Resettlement as a tool for Disaster Risk Reduction

GFDRR – SDV

Elena CorreaFebruary 4, 2010

The Assignment

Global Facility for Disaster Reduction and Recovery (GFDRR) approved the proposal to study existing resettlement programs for disaster risk reduction in four LAC countries. The main objectives are to identify main lessons-learned and prepare a tool-kit for planning and implementing resettlement programs for disaster risk reduction.

SDV included this activity in the work program (FY09-10) of the Social Sustainability and Safeguards team and allocated staff weeks to implement this initiative

Task TeamInitial research

Dianna MoyerPaivi Koskinen-Lewis

Case studiesIgnacio Zeltmeister y Rómulo Pérez (Argentina)Marilia Scombatti y Ronaldo Marques(Brazil)Narzha Poveda (Colombia)Eduardo Aguirre (Guatemala)Sergio Carmona (technical reviewer)

ToolkitFernando Ramírez Margarita De CastroElena Correa

TTLElena Correa

Outline

Global and LAC natural disasters trends and consequences

LAC – Vulnerability factors

DRR - A preventive approach

Preventive Resettlement

Brief summary of the case studies

Outline of the toolkit

Global and LAC

Natural Disasters Trends

Global Natural Disasters EventsGraph 1: Total Disaster Occurence (1970-2009)

3,926

843

1,656

2,592

3,533

0

1000

2000

3000

4000

5000

1970-1979 1980-1989 1990-1999 2000-2008

Decade

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f Nat

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Estimated natural disasters 2000-2009 (projections for 2009 based on decade average)

Actual 1970-2008 natural disasters

Source: EMDAT, Emergency Events Database 2009

People Affected by Natural Disasters in the World

0

1,000,000,000

2,000,000,000

3,000,000,000

4,000,000,000

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70 79 80 89 90 99 00 09'

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.of P

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ple

Decade

People Affected by Natural Disasters 1970-2009

World Population People Affected

LAC – Natural Disasters

LAC region is hit on average by 40.7 major disasters per year (1)

LAC is one of the most highly natural disaster prone regions in the world, second only to Asia (2)

(1) ECLAC, IDB 2000(2) Center of Research of Natural Disaster, 2004

LAC - Natural Disasters Events

Graph 5a: Occurrence of Natural Disasters in LAC by Decade (1970-2009)

589

452

167

314

654

0

100

200

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400

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700

1970-1979 1980-1989 1990-1999 2000-2009

Decade

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of N

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l Dis

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rs

Occurrence of Natural Disasters in LAC by decade (1970-2008)

Estimated Occurence 2000-2009 (projections for 2009 based on decade average)

Source: EM-DAT: The OFDA/CRED International Disaster Database Created on: Apr-19-2009. - Data version: v12.07

LAC – Type of Natural Disaster

Graph 6: Natural Disasters Occurence by Type in LAC (1970-2008)

Complex Disasters; 2; 0%

Drought; 84; 6%

Extreme Temperature; 49; 3%

Volcano; 62; 4%

Wild Fires; 38; 2%

Flood; 598; 40%

Wind Storm; 415; 27%

Slides; 120; 8%

Earthquake; 151; 10%

Wave / Surge; 3; 0%

Source: EM-DAT: The OFDA/CRED International Disaster Database Created on: Apr-19-2009. - Data version: v12.07

LAC – People Affected by Natural Disasters

Graph 9: Total People Affected in LAC by Natural Disasters by Decade (1970-2009)

43,091,03539,384,83437,594,450

61,199,976

43,760,927

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10,000,000

20,000,000

30,000,000

40,000,000

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1970-1979 1980-1989 1990-1999 2000-2009

Decade

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People Affected by Natural Disasters in LAC 1970-2008

Estimated People Affected 2000-2009 (projections for 2009 are based on decade average)

LAC – Deaths by Natural Disaster

Graph 7: Deaths by Natural Disaster Type in LAC (1970-2008)

Drought; 73 ; 0%

Volcano; 21,990 ; 9%

Wave / Surge; 10 ; 0%

Wild Fires; 104 ; 0%

Wind Storm; 41,402 ; 17%

Flood; 49,913 ; 20%

Extreme Temperature; 2,031 ; 1%

Earthquake; 122,140 ; 48%

Slides; 11,374 ; 5%

Source: EM-DAT: The OFDA/CRED International Disaster Database Created on: Apr-19-2009. - Data version: v12.07

LAC – Vulnerability FactorsNatural factors

Four active tectonic platesSignificant portion of the earth’s seismic and volcanic activity takes place thereLand slides relate to the geological age of mountains ranges Flooding related to a complex river basin systemsTropical storms and hurricanes (Atlantic and Pacific Ocean)El Niño and la Niña phenomena exacerbate certain weather patterns

LAC – Human-made Factors

Rapid urbanizationFrom 41% of urban population in 1950 to 78% in 2007

Poverty40 percent of population lives in povertyPoverty and vulnerability to disasters are inherently linked

Environmental degradationDeforestation Loss of natural drainage systems in urban areasLack of adequate solid waste management and disposal

Climate change

LAC – Human-made Factors

Lack of effective policies to reduce vulnerabilityLack of land use planningInadequate quality of construction building codesWeak enforcement of regulations when they existLack of housing programs for low income population

Lack of preventive strategiesReactive responses instead of proactive responsesPrevention is perceived as a cost rather than an investment (only 20% of decision makers ranked prevention as a high priority )

DISASTER RISK REDUCTION: A PREVENTIVE APPROACH

“An ounce of prevention is worth a pound of cure”

Disaster Risk Reduction Framework and Measures

Components MeasuresRisk assessment Studies, monitoring, modeling, maps, databases, information

systems, perception surveys

Risk reduction Planning and awareness: Land use planning, construction codes and regulations, public information and education.Physical intervention in the territory: retro fitting, home improvements, vulnerability reduction, preventive resettlement.

Financial protection Financial mechanisms (credits, reserve funds, taxes, etc.)Financial transfer mechanisms (insurances, etc.)

Emergency preparedness and response

Early warning systemsEmergency and contingency plansTechnology, communications and logistic infrastructureShelter – Temporary Resettlement

Post - Disaster Reconstruction

Specific norms and regulationsStrategiesReconstruction plansPermanent Resettlement

Preventive Resettlement

Main Principles

Resettlement becomes a risk reduction measure when it is not possible to mitigate the risk through other interventions (structural, non-structural)

Preventive resettlement should be articulated into a comprehensive risk reduction strategy and should be planned and implemented properly

If not, it is inefficient, unsustainable and leads to frustration of people and governmentsIf yes, it becomes an opportunity to safe lives, assets and improve the standards of living of people living in high risk areas

Benefits of Preventive Resettlement

Preventive resettlement diminishes the damage, losses and impacts caused by natural disasters in both monetary and non-monetary terms on human life, structures and assets

Savings from Preventive Resettlement

Monetary Non - Monetary

Direct Indirect Direct Indirect

Human life (deaths, injuries)

Saving Saving Saving Saving

Structures (private, public, productive)

Cost Saving Saving Saving

Assets (private, public)

Saving Saving Saving Saving

Pertinence of Resettlement

Characteristics of the hazard Pertinence of Resettlement

Spatial distribution of the hazard

The larger the area of influence of the hazard, the greater the amount of population exposed, then resettlement becomes very complex

Energy of the impact The greater the energy of the impact, higher vulnerability and lower possibility of mitigating it, the higher pertinence of resettlement

Level of uncertainty The lower level of uncertainty, the higher pertinence of resettlement

Possibility of mitigation The lower possibility of mitigation through other measures, resettlement becomes the only possible risk reduction measure

CASE STUDIES: Argentina, Brazil, Colombia, Guatemala

Preventive Resettlement

Case studies - MethodologyDescription and analysis of the national context

Natural hazards, events, consequencesPopulation, geographical distribution, povertyInstitutional and legal frameworks for disaster risk reduction and recovery

Resettlement case studyEvent that originated the resettlementDisaster risk reduction strategy and articulation of resettlement into the main strategyInstitutional arrangementsSources of fundingResettlement optionsResultsControl of recovered areasLessons learned

ArgentinaFlooding hazards

11, 911 families (69,000 persons) 120 cities, 7 provinces

Resettlement strategySelf – construction

Institutional OrganizationCoordination of national and local levels

Main lesson learnedThe self – construction strategy which generate important value addedPossibility of intervene large areas

BrazilSao Paulo - Flooding hazards

7,544 families (69,000 persons) from several slums (favelas)

Resettlement strategyNew developments (large vertical solutions)Resettlement in the same neighborhoods but in safe areasCash compensation

Institutional OrganizationMunicipal institutions (2)

Main lesson learnedCash compensation is not an adequate optionResettlement in large vertical solutions entails several social problemsResettlement in same neighborhoods are the best option

Brazil - Resettlement options

GuatemalaDepartment of Sololá – Panajab and Tzanchaj counties

915 families (5,400 persons) – Mayan descendants287 affected by the hurricane Stan628 preventive resettlement

Resettlement strategyLand acquisition and construction of new settlementParticipation of indigenous leaders, communities

Institutional OrganizationInter - institutional coordination, participation of academia, NGOs,

Main lesson learnedLegacy issues matterImportance of trust between government and affected communitiesImportance of cultural dimensionAccountability mechanisms

Chuck Muk – Resettlement

ColombiaBogotá – Landslides hazards 1,069 families (4,600 persons)

Part of of a larger resettlement program of families living in high risk-areas (15,000 families)

Resettlement strategyUse of real state market (city and places of origin of families)Construction of new developments through alliances with private investors and NGOSConstruction by the implementing agency

Institutional OrganizationAn institution responsible of preparing and implementing resettlement plansInter - institutional coordination

Main lesson learnedResettlement incorporated into a comprehensive risk reduction strategyA long term vision and an effective strategiesEffective land use planningImportance of several resettlement options

Resettlement and recovered area

Argentina

Recurrent Flooding and the Housing Problem in Argentina

The problem

The Provinces of La Plata river basin face recurrent flooding

Five of the ten worst floods in the XX Century have occurred since 1983

The problemRapid urbanization

90% people live in urban areas

Lack of housing programs for poor people

Human settlements in flood-prone areas

Flood Protection ProgramObjectives

Improve the security of economic assets and persons living in flood-prone areas by constructing defense facilities to reduce future losses due to floods, and by strengthening national and provincial institutions and systems for dealing with future floods

Components Structural measures (dikes, pumping stations, control gates, flood storages)Housing program: Resettlement of families living in flood-prone areas About 12,000 families (120 urban areas, 7 provinces)

Implementing agenciesMinistry of Federal Planning, Public Investment and Services; Provinces; Municipalities

Resettlement strategy: assisted self-construction

Land provided by the municipality

Training provided by local governmental institutions (23.822 persons were trained in construction. After the project, 41% reported temporary jobs thanks to the new skills)

Design of houses adapted to cultural characteristics of each region and prepared by the technical team of the Ministry

Strategy: assisted self-construction

Construction materials: subsidized by the program, and delivered through alliances with local providers through vouchers

Community organization and strengthening of social networks. 100 families organized 5 constructing teams to build 20 houses each team

Results: 11,911 housesBefore After

Costs and time frame

Time frame: 1992 – 2004

Total cost: U$ 420 millionHousing component: US$ 31 million Maximum cost per house: $13,300

Minimum size: 42 m2 (continuous expansion housing units)Public services: water, energy, sewerageSource of funding: external credit (WB), national and municipal resources

Control of new settlements in recovered areas

Municipalities assigned the use of flood-prone areas (parks, soccer fields, green areas)

Municipalities committed to control the flood-prone areas

Lessons learned

Trust the client’s proposals (during several months the WB did not endorse the self-construction strategy and promoted different solutions –pre-built houses, tents – which caused delays)Self-construction is possible and generates an important value added (beneficiaries with new labor skills, stimulus for the local economy, high level ownership and self-esteem in beneficiaries) It is possible to assist populations in a large area and living in different municipalities (coordination between national and local levels)Dependency on external credits cause delays and interruptions in the program implementation

Colombia

Bogota. Nueva Esperanza. A experience of resettlement, rehabilitation and development

The Country

44.5 million inhabitants75% of population live in urban areas (2005)

Major natural disastersEarthquakes in 1983, 1992, 1994, 1999Volcano eruption and mud slide 1985

Armed conflict1946 – 19661985 – to date

A National Disaster Risk Reduction Policy

Major disasters generated the preparation of a “National Disaster Preparedness and Response System” (SNAPD) in 1988.

SNAPD is a very comprehensive system (policies, hazards assessment and monitoring, mapping, early warning systems, information systems and a national disaster prevention and assistance plan)

A National Disaster Fund was crated in 1984. It receives resources from oil and mining royalties and the national budget

A housing subsidy policy was created in 2005 for poor families living in high-risk areas

Disaster risk reduction was incorporated in the land use planning law (1997)

Preventive resettlement was incorporated as a disaster risk reduction measure (about 130,000 people had been resettled)

Case Study - BogotaBogota is the capital of the country

7.5 million inhabitantsMain hazards: flooding and land slides

Bogota has developed a comprehensive Disaster Preparedness and Response System (inter- sectoral and inter-institutional)

Disaster Preparedness and Response System and Programs

The land use plan incorporated risk reduction strategiesSlum upgrading programsHousing and building retrofitting programs Information systems Monitoring systemsA fund for prevent disasters and assist affected people (funded by the 0.5% of the taxes collected by the city)

Control of human settlements in high-risk areas

Control of human settlements in high-risk areas was included in the disaster risk reduction strategy as well as resettlement of people living in high risk areas. Responsibility for these programs was assigned to specific institutions

A housing subsidy program for people living in high risk areas was created

9.154 families were identified living in high-risk areas in 1997, 82% of them had been resettled as of 2008

Case Study – Nueva Esperanza

Population in high-risk: 1,069 families (4,600 people) without legal titles

Land use and geological studies determined that the neighborhood was invading a a natural park, creeks’ buffer zones and located in a high-risk area (landslides)

Case Study – Nueva Esperanza

A rehabilitation, reconstruction and sustainable development plan was prepared

Land and environmental recoveryCommunity organization and participationResettlement of families

Resettlement OptionsReal state market in the city and in the places of origin

New developmentsBuilt by private investors or NGOs Built by the implementing agencyFair housing

ResettlementBefore After

ResettlementBefore After

Development programs

Social assistance before, during and after relocation

Health and education Productive projectsAccess to educational and health servicesIntegration with host communitiesHouse maintenance and improvements

Monitoring and evaluation systems

Recovered area

Control of new settlementsReforestationCommunity participationEnvironmental guides

Lessons learned

Sustainable disaster risk reductions programs (articulated with land use planning and development plans, control of human settlement in high-risk areas, permanent sources of funding, legal frameworks, institutional capacity)

Importance of sectoral and institutional coordination

Several resettlement options facilitates the process

Resettlement went beyond physical relocation and incorporated development programs

Importance of contingency plans to relocate people in case of emergency

Resettlement toolkit for disaster risk reduction

OutlineResettlement into a comprehensive disaster risk reduction strategy

Module 1. Design of a risk reduction strategy and definition of preventive resettlement Module 2. Preparedness phase Module 3. Resettlement planningModule 4. Resettlement implementationModule 5. EvaluationModule 6. Control and use of recovered areas