areas in the city and enable safer urban growth. Robust The regulatory framework to manage urban growth is in place, but regulations are not consistently enforced. For example, the city has formulated building codes covering various facets of risks and land use. However, implementing these codes at city and sub-city level remains difficult; it is feared that most buildings do not adhere to the codes when they receive their building permits. A review of existing policies and guidelines relating to planning standards and building codes is needed to ensure integration of climate adaptation and risk reduction strategies. Coordinated The implementation of the Integrated Development Plan will require a degree of coordination across bureaus in Addis Ababa that currently does not exist. Each sectoral bureau currently develops and implements its infrastructure investments somewhat in isolation from one another. Moreover, enhanced coordination with sub-city and woreda administrations—who are responsible for municipal services, neighborhood improvement, and building code enforcement—is needed to prepare and implement detailed local development plans. 40 41 DISASTER RISK MANAGEMENT AND CLIMATE CHANGE ADAPTATION In a resilient city, the disaster risk management system combines a well-functioning Within Addis Ababa, FEPRA is mandated with implementing DRR and emergency response and inclusive disaster preparedness and emergency response mechanism with effective activities, develop and implement city level DRM frameworks, regulatory standards and disaster prevention infrastructure. Such a mechanism and infrastructure is based on an plans, collect and analyze all hazards and vulnerability risks, and provide effective early integrated citywide risk assessment and is developed to prepare for, limit, and recover warning information, and rehabilitation services. This is a large mandate for a relatively new from expected shocks. In a resilient city, disaster risk management is integrated in all city- institution that grew out of the fire response unit. FEPRA has limited capacity with regard planning processes, including construction, land use, socio-economic, and sectoral plans. to disaster risk management and limited resources (financial and technological) to carry A resilient city bases its decisions for budget allocation and investment prioritization on out its expanding responsibilities. The Addis Ababa EPA formulates and coordinates climate information that includes experienced and expected damages and losses from disaster change mitigation related programs, controls river pollution, and conducts environmental events. impact assessments. 42 43 Findings of the CityStrength Diagnostic The climate of Addis Ababa is forecasted to have an increase in precipitation variability and DEVELOPMENT PARTNER ACTIVITIES temperature. This will likely induce a wide range of hazards in the city including flooding and landslides in addition to droughts and fires which have been the most common hazards in Primary rural and urban areas. The geographic location and topographic features of Addis Ababa, Time Type Title Sponsor Partners Government Period compounded by the existing state of the drainage system, road network and sewerage Counterpart system, exposes the city to street and riverine flooding as well as landslides. However, the degree of sensitivity to anticipated climate change varies from community to community Ministry of Urban within the city due to variations in topography, poverty levels, access to basic services, Technical Ethiopia Urbanization Development, World Bank 2015 quality of housing and settlement patterns. Landslides are becoming a major threat in some Assistance Review Housing and Construction parts of the city due to frequent digging related to the construction boom. Urban fire has also been identified as an existing shock. With increasing temperatures due Implementing Support for to climate as well as to land-use changes in the city, combined with poor housing standards, the Ethiopia Disaster Risk Disaster Risk fire incidents could be further amplified. However, there is little information about the scale Technical Management and Management Strategic World Bank Forthcoming Assistance Food Security of the challenge and the causal factors. One of the issues seems to be the low capacity and Investment Framework Sector (DRMFSS) lack of coordination of the Fire Prevention unit. This, in combination with lack of appropriate (AAA) road access and overcrowded traffic, exacerbates the problem. Addis Ababa is only 75-100 km away from the western edge of the Main Ethiopian Rift Valley, Urban Emergency Preparedness and which is a hotbed of tremors and active volcanoes. According to a risk assessment project Technical USAID/US Bahirdar Fire and Emergency Response Capacity Prevention and 2013- 2017 focusing on seismic activities in urban areas including Addis Ababa, the city could be severely Assistance Government University Rescue Authority Building Program impacted by earthquakes. If an earthquake was to occur at about 27 km away from the city including Risk Assessment (at similar magnitude of historic earthquake events in the 20th century), it was estimated that 15% of buildings could suffer collapse as well as a high number of fatalities (UNISDR, 1999). The Climate Change and Addis Ministry of Urban Technical European Development, Urban Vulnerability in Ababa 2010 - 2013 Assistance Commission Housing and Africa (CLUVA) University Construction Ministry of Finance Technical Ethiopia: Addis Ababa UN-Habitat & Economic 2008 Assistance Urban Profile Development 44 45 DISASTER RISK MANAGEMENT AND CLIMATE CHANGE ADAPTATION Findings of the CityStrength Diagnostic Qualities of Resilience Inclusive Based on the interviews carried out during the CityStrength Diagnostic, there is little evidence to show that communities and other municipal agencies have been consulted on investments in Addis Ababa related to flood control, drainage, and fire prevention. These investment are mostly driven by individual bureaus with limited or no consultation. Informal settlements along the river banks are particularly vulnerable to seasonal flooding and drainage system overflow. It is estimated that about 5% of the city’s residents are vulnerable to flood risk, and two-thirds of them live in simple mud and wood dwellings that are extremely vulnerable to flood damage. In addition to physical damage, these incidents have contributed to health epidemics in the city. Redundant Since there is no contingency plan in place and no early warning system to reach communities, most disaster response activities in Addis Ababa are ad hoc. FEPRA is receiving technical support from USAID to strengthen these capacities. Reflective Based on a city-wide vulnerability assessment being supported by USAID and the Ethiopian Red Cross, which will consider a wide range of hazards such as flooding, fire, earthquake, and epidemics, FEPRA plans to develop a comprehensive emergency preparedness plan. The draft Integrated Development Plan includes a flood and landslide hazards map, which was developed in collaboration with the EPA and UNDP, but it is not known how the findings of the USAID-sponsored vulnerability assessment will be integrated into the Plan. FEPRA is currently collecting data on accidents, injuries, and fatalities at the sub-city level. However, there is no standardized, systematic and comprehensive approach on data collection. There is an opportunity to aggregate the data and translate it into a more user-friendly format that would make it accessible to all stakeholders including communities. Coordinated Considering the severity of the impact of past earthquakes, as mentioned earlier, and given the significant amount Disaster risk management and climate change adaptation issues are not well coordinated across city departments of urban development that has taken place since that time, and the many skyscrapers that have been erected, in Addis Ababa and there is no collaboration or support from the federal level. Ethiopia is recognized as an emerging the impact of a potential future earthquake near Addis Ababa could be devastating. As such, updated research on leader within Africa on systematically advancing climate adaptation and DRM and a new National Policy and earthquake risk and potential damages and losses is needed to inform the revision and enforcement of building Strategy on Disaster Risk Management was adopted in July 2013. The new NPS-DRM introduces a bold paradigm codes as well as geological survey requirements, as part of the issuance of construction permits shift from a system that mainly focused on drought response and emergency relief assistance toward a modern DRM system. To operationalize its new DRM policy, the GOE prepared a Disaster Risk Management Strategic Programme and Investment Framework, which provides a basis for the prioritization and planning of investments that will drive Ethiopia’s DRM system. However, the new DRM policy, which focuses primarily on rural areas, does not include Addis Robust Ababa. MUDHCo is responsible for urban DRM, but mainly has a focus on secondary cities Disaster risk management capacity in Addis Ababa, including infrastructure, institutional capacity, and financial resources, is very weak. Across all key pillars of DRM—prevention, mitigation, preparedness, response and recovery— the city is at a nascent stage. The lack of early warning systems, emergency response plans, and political attention to these issues, is a significant liability for the government and should be given more importance. 46 47 COMMUNITY AND SOCIAL PROTECTION In a resilient city, residents, including extremely poor and vulnerable groups, are given Unemployment and poverty in Addis Ababa are both high, estimated at 23.5% and 22% equal and fair access to basic services. Support structures, such as safety net programs, respectively. More than one in four households report an unemployed adult (28.7%) and complementary livelihoods interventions target all vulnerable segments of the compared to one in 10 households in other urban areas (10.8%). There is currently no society and effectively deliver their services under any given scenario. All residents have safety net for poor and vulnerable households in general, and for vulnerable categories equal opportunity to engage in the formal economy and have sufficient capacity to deal in particular, such as the elderly and disabled. Efforts are underway with policies such as with and bounce back from shocks and stresses. Decision-making and planning is inclusive the GTP II and the Urban Safety Net Strategy to reduce poverty and vulnerability among and reflects community priorities and needs. A resilient city creates opportunities for the urban poor. An Urban Safety Net Project is currently under preparation by MUDHCo a thriving civil society that supports the representation of society, including a fair and in coordination with other agencies, which in addition to alleviating urban poverty will effective crime prevention and justice systems. enhance livelihoods with a significant focus on Addis. Through BOLSA, the Micro and Small Scale Enterprise Bureau, and the Bureau of Women, 48 49 Findings of the CityStrength Diagnostic Children and Youth, multiple social programs provide protective and preventive support. DEVELOPMENT PARTNER ACTIVITIES However, access to all programs is constrained for several reasons including a requirement for registration and identification to waive fees for certain services, which is an obstacle for individuals who are not legal residents of the city. Primary Government Type Title Sponsor Time Period Counterpart Access to basic services varies by location, and some services are priced beyond the reach of the poor. For example, transportation is unaffordable and inaccessible for many. Primary Ministry of Urban education (until 8th grade) is universal and maternal healthcare is free. However, accessibility Urban Productive Project World Bank Development, Housing and Forthcoming may be difficult due to location and poor road infrastructure. Yet, even where services are Safety Net Project Construction within proximity of the poor and vulnerable, the latter may be limited by failure to meet costs levied as user fees. Ministry of Urban Technical Targeting Assessment World Bank Development, Housing and Forthcoming Assistance for the UPSNP Construction Institutional and Ministry of Urban Technical Capacity Assessment World Bank Development, Housing and Forthcoming Assistance for the UPSNP Construction Feasibility Assessment Ministry of Urban Technical for the UPSNP World Bank Development, Housing and Forthcoming Assistance interventions Construction Ministry of Urban Technical Ethiopia Urbanization World Bank Development, Housing and 2015 Assistance Review Construction Ministry of Finance and Technical Ethiopia Poverty World Bank Economic Development 2015 Assistance Assessment 2014 (MoFED) Women Ministry of Finance and Project Entrepreneurship World Bank Economic Development Approved 2010 Development Project (MoFED) Ministry of Finance and Technical Ethiopia: Addis Ababa UN-Habitat Economic Development 2008 Assistance Urban Profile (MoFED) 50 51 COMMUNITY AND SOCIAL PROTECTION Findings of the CityStrength Diagnostic Qualities of Resilience Inclusive Addis Ababa has a policy for universal provision of basic services such as water and sanitation, electricity, healthcare, and education, but is struggling to provide equal access to residents, especially the poor who are not formally registered. Women have been playing an increasingly important role in the economy and politics. For example, Enat Bank was established in 2012 with a special focus on reaching women. At the national level, there is female leadership in the highest ranks of government. At the family level, the legal system has been supporting women’s rights as well. For example, in 2005, a law was passed that provides for the division of assets in cases of divorce. In informal circles, it is usually women who lead initiatives and who volunteer. However, this does not always hold true in formal circles. Moreover, because the majority of urban women lack attributes that are required by the formal economy (i.e. education, skills, experience), they benefit less from the growth of the formal economy compared to their male counterparts. For example, while the construction sector is booming, women benefit less as they assume the labor intensive roles while men often take management positions. The government conducts public information sessions as part of planning processes, including meetings and public forums. However, it is unclear how consultative the process really is. Participation in local development decision- making is usually considered a formality. Overall, it appears that Addis Ababa needs to strengthen citizen engagement efforts. The city needs to leverage informal initiatives and strengthen formal ones in order to have more efficient engagements. This includes capacity building for city officials and community members alike as well as stronger coordination efforts since there are many fragmented initiatives. Additionally, the government should ensure that there is accountability and transparency. The latter is part of existing objectives but it is particularly problematic when there are political interests involved. Addis Ababa will thus need to consider establishing a citizen engagement platform in a more systematic manner to allow citizens to participate in the elaboration of policies and programs that are aimed at providing services and opportunities for them as well as play a role in monitoring their implementation. Redundant Coordinated The iddir was highlighted as a useful informal support system that could be considered as a back-up social protection mechanism. It is not limited to the grieving process or payment for funerals but rather its mandate goes beyond to The primary entities involved in community and social protection issues in Addis Ababa are BOLSA, the Micro and include other social crisis (i.e. sickness) for which a household may need additional support. The eiquib is another Small Scale Enterprise Bureau, and the Bureau of Women, Children and Youth. Services provided by these agencies form of informal social protection. While group members initially bond over savings and loans, the group develops are guided by the National Social Protection Policy and funding comes primarily from the Ministry of Finance and strong social ties related to information sharing and mutual support. In addition, if one member experiences a Economic Development (MoFED) at the federal level and the Bureau of Finance and Economic Development (BoFED) sudden problem or hardship, they will be prioritized for the next loan. Both iddir and eiquib (and others as well, at the local level. At the federal level, and among donors, there is growing coordination with significant room some of which are formed on the basis of ethnicity and religion) are very active. They are all over the city and some for improvement on programs and services, but at the local level it is quite fragmented. As part of the proposed of them are very well-established. The government is trying to leverage these associations and broaden their scope Urban Productive Safety Net Project, improvements to interagency coordination are being led by MUDHCo in close to include other areas that would benefit from community involvement. A good example has been a strong desire by collaboration with MoLSA. local officials and the citizenry to use iddir as an important platform for promoting community based targeting for Post-disaster response, with a focus on vulnerable groups, is especially weak. FEPRA is in charge of communicating the Urban Productive Safety Net Project, an option that is currently being assessed. key messages to the communities and they usually do so through the radio and internet. There is a hotline for people to report incidents, but it is purportedly often busy. FEPRA activities in the city are at a nascent stage and they are making attempts to reach out to vulnerable communities through awareness programs. 52 53 COMMUNITY AND SOCIAL PROTECTION Findings of the CityStrength Diagnostic Qualities of Resilience CONTINUED Reflective Poverty data, while updated every two years by the Central Statistical Agency, may not adequately reflect the conditions and presence of informal settlements across the city. As Addis Ababa rapidly develops and transitions, AACG recognizes that it is important to ensure that neighborhoods contain a mix of socio-economic groups. For example, when it was recognized that some areas of the city were developing in a way which appeared to isolate higher-income groups, housing for lower income groups (i.e. condominiums) were planned for development in those areas to ensure a level of integration and cohesion among various groups. AACG appears to be taking lessons learned from other countries in attempts to avoid “ghettoization” in the city. An extensive study of the most vulnerable groups should be carried out to help inform urban development decision as well as to ensure that social service programs are well targeted and efficient. Robust BOLSA targets several vulnerable groups, including: (i) the elderly; (ii) the disabled; (iii) street people/ beggars; (iv) the poor; and (v) commercial sex workers. There is a special focus on the disabled and the elderly, recognized as the most vulnerable groups. It was also noted that BOLSA targets homeless children, but they are not their own category. Clearly, there are efforts to better serve the vulnerable but there is need to make the current strategy effective. Additionally, it is unclear how the current registration and identification system is affecting the provision of social services. With a growing population, the city is challenged to provide adequate services to meet the demand of the residents. The disabled are a big target group in terms of social and community protection. Most of the disabled are people who experienced an accident in the workplace (construction sites, factories, etc.) therefore, stricter safety regulations in workplaces would benefit the city by reducing the number of accidents resulting in disabilities. This is a serious problem because of the vast number of people working in jobs with high accident rates, especially construction. This was noted during site visits and consultative group discussions. According to a recent public expenditure review, Ethiopia spends approximately 3 percent of GDP on social protection programs. This includes general subsidies, safety nets, social insurance, and labor market interventions. At the national level, social safety nets and subsidies are the largest social protection programs. Safety nets are primarily financed by donors but the government would like to eventually be the main contributor to social programs. Safety nets and subsidies do not currently target Addis Ababa, therefore, the Urban Productive Safety Net Program will be essential to support the GoE in providing access to effective safety nets and livelihood services to the poor in selected urban areas, including Addis Ababa. 54 55 ENERGY In a resilient city, the energy system offers a secure supply of power that ensures the At the federal level, the Ethiopian Electricity Agency (EEA) regulates all companies involved continuity of services in the event of disruptions. It has spare capacity to provide power in the electricity sector , while the Ministry of Water, Irrigation and Energy is responsible to the city under any circumstances, especially to ensure continuity to the functioning for the development of the country’s water and energy sectors including the power sector. of critical infrastructure like hospitals and government buildings. The planning for and The former Ethiopian Electric Power Corporation (EEPCo), a vertically integrated utility design of energy infrastructure is informed by an integrated risk assessment taking in charge of the power sector, was divided into two utilities in December 2013. Ethiopian major shocks and stresses into consideration. A resilient energy system provides access Electric Power (EEP) is now in charge of Generation and Transmission while Ethiopian to electricity to all societal groups, and embraces both centralized and decentralized Electric Utility (EEU) is responsible for Distribution and Sales. The main energy source of approaches as appropriate. Management of the energy system, including decisions interconnected systems is hydropower plants, and for the self-contained systems is mini- regarding distribution and pricing, is inclusive of local departments and stakeholders. hydro and diesel power generators located in various areas of the country. At the city level, EEU and EEP are mainly responsible for the maintenance of sub-stations and transmission systems. AACG’s sphere of influence with regard to electricity is predominately limited to 56 57 Findings of the CityStrength Diagnostic street lighting, municipal buildings, and solid waste. DEVELOPMENT PARTNER ACTIVITIES The ageing electricity network (some segments of the network are over 30-40 years old) is overloaded and is not able to provide efficient and reliable service to customers. The Primary transmission and distribution lines and the sub-stations are in urgent need of repair and Type Title Sponsor Partners Government Time Period expansion just to keep up with the current load which is essential for anticipated future Counterpart demand. With 614 MW demand in 2014, Addis Ababa accounted for around 42% of the country’s interconnected system peak load. The upgrades are also necessary to improve Ministry of Urban efficiency and reduce the system losses that the overall country power system experiences, Technical Ethiopia Urbanization Development, World Bank 2015 currently estimated between 20% and 22.7% for Addis Ababa. Assistance Review Housing and Construction Ethiopia Energy Technical Ministry of Water and Sector Review and World Bank Forthcoming Assistance Energy Strategy Development of Energy Efficiency in Strategy Camco—Clean Addis Ababa City Three Pilot Cities in World Bank 2014 Document Energy, Verco Council Sub-Saharan Africa— Addis Ababa Ethiopia Electricity Ministry of Water and Network Energy, Ethiopian Infrastructure Reinforcement and World Bank Electric Power (EEP), Approved 2012 Project Expansion Project Development Bank of (EENRP) Ethiopia Ministry of Finance Technical Ethiopia: Addis Ababa UN-Habitat and Economic 2008 Assistance Urban Profile Development 58 59 ENERGY Findings of the CityStrength Diagnostic Qualities of Resilience Inclusive Urban areas in Ethiopia have largely reached a universal electricity access rate. In Addis Ababa, according to the EEU data, 0.97 million households are connected to the grid. The estimated access rate in Addis is 98%, but outages and interruptions are very frequent. Based on data from January 2015, there were 42 interruptions per week on average due to medium voltage conductors breaking or interrupted lines due to substation breakers being opened. Informal connections are common, particularly in informal settlements. There is a backlog of people who have submitted a request for connection; delays are primarily due to technical issues and network capacity. The major bottlenecks for electricity access expansion is the difficulty to mobilize financing in a context of a non-financially viable power sector (i.e. the tariff is not cost reflective). Furthermore, operation and maintenance is negatively impacted by general macroeconomic problems related to the fluctuation of foreign exchange and scarcity of foreign currency that create risk in equipment supply delivery due to delay in the import of spare parts or input material for the local manufacturers. Redundant In the event of an emergency, there is no specific plan of collaboration in place between the utility and AACG. In the city, there is a Distribution Control Centre (DCC) that manages the Medium Voltage system as well as a separate Emergency Maintenance Section. Although the DCC has a computer-based system at its disposal, it is not fully operational. The system is not dual redundant, but is subject to an off-line backup every week. Addis Ababa does not have any specific contingency plan or funding in place to cope with severe disruption of the system or unpredicted events that may cause dysfunction of the system or damages to the equipment. The system is successfully designed to carry out fault repairs or routine work without isolating the entire cycle, as there are several loops and redundancies that permit isolation of the faulty section with minimal impact to customers. However, restructuring on the network is a continuous process to cope with the rapid demand growth and the AADMP is expected to define needed investments. Coordinated Energy portfolio diversification plays a critical role in reducing vulnerability, not only to supply disruptions Ethiopian Electric Power (EEP) is preparing the Addis Ababa Distribution System Master Plan Study and oil price hikes, but also to climate change. Ethiopia is highly vulnerable to extreme weather variability, (AADMP), which will identify the refurbishment, upgrade and expansion of the distribution network particularly erratic rainfall (hydrologic forecast included in the National Power Transmission master required to meet the rapidly growing demand presented in the Integrated Development Plan while also plan). With climate change, it will likely increase the frequency of both flooding and droughts, posing ensuring acceptable quality and reliability of supply. AACG has collaborated with EEP and the Ethiopia a significant challenge to hydropower generation. While hydropower generation accounts for almost Electric Utility (EEU) in the design of the AADMP. A stronger effort should be made to incorporate the 95% of the total current energy generated, Ethiopia has committed to diversify its generation sources by distribution master plan into the Integrated Development Plan in order to ensure coordination efforts. scaling wind and solar power energy as mitigation measures against power shortages, especially during the dry season, while investments in geothermal (1000MW under negotiation with a private developer) and biofuels complement the intermittent resources. As of 2015, wind plants (324 MW) account for 13.4% of the installed generation capacity of the country. There is a waste to energy plant under construction that will generate 50MW (other 2 plants of 50MW each are planned to be built in the city). All in all, a steady development of the huge potential of solar, wind, sugar and biomass can help to achieve easily the diversification objective. 60 61 ENERGY Qualities of Resilience CONTINUED Robust The projected rapid growth in population, urbanization, and GDP growth create a progressive stress and conspicuous increase in demand. In particular, the AADMP forecasts an increase in electricity demand in the city (covering the current 10 sub-cities) from 614 MW in 2015 to 1747 in 2034. 22 This will stress the current system and require a reinforcement of transmission corridors from the Western and North Western regions to Addis and the upgrading and expansion of substations. Loss reduction measures should be considered during the planning phase. The cost of the recommended short term rehabilitation and expansion of the distribution network is estimated at $285 million between 2015 and 2017. To avoid major disruption to the system at the household level as well as prevent urban fire, AACG should ensure that the residential electric wiring systems meet minimum safety standards. A certification mechanism should be designed and enforced. Periodic household inspections are needed to make sure that there are no risky situations created by unsecure modifications of the system. Wooden distribution poles in the network are planned to be progressively replaced by concrete to address the fire risk. An awareness campaign could be promoted to inform households about avoiding electric hazards and how illegal connections can provoke major accidents. 22 The AADMP include in its analysis twelve surrounding Oromia woredas supplied by the Addis Ababa network. Aggregate demand forecast will then grow from 759 MW to 2978 MW. 62 63 TRANSPORTATION In a resilient city, the transport system offers multiple modes of transport to its users The expansion of Addis Ababa along the five radial roads has posed many challenges for to ensure the continuity of mobility in the event of disruptions, and to ensure access the city, especially in terms of increased transportation costs, congestion, and delivery to transportation for all population groups. It takes a flexible approach and proactive of public infrastructure services. Additionally, there is a lack of coordination between coordination with other agencies to be able to divert user traffic to different modes transport investments and urban development. Indeed, housing and land-use decisions of transport based on changing conditions. In a resilient city, the planning for and are taken on the basis of where available land resources are, with almost no assessment of investments in the transport sector are based on an assessment of past shocks and transport impacts, thereby missing the opportunity to integrate public transport modes in stresses and are closely aligned with other departmental plans and overall key priorities terms of coverage, routes, fares, schedules and facilities. Low coverage of streets and a lack of the city. of street grid network and associated infrastructure has resulted in further inefficiency of mobility and associated issues of productivity, quality of life, and social inclusion. Over the past few years, Addis Ababa has been making a concerted effort to improve 64 65 Findings of the CityStrength Diagnostic the urban transport situation, largely through large investments in new infrastructure, DEVELOPMENT PARTNER ACTIVITIES: including roads, a new Light Rail Transit (LRT) system (under construction) and plans for a new Bus Rapid Transit (BRT) system, and improved standards and practices for improving and integrating pedestrian facilities in major transport capital projects. However, for both Primary Government Time Type Title Sponsor Counterpart Period the LRT and BRT, the operations and maintenance oversight responsibility have not been decided, and it is not clear whether these would be a city or national function. Ministry of Urban Technical Ethiopia Urbanization World Bank Development, Housing and 2015 Assistance Review Construction Ethiopia - Addis Ababa Urban Land Use and Addis Ababa Road and Project World Bank Forthcoming Transport Support Transport Bureau Project Addis Ababa and Surrounding Integrated Urban Oromia Integrated Technical Planning to Foster Green World Bank Development Plan Project 2014 - 2015 Assistance Growth Office, Addis Ababa Transport Program Management Office Infrastructure Road Sector Support Ministry of Finance and World Bank Approved 2013 Project Project Economic Development Addis Ababa and Surrounding Addis Ababa Urban and Oromia Integrated Technical Metropolitan Transport Development Plan Project World Bank 2013 - 2015 Assistance and Land Use Linkages Office, Ministry of Transport, Strategy Review Addis Ababa City Roads Authority Review of Road Technical Ministry of Finance and Construction Costs in World Bank 2012 - 2015 Assistance Economic Development Ethiopia Ethiopia-Transport Sector Ministry of Finance and Project Project in Support of World Bank Approved 2012 Economic Development RSDP4 Ethiopia-Road Sector Ministry of Finance and Project Development Program World Bank Approved 2008 Economic Development APL4 66 67 TRANSPORTATION Findings of the CityStrength Diagnostic Qualities of Resilience Inclusive Currently, Addis Ababa has no mass transit system. However, the city is served by mini-bus taxis and Anbessa bus services. These services cover the city fairly well and equitably. The city is developing three new mass transport lines – one BRT and two LRT lines. These lines will have limited geographic coverage. The Public Service Employees Transport Service Enterprise provides free transport to civil servants and runs before and after office hours. Redundant The transport system does not currently meet demand without substantial delays and variability of travel time. Most of this is associated with artificial capacity constraints created by poor management and enforcement practices, rather than physical capacity constraints. More quantitative assessment is required to determine when traffic growth will overtake current capacity. The transport mode is predominantly vehicular transport although there are three new mass transport lines being planned – one BRT and two LRT lines, which will offer alternative modes. However, these lines will have limited geographic coverage. While public transport is available, it is often unaffordable by the poorer section of the population. No alternative commute strategies are in place at present in the event of an emergency, and if one mode has been impaired, the system does not have the flexibility for the demand to be absorbed by other modes. For freight, a key access point to the city is from the south, Modjo, which is also the main arterial toward Djibouti. Capacity has been expanded recently with the creation of the Addis-Adama expressway, which terminates on the outskirts of the city, putting major stress on the existing radial route. An outer ring road and rail line are under construction, which should relieve the existing route. Reflective Addis Ababa is in the process of establishing new institutions to manage traffic and public transport. The city anticipates that these institutions will undertake regular data gathering and monitoring of performance. However, this is not generally practiced now. Risk data and anticipated climate change impacts are generally not incorporated in transport planning decisions. Coordinated The organization of transport infrastructure management rests with the Addis Ababa Road and Transport Bureau. A Robust reorganization of this Bureau was approved by the City Council in 2014 and is currently in process. When completed, The road network is vulnerable to gridlock, particularly at peak hours. There are some key points of high traffic management of road infrastructure will rest with the Addis Ababa City Roads Authority. A Traffic Management Agency, congestion, but much of the network is susceptible to delays caused by lack of traffic management, breakdowns, or reporting to the Bureau will be responsible for traffic management in the city. Management and coordination of the accidents. Even minor accidents can cause substantial disruption to traffic flows, delaying the arrival of emergency public transport network will rest with a Public and Freight Transport Authority–with the exception of the light rail services. Currently, transport development plans and regulations do not include such risk analysis. service, which will be managed by the Ethiopian Railway Corporation, a Federal entity. The airport is managed by the There is a strong dependency between roads and urban drainage, as existing and new roads interrupt natural Ethiopian Airports Enterprise, though emergency services at the airport are under the jurisdiction of the Ethiopian drainage patterns. Run-off has been increasing due to the increased area of hard landscape. Flooding causes Civil Aviation Authority. Given the number of entities involved in the transport sector, coordination will continue to significant but short-lived disruption to the road network, as a result, congestion and delays tend to increase during be a challenge. Across sectors in the city, recent efforts have supported closer alignment between transport and the rainy season. land-use planning. At present, road transportation infrastructure is funded from the city’s own budget. Generally, the city does not include resources for road maintenance; it is sourced from the national Road Fund, whose allocation to Addis Ababa is generally inadequate for comprehensive maintenance. It is recommended that the city supplements maintenance resources from the Road Fund with its own resources. 68 69 WATER AND SANITATION In a resilient city, potable water and sanitation services are accessible to all segments of Addis Ababa has not yet reached full coverage of water supply or sewerage, and also faces the population. Water and sanitation infrastructure is planned with a holistic approach significant and growing water scarcity. It is estimated that only 44% of the population has taking into account social, economic, and environmental risks and vulnerabilities. access to clean water 23 and 30% has access to piped sewerage or vacuum truck service. Planning for and investment in the sanitation and water systems is driven by demand Addis has two sources of water – surface and groundwater. Surface water comes from 3 and supply data, participatory engagement, and is based on cross-departmental dams that feed into 2 treatment plants. They are in the east and northwest of the city and collaborations that support coordination with existing urban development plans and flow to the city with gravity. There are 3 primary well fields for groundwater extraction with priorities. In a resilient city, there is sufficient human and technical capacity to ensure a total of about 50-60 wells. They are in the southeast section of the city. Water is collected sustainable operation, maintenance and financial management of water and sanitation into tankers via gravity and treated, and then pumped to the city. The pumping stations infrastructure and services. are powered by the electric grid and each one has a back-up generator. The groundwater is from a volcanic aquifer, making recharge from retention ponds infeasible. There are two 70 71 Findings of the CityStrength Diagnostic wastewater treatment facilities in Addis Ababa—Kality, which has a stabilization pond, and DEVELOPMENT PARTNER ACTIVITIES: Kotebe, which uses a drying bed. Kality has a designed capacity of 7,600 m3 per day, but is currently processing about 10,000 m3. The piped sewerage feeds to this facility. Kotebe has a Primary capacity of 2,000 m3 per day and serves condominiums (about 5,000 households). There are Time Type Title Sponsor Partners Government Period also several decentralized treatment plants that primarily serve condominiums. Industry is Counterpart not connected to the system, they handle their own treatment and it is overseen by the EPA. Ministry of Urban Technical Ethiopia Urbanization Development, World Bank 2015 Assistance Review Housing and Construction 23 The report acknowledges that the data on safe water access in Addis Ababa, as indicated in the 2015 Ethiopia Urbanization Review, stems from 2012. At the time of publication there may be more up to date figures available. Sustainable development Technical Ministry of Water and management of World Bank 2013 Assistance and Energy (MoWE) ground water resources Addis Ababa City Government Asset Inventory and Strategy Management Plan for Ministry of Urban World Bank 2012 Document the Addis Ababa City Development, Government housing, and Construction Ministry of Finance Technical Ethiopia: Addis Ababa UN-Habitat & Economic 2008 Assistance Urban Profile Development Addis Ababa Water and Sewerage Authority Infrastructure Urban Water Supply and Approved World Bank AFD Project Sanitation Project Ministry of Water, 2007 Energy and Irrigation 72 73 WATER AND SANITATION Findings of the CityStrength Diagnostic Qualities of Resilience Inclusive It is estimated that only 44% of the population has access to clean water. The target is to provide about 110 liters per person per day, while current supply stands at only 40 liters. AAWSA is currently supplying water to certain parts of the city on a shift basis. There are a number of pocket areas that receive water two or three days a week through the piped system (data as of November 2014). The disruption seems severe at Gulele, Kolfe Keranio, Addis Ketema, and Arada. Others such as Kaliti Akaki, and Lafto Nifas Silk also get water in shifts. Liquid waste is collected by vacuum trucks and piped sewer lines. The combined coverage of these systems is around 25-30% of the city. There is a clear and urgent need to expand sanitation services across the city, especially to those living in the informal housing. Redundant Demand for water and sanitation service far exceeds supply. As such, there is no excess capacity or back-up supply for water or sewerage in the city that would provide redundancy in the system. Water supply is derived from two sources: 40% surface and 60% groundwater, which are already under stress and failure of either source would result in a crisis. Disruptions to water supply are generally handled by providing water by tanker truck. AAWSA has a fleet of 30-40 tanker trucks that can each serve about 130 households per day. In regard to wastewater treatment, there is no back-up plan in place other than direct disposal to water bodies. There is no contingency financing earmarked for water and sanitation, and minor maintenance and repair is covered by the AAWSA’s budget. Reflective AAWASA has comprehensive information on the location of primary water and sewerage infrastructure, but limited data on its current state of repair or the ability of the system to remain operable in the event of a disaster. There is no proactive maintenance procedure in place, and most improvements occur only when a line breakage is reported. According to the interviews carried out as part of the CityStrength Diagnostic, all water and sanitation infrastructure is built to meet the seismic risk factor determined by the Ministry of Urban Development, Housing, and Construction. Moreover, some of the older reservoirs (about 15 years old) were designed with technical advice from the Japanese and include seismic design specifications. Other potential shocks and stresses such as flooding or water scarcity are not integrated into the planning and design of new infrastructure. Coordinated The Addis Ababa Water and Sewerage Authority (AAWSA) has the mandate to develop, collect, treat, and distribute water and wastewater. The Ministry of Water, Irrigation, and Energy has the mandate to set Robust policies and regulations for water supply. Governance of urban sanitation issues, however, is less clear The water and sewerage system in Addis Ababa does not serve all areas of the city or segments of society, and is cut. A technical working group established by the Ministry of Health is advising the government to create generally maintained on an ad hoc basis. The estimated water leakage rate of 36.5% is high, especially considering an integrated urban sanitation strategy. It reflects the need for closer coordination between AAWSA, EPA, that water scarcity is already a challenge for the city and is expected to worsen due to climate change and increased and the Department of Health to ensure the safety of the population and the ecosystem. demand. The construction, operation, and maintenance of water and sewerage infrastructure is financed by the city administration. Users pay in advance for vacuum trucks. In regard to piped sewerage, users pay for the connection to their residence (about US$150 on average), but do not pay any service fee. Collection of water fees is estimated at 60-80%. Expenses related to minor disruptions or maintenance are covered by AAWSA. 74 75 Enhancing Urban Resilience: Addis Ababa Priority Actions and Investments PRIORITY ACTIONS AND INVESTMENTS The primary shocks that Addis Ababa faces and long term. Specific recommendations Provide support for the development infrastructure can be used to guide urban are floods, urban fire and earthquake. At include: of the Local Development Plans: High- fringe growth. The provision of formal the same time, the city faces a multitude quality and technically sound LDPs need and informal employment opportunities of stresses, many of which are directly Create an implementation ‘business to be developed in line with priorities for this peripheral population needs to be related to its current level of development, plan’: The implementation of the plan set by the business plan and as soon considered. Consultations with stakeholders including unprecedented urban growth, will be facilitated by the preparation of as possible to inform public works and including communities, needs to be taken water scarcity, and unemployment and a business plan that identifies priorities private construction. Sub-cities will require into consideration in the planning and social vulnerability. and articulates the phasing of works, support for this process to ensure that implementation of LDPs. costs and financing sources, and roles and the LDPs include community consultation The unprecedented urban growth that responsibilities. The city should develop a and participation, integrate risk data, and Focus on the review and enforcement of Addis will face over the coming decades strong communication plan and consider adhere to the guidelines of the Integrated building codes and safety regulations as could create the agglomeration of people promoting participation of civil society, Development Plan. a means of addressing multiple shocks and economies that can catapult the city transparency, and accountability by and stresses and working toward the towards its long-term goals, but if not creating a website for public information Ensure a balanced focus between goal of creating a safe and livable city. As well managed, it could also exacerbate dissemination, monitoring, and updates on the city center and peripheral areas: construction in Addis increases in pace and existing shocks and stresses related to the Plan’s progress. Redevelopment and upgrading of the city scale, the enforcement of existing building natural hazards, access to basic services, core is an important component of the codes and safety regulations will be congestion, economic opportunity, and Promote coordination at multiple vision laid out in the new Master Plan, which paramount. The construction practices do individual well-being. Enhancing resilience levels: As an “integrated” master plan, its recognizes that Addis Ababa has vacant not adhere to basic standards and have low in Addis requires actions and investments success will depend on the coordination, and underused land in prime locations that safety practices, resulting in many accidents that are oriented toward implementing collaboration, and enforcement of multiple could be leveraged for denser development at construction workplaces (construction existing plans and regulations, establishing agencies in the city. The preparation of in existing urban areas, through a balanced sites, factories, etc.). Additionally, review clear and capacitated leadership on risk the Integrated Development Plan has mix of functions and mobilizing cultural and enforcement of building codes management topics, improving safety nets benefited from the establishment of a heritage assets to improve identity, livability (including, for example, enforcing periodic for residents and investing in infrastructure high-level, multi-agency committee. and attractiveness to tourism related inspection of sensitive electric installations) that meets existing and future needs. During implementation, this entity economic activities. At the same time, could have a substantial impact on reducing should be maintained and institutionally however, it should be recognized that it fire, earthquake, and flood risks. Priority Actions strengthened. In addition, working level will not be possible to meet the pace of technical teams from across agencies expected urban growth solely through Establish a disaster risk management Address unprecedented urban growth by should be formed to support and enforce measures aimed at redevelopment of and climate change adaptation quickly focusing on the implementation implementation in specific areas of the city existing core areas.  coordination unit under the Mayor to of the Integrated Development Plan. The (i.e., a high density transit node, a suburban strengthen, promote, and mainstream risk draft Plan is quite comprehensive and neighborhood, etc.) This could be done on a Efforts need to be taken now to ensure that management initiatives across municipal technically sound. The challenge is its pilot basis to test its effectiveness. fringe growth is orderly and that viable and agencies. At the national level, Ethiopia is effective implementation and prioritization affordable transportation options exist. recognized as an emerging leader within of interventions for the short, medium Transportation and other trunk service Africa on systematically advancing climate 76 77 Enhancing Urban Resilience: Addis Ababa Priority Actions and Investments change measures and DRM, and a new Address localized flooding due to surface Develop and strengthen core city agencies National Policy and Strategy on Disaster water run-off by developing a stormwater involved in transport to manage traffic Risk Management (NPS-DRM) was adopted drainage master plan and supporting congestion and accidents as well as roadway in July 2013. In Addis, the responsibility for AACRA in assuming its imminent mandate flooding. Transport in the city is managed implementing the NPS-DRM currently lies to manage drainage in the city. There by the Addis Ababa Road and Transport with FEPRA. However, FEPRA has limited is a strong dependency between urban Bureau, with responsibility for specific capacity with regard to comprehensive development, roads and drainage, as aspects of the transport system allocated disaster risk management, and limited existing and new roads interrupt natural to the Addis Ababa City Roads Authority number of relevant staff as well as limited drainage patterns. Moreover, stormwater (AACRA), the Traffic Management Agency resources (financial and technological) to drainage infrastructure is often installed (TMA), the Public and Freight Transport carry out its expanding responsibilities. In under or adjacent to the road network. Authority (PFTA), and the Ethiopian Railway addition, there is little to no coordination Run-off has been increasing due to the Corporation. Strengthening the capacity of among city agencies and bureaus, including expanding areas of hard landscape, resulting these agencies to fulfill their mandates and the master plan project office and EPA, as in more frequent, but short-lived, flash their coordination would make a significant well as no collaboration or support from floods, leading to widespread disruption to impact on traffic congestion, accidents, and the federal level such as the Disaster Risk the road network. The expected increase in roadway flooding. The transport system Management and Food Security Sector run-off will have implications for flooding does not currently meet demand without (DRMFSS). The new unit needs to have in the city and could worsen the present substantial delays and variability of travel defined roles and responsibilities which loss of lives and properties. Those living on time, but most of this is associated with should include as part of its work program land prone to flooding during heavy rainfall artificial capacity constraints created by poor the preparation of a DRM & CCA strategy events (e.g. riverbanks, low lying areas, etc.) management and enforcement practices, that would focus on risk management will be at greater risk should these rainfall rather than physical capacity constraints. and preparedness for major incidents, events become more commonplace. An Indeed, more quantitative assessment is a river management plan to address approach to urban drainage needs to be required to determine when traffic growth macro-drainage problems, establishment taken at a city-wide scale, and a new urban will overtake current physical capacity. of risk financing mechanisms (including drainage master plan should be coordinated Currently, even minor accidents can cause contingency planning), data collection with the Integrated Development Plan, substantial disruption to traffic flows, and on losses and damages with regard to based on hydraulic modeling that includes delay the arrival of emergency services. multiple hazards (to reflect actual costs), anticipated impacts due to climate change. There are some critical locations with high and commissioning of studies and analysis Moreover, the effective operation of the traffic congestion, but much of the network is of specific risks such as earthquake. With drainage system will require improvements susceptible to delays caused by lack of traffic support, FEPRA could play a prominent role in solid waste management to ensure that management, breakdowns or accidents. in the new unit, providing technical advice drains are not clogged by waste. As this is a During the rainy season, congestion and and guidance on planning and strategy new mandate, AACRA will require technical delays are exacerbated. development. support. 78 79 Enhancing Urban Resilience: Addis Ababa Priority Actions and Investments Perform an extensive study of the most warning system in place – communities to reported breakages. The city needs to and readiness of private sector to take vulnerable groups with special attention to are highly vulnerable. FEPRA is aware of improve the operational efficiency and advantage of opportunities for investment. existing social service programs and access this weakness, but there are no plans to monitoring at well fields to maximize their to housing. Currently, the most vulnerable develop such a system and training will potential and avoid over extraction. All Establish mass transport skeletal services groups in Addis cannot benefit from many only be directed at city government staff piped water in Addis meets minimum WHO to shape metropolitan growth. While of the social services available because and practitioners. The government already standards, but the discharge of waste into upgrading and redevelopment in the city they are inaccessible or unaffordable. has frameworks in place for engagement rivers affects the quality of groundwater in center is laudable and should be pursued, Current local social protection programs with communities, however, there are the central city, while urbanization around it will not be possible to meet the pace administered by the Bureau of Labor and issues with the implementation. There are dams affects surface water quality because of expected urban growth solely through Social Affairs (BOLSA) target 5 categories: also informal initiatives at the sub-city and households are improperly discharging measures aimed at redevelopment of the elderly; the disabled; street people/ community level for service delivery. The waste. These issues need to be raised at the existing core areas. Efforts need to be taken beggars; the poor; and commercial sex city needs to leverage informal initiatives metropolitan level to coordinate better for to ensure that fringe growth is orderly and workers. There is evidence that addressing and strengthen formal ones in order planning and implementation purposes. that viable and affordable transportation social protection in this way is ineffective have more efficient engagements. This In addition to improved efficiency and options exist. This includes moving quickly because some people fall into multiple includes capacity building for city officials protection of existing water supply, Addis to establish mass transport skeletal groups. Analysis is needed to better and community members alike as well as will need to develop new sources of water. services to shape metropolitan growth. understand vulnerable segments of the stronger coordination efforts since there are Alternatives need to be explored to harness Even if the full implementation of mass population in Addis as well as how the many fragmented initiatives. rainwater and stormwater catchments transport services is not feasible in the current registration and identification for grey-water uses such as industry, near future, efforts should be made to send system is affecting delivery of social Priority Investments landscaping, and cleaning. signals to (emerging) land and property programs. In addition, an inclusive housing markets about where these services will strategy, including a review of household Address water scarcity with a two-pronged Pilot urban densification using a transit be established. For example, express bus affordability and the on- and off-budget approach focusing on improved efficiency oriented development and integrated services could quickly be established along subsidies associated with the condominium and protection of the existing supply municipal management approach. As part future BRT, LRT, and MRT routes, protected program, should be developed specifically system, and additional water sources. of the implementation of the Integrated with modest investments that can be for Addis given its unique context within the Currently, Addis has two sources of water, Development Plan, the city should elaborated upon later. country. surface and groundwater, in a roughly select targeted sites for intensive public 40:60 proportion, totaling 450,000 m3 per investments, private sector engagement, Reduce urban flooding in order to protect Strengthen citizen engagement efforts day. Failure of any of these water sources and institutional coordination. These pilots lives and property as well as to enhance using disaster risk management and would result in a crisis. Addis must address for urban densification should be aligned mobility during the rainy season. Perennial climate change adaptation as a point of the estimated 36.5 percent leakage of with transport investments, especially flooding in Addis stems from river overflow entry. A functioning neighborhood-level water supply in the system as a means of public transportation, and supported by and poor stormwater drainage capacity. early warning system should be established ensuring that more potable water is made cross-agency technical teams to ensure To address the former requires better for residential areas along rivers and in available for the population, through the quality of local development plans, management of river catchments and the densely populated zones. There are limited a combination of methods, including adequacy of infrastructure delivery, related network of secondary drainage, awareness-raising activities and no early improved maintenance and faster response enforcement of building and safety codes, resettlement of vulnerable households 80 81 Enhancing Urban Resilience: Addis Ababa Priority Actions and Investments encroaching on reservation areas, and generates a surplus available for export. important to note that shocks and stresses stabilization of eroding river banks. It is The projected rapid growth in population impact the poor more severely due to pre- estimated that two-thirds of the population and intensity of urbanization will require existing vulnerabilities, social inequality, in flood prone areas live in mud and an increase in generation capacity and and lack of voice. The inclusion of design wood constructions that are particularly an efficient transmission and distribution features that will allow the envisaged vulnerable to flood action. The second system. In particular, the projected increase safety net to respond to the needs of poor course of intervention includes upgrades in demand for electricity in the city will households impacted by flood, fire, or to drainage on the ring road, expansion of stress the current system and require a earthquake should be considered, in the stormwater drainage systems in low-lying reinforcement of transmission corridors ongoing projects. areas of the city, and installation of water from western and north western regions to retention ponds (which could also serve Addis and the continuous upgrading and as a source of grey-water). The design of expansion of existing substations which are urban sub-surface drainage systems to carry more than 40 years old. Both AACG and the future peak floods may not be economical, utilities should put in place a collaboration and strategies to manage run-off from flash mechanism to ensure proper and timely floods need to be developed as part of a planning of needed infrastructure to match drainage master plan. the city development. Ensure coverage and reliability of basic Introduce an effectively targeted productive services, including wastewater collection safety net and complementary livelihoods and treatment and energy distribution. It is interventions in Addis Ababa to support estimated that only 25-30% of households vulnerable groups and households impacted in Addis have wastewater collection, either by shocks. The delivery of a predictable, through piped sewer line or vacuum trucks. timely, adequate and productive safety The city’s goal is to reach 50% coverage by net through conditional and unconditional 2020. This will require continued investment transfers is a fundamental building block in piped sewerage and decentralized of urban resilience and can serve as a treatment facilities. Treatment capacity buffer in the face of economic shocks and is currently exceeded and excess waste is natural disasters. At 22%, the poverty rate deposited in water bodies. In regard to of Addis is just below the urban average for energy, stakeholders highlighted service Ethiopia (25.7%), and progress in reducing disruption as a stress in the city. The poverty over the last decade has been slow. access rate in the city is close to 100%, As more of the poor live in large urban but outages and interruptions are very centers, expanding development programs frequent. In Ethiopia, current total energy to address key challenges to urban poverty production meets demand and, in fact, reduction is imperative. Moreover, it is 82 83 Enhancing Urban Resilience: Addis Ababa Immediate Measures Immediate Measures The following table highlights a set of immediate measures that Addis Ababa can take to begin the process of enhancing its resilience. What explains the action that needs to be implemented. How outlines the necessary activities required to implement the action. Why explains the rationale for the action. And, Who gives an indication of the most likely department or institution that could be responsible for implementing the action or for providing the necessary input. Focus on implementing WHAT Strengthen risk Address localized Better understand Identify new sources Pilot urban the Integrated management initiatives flooding vulnerable groups of water densification Development Plan Create an implementation ‘business Establish a disaster risk management Prepare a new urban drainage Perform an extensive study of the Explore alternatives to harness Select targeted sites for intensive HOW plan’ and provide targeted support and climate change adaptation master plan and begin studying most vulnerable groups in the city rainwater and stormwater public investments, private sector to sub-cities for the preparation of coordination unit under the Mayor the link between solid waste catchments for grey-water uses engagement, and institutional Local Development Plans management and flash flooding coordination Achieving the goal of a safe and FEPRA has limited capacity with Stormwater run-off has been There is evidence that the categorized Addis needs to develop new sources To address lack of coordination WHY liveable city requires coordinated regard to comprehensive disaster risk increasing, resulting in more approach to addressing social of water to meet growing demand among city departments and action across multiple agencies in management, and there is little to no frequent flash floods and widespread protection is ineffective because some tendency toward sprawling the city coordination among city agencies and disruption to the road network people fall into multiple groups development patterns bureaus WHO Addis Ababa City Planning Project Mayor’s Office in collaboration AACRA BOLSA AAWSA Addis Ababa City Planning Office and Urban Planning Institute with FEPRA Project Office and Urban Planning Institute 84 85 Resources on Addis Ababa Central Statistical Agency (2010) The 2007 Population and Housing Census. Addis Ababa: CSA. Federal Government of Ethiopia, Ministry of Urban Development and Construction (2015) Growth and Transformation Plan II, 2015/16 – 2019/20. CLUVA (2013) Climate Change and Vulnerability of African Cities. Research Briefs. Seventh Framework Program Deliverable. CLUVA consortium. Herbert, S. (2013) Assessing Seismic Risk in Ethiopia. Research Report. Birmingham: GSDRC, University of Birmingham. CLUVA (2013) Hazard scenarios for test cities using available data. Research Briefs. Seventh Framework Program Deliverable. Naples: AMRA. Ndaruzaniye, V. (2011) Water Security in Ethiopia: Risks and Vulnerabilities Assessment. Brussels: Global Water Institute. CLUVA (2013) Recommendations for green infrastructure planning in selected case study cities. Seventh Framework Program Deliverable. Manchester: University of Manchester. UN-Habitat (2007) Situation Analysis of Informal Settlements in Addis Ababa. Nairobi: UN-Habitat. Echnoserve (2011) Measurement and Performance Tracking: Scoping and Survey Results – Ethiopia UN-Habitat (2008) Ethiopia: Addis Ababa Urban Profile. Nairobi, UN-Habitat. Report. Washington, DC: WRI. UNISDR (1999) RADIUS: Risk Assessment Tools for Diagnosis of Urban Areas against Seismic Disasters. Elala, D. (2011) Vulnerability assessment of surface water supply systems due to climate change and Geneva: UNISDR. other impacts in Addis Ababa, Ethiopia. Academic Thesis. Uppsala: Uppsala University. Van Rooijen, D and Taddesse, G. (2009) Urban sanitation and wastewater treatment in Addis Ababa Ethiopian Electric Power and Parsons Brinckerhoff (2015) Addis Ababa Distribution, Master Plan in the Awash Basin, Ethiopia. Reviewed Paper for the 34th WEDC International Conference, Addis Study, Draft Final Report, Volume 1 - Executive Summary. Ababa, Ethiopia. Federal Government of Ethiopia (2001) Ethiopian Water Sector Strategy. Washan, P. (2014) Development of Energy Efficiency in Three Pilot Cities in Sub-Saharan Africa - Addis Ababa. Washington, DC: World Bank. Federal Government of Ethiopia (2010) National Policy and Strategy on Disaster Risk Management. Weldesilassie, A. B. (2014) Building a Resilient City to Water Mediated Climate Change: Policy and Federal Government of Ethiopia (2011) Climate Resilient and Green Economy Strategy. Institutional Options. Research Report. Addis Ababa: Ethiopian Development Research Institute. Federal Government of Ethiopia, Ministry of Agriculture (2014) Disaster Risk Management Strategic World Bank (2007) Urban Water Supply and Sanitation Project. Project Appraisal Document. Program and Investment Framework. Washington, DC: World Bank. Federal Government of Ethiopia, Ministry of Transport (2011) Transport Policy of Addis Ababa. World Bank (2010) Addis Ababa: Public Expenditure Review. Washington, DC: World Bank. Federal Government of Ethiopia, Ministry of Urban Development and Construction (2010) Growth and World Bank (2012) Electricity Network Reinforcement and Expansion Project. Project Appraisal Transformation Plan, 2010 – 2015. Document. Washington, DC: World Bank. Federal Government of Ethiopia, Ministry of Urban Development and Construction (2012) Addis Ababa World Bank (2013) Addis Ababa Urban and Metropolitan Transport and Land Use Linkages Strategy City Government: Infrastructure Asset Management Plan. Review (P147972). Concept Note. Washington, DC: World Bank. Federal Government of Ethiopia, Ministry of Urban Development and Construction (2013) Ethiopian World Bank (2013) Ethiopia: Sustainable Development and Management of Ground Water Resources – Cities Prosperity Initiative: Building Green, Resilient and Well Governed Cities. Issues, Challenges and Opportunities. Washington, DC: World Bank. Federal Government of Ethiopia, Ministry of Urban Development and Construction (2013) Growth and World Bank (2014) Addis Ababa Urban and Metropolitan Transport and Land Use Linkages Strategy Transformation Plan: Ethiopian Resilient & Green Cities Development & Governance Programs Review (P147972). Note of Engagement. Washington, DC: World Bank. Package. 86 87 World Bank (2014) Energy Access Project. Implementation Completion and Results Report. Washington, DC: World Bank. World Bank (2015) Ethiopia Poverty Assessment 2014. Washington, DC: World Bank. World Bank (2015) Ethiopia Public Expenditure Financial Assessment 2014. Washington, DC: World Standard Disclaimer: Bank. This volume is a product of the staff of the International Bank for Reconstruction and Development/ The World Bank. The World Bank (2015) Ethiopia: Urban Productive Safety Net Program. Project Information Document. findings, interpretations, and conclusions expressed in this Washington, DC: World Bank. paper do not necessarily reflect the views of the Executive Directors of The World Bank or the governments they World Bank (2015) Ethiopia Urbanization Review: Urban Institutions for a Middle-Income Ethiopia. represent. The World Bank does not guarantee the accuracy Washington, DC: World Bank. of the data included in this work. The boundaries, colors, denominations, and other information shown on any map World Bank (2015) Management and Delivery of Urban Infrastructure Service. Background Paper. in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the Washington, DC: World Bank. endorsement or acceptance of such boundaries. World Bank (2015) Stocktaking of the Housing Sector in Sub-Saharan Africa. Part 3: Ethiopia. Washington, DC: World Bank. Copyright Statement: The material in this publication is copyrighted. Copying and/ World Bank (2015) The Environmental Sustainability of Ethiopia’s Cities. Background Paper. or transmitting portions or all of this work without permission Washington, DC: World Bank. may be a violation of applicable law. The International Bank for Reconstruction and Development/ The World Bank encourages dissemination of its work and will normally grant permission to reproduce portions of the work promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, USA, telephone 978-750-8400, fax 978- 750-4470, http://www.copyright.com/. All other queries on rights and licenses, including subsidiary rights, should be addressed to the Office of the Publisher, The World Bank, 1818 H Street NW, Washington, DC 20433, USA, fax 202-522-2422, e-mail pubrights@worldbank.org. © 2015 Global Practice on Social, Urban, Rural and Resilience The World Bank Group 1818 H Street NW Washington, DC 20433 USA www.worldbank.org/urban Information Design by Sheena Yoon 88