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PLANNING FOR ENHANCING COMUNITIES AND URBAN LIFELINES RESILIENCE

By
Riskha Paulina (25410057) and Mizan Bustanul Fuady (25410077)

Abstract
This paper aims to brief the importance of planning activities and the relation to multi level of
communities’ resilience as well as urban lifelines. In order to do so, the summary of two chapters
from a book entitled Disaster Resilience: An Integrated Approach (Paton and Johnston, 2006) plus its
relevancy with Indonesian context will be consisted in this paper. Basically the paper will be divided
into two parts; the first part emphasizes on the chapter 17 about planning for natural hazard
communities, it covers the relation between planning and disaster management at many levels of
communities, on the other hand, the second part which was came from chapter 4 emphasizes on the
vulnerability of urban lifelines. Finally on the last part of this paper it would be clear that
mainstreaming disaster management in the planning regime is extremely important to be implemented
at all level of communities. However, each country faces they own problems and challenges in doing
so. Moreover, assessments for lifelines resilience in urban area are very important.

Keywords: planning, lifelines, communities, resilience

A. INTRODUCTION The HFA has five specific priorities for action


According to UNDP reporti, about 75 percent that came up with each detail within. One of
of the world‟s population lives in areas the priorities was about building a culture of
affected at least once between 1980 and 2000 safety and resilience, including the term of
by earthquake, tropical cyclones, flood, or community„s resilience and the needs of
drought. Thus the same report also stated that systemic planning action at various level in a
the number of reported natural disasters and country. On the other hand, the fact that urban
their impact on human and economic population‟s rapidly increasing and those
development worldwide has been increasing urban location take place in a prone areas prior
yearly. Therefore, basically we should really to disaster‟s risk made The HFA also stress on
realize that the world we are leaving today is the importance of urban population and its
indeed at risk. lifeline‟s resilience.

Thankfully, the way people nowadays in The objective of this paper is to brief the
understanding disaster is shifting, from only importance of planning activities and its
defined it as God‟s punishment into a risk that relation at multi level of communities
basically can be overcome. The shifting can be resilience as well as urban lifelines. In doing
seen in Awotona‟s concept (1997), Wisner so, this paper will review two chapters from a
(2004), and so forth. The Enhanced Pressure – book titled Disaster Resilience: an Integrated
Release Modelii shows that basically disaster‟s Approachiii. The first chapter entitled Planning
risk is a result of a dynamic components of for Hazard Resilient Communities wrote by
vulnerability (root causes, dynamic pressure, David King. while the second chapter entitled
and unsafe condition) with trigger events that Lifelines and Urban Resilience wrote by David
usually natural hazards. Johnston himself. Most of the statements and
illustrations there came from Australian
One of the signatures from those shifting was context or other countries cases, therefore
when United Nations designated the 1990s as Author would like to enrich it by giving
the International Decade for Natural Disaster Indonesian context. The first chapter mostly
Reduction; which emphasized on efforts to discourses about the importance of multi-level
reduce disaster risk rather than disaster planning for hazard resilient communities; this
response. After the decade, then in 2000s it will be covered in Part B and C. As the other
was followed by the enactment of Hyogo one about urban lifelines and the methods to
Framework for Action (HFA). The HFA enhance its resilience; this will be covered in
basically gave further framework for countries Part D and E. Each key point will be enriched
in dealing with disaster risk. by Indonesian context.
B. POSITION OF PLANNING AND Another proves provided by King in the
PLANNER position planner respective to disaster issue
In order to ensure the position of planner was a comparison between the number of
within the increasing number of disaster risk, disaster concern that appeared in the journals
Kingiv firstly noted the role of planner based of planning in USA and Australia. The result
on The Planning Institute of Australia. He was and its enrichment from Indonesian context are
stated that: “Planning deals with many as follows:
different issues. Planners guide and manage
the way suburb, cities, and regions develop, Table1. Comparison over Disaster‟s Concern
making sure that they are good places in on Journals of Planning
which to live, work, and play. Planners are
involved in making decisions about land use
proposals and other types of developments
whilst balancing the needs of communities and
the environment”. Those then imply to the
range of responsibility of planner that
includes: 1) shaping the form of
neighborhoods and cities; 2) controlling the
spread of urban regions; 3) ensuring
sustainable natural environments; 4) working
towards economic and cultural development;
5) ensuring vibrant and livable communities;
and 6) providing advice on planning matters to (Source: King, 2006 with enrichment)
public stakeholders.
In Australia to mainstream disaster risk
Based on that, the role of planners is becoming reduction into their planning, The Council of
more important, as society in Australia places Australian Government (COAG) in 2002
greater emphasis on balancing environmental established a high-level mitigation priorities at
and development issues, promoting livable all levels of government and put responsibility
communities and securing high-quality urban on planner to do so. The mitigation priorities
design. The society then also demands to itself consists of several main substances as
planner for emphasizing more on emergency follows: 1) actions to ensure more effective
management and hazard mitigation. According statutory plan at all level of government trough
to King, basically those two issues are not a land use planning, development, and building
the core of activities of planners or planning; control regimes; 2) cost effective mitigation to
that in Australia during that time the issue of make more resilient infrastructure; and 3)
disaster was a relatively new direction in the development of joint improved national
increasing complexity of planning profession. practices, community awareness, education,
and warnings.
The same conditions actually arose in
Indonesia after the enactment of Law 24/2007 As in Indonesia, the momentum was the
about disaster management, Law 26/2007 enactment of three laws mentioned before as
about spatial planning, and Law 27/2007 about well as Indonesian National Disaster
coastal area. After the enactment, there was Management Agency (BNPB). Following the
much training or workshops conducted by line enactment of those laws there are requirements
ministries (Public Works, Bappenas, Ocean to incorporate disaster risk reduction into
and Fisheries) or The Indonesian Association development planning process. Pujiono and
of Planner (IAP) to enhance planner‟s Triutomo (2007)v have already emphasized the
understanding about disaster risk and technical importance and mandatory of integration
ability to incorporate disaster risk analysis into between the development plan with spatial
spatial plan. However, Indonesia still doesnt planning and disaster management, which was
have an instrument to analyzethe quality of defined in Law 25/2004 about National
risk to be addressed in the spatial planning Development System. Therefore, the local
process. spatial plan and disaster management plan
should inline with RPJPD and RPJMD.
Another important issue in Indonesia was The term of community, especially when
about accelerating local government‟s action dealing with disaster risk, can‟t be only about
in enacting local disaster management, local proximity. Mitigation of hazards and the
spatial plan which based on disaster risk enhancement of hazard resilient communities
reduction framework, and construction of local are not achieved by simple target of a
disaster management agency. Actually this geographical collection of streets and housesvii.
issue has been addressed in the related laws. The term of resilience itself also may vary,
The consideration part of Law 26/2007 it was according to Kingviii, hazard resilience
already mandated that spatial planning should community has the ability to cope with a crisis
be based on disaster risk reduction aspect. and bounce back. In addition a more
Moreover, Article 28 Law 26/2007 mandated comprehensive concept of community
that one of the spatial structure components is resilience provided by Twiggix; whom defined
evacuation route. As the Law 24/2007 has that community‟s resilience covers the
stated that spatial planning was one of the capacity to absorb stress/disaster impact,
mitigation actions in Indonesia. Below is the capacity to retain certain basic functions
example of spatial plan that based on disaster during emergency condition, and capacity to
risk reduction aspect: bounce-back after disastrous event. Therefore,
resilient community may arise in a various
Figure1. Sample of Risk Map in Indonesia way, maybe in neighborhood, school,
workplace, shopping mall, etc.

Thus, the key for building resilience within


community may be enhanced indirectly
through the provision of many services,
safeguards, and structure. It also requires a
constant enhancement and capacity building,
both from inside the community and from
outside agencies (government, NGOs,
universities, etc). However, Kingx then stresses
that basically planners cannot plan resilience.
Planner only may make plans that reduce
vulnerability and enhance mitigation; they
only may contribute to the future resilience of
community through good design, creation of a
sense of place, and the provision of
appropriate services and facilities. In addition,
King noted that in Australia natural hazard
risks have not formally concerned into
Source: Padang Municipality Mitigation Plan planning. The similar happened in Indonesia at
many regencies/municipalities‟ level, even
C. NATURE OF HAZARDS RESILIENT though we have the law at national level.
COMMUNITIES
Kingvi proposed that the relationship between Before moving on to urban community‟s
resilient communities and planning was that characteristic, firstly let‟s take a look at rural
about how to strengthen communities‟ communities resilience characteristic should
resilience and increase responsibility of be. Impacts of disaster may very different in
planners to avoid hazards or protect new rural areas from happened in urban areas.
developments in hazard-prone locations. The According to Fuady, Dewayanti, and
idea of planner‟s role in doing so seems to be Sofhanixi; community in rural areas demands
easy in high level government, but may more for a better planning approach that understand
complex down at community level. This may their nature, either during normal state or when
happen due to dynamic concept of community disaster occur. Their primary concern was
and community resilience itself. about livelihood. This due to the fact that
during normal conditions rural areas have
limited development which may enhance their
capacity of life, then during or after disaster Merapi suffered from clean water shortage,
events they might be more suffered than the since the pipe line was broken due to the
urban areas. Therefore, following is the eruption.
strategy for rural resilient communities:
b) Transportation :
Figure 2. Planning Strategy for Rural Resilient Any kind of transportation used to be halted
Community due to disaster. Drifting ash and sulfur dioxide
haze will cancel and rerouting many flights.
While damaged roads, bridges, and rails will
block cars, trains and even ships to transport.
In line with the example before, due to the
eruption, Cathay Pacific, Japan Airlines,
Lufthansa and most other international carriers
on Saturday announced they had temporarily
halted flights to the capital, 280 miles (450
kilometers) west of Merapixii.
Source: Fuady, Dewayanti, Sofhani, 2010
Electricity transmission:
D. LIFELINES AND URBAN RESILIENT Disaster also destroys power supply but even
If rural communities more concern about though sometimes the transmission is lived,
livelihoods, urban communities that mobile, the lines will be disconnected for safety
multi locations, and interconnected are more reasons. For example, OCHA reported that
concern about reliability of their infrastructure electricity was down in many areas, due to
of lifelines. Therefore, using and applying the earthquake struck in West Sumatra Province
results of lifelines studies, in combination with on September 30th 2009xiii.
good sustainable community development
principles, can contribute to a more resilient Sanitary drainage:
urban environment in the face of future natural Earthquakes often shatter sewer and made it
events. unusable. Consequently, hygiene becomes a
major problem, and eventually create many
Disasters always resulted in total loss of diseases. Tsunami in Mentawai – Indonesia
lifelines. The term of lifelines is commonly clearly showed how disaster resulted in
used for infrastructure and can be defined as damages of lifelines, including sanitary
the systems or networks which provide for the drainagexiv.
circulation of people, goods, services, and
information, upon which health, safety, E. VULNERABILITY OF LIFELINES
comfort, and economic activity depend (Platt, The lesson learnt from those impacts above
1991). In other words lifelines are crucially was resilience infrastructure and lifelines to
needed to support community‟s daily future possible disaster would be enhanced
activities. However, lifelines system are often with the preparation of contingency plans,
large, complex, and interdependent, therefore, community education, about what to do and a
the failure of one system affects other systems general emphasis on appropriate community
and increases a community‟s vulnerability and infrastructure development. In response to
further. Many types of hazards have potential that, in the past two decades projects in USA,
to impact on lifelines. The following are some Australia, and New Zealand have been
examples but others may be considered: initiated to address the issue of vulnerability of
“lifelines” to natural hazards, the steps are can
a) Water supply : be seen in figure 3.
Ash falls from volcanic eruptions and flood
usually contaminate water supply, while A key feature of many of these projects was
earthquake tends to break pipelines and the wide involvement of engineers and
creating a total loss to the communities. One managers from utility organizations, including
evident in Indonesia was reported by national local authorities, and private and public
newspaper, Kompas, Monday 22 Nov 2010. It companies. The initial objective of the
noted that people in the slope of Gunung methodology was to enable agencies to assess
their vulnerability to hazards that would affect importance, vulnerability, interdependence,
more than one utility at the same time, and to back-up or redundancy, and Impact of damage.
identify appropriate mitigation measures.
Once the vulnerability of a system has been
Figure 3. Lifelines Vulnerability Assessment assessed and vulnerable elements have been
identified, mitigation strategies can be
developed. Using one of these approaches:
1. Policy and management measures that
reduce the likelihood of damage
and/or failure
2. Engineering design measures that
reduce the vulnerability of the system
3. Preparedness, response and recovery
planning to deal with the consequence
of the event

Mitigations options should be evaluated in


terms of the risk reduction and the benefits or
opportunities created. The cost of
implementation must be balanced against the
benefits derived from it (Figure 4). At a
community level, the range of hazard
mitigation tools including:
1. Public education
2. Development regulation
3. Policy for critical and public facilities
Source: Johnston, 1996, p.55 4. Land and property acquisitions
5. Building codes and standards
Furthermore, vulnerability assessment can be Research (Burby, Deyle, Godschalk, &
undertaken at two levels, a uniform hazard olhansky, 2000)
analysis and a scenario hazard analysis. And
to facilitate and communicate effectively to the Figure 4.Cost or Risk Reduction Measures
different participating organizations during a
lifelines assessment project, task group can be
established made up of organizational
representatives that have commonality or
similarity of purpose.

After that, it needs to define what components


of a lifeline system is at risk from the hazards
identified, by showing the location of key
components of a lifelines system and the
interrelationships between lifeline system
components in a schematic way. However,
most infrequent natural hazards, such as Source: New Zealand Standard, in Johnston,
earthquake and volcanic eruptions, are 2006
extremely complex and rarely follow the exact
pattern of past events. Thus, pure quantitative F. GENERAL INDONESIAN INSIGHT
assessment is not always practical. To AND CONCLUSIONS
overcome this, a semi-quantitative assessment In response to the stressing need of disaster
must be done. For instance, by assessing management planning, the Government of
individual components on a vulnerability chart Indonesia has set up an Urban Disaster
using scores (ranked 1-5), and then analyze the Mitigation in 2002. The stages are similar to
results for each component such as what have been explained above. Started by
identification of the disasters and predicting
the possible impacts. The next stage is
implementation of research results and transfer However, given method in assessing
of technology. Thus, encourage public appropriate urban lifelines mitigation was only
awareness through socialization, and training. one of among many alternatives. Then again,
Lastly is the implementation of incentive those steps are not enough, for significant
system, and improvement on leadership improvements in planning. Thus, institutional
quality and coordination. commitments and investment on advance
technology must be taken into account.
In general, the ultimate goals of disaster Moreover, another issue that will always there
mitigation are to minimize the total loss of in the praxis of planning as tool for creating
urban communities (such as loss of life, resilient communities and lifelines was about
economic loss, and also natural resources relation among planning levels; from national
damages), as a guideline for urban – sub national – local level.
development planning, and to improve public
disasters awareness in becoming resilient Finally, throughout the times and many
community. To meet the succeed, Kotter disaster events, there is some best practice;
(2003)xv stated that regional strategy may whether it was on mitigation, community
need to address the following priority fields, capacity building, construction of resilient
realistic integrated planning for disaster structure, and so forth. However, the necessity
prevention and mitigation; enhancement of is to translate that best practice into standard in
disaster preparedness including real-time planning process and product that truly can
information exchange; community shape community resilience.
participation throughout the natural disaster
i
reduction and management process; more UNDP. Reducing Disaster Risk: A Challenge for
effective transfer of disaster reduction and Development. Online, [Available:
http://www.undp.org/cpr/disred/documents/publications/r
management technology; exchange of dr/english/chapter1.pdf]
experiences and information on institutional ii
Wisner, B. et.al. 2004. At Risk: Second Edition.
arrangements for disaster reduction and London and New York: Routledge
iii
management. Paton D. and Johnston D. 2006. Disaster Resilience:
An Integrated Approach. Illinois: Charles C Thomas
Publisher, Ltd.
In addition, spatial planning also highly iv
Id. At p.290
contributes in minimizing the risk and v
Pujiono, P. and Sugeng T. Planning in the new disaster
reducing the impacts of the disasters. In this management framework. Online [Available:
case it supports the following function: http://bencana.net/kebijakan/planning-the-new-disaster-
management-framework.html]
• Early warning system: by installing this vi
Paton. op. cit., p.289
system, information about natural hazard vii
Id. At p.294
viii
(tsunami) can be predicted. Thus, accurate Id. At p.293
ix
spatial planning can be developed based on Twigg, J. 2007. Characteristics of A Disaster –
Resilient Community: A Guidance Note. DFID: Disaster
the data to minimize the risk.
Risk Reduction Interagency Coordination Group
• Prevention and reduction: Spatial planning x
Paton. op.cit., p.291
can analyze the correlation between spatial xi
Fuady, MB. Dewayanti, R. Sofhani, TB. 2010.
influences and the environmental disasters. Exploring Rural Planning Model for Disaster Prone
Based on that the risk also can be reduced or Areas with Physical Limitation. Proceeding of The 1 st
International Conference on Regional Development
even prevented xii
http://news.yahoo.com/s/ap/as_indonesia_disasters
• Reconstruction: through spatial planning, the xiii
OCHA Situation Report No. 4 Indonesia: Earthquake
xiv
future development will be better, since
future disasters have been taken into account http://www.ausaid.gov.au/country/indonesia/mentawaisto
ries.cfm
xv
Kotter, T. 2003. Prevention of Environmental
Planning plays a vital role in nurturing a more Disasters by Spatial Planning and Land Management. 2nd
resilient communities and spaces; whether it FIG Regional Conference
was intended in urban or rural areas, and the
different nature between urban and rural drives
priority for planning objective and process,
where in rural areas, it will more related to
livelihoods as lifelines for urban areas.

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