Elements of resilience in disaster reconstruction

Transcription

1 Elements of resilience in disaster reconstruction focusing on the case of Kalamata (S.Greece) after the 1986 earthquakes Miranda Dandoulaki Dilp.Engr., PhD Urban and Regional Planning National Centre of Public Administration and Local Government Harokopio University, Geography Department, May 24, 2017

2 Structure of the presentation Earthquake disasters in Greece and evolution of earthquake protection practices and policies Focus on Kalamata city earthquake disaster of 1986 Elements of resilience Poseidon Current situation and challenges for DRR in Greece in the midst of economic crisis Encelados, the God of Earthquakes [Image from an ancient crater]

3 Seismicity Institute of Geodynamics National Observatory of Athens

4 Maximum Maximum intensities intensities map map of Greece, of Greece, shallow deep events events (depth (depth 60km). 60km). Source: Papanastassiou D, Chalkias Ch, Karymbalis E Seismic Intensity maps in Greece since 1953 using GIS techniques. ESC 2008.

5 Seismic hazard map Passed in 2005 Part of the Greek Seismic Design Code «The value of seismic ground acceleration in every zone, corresponds to a 10% probability to be exceeded in 50 years.

6 Kozani-Grevena 1995, M=6.6 Extended damage. Collapsed school buildings. Small villages especially hit. Cephalonia, 1953, M=7.2 >455 people killed, 2.412inj buildings damaged Loss at least 3% GDP Ilia 2008, M=6.5 2 killed, extensive damage Aeghio 1995, M= people killed Hotel and multi-storey building collapsed Kalamata 1986, M= people killed, 80 injured 4 buildings collapsed 20% of the buildings of the city damaged beyond repair. Damage in villages. Thessaloniki 1978, M= people killed, 220 injured buildings damaged beyond repair Ag.Efstratios 1968, M= people killed, 39 injured 175 collapsed buildings Almyros 1965, M= people killed, damaged buildings. Alkyonides 1981, M= people killed, 500 injured buildings damaged beyond repair Vast disaster area. Athens 1999, M= people killed, about inj., 50 buildings collapsed, buildings damaged, costlier EQ disaster in Greece. Source: E.P.P.O. (2000) Teacher s Manual : Earthquake: Knowledge is protection.

7 Thessaloniki EQ, Μ=6.5, June 20, 1978, 23:04 45 killed, 220 injured, buildings damaged beyond repair, to be repaired., homeless

8 Thessaloniki EQ, Μ=6.5, June 20, 1978, 23:04 Modern urban centre affected. Multi-storey building collapsed. Reinforced concrete buildings damaged. Weak response. On the spot problem solving. Command and control military type of emergency plans (Law 17/1974). Seismic design code of 1959 (masonry buildings). Lack of guidelines for the repair of RC buildings. No search and rescue capacity. Volunteer participation significant. Self-organising. National reconstruction tax. A new legal framework for earthquake rehabilitation (Law 867/1979). New agencies set up: Institute for Technical Seismology and Earthquake Engineering Service for Earthquake Recovery of Northern Greece (under the Ministry of Public Works).

9 Alkyonides EQ, Μ=6.7, Feb. 24, 1981, 20:53 Loutraki: Collapse of multi-storey building 20 killed, 500 injured, buildings damaged beyond repair, (damaged buildings 14.4% in Viotia and 8,1% in Korinthia prefect.) Vrahati: Hotel collapse

10 Alkyonides EQ, Μ=6.7, Feb. 24, 1981, 20:53 The capital of Greece affected. Reinforced concrete buildings proved less safe then previously perceived. The Thessaloniki EQ experience recent. Civil defense paradigm. There was no actual progress towards civil protection. Institutional framework for EQ rehabilitation in place. Guidelines for repairs of buildings already issued. RC buildings proved unsafe Services for EQ rehabilitation were placed in the disaster area. Earthquake protection was set as a priority in national policy agenda. Earthquake Planning and Protection Organization set up (under the Ministry of Public Works). Amendment of the Greek Seismic Design Code of 1959 in order to take into account RC buildings.

11 Kalamata EQ, Μ=6.0, Sept. 13, 1986, 20:24 20 killed, 330 injured. Out of buildings inspected, 22% damaged beyond repair, 21% severely damaged, 26% with moderate damage

12 Aerial photo of 1978 Reconstruction of Kalamata city, EQ Μ=6.0, 13 /09/1986, 20:24 Source: Kokkali, T. & Kontopoulou, B. (2013), Thesis Lecture in NTUA

13 The situation before the earthquake disaster Population around people (1981census) Economy mainly based on services, agriculture, agroindustry A dynamic Municipality with capabilities and adequate human and technical resources A Municipal vision for the city targeting social welfare, culture, public participation The Regional Plan of Economic and Social Development planned many infrastructure projects for Kalamata city Urban planning efforts led to a new Urban Plan that was passed a few months before the EQ.

14 Urban plan published in Government Gazette on April 10, 1986

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16 Kalamata EQ, Μ=6.0, Sept. 13, 1986, 20:24

17 Kalamata EQ, Μ=5.4, Sept. 15, 1986, 11:45

18 Kalamata EQ, Μ=6.0, Sept. 13, 1986, 20:24

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20 50% damaged beyond repair 50% serious damage 50% light damage No damage Other

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22 Kalamata EQ, Μ=6.0, Sept. 13, 1986, 20:24

23 Principles towards reconstruction The Prime Minister on September 19, 1986 A long-standing reconstruction program is the answer to current problems. We believe that Kalamata can be reconstructed and become a dynamic city with present-day social and productive facilities and with earthquake resilient housing areas. The guide for the reconstruction of the city is the Urban Plan which was recently passed and was elaborated in the framework of the national efforts for urban regeneration. The Urban Plan should be amended so that it takes in the new information relating to the earthquake.

24 Principles towards reconstruction The Urban Plan of Kalamata city is the guide towards reconstruction. Reconstruction focuses on society and not on buildings. Reconstruction targets: Disaster risk reduction Social recovery Preservation of the historic character & culture of the city Economic development Public participation significant

25 Reconstruction in three phases Phase 1. Emergency shelter (tents, cruse-boats etc.) Phase 2. Temporary housing 22 settlements with about units, 4 commercial centres with 280 units, 10 schools with 200 classrooms. Phase 3. Permanent housing Repair or reconstruction of individual buildings, social housing blocks

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27 Temporary settlements after the 1986 earthquake disaster

28 Preservation of historic buildings and areas

29 First steps to implementation

30 Culture and history

31 Tourism and transport

32 Industry and the environment

33 Υγεία, πρόνοια, εκπαίδευση Social facilities and infrastructure

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35 Kalamata city EQ, Μ =6.0, 13/09/1986, 20:24 From rehabilitation of individual buildings to reconstruction: Using the window of opportunity EQ rehabilitation scheme in place. A new Earthquake Emergency Plan in place. Earthquake Planning and Protection Organization in full function. A new urban plan for the city just passed. A dynamic municipality with vision, capabilities and with human and technical resources. Urban S&R. Coordinated disaster management. Microzonation studies. Research. An integrated housing scheme: emergency shelter (tents, ships, hotels), temporary settlements (containers and light prefabs), repair of replacement of the building stock. A comprehensive reconstruction program based on the urban plan (housing, historic buildings, new infrastructure works etc.). Seismic design specifications customised for the area.

36 The city remembers Kalamata, 10 years after: The 1986 earthquakes MUNICIPALITY OF KALAMATA Municipal Company of Cultural Development of Kalamata (DEPAK) November 8, 9 and 10, 1996 Municipal Cultural Centre of Kalamata

37 Enabling the window of opportunity in a disaster Previous local dynamics strongly affect post-disaster trends Local leadership very significant Experts back up to policy makers fundamental but trust between experts and policy makers must be already there External expertise and know-how in the field from day 1 Knowledge useful not only on scientific aspects but also for solving actual urgent problems and pragmatic choices Pre-existing plans, studies and planning very useful for reconstruction Measures to release time pressures of essence

38 Athens EQ, Μ=6.0, Sept. 7, 1999, 14: killed, 750 injured buildings damaged beyond repair, to be repaired. Business and social infrastructure heavily damaged. The costlier disaster in Greece ( 2,4% GNP).

39 Athens EQ, Μ=5.9, Sept. 7, 1999 at 14:56 Disaster in the capital city of Greece. Industrial facilities affected. Governance an issue. Disaster diplomacy. A comprehensive earthquake protection scheme in place. Damage mostly in W.Attica. Coordination a challenge. Governance issues. No clear allocation of responsibility. between the Ministries and Civil Protection Role unclear. Employment and industry main concerns. Updating the Seismic Design Code and the Reinforced Concrete Code Recommendations for the Repair and Retrofitting of Buildings. Draft Code for Seismic Interventions. A Multi-Discipline Research Programme Procedures for vulnerability assessment of public or of public use existing buildings. Attempts for a mandatory earthquake insurance scheme. The issue of an enhanced role of municipalities and of Metropolitan Government was raised.

40 Elements of resilience in reconstruction Overcoming legal formalism - Flexibility Finding fresh solutions Innovative thinking - Resourcefulness - Creativity Networking Trust Collaboration (between local and national level, decision makers and experts etc.) Capabilities Affluence of resources - Initiative Responsiveness Agility Memory - Experience - Feedback Knowledge Learning

41 The earthquake protection scheme (1) Rehabilitation: Declaration of an area as a disaster area. System for subsidies and technical support for the repair of reconstruction of damaged buildings stock within the disaster area. Earthquake protection a national priority. Establishment of EPPO. A comprehensive approach to earthquake protection: EQ education and information. EQ emergency planning. Prevention and mitigation (structural and non-structural measures). Amendment of the Seismic Design Code. Urban SAR. A scheme of shelter and housing (emergency shelter, temporary housing, permanent housing). An emergency management mechanism: technical operations (usability and damage assessment of buildings, removal of dangerous elements, propping and emergency repairs, emergency demolitions), aid provision, social care, employment and economic regeneration.

42 Disaster continuum prevention and mitigation reconstruction recovery emergency response event preparedness Prevention & mitigation

43 Post EQ shelter and housing practice

44 The earthquake protection scheme (2) Establishment of the General Secretariat of Civil Protection under the Ministry of Interior. Law on civil protection (emergency planning, alert and mobilization system, emergency management). Law on liabilities of engineers in case of building damage or collapse. Drafting a New Seismic Design Code. Disaster diplomacy. First discussions on governance of metropolitan areas. L.3013/2002: Upgrading civil protection and the role of the General Secretariat of Civil Protection. Some responsibility in emergency management to the Municipalities. Initiating a system of volunteers. General Civil Protection Plan in 2003.

45 The earthquake protection scheme (3) Support committee to the General Secretary of Civil Protection, planning for BCRN incidents and planning for mass casualties. L.3511/2010: the role of Fire service in emergency management raised. Guidelines for emergency evacuation. General Secretariat for Civil Protection under the Ministry of Public Order. L.3852/2010: New administrative structure Program Kallikratis L.4249/2014: The role of Fire Service in civil protection upgraded. Participation of NGOs and volunteers regulated. Establishment of a Civil Protection School in Fire Brigade Academy.

46 Current state in earthquake protection and future challenges Earthquake Planning and Protection Organisation still there and active (under the Ministry of Transport, Infrastructure and Networks ex. Ministry of Public Works)

47 The crisis and disaster management Fire Service gaining central role in Civil Protection Since 2014, Fire Service become responsible for all disaster phases and all hazards. The General Secretariat of Civil Protection active as regards high level coordination and external relations. Regions and Municipalities are taking up civil protection at various paces. Fiscal restrictions a main drawback in earthquake protection policies and practices. Signs of a civil defense paradigm regaining ground.

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49 Photo 4/12/2013 Removal of sediments from the national road after a flood (at km4ο Sterna-Argos) Photo 04/02/2014 Cephalonia earthquake disaster

50 Current state in earthquake protection and future challenges Regulation concerning seismic design and intervention in existing buildings in place; however, crisis severely hit the construction sector and construction activity. Deregulation and weaknesses of inspections and controls mechanisms. Earthquake insurance once again in the agenda; however crisis puts pressures on the insurance sector as a whole. Current crisis seems to affect disaster risk, risk perception and acceptability. Climate change (including hazards associated with CC) an important thematic area of the new Partnership Agreement between EU and Greece.

51 Sendai, Japan, 14-18/03/2015 NY, 25-27/09/2015 Paris, 30/11-11/12/2015 Δανδουλάκη Διαφάνεια 51

52 World Economic Forum The Global Risks Report 2016, 11th Edition

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54 How can DRR be a priority in conditions of high socioeconomic uncertainty? Thank you! mdand@tee.gr