DRR-Team Mission Report Panama – Panama City

DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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5 July 2015 Mission Report, Final

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DRR-TEAM Panama

Document title Status Date Project name

Mission Report Final 5 July 2015 Sustainable Development of the Panama City

Photos made available by

Koen Broersma

Drafted by Checked by Date/initials check Approved by

DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

Klaas de Groot, Koen Broersma, Jana Steenbergen RVO 3 July 2015

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SUMMARY

From April 19-25, 2015 a DRR mission took place to assist the City of Panama in analyzing flood risks in the city in general and in three river basins in particular (Juan Díaz, Tocumen and Pacora). The DRR mission was invited by the Vice-Mayor of Panama City to provide building blocks for the development of a Road-Map towards flood risk reduction. This Road-Map has to be a product of an interactive stakeholder approach. All actors that are affected by flooding and the measures that have to be taken to reduce this risk, have to be involved to assure broad support of immediate, short-term and midterm actions. The mission team was composed of three representatives of the Dutch Water Sector:   

Klaas de Groot / ARCADIS Koen Broersma / Royal HaskoningDHV Jana Steenbergen / Grontmij

The team was supported by Julio Montes de Oca en Sander Carpaij of the local office of Wetlands International. Water system related challenges for Panama City include flood risks (precipitation, river discharges and sea levels), lack of water (insufficient availability to answer to the increasing demand) and the quality of water (discharge of untreated water from industries, agriculture and households). The DRR mission assessed the challenges, identified possible solutions and shared experience in these fields of expertise available within the Dutch Water Sector. During the scoping mission the team of experts visited the affected mangrove area as well as several infills and affected neighborhoods. The rainy season was about to start and already some neighborhoods were affected by flooding. The mission team cooperated intensively with the Vice-Mayor and some of the experts. Bilateral meetings took place with governmental and private institutions as well as with NGO’s and affected communities. First findings were checked and completed by broad multi-stakeholder workshops. To identify funding opportunities also the International Financing Institutions were visited. Analysis of the actual situation has been structured under the framework of ‘Water Governance’ covering content, institutional setting and relational aspects. Recommendations were framed within these three levels, as immediate, short term and mid-term action. The results of the analysis of the mission team can be used by Panama City as input for the elaboration of the Road-Map. The analysis leads to recommendations to take immediate action on the maintenance of the actual drainage system. Several causes have limited the discharge capacity and proper maintenance will decrease the number of inundations. Also, it is needed to re-evaluate the effect of planned developments. In some cases it might be better to stop half-way then to persevere in developments that imply water system related errors. In the short-term the baseline date has to be improved. There is some data available, but there seems to be no shared agreement of what is needed, what is available and what the quality of the available data is. Also sharing of data is to be optimized. This information has to be gathered to assure that there is sufficient input to elaborate a Water Master Plan for Panama City and to detail this master plan for the catchments of Juan Díaz and Tocumen as pilots towards water management action plans.

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Institutional strengthening and capacity building is needed to improve the integrated approach of the challenges at hand. Responsibilities are shared by many authorities, but no authority is responsible for the holistic approach. Because of the interdependence many activities are not initiated swiftly. By finding ways to coordinate the work between the different authorities, a shared understanding of causes and effects will grow and proper actions can be taken. Therefor assembling an inter-institutional commission is recommended, also to start with the evaluation of planned developments. Its main objective will be to improve the coordination of the activities of the different authorities that have responsibilities related to water management. This tuning should lead to a more effective and efficient design, construction operation and maintenance of the water system. Training and communication programs are required to improve the awareness of the public in general. This is not only critical for the affected communities but a broad understanding is needed to assure that people understand how the water system is affected by human activities. The clogging of the drainage system by solid waste can be decreased with intensified communication of cause and effect. An important immediate / short –term recommendation is to assign an IWRM program manager. This program manager can be made responsible for initiating the different activities that are required to improve the water management practices. Continuous attention is required to assure optimum use of the actual momentum. Without a dedicated program manager the attention might fade away until the next inundations take place. Panama City needs a swift development on all three levels of Water Governance to assure that the water system can me managed in such a way that flood risks are reduced and decisions can be based on the agreed balance between People, Planet and Profit. Not only technical measures are sufficient to alleviate the affected communities. Also discussions on the required flood risk level, the value of the wetlands / ecosystem and the importance of economic development has to be continued in such a way that developments can be guided in a transparent and reproducible manner. Over the last decades the Dutch Water Sector has proven to be capable of finding solutions taking in to consideration the sustainability principles. Developments are based on a well-balanced focus on the three levels of water governance. Good understanding of our water system, accessibility of the required data, instruments to analyze data and generate information is such a way that it can be understood and used by the public in general and the decision makers. Continuous discussion of responsibilities has led to a transparent designation of tasks, laid down in laws with long term dedication of financial resources. In the Netherlands the involve stakeholders is crucial, to make optimal use of their knowledge, to listen and understand their objectives and to optimize their participation in the realization of water management. This experience and knowledge has high added value to Panama City and the Republic of Panama to work on Integrated Water Resources Management. There are ample opportunities to continue cooperation and share knowledge. This can be done through the concept of Water Dialogues. These dialogues could cover knowledge exchange in different fields of expertise, from strategic scenario planning to institutional capacity building, interactive participation processes and/or hydraulic modelling. Finding the proper channels for financing this cooperation is an important aspect that needs to be discussed further. Opportunities could be found through bilateral cooperation, funding by IFI’s and/or involvement of the private sector.

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CONTENTS 1

2

3

4

5

DRR-TEAM MISSION

8

1.1 Introduction

8

1.2 Scope of Work

8

1.3 Objectives

9

1.4 Approach

10

ANALYSIS

12

2.1 General introduction

12

2.2 Flooding in the Panama Bay

14

2.3 Drinking water and sanitation

19

RESULTS AND FINDINGS

22

3.1 Introduction

22

3.2 Content level

22

3.3 Institutional

23

3.4 Relational

25

PROPOSED FOLLOW-UP ACTIVITIES

4.1 Introduction

27

27

4.2 Content

27

4.3 Institutional

29

4.4 Relational

30

ADDED VALUE OF DUTCH EXPERTISE

31

ANNEX A – DRR-TEAM

32

ANNEX B – TEAM MEMBERS

33

ANNEX C – TERMS OF REFERENCE

34

ANNEX D – MISSION PROGRAM / PERSONS MET

35

ANNEX E– BRIEF MINUTES OF MEETINGS

41

ANNEX F – MEDIA COVERAGE

42

ANNEX G – PROPOSED PROCESS FOR THE WATER DIALOGUE.

46

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LIST OF ABBREVIATIONS

MiAmbiente CAF EIB EKN GFDRR IDAAN IDB MDTF MINSA MOP MUPA MIVIOT POT PPP SINAPROC UN-OCHA WASH WB

MiAmbiente – Ministry of the Environment (formerly ANAM – National Environment Authority Investment Bank of Andean Countries (Latin America) European Investment Bank Embassy of the Kingdom of the Netherlands Global Facility for Disaster Reduction and Recovery National Institute of water supply and sewerage Inter-American Development Bank Multi-Donor Trust Fund Ministry of Health Ministry of Public Works Municipality of Panama City Ministry of Housing, Infrastructure and spatial planning Spatial Development Plan Public Private Partnership National System for Civil Protection United Nations Office for the Coordination of Humanitarian Affairs Water, Sanitation and Hygiene World Bank

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1

DRR-TEAM MISSION

1.1

Introduction By invitation of the Panama authorities the government of the Netherlands has brought together a DRR team 1 of experts to carry out a scoping mission to Panama. This scoping mission was carried out with a team of three experts, mainly covering the expertise of integrated water resources management, integrated urban water management and integrated coastal zone management2. The mission has taken place from April 19–25, 2015 and was intensively facilitated and supported by the Embassy of the Kingdom of the Netherlands (EKN). Without the support of the EKN this mission would have been far less effective. The mission was also supported by environmental NGO Wetlands International as resource personas. During the mission the Letter of Cooperation was signed by the Mayor of Panama City: José Isabel Blandón and the Ambassador of the Royal Kingdom of the Netherlands: Wiebe de Boer. This letter will facilitate cooperation between Panama City and the Dutch water Sector.

Photo 1-1

1.2

Signing ceremony of the letter of cooperation

Scope of Work This scoping mission has had a geographical focus on the area around Panama Bay. The city of Panama is growing rapidly and this poses pressure on the available space and the exiting wetlands. These systems, including the coastal mangroves, have an important natural value and also protect the Panama Bay from Sea-bound flood risks. The urban development includes a wide variety of investments (infrastructure, offices, hotels, condominiums, etc.) that have an impact on the water systems and therefore has to be taken in to consideration in the analysis of the existing challenges related to flood risk management. Water system related challenges include flood risks (precipitation, river discharges and sea levels), lack of water (insufficient availability to answer to the increasing demand) and the quality of water (discharge of untreated water from industries, agriculture and households). The Netherlands water sector has a lot of experience with comparable water related challenges. The DRR mission identified additional opportunities to cooperate on short, middle and long term

1 2

For objectives of the DRR Program please refer to Annex A Annex B includes the CV’s of these experts.

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initiatives (policy making, planning, design, construction, operation and maintenance, asset management, etc.) The scoping mission has advised the municipality of Panama City and the national government of Panama about short-, medium and long-term coastal zone management, integrated water resources management and urban water management.

Figure 1-1 location of the project area

1.3

Objectives The main objectives of the Scoping mission are3:   

Make a quick scan of the challenges in relation to flood risk. Share Dutch experience and see how this can be implemented there. Identify opportunities to improve cooperation

Focus during the mission was on challenges related to flood risk management as this is the most pressing issue in the Panama Bay area during the upcoming raining season (May-November). This has led to the following activities: 

 

3

Identification and assessment of the possibilities to implement integrated water/flood management plans in the region of Juan Díaz, Tocumen and Pacora (see figure 1.2). Come to a shared understanding of the water related issues like flooding, water pollution, water supply Assess the political arena to implement a sustainable integrated water management plan;

For the ToR of this mission please refer to Annex C

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Figure 1-2 location of the catchments 





 

1.4

Assessing the possibilities for the implementation of the water/flood management measures with the federal government taking into consideration already existing flood protection approaches in Panama; Elaboration of a roadmap for short-, medium- and long-term interventions to reduce the risks and impacts of floods with the authorities in Panama; Exploring in more detail the actual possibilities to solve the water related problems in the region of Juan Díaz, Tocumen and Pacora and Panama City as a whole, including possibilities for financing; Exploring possibilities for innovative solutions such as a design competition or the Dutch Water dialogues; Advising on further involvement of the DRR-Team in the project design phase including the possibility to use the Dutch Water Dialogues or a design competition as the appropriate concept to come to project design.

Approach During the scoping mission4 the team of experts visited the affected mangrove area as well as several infills and some of the neighborhoods that are regularly affected by inundation.

4

For a detailed program of the week please refer to Annex D

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The DRR team and the Vice Mayor with several experts of her team inspected the areas to be assessed. The team subsequently dedicated the available time to meet with different stakeholders. The inventory of challenges, objectives and possible measures was done in bilateral meetings as well as in workshop sessions with a variety of stakeholders5:  Technical and policy making staff of the municipality,  Various ministries (Spatial Planning, Environment, Public Works, Health);  NGO’s;  Community leaders;  Project developers and the airport authorities;  International Finance Institutions (WB, IDB, CAF). According to participants, this was the first time that such a broad interaction between stakeholders took place to assess the actual situation and to find potential measures. The mission received a lot of coverage by the media (TV, Radio, Newspapers). This provided ample opportunities to address the challenges at hand, the goals of the mission and the experience of the Dutch Water Sector on these issues 6.

5 6

Notes taken during the meetings can be found in Annex E Related links to web pages of newspapers, radios stations and TV Channels can be found in Annex F

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2

ANALYSIS

2.1

General introduction During recent years Panama experienced economic growth by an annual average of 8%, which is one of the highest growth rates in Latin America. Panama has a dynamic and stable macro-economic environment and a significantly open trade and investment regime. High growth is particularly due to the increase in private consumption and public and private investment, especially in large-scale infrastructure projects. Panama City has a very high vulnerability to inundation. Because of the high risk of substantial damage of floods, and the close proximity of the rainy season, Panama is urgently seeking to reduce their flood risk and implement damage mitigation measures. This study has been focused on three different catchments that have been very susceptible to floods, these are the catchments of the rivers Juan Díaz, Tocumen and Pacora.

Photo 2-1 Deforestation: recent satellite image upstream area of Río Juan Díaz (source Google Earth)

Although no detailed inventory has been made of the upstream areas of these river basins, the satellite images, various testimonies of the stakeholders are proving the intensification of land use and severe deforestation due to the (legal and illegal) mining concessions in these areas. Removal of the vegetation causes quicker discharges due to run-off and severe erosion in the area in the upstream and mid sections of the catchments. Eroded sediment causes decrease of the available discharge profile of the river from upstream to downstream area including the adjacent drainage systems. Diminished discharge capacity leads during the heavy rain showers to the inundations of lower positioned areas. The inland districts of Juan Díaz, Tocumen and Pacora located in the midsection of these rivers have been increasingly prone to flooding; between 1990 and 2009 a total of 45,983 people and 9,847 homes were affected. In the district of Juan Díaz, 305 flood events were recorded between 1990 and 2015.

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Flooding has the most impact here because it is the most densely populated of the three districts. More than 50% of the affected areas are informal settlements housing the poor and most vulnerable population. This is especially true for Pacora. Additionally, poor sanitation, poor solid waste disposal and deficient urban planning, have aggravated the situation in relation to water quality and water quantity.

Photo 2-2 Example of the waste congestion in the drainage system and waste in the mangrove area

Juan Diaz catchment Pacora catchment Tocumen catchment

Juan Diaz district Ramsar/wetlands area

Figure 2-2 Map of Panama Bay with functional use of land and indication of land use and flood prone areas DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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Part of the Panama Bay Wetlands has been a Ramsar site since 2003, and protected area since 2009. Despite the protected status, the area continues to be impacted mainly by the construction of infills, infrastructure (roads, river canalizations and drains) and buildings in and nearby the protected areas. At the moment there are twenty-six projects developing in and around the wetland boundaries of the Panama Bay; nine are under construction.

Figure 2-3 Projects in nearby the protected area

and

The developments cause in general: loss of the green mass (mostly burning and removing the trees), faster run-off and erosion of the unprotected surfaces causing sedimentation of the river bedding and drainage channels and loss of the possible inundation and retention areas along the river system. The decrease in the area covered by mangrove systems and associated ecosystems along the coast has at this moment foremost impact on the availability of suitable habitats for the migratory bird species. In the long term it also might have negative effects in relation to the coastal protection (coastal erosion, increased wave intensity). Attention needs to be drawn to the accumulation of the (plastic) waste in the wetlands. This can cause water and soil pollution and in consequence entering the bio system through fish and birds as well as direct cause of death for the species by feeding on plastic. The presence of a mangrove belt in the coastal zone has no significant relation with the inundation in the urban areas of Juan Díaz, Tocumen and Pacora. The Juan Díaz River is influenced by the tide up until upstream of the bridge over the José Agustín Arango highway (Corredor Sur). We expect that flood risk reduction interventions south of the highway will be limited on areas north of the highway, however, continued development of the area south of the highway can have an impact on the outflow capacity to sea, cause backwater effects upstream and increase the flood risk there. Further study and hydraulic modelling is required to define the level of effect. 2.2

Flooding in the Panama Bay Communities have been protesting due to the perceived lack of action against flooding especially in the districts of Juan Diaz, Tocumen and Pacora.

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Because presently the main development activities are concentrated around the Corredor Sur north of the Ramsar site, the increased occurrence of flooding has been linked to these developments and the degradation of the coastal wetlands.

Photo 2-3

Local protest in Juan Díaz

The general practice for the development of a housing or industrial site is to landfill the area up to a level that is at least higher than the last recorded highest flood level. The internal drainage system ensures rapid discharge of excess run-off to the surroundings. The nearby main drainage channel is generally concrete lined to increase the flow capacity;

Newly developed area Original area

Infill up to 7 m. AMSL

Infill up to 2 m. AMSL Photo 2-4

Example of current and original landfills (photo: courtesy of the Municipality of

Panama City)

This practice is partly based on requirements set forth in the building permit issued by MOP (Ministerio de Obras Públicas). One of the consequences of filling up previously low lying open areas is that flood water now has less space to be stored exacerbating the flooding in nearby lower lying urban areas. However, urbanization is a process that has been ongoing since the 1960-ies, increasing since the turn of the century. The population of Panama City is increasing rapidly as a result of migration from other parts of the country. The competition for land is fierce and almost all land has been appropriated by private developers. Remaining land is being occupied by informal settlers.

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1960-1980

2010

Figure 2-4 Development of the urbanization in Panama City Over the years previously open and rural areas have been converted to housing and industrial estates. Also, some areas have been occupied by informal settlements. In 1980, only 9.3% of the total area was urbanized; this increased to 22% in the year 2000 and 30% in 2010. Some catchment areas are urbanized by more than 60%. The proportional effect of illegal settlements when compared to the effect of the private sector developments has to be assessed.

2015

2002

Photo 2-5

Example of incrase of urbanised and paved area

This increase in paved area results in a surplus of storm water, overwhelming the system which has not been adapted to the increased run-off. Whereas previously precipitation could infiltrate into the subsoil and surface flow was delayed, now any storm event causes much higher and more rapid peak discharges.

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Figure 2-5 Comparison of the effects of the urbanization on the discharge (courtesy of CIRIA and www.susdrain.org) Not only has the amount of paved area increased (increasing the flow to the river) the flow channels and floodplains have also been considerably reduced due to building activities, reducing the discharge capacity. This is clearly illustrated for the Ciudad Radial area in the Juan Diaz district. 1965

2015

Juan Diaz river & flood plain Radial

Photo 2-6

Development of Ciudad Radial in relation to the available flood plain

(courtesy of the Municipality Panama City)

When considering the present condition of this stretch of the Juan Diaz River in relation to the whole catchment area, it forms a bottleneck. The water cannot follow its original flow path and inundates the area of Ciudad Radial. This but an example—albeit it poignant one—that illustrates a situation that occurs throughout the catchment areas.

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Radial

Figure 2-6 Position of the Ciudad Radial Often solid waste is cited as a cause of blocking streams and drains and causing flooding. Although in many cases garbage collection is insufficient and solid waste ends up in the watercourses, this seems to be not the only and most probably also not the main cause of the regular flooding. In all, lack of channel maintenance, poor waste collection, limited staff and equipment assigned to such tasks, limited budgetary resources, non-payment of users, the (in)ability of technicians of relevant authorities are the combined causes for most of floods. The main cause by far, however, is most likely the insufficient capacity of rivers, stream, culverts and sewers because of highly increased flows that occur in the continuously urbanizing areas. In the past the recommendations of storm water drainage studies for some of the rivers and streams of the city have not or only partially been executed to solve specific problems. Also norms have occasionally been considered ‘optional’. Traditional solutions have been the raising of earthworks of projects and build higher walls in areas previously considered unsuitable for living (and some of which have also been declared ´non-developable’ by MIVI decree of 1979). Concrete lining of rivers and streams has been introduced in order to discharge the water faster. These new projects impact downstream areas previously built at lower levels. Presently, measures to reduce flooding consist of local interventions in the water system such as constructing new culverts or (minor) channels and cleaning out drains. DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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Photo 2-7

Example of current measures

These measures are mostly reactive and are not part of planned interventions based on an understanding of the complete water system. Also design criteria are outdated and do not consider the impact on the complete water system. 2.3

Drinking water and sanitation The Panamanian Health Ministry is responsible for defining the sector's policy, whereas the Autoridad Nacional de los Servicios Públicos ASEP or National Authority for Public Services acts as regulatory agency. According to the Water Law, the Instituto de Acueductos y Alcantarillados Nacional (IDAAN) is responsible for water and sanitation services in urban areas with more than 1,500 inhabitants, thus preventing decentralization to municipalities. The only exception is the municipality of Boquete, which manages its own water supply and sanitation system (source: Wikipedia). The Ministry of Health (Ministerio de Salud) is currently in charge of the Sanitation Project of the City and Bay of Panama (El Proyecto Saneamiento de la Ciudad y la Bahía de Panamá). This project includes the construction of several interceptor drains along the coast to collect the wastewater presently discharged untreated into the bay by the sanitary collector drains between Tocumen and the Panama Canal. The wastewater is transported to the new wastewater treatment plant; present capacity is 2.2 m3/s with a doubling of capacity being planned. The WWTP is located within a Ramsar site’s mangrove area. A major problem for the treatment plant is the low concentrations for BOD/COD of the wastewater (high dilution with clean water). This is because secondary treatment systems require a minimum concentration of biologically decomposable waste to sustain the ecosystem population; this can result in a higher pollution load emitted despite the lower concentrations in the influent.

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Figure 2-7 Position of the Collectors (blue), Interceptors (red) and Waste Water Treatment Plant (PTAR) The eastern interceptor is operational (financed under an EIB loan), the western interceptor is under construction (financed under a JICA-CAF loan). Part of the contract is the rehabilitation of the collectors which should increase the collection rate of wastewater and reduction of the inflow of (storm) water. Operation and maintenance of the treatment plant and the interceptors/collectors has been contracted out to Suez S.A. for a period of 4-5 years. In the meantime IDAAN is being strengthened to take over the O&M. There are reports that the per capita supply of water is extremely high. Apparently this is caused by ageing and inadequate infrastructure resulting in high losses in the system. Also the capacity of IDAAN to execute its role as service provider is reportedly lacking. A number of projects are planned and ongoing for the improvement of the water supply. Among which is reportedly a US$ 1 billion project for a Ring pipeline around Panama City. Whereas before all raw water was sourced from the Panama Canal, recently construction started for the abstraction of water from the Tocumen River (http://www.idaan.pa/nosotros/plantaspotabilizadoras). Poor sanitation poses a major health risk, especially during and after flood events. Badly maintained septic tanks discharge polluted water to the drainage system; incorrect connections between the sanitary sewer system and the drainage system cause sewage to enter the drainage system; part of the existing drainage system is a combined system (carrying both wastewater and storm water by design). In case of flooding, the heavily polluted storm water flows onto the surface and into houses. Not only the direct contact with this polluted water is a threat, also the stagnant water that remains after a flood

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forms a health risk as it forms a breeding ground for mosquitos (dengue, chicungunya). Possible causes of the leakage of the system are lack of maintenance and limited understanding of the ground conditions in the new infills. Because of uneven settlement of the pipes, drinking water as well as sewerage systems could fail (this applies for all underground infrastructure).

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3

RESULTS AND FINDINGS

3.1

Introduction During the bilateral stakeholder meetings and the workshops an inventory has been made by the mission of the issues that have to be considered in the analysis and to draw conclusions. The results reported in this chapter have led to the recommendation presented in chapter 4. The findings are structured within the framework of ‘Water Governance’. The concept of water governance as described by the Netherland Water Governance Centre, consists of three different levels.

All three levels are important to be considered to elaborate a complete action plan towards sustainable flood risk management. If levels are not being considered sufficiently it might proof that action are not efficient nor effective on the short and or long term. It is important to indicate that the findings presented below are a result of a quick scan with different actors with different objectives and opinions. Therefore these results should be used cautiously and a more detailed identification is required to support the analysis. 3.2

Content level 



There is insufficient knowledge of the hydrological, hydraulic and morphological functioning of the three catchments for the decisions that have to be made in relation to the development of the areas upstream, midstream and downstream. The existing knowledge is too much scattered amongst the different involved authorities and institutions. There is no clear understanding of all the data that is required to understand and simulate the hydraulic system.

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

    

 



3.3

Modelling of the catchments is necessary to be able to understand effects of developments that have taken place as well as to simulate effects of new development plans. There is insufficient data on topography. This data is required to develop a hydraulic model. There is a lack of understanding of the principles and concepts governing water management at the relevant authorities. There is a lack of knowledge to teach the principles and concepts governing water management at the universities. There is no assessment of financial loss available in relation to inundations. Some information/data seems to be available but it is not clear where the information can be found, how it can be accessed and what the quality is of the existing data. Capacity is fragmented amongst the many institutions and authorities that are partly responsible for water management. MOP uses traditional decision making rules to calculate effects of developments on water quantity. This leads to second best decisions. Alternatives that do not fit these rules are being rejected even though they might lead to better results. Universities have some data regarding the system available but it is difficult to obtain and it requires modifications.

Institutional 

Many governmental authorities have responsibilities related to water management (ANAM, MIVIOT, MINSA, MOP, SINAPROC, MUPA, etc.). As indicated by many of the actors, these responsibilities are not clearly defined. The fact that these responsibilities are not defined clearly leads to required actions falling between two stools. This seems to be the case for issues related to water quantity as well as water quality. In the following figures some excerpts from the OECD report on Water Governance in Latin America7 provide insight in responsibilities:

7

Akhmouch, A. (2012), “Water Governance in Latin America and the Caribbean: A Multi-Level Approach”, OECD, Regional Development Working Papers, 2012/04, OECD Publishing. http://dx.doi.org/10.1787/5k9crzqk3ttj-en DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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

 



As so many authorities have responsibilities towards water management issues there is not one authority that looks at water management in a holistic and integrated manner covering all relevant aspects. There is insufficient coordination between the authority responsible for spatial planning (MIVIOT) and water management. Responsibility for the drainage system is very much fragmented with no clear authority taking charge. Also collaboration or coordination between the authorities is very limited or totally absent. Permits are given out based on outdated methods and data. Authorities also lack the resources and knowledge for proper assessment of designs as well as for proper operation and maintenance. This, in turn, contributes to the increase of floods risks; in 1972 the responsibility to solve and resolve flooding nationwide was officially assigned to the Ministry of Public Works (MOP). Thus MOP is the main actor setting the norms and giving out the building permits. This is done based on outdated data, without understanding of the system or the submitted designs and without coordination with other authorities. MOP reports that they lack the resources (personnel and budget) to properly maintain the ageing and inadequate infrastructure. The institutional system in Panama is quite centralized. Budgets for example are decided upon on a national level. There is only limited budget available for maintenance of the existing water system. The

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 









3.4

Ministry of Public Works only dedicates 5% of its budget to maintenance. Indications were given that this leaves the responsible departments with insufficient resources to properly maintain the drainage system. Investments in the water (drainage) sector have been lacking; more funds need to be made available. The Ministry of Environment (formerly Autoridad Nacional del Ambiente ANAM) is responsible for environmental management, for watershed management and for the zoning and protection of nature reserves. They also are responsible for permitting in relation to water quality. MiAmbiente has expressed the need for a hydrological model to assess impacts. Unfortunately, the Water Resources department under MiAmbiente was not visited. The Ministry of Health is now taking care of the construction and operation of the sewerage system. IDAAN should be the institution responsible for operation and maintenance of the sewerage system and treatment plants. The capacity is insufficient at the moment. Institutional strengthening is required. All major financial institutions (WB, CAF, IDB) are ready and willing to invest in the water (drainage) sector. They have ample experience with the institutional setting of Panama and are willing to assist in the design of any loans and the execution of loan agreements. All banks manage specific funds that can be applied to and have specific requirements with which to comply. It was not possible to indicate the availability of funds, but taking the financial position of Panama into account this depends more on the willingness of Panama to borrow than on the availability of funds. All applications for grants and loans from international financing institutions have to go through the Ministry of Finance. A dialogue needs to be started with the Ministry of Finance. The Government of Panama has defined 4 priority sectors: o Health o Education o Logistics o Energy Development of the water (drainage) sector needs to be defined under one of these.

Relational 



Over the last decades, the risk of flooding seems to have increased considerably. Some of the stakeholders (in particular the local communities) involved in water have quite a lot of knowledge into the causes and on what is needed but don’t seem to have the power to have their needs prioritized; Local communities have been very vocal in expressing their dissatisfaction with the situation but they don’t have the power to get their needs prioritized. They have also commissioned hydrological studies with the Panamanian Society of Engineers and Architects SPIA (Sociedad Panameña de Ingenieros y Arquitectos) to gain better understanding of the situation.

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 



 

One of the main complaints is the perceived collusion between the private sector and the government resulting in laws not being enforced. The private sector developers claim to work with the standards they are given; however, the standards are outdated and rules are not always clear. Also, when alternatives that go beyond the norms are suggested they are rejected by MOP because they cannot properly judge them. Developers are prepared to invest in a more sustainable way of working, but they need guidance / updated standards / code of practice. Also, all parties should be treated equal. Because there is no clear insight in the causes of the inundations, discussions between stakeholders are not being supported by proper facts. As long as it is not clear where the real causes for the inundations lie, the actors will continue to communicate causes that are not their responsibility. One of the main needs for the Panamanian water sector is to start a dialog with all stakeholders. There is a lot of press coverage. Water related challenges are high on the agenda of local communities. This is felt by the press. Social pressure is being used to try and change the manner in which water management is being approached.

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4

PROPOSED FOLLOW-UP ACTIVITIES

4.1

Introduction During the mission a series of recommendations and follow-up actions were discussed. These are summarized below under the three levels of water governance as they are related to content, institutional setting and interaction with the stakeholders. They are identified as immediate (now), short term (this year) and mid-term (1-5 years). In the long-term (5-20 years) these measures have to be implemented, operated and maintained in a sustainable manner. It has also been discussed how cooperation between the City of Panama and the Dutch Water Sector could be continued. Concepts like the Panama-Dutch Water Dialogue, Rebuild by Design and Resilient Cities by Design have been presented and discussed in several meetings. It is clear that both the City of Panama as well as the Dutch Water Sector have a lot of interest in the continuation of working together. The added value of the Dutch water management experience is highly appreciated. However, during the week, other than good intentions and the signing of the ‘Carta de Cooperación’, this has not been materialized. The development banks have funds for technical assistance, but they require a specific application from the government to these banks to allow them to make available the required resources. A short term support from the Dutch Water Sector could be to assist Panama City in the elaboration of these proposals.

4.2

Content Structural measures: Immediately  The drainage system has to be maintained properly to assure that the full discharge capacity of the system can be used during the upcoming rainy season. This is the responsibility of MOP/MUPA. Short term  Prevention of waste and eroded soil from entering the drainage system will prevent the accumulation of dirt in the drains reducing the flow capacity.  Regular maintenance of the drains itself by removing any accumulated dirt will re-establish the original flow capacity as much as possible.  Collapsed sections of drains should be repaired as soon as possible. Mid term  In the concession areas structural measures can be taken by reinstalling the vegetation cover to prevent inflow of the eroded soil into the river bedding. This can be also achieved by application of the erosion mats in a substantial area around the water resources in the deforested areas. Reforestation in the watersheds will also reduce the sediment transport. This activity has to be coordinated with MiAmbiente.  Also working together with MiAmbiente´s Watershed Department, MUPA should identify areas for floodplain restoration in the upper, middle and peri-urban areas of the Juan Diaz river, as well as temporal storage /runoff delay reservoirs, working together with MOP, developers and

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

land-owners, as well as communities (specifically with the Juan Díaz communal board) The municipality should work with the Juntas Comunales, SINAPROC and universities to set up and strengthen early warning systems against flooding in all the three watersheds.

Non-structural measures Immediately  An evaluation has to take place of all urgent measures (structural and non-structural) that could reduce the flood risk in the risk sensitive communities.  An inventory has to be made of all planned developments and permits have to be re-assessed (BDP-permisología).  A Stakeholder analysis has to be made including an identification of all stakeholders, their objectives and the instruments they have at their disposal to influence decision making and reduction of flood risks. Short term  Write proposal together with the Dutch Water Sector to obtain the needed resources to carry out studies and the needed short term structural and non-structural measures.  In the short term it is necessary to improve baseline data. That includes identifying the data that is required, making an inventory of existing data, assessing the quality of the existing data, elaborating a plan to gather the missing data and implementation of this plan.  For the generation of this data, the Municipality together with universities (e.g. Universidad Tecnológica de Panamá UTP), sciencebased NGOs and research institutes apply for SENACYT funding on research into the watersheds. SENACYT is financing research on six key topics of which climate change and water are topics. 74 studies are to be financed by SENACYT. These proposals have to be coordinated with the authority responsible for Catchment management.  Conduct risk assessments and apply them in future planning.  Invest in understanding the water system (beforehand) versus investing in disaster control (afterwards). Tools have to be developed to justify and document decisions made related to policies and smart investments (role plays, map table, etc.).  Develop a policy on redesigning better taking in to consideration climate change and other developments, even when damage needs to be repaired fast.  A recompilation and evaluation of the existing spatial planning is required to assess the impact of the spatial planning on flood risks. Mid-term  The water management knowledge in the involved institutions has to be improved. Training and exchange programs have to be designed and started as soon as possible to improve the knowledge and coordination between institutions.  A Water Master Plan (WMP) has to be elaborated in cooperation with MiAmbiente. This WMP has to take in to consideration the whole catchment area of the rivers that pass through the city. This WMP has to be based on a National Policy in relation to water management and flood safety. This means that with the proper authorities (e.g. MiAmbiente) a DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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

 

4.3

national baseline has to be established in order to use this as a starting point for the City of Panama. As a pilot this WMP can be concretized for two rivers. The Juan Díaz and the Tocumen rivers have been mentioned as first pilots to detail the framework of the WMP of the City of Panama. The experience gained during this process will improve the consecutive processes elaborating Metropolitan River Master Plans for the other rivers. Update the procedure of MOP to assess the permitting system and the effects of developments on the hydrological system. The POT (Municipal Spatial Development Plan) has to be elaborated that considers the hydraulic effects.

Institutional Immediate  Improve the coordination between MUPA, MOP, SINAPROC and MIVIOT.  Inspection and sanctioning of projects that do not comply with the permits that have been granted. It is important that the capacity to inspect is increased. The Municipality could support the MiAmbiente in this endeavor.  Investigate the possibilities to continue the cooperation between the City of Panama and the Dutch Water Sector and start writing proposals to find the required funding. Short term  A Program Manager will be assigned by the MUPA to assure that this initiative will continue at full speed. Taking in to consideration the risks and the fact that the rainy season is about to start swift and coordinated action is required.  Start a study on the probabilistic assessment of economic loss.  Assemble an inter-institutional evaluation and coordination committee.  Revise institutional regulations, norms and standards. Flood protection/ water management needs to be well positioned/be a priority. Institutional reform is needed to assign clear responsibilities in the sector and the financing system for water management has to be addressed to assure that the responsible authorities have the required resources.  Find means to enforce rules and regulations related to solid waste management and improve awareness amongst the general public  Elaborate a WMP with other authorities / institutions involved. Structure the elaboration process and indicate clear responsibilities in relation to the planning procedure.  Gather the required information from the development banks to write and submit proposals for funding to reduce the risks.  Bring further the concepts of the Panamanian-Dutch Water Dialogue and investigate possibilities to include Panama City in the process of Resilient Cities by Design. Mid-term  Establishment and operation of an inter-institutional and multi sector coordination committee.  Improve enforcement of flood risk regulations and management, while

reviewing current norms and standards so that they take into consideration the DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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current urban development state of the city of Panama as well as its future scenarios   4.4

Elaborate the WMP and include institutional responsibilities in the plan. Define projects to invest and reduce flood risk.

Relational Immediate  Take care of feedback towards the involved actors. Make sure that they are being informed on the progress in this program, to discuss with them the road map.  Maintain a broad interaction with all stakeholders. Make use of the dynamics developed during the DRR-mission.  Be consistent in all communications concerning flood risk management and the relation with wetlands in general and mangroves in particular. Short-term  Start in cooperation with other institutions (e.g. MINSA, Juntas Comunales, schools) a campaign to create awareness about solid waste culture along the watersheds of the three rivers: “Limpia mi Cuenca”, showing how waste from different parts of the watershed block drainage but also pollute the mangroves at the entrance to the sea. Highlighting connectivity, personal responsibility, amongst others. Different platforms and outreach tools should be used to achieve this goal (schools, television, newspapers, community meetings, internet, social media, etc.)  Create a Social Responsibility Platform for the private sector to promote sustainable development and to assure that they can communicate their activities / initiatives to reduce flood risks.  The cooperation of other institutions should be called upon to assure that the make available the existing information and provide the resources necessary to reduce flood risks (ETESA, Universities, etc.)

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5

ADDED VALUE OF DUTCH EXPERTISE The Dutch experience with concepts such as resilient cities and water sensitive urban design (WSUD). Changing concepts and paradigm shifts have improved our way of managing our water. The Dutch Water Sector is learning from decisions made in the past that have not led to an optimal management of our water systems and water resources. The new concepts, based on a better understanding of the water system, can be introduced directly in Panama by experts from the Dutch Water Sector. For this a broad and continuing exchange of knowledge and experience is required. This can be done by starting and continuing a water dialogue. In Annex G a tentative plan is included that describes the steps to be taken for a water dialogue. The Dutch have a long history on interactive decision making. This has led to an open discussion on what is required to achieve the flood risk standards that we have at the moment. This comes at a cost and stakeholders are willing to pay this price to assure a high risk level that facilitates economic, social and ecologic development. Concepts like Dutch Water Dialogue, Resilient Cities by Design and Rebuild by Design provide the required methodologies to have an active interaction / participation of the involved stakeholders. Integrated water management is a concept that is fully imbedded in the Netherlands. This does not mean that priorities do not lead to sectorial activities, but plans are always developed taking in to account the effects choices have on other domains. This is part of the Dutch Water Management culture and has not been developed from one day to another. The experience on integrated water resources management, covering the full scope of water governance, can be shared. This is an added value for the governmental authorities, knowledge institutions, NGO’s and for the private sector. Risk assessment and norm setting is continuously under development in the Netherlands. The better we understand the system and the risks, the better we can differentiate the risk standards required for the different types of land uses. The Dutch Water Sector has the ability to gather the required data, to use this data to simulate the behavior of the water system and to use that information to support the decision making on measures that have to be implemented to reach the required risk standards. Technical innovation are for example the introduction of smart dikes, the implementation of building with nature and the learning process on Big Data Innovations in water supply and wastewater treatment: This includes innovation in structural measures as well as non-structural measures. Also in the wastewater treatment sector, many technical innovations are available in the Dutch Water Sector that improve the efficiency of treatment plans and limit the space required for treatment. Also innovative technology is available for odor control as an end of pipe measurement.

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ANNEX A – DRR-TEAM

Dutch Risk Reduction Team: reducing the risk of water related disasters Many countries around the world face severe water threats. Often, these countries are in urgent need of expert advice on how to prevent a disaster or how to recover from a calamity. For instance, when a country has been struck by severe flooding and the first emergency relief workers have gone, the need for advice on how to build a sustainable and safer water future arises. To meet these needs with a swift response, the Dutch government has initiated the Dutch Risk Reduction Team (DRR Team). This team of experts advises governments on how to resolve urgent water issues related to flood risks, water pollution and water supply, to prevent disasters or to rebuild after water related disasters. With climate change and a fast growing world population, water issues are becoming more urgent. As a country renowned for its’ expertise on water and delta management, the Netherlands feels a responsibility to share its’ knowledge worldwide. That is just what the DRR team does; sharing expertise with governments to come up with the best possible approach/solutions for tackling urgent water issues. Because of the unique cooperation between government and sector, the best experts can be fielded quickly. The Dutch government offers a specific number of advisory missions each year.

Advice for all water issues The Netherlands has brought its best water experts together in the Dutch Risk Reduction Team. It consists of high level advisors supported by a broad base of technical experts who can provide top quality and tailor made expertise to governments that are confronted with severe and urgent water challenges. The Dutch are experts in adapting to water in a changing world; from delta management to water technology, from urban planning to governance, public private partnerships and financial engineering.

How does the DRR team work? Governments that have to deal with an urgent water issue are encouraged to contact the Dutch embassy in their region. The embassy will liaise quickly with the Dutch government. Interventions will only take place after a request from a central government has been received by the Dutch government, and after a recent calamity or to prevent a threatening disaster. The DRR team does not focus on emergency relief, but on sustainable solutions. If the decision to respond to the request is made, relevant Dutch experts will be rapidly fielded to the area that is under pressure. Together with the government and local experts, the situation will be assessed and analyzed after which the team will come up with a set of recommendations. For example advice on technical interventions including immediate measures and long term sustainable solutions, advice on governance and advice on financing options. The DRR team enables a foreign government to take action on the basis of sound advice and expertise.

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ANNEX B – TEAM MEMBERS The team member of the scoping mission are: Klaas de Groot – team leader Koen Broersma – expert urban water management Jana Steenbergen – Kajabová – expert flood protection and ICZM Klaas de Groot is a senior advisor and business developer at ARCADIS the Netherlands. He has more than 25 year work experience in the implementation of integrated water resources management, flood risk management and coastal zone management. He has worked in the Netherlands as well as in Developing and Least Developed Countries for UN Organization, National Governments and Consultancy firms. The assignments abroad include long-term assignments in Yemen (3 years) and Panama (4 years) as well as short-term assignments in Colombia, Mexico, Belgium, Honduras, Paraguay, Hungary, Romania, Slovakia and Thailand. He has broad experience in the field of water governance in general, and more specific in policy analysis and process management. He has assisted in the elaboration of master plans for strategic water use and flood risk management plans. In the last few years he has been involved intensively in the adaptation of the water system in the Netherlands to climate change. During the last year he is involved in projects abroad to transfer Dutch experience and knowledge. He is mission leader for the Dutch Risk Reduction Team for Mexico, he is project director for the elaboration of a Flood Risk Management Plan for de Cauca river in Colombia. During 2014 he has been involved intensively in the Water Strategy Study for the National Water Plan of Myanmar. Koen Broersma is senior expert urban water management at Royal HaskoningDHV the Netherlands. He has more than 20 years of experience in (urban) Water Management and Environmental Engineering. He had been involved in different stages of projects, i.e. Master Planning, Feasibility Studies, Preliminary Designs, Detailed Engineering, Tender Document preparation. This within various projects regarding urban water utilities such as water supply and sanitation, regarding urban drainage and flood control as well as soil and groundwater remediation and water resources management in a multitude of countries such as Indonesia, Ghana, Ethiopia, Philippines, Singapore etc. Jana Steenbergen – Kajabová is expert Flood protection and Business Developer for the Coast and Rivers at Grontmij the Netherlands. She is a civil engineer (hydraulic engineering and geotechnics) with more than 18 years of experience in (rural and urban) flood protection schemes, integrated coastal zone development and harbor development schemes at several levels (Feasibility Studies, Preliminary Designs, Detailed Engineering, Master Planning and Contracting). She has participated as project manager and as a team member in a large number of schemes for flood and coastal protection and harbor development in the Netherlands and abroad (Belgium, Germany, Poland, Ireland, UK, Slovakia, Greece, Denmark, Sweden, Turkey, Saudi Arabia, China, Vietnam, Indonesia). Within the coastal an flood protection projects she covers with her knowledge the full scale from the governance (SUSCOD and STARFlood EU-projects) and stakeholders issues (coast of Noordwijk, ship lock Eefde) to the flood risk management (Istanbul), habitat protection and building with nature principles (Sand engine, Balance Island), flood protection (Thames estuary) waste management/landfills and remediation (Derrinumera, Kochanovce). For DRR she is a part of the Dutch Risk Reduction Team for Uruguay. She is a member of the circle of the Coast Protecting Engineers and River Restoration Network.

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ANNEX C – TERMS OF REFERENCE

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ANNEX D – MISSION PROGRAM / PERSONS MET

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DÍA (ABRIL)

ACTIVIDAD Medios de Comunicación TVN

Sesión Informativa

LUNES 20

Gira de Campo

MARTES 21

Taller - Gobierno Municipal

DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

PARTICIPANTES

NOMBRE

1

Vice Alcaldesa

Raisa Banfield

2

Embajador de Holanda

Wiebe de Boer

3

Líder DRR Team

Klaas de Groot

-

DRR Team

1

Alcalde MUPA

José I. Blandón

2

Vice Alcaldesa MUPA

Raisa Banfield

3

Asistente Técnica MUPA

Estefanía Calvo

4

Diputado 8-8

Elías Castillo

5

Coordinadora Prevención de Desastres MUPA

Dalila Batista

6

Subdirector de Cambio Climático MUPA

7

Dirección de Obras y Construcciones MUPA

Farah Ureña

8

Asesora Legal MUPA

Ada Vergara

9

Director de Gestión Ambiental MUPA

Ennio Arcia

10

Director de Planificación Urbana

11

SINAPROC

Nestor Pittí

12

SINAPROC

Yira Campos

13

Audobon

Rosabel Miró

Enrique Vargas

Manuel Trute

-

DRR Team

1

Director de Planificación Urbana

2

Director de Gestión Ambiental

3

Subdirector de Cambio Climático

4

Director de Gestión Social

5

Director de Seguridad Municipal

6

H.C. Tocumen

7

H.C. Juan Díaz

8

H.C. Pacora

9

Vice Alcaldesa

Raisa Banfield

10

Asistente Técnica

Estefanía Calvo

11

Wetlands Intl

Sander Carpaj

12

Audobon

Rosabel Miró

13

SINAPROC

14

Especialista en Planificación Urbana

Carlos Gordón

15

Especialista en Tema Bahía de Panamá

José Franceshi

16

Asistente Vice Alcaldesa

-

DRR Team

1

Director de Obras y Construcciones

2

Director de Planificación Urbana

5 July ‘15

Manuel Trute Ennio Arcia Enrique Vargas Isaac Atencio Aivin Singh Jacqueline Muñóz Javier Sucre Hugo Henríquez

Nestor Pittí

Jeanne Asyn

Gonzalo Barrios Manuel Trute

- 36 -

RB - Reunión Bilateral Aeropuerto de Tocumen

3

Director de Gestión Ambiental

Ennio Arcia

4

Subdirector de Cambio Climático

5

Director de Gestión Social

Isaac Atencio

6

Vice Alcaldesa

Raisa Banfield

7

Asistente Técnica

Estefanía Calvo

8

Especialista en Planificación Urbana

Carlos Gordón

-

DRR Team

1

Gerente General

2

Vice Alcaldesa

Enrique Vargas

Joseph Fidanque III Raisa Banfield ALMUERZO

MT - Reunión Bilateral - MIVIOT

1

2

RB - Reunión Bilateral MiAmbiente

RB - Reunión Bilateral - MOP

MIÉRCOLES 22

Reunión con ONGs

DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

DRR Team Ministro, Viceministro Ordenamiento Territorial, Director de Desarrollo Territorial Director de Planificación Urbana

Mario Etchelecu, Juan Manuel Vásquez, Rubén Aguilar Manuel Trute

-

DRR Team

1

Directora de Áreas Protegidas y Vida Silvestre

Zuleika Pinzón

2

Vice Alcaldesa

Raisa Banfield

3

Wetlands Intl

Sander Carpaj

-

DRR Team

1

Secretario General MOP

2

Jefe de Urbanizaciones MOP

3

Director de Mantenimiento MOP

4

Director de Diseño MOP

5

Gerente de Proyectos MOP

Hector Castillo

6

Directora de Administración de Contratos MOP

Ydani Rognoni

7

Directora de Proyectos Especiales MOP

8

Vice Alcaldesa

Raisa Banfield

9

MOP

Pacífico Chung

-

DRR Team

1

Subdirector de Cambio Climático

2

Fundación Natura

3

Marviva

Nikolas Sánchez

4

CREHO

Rebeca Magaña

5 July ‘15

Pacífico Chung Mauricio Villa Andrés Robleto Crecensio Pomares

Estela de la Guardia

Enrique Vargas Carla López

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Reunión de Trabajo con Técnicos

5

CIAM

6

MarViva

Antonio Chang

7

Vice Alcaldesa

Raisa Banfield

8

Asistente Técnica

Estefanía Calvo

9

Director de Gestión Ambiental

10

Wetlands Intl

Julio Montes de Oca

11

Wetlands Intl

Sander Carpaj

12

Audobon Panamá

Yenifer Díaz

13

National Audobon

Matt Jeffery

Antonio Clemente

Ennio Arcia

-

DRR Team

1

MIVIOT

Carlos Franco

2

CAPAC

Dagma Barnett

3

SINAPROC

Mario Chan

4

SINAPROC

Néstor Pitti

5

SINAPROC

6

IDAAN

Alcibiades Montenegro

7

SPIA

Rodrigo Mejía Andrión

8

MOP

9

Vice Alcaldesa

Raisa Banfield

10

Asistente Técnica

Estefanía Calvo

11

Director de Obras y Construcciones

12

Wetlands Intl

13 14

Yira Campos

Carlos Jaén

Farah Ureña Sander Carpaj

Especialista en Planificación Urbana Especialista en Tema Bahía de Panamá

Carlos Gordón José Franceshi

ALMUERZO

Reunión Bilateral - CAF

Reunión Bilateral - Banco Mundial

-

DRR Team

1

Vice Alcaldesa

Raisa Banfield

2

Asistente Técnica

Estefanía Calvo

3

CAF

-

DRR Team

1

Vice Alcaldesa

Raisa Banfield

2

Asistente Técnica

Estefanía Calvo

3

BM

Susana Pinilla

PanamenianDutch Water Dialogues VER TAB: PANAMANIAN DUTCH WATER DIALOGUE Firma de Carta de Cooperación JUEVES 23

ALMUERZO

Reunión Bilateral - BID

DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

-

DRR Team

1

Vice Alcaldesa

Raisa Banfield

2

Asistente Técnica

Estefanía Calvo

3

BID

5 July ‘15

Tomás Bermúdez

- 38 -

-

DRR Team

1

Vice Alcaldesa

Raisa Banfield

2

Asistente Técnica

Estefanía Calvo

3

MUPA

José Franceshi

4

HC Juan Díaz

5

Blue Ocean

Carlos Stagg

6

ACOBIR

Aldo Stagnani

7

APEDE

Dagmar de Álvarez

8

Grupo Eleta

Javier Sucre

Anaximedes Cedeño Mercedes Morris

Reunión con Promotores y Empresas

9

Grupo Regency

Jesús Almanza

10

Inmobiliaria San Fernando

11

FF Properties

12

Ideal Living Corp

13

El Colegio de Panamá

Enzo Simmons Juan Raúl Brenes Guido Rojas Martín F. Sosa

14 VIERNES 24

15 16 17

20 21

Rainer Gallardo

Grupo Shahani

Rolando Shahani Elisa Suárez

CONEP

Alfredo Burgos Proyecto de Acondicionamiento Santa María Golf & Country Club

Guillermo de St. Malo Eleta Mayor Alfredo Alemán Laura Plata

Copa Airlines

22

Reunión DRR Team Planificación

Sheilley Herrera Miguel de Janón

Grupo Lefevre

18 19

Yonuxia Spriela

Alida Alveo

-

DRR Team

1

Vice Alcaldesa

Raisa Banfield

2

Asistente Técnica

Estefanía Calvo

3

Director de Planificación Urbana

Manuel Trute

ALMUERZO

Despedida y Conclusiones

DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

-

DRR Team

1

Alcalde

José I. Blandón

2

Vice Alcaldesa

Raisa Banfield

3

Wetlands Intl

Sander Carpaj

5 July ‘15

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PANAMANIAN-DUTCH WATER DIALOGUE / Thursday, April 23 Kimberly Downer ANCÓN Lorelus Salazar Ricardo de Ycaza Javier Chen BLUE OCEAN Priscilla Yven CAF Alfredo Paolillo CAPAC Dagma Barnett CI Rodrigo Donadi CIAM Antonio Chang Rodrigo Guardia COARQ-SPIA Lourdes Alvarado Julio Rovi COLEGIO PANAMÁ Javier Yap COPA Alex Flores CREHO Rebeca Magaña EL SIGLO Johanara Delgado Rainer Gallardo GRUPO LEFEVRE Miguel de Janón IDEAL LIVING CORP Martín F. Sosa Steffanie Smith ISTHMUS Nicolás Bravo Erika Schnitter Mitzuka Fuentes JC JUAN DÍAZ Elsie Rodríguez Elvira García Luis Rivas Guerra JUAN DÍAZ Mileyka Cáceres Candael Bernal Marina Díaz LAS ACACIAS Iris Arias MIAMBIENTE Zuleika Pinzón MIEMRRODEL Modesta Pérez Carlos Gordón Ada Vergara MUPA Jaidy Coumelis Dalila Batista Plashka Meade NATURA Rosa Montañez Ricardo Wong PROMAR José A. de Obaldía REDPA Mariela Grimaldo SAN PEDRO Betsy Aleguil SERTV Ricardo Peralta SHAHANI Lizaudro Arias SINAPROC Nestor Pittí SPIA Tomás Mulhe UPA Magela Cabrera Ariel Grey UTP Casilda Saavedra Sander Carpay WETLANDS Julio Montes de Oca

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ANNEX E– BRIEF MINUTES OF MEETINGS

(Attached)

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ANNEX F – MEDIA COVERAGE

Context: Interview tvn-2 6-6-2014 http://www.tvn-2.com/Noticias/Paginas/Banfield-anuncia-que-Alcaldia-revisara-proyectos-en-JuanDiaz.aspx

News tvn-2 14-11-2014 http://www.tvn-2.com/Noticias/Paginas/Proyecto-en-Howard-bajo-la-lupa-tras-inundacion-.aspx News tvn-2 28-11-2014 http://www.tvn-2.com/Noticias/Paginas/villa-norma-se-encamina-a-una-solucion-anteinundaciones.aspx

News tvn-2 18-4-2015 http://www.tvn-2.com/Noticias/Paginas/juan-diaz-afectado-con-las-primeras-lluvias.aspx

During and after the mission: News tvn-2 20-4-2015 http://www.kaltura.com/p/1199011/thumbnail/entry_id/0_9uygcj8w/width/628.5px/height/354px/ type/1/quality/100 Article PanamaAmerica 20-4-2015 http://www.panamaamerica.com.pa/nacion/tecnicos-realizan-diagnostico-para-prevenirinundaciones-en-panama-973240#

Bulletin EKN Panama 21-4-2015 http://panama.nlembajada.org/noticias/2015/04/drr-en-panama.html News 24horas 21-4-2015

http://noticias24panama.com/actualidad/noticia/22454/aguas-servidas-afectan-a-los-moradores-deconcepcion

News tvn-2 22-4-2015 http://www.tvn-2.com/Noticias/Paginas/moradores-de-juan-diaz-y-la-alcaldia-buscan-solucion-anteinundaciones.aspx DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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News tvn-2 23-4-2015 http://www.tvn-2.com/Noticias/Paginas/holanda-dara-asistencia--para-resolver-inundaciones-endistrito-de-panama.aspx Radio Panama 23-4-2015 http://www.radiopanama.com.pa/noticias/actualidad/alcaldia-de-panama-y-gobierno-de-paisesbajos-firman-acuerdo/20150423/nota/2731750.aspx News 24horas 23-4-2015 http://noticias24panama.com/actualidad/noticia/22628/miviot-recomendaciones-para-evitarinundaciones-en-sectores-vulnerables

Others (unsorted):

http://laestrella.com.pa/panama/nacional/proponen-plan-para-evitar-inundaciones-juandiaz/23859711

http://laestrella.com.pa/panama/nacional/evaluan-puntos-inundables-bahiapanama/23860879

http://laestrella.com.pa/panama/nacional/especialistas-holandeses-recorren-zonasinundables/23859963

http://www.prensa.com/sociedad/Alcaldia_de_Panama-Holanda_0_4190581098.html

http://impresa.prensa.com/panorama/Evaluan-bahia-Panama_0_4191330937.html

http://impresa.prensa.com/panorama/Terminan-diagnostico-bahiaPanama_0_4195830485.html

http://www.diaadia.com.pa/el-pa%C3%ADs-%C3%BAltimas/alcald%C3%ADa-realizadiagn%C3%B3stico-de-la-bah%C3%ADa-de-panam%C3%A1-271299

http://www.panamaamerica.com.pa/nacion/tecnicos-realizan-diagnostico-para-prevenirinundaciones-en-panama-973240#

http://elsiglo.com/panama/holandeses-evaluan-condicion-bahia/23860010

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http://www.critica.com.pa/nacional/alcaldia-firma-carta-de-cooperacion-con-holanda-389228

http://www.critica.com.pa/nacional/banfield-hay-32-comunidades-inundables-en-la-ciudad388679

www.nexpanama.com/noticias/tecnicos-holandeses-realizan-diagnostico-para-prevenirinundaciones-en-panama-17371

http://www.telemetro.com/nacionales/Realizan-diagnostico-Bahia-Panamainundaciones_0_799720698.html

http://www.telemetro.com/nacionales/Alcaldia-Panama-Embajada-PaisesCooperacion_0_800620399.html

http://www.radiopanama.com.pa/noticias/actualidad/alcaldia-de-panama-y-gobierno-depaises-bajos-firman-acuerdo/20150423/nota/2731750.aspx

http://www.sertv.gob.pa/sertv-noticias/noticias/nacionales/item/28877-alcaldia-de-panama-ymision-holandesa-realizan-evaluaciones-en-zonas-inundables

https://horacero.com.pa/actualidad/tecnicos-holandeses-realizan-diagnosticos-para-prevenirinundaciones-ade.html

http://mupa.gob.pa/noticias/la-alcaldia-de-panama-y-mision-holandesa-realizanevaluaciones-en-zonas-inundables

http://mupa.gob.pa/noticias/holanda-realizara-un-estudio-del-agua-en-el-litoral-marino-de-laciudad-de-panama

http://www.iagua.es/noticias/panama/ministerio-obras-publicas-panama/15/04/01/seconstruye-cajon-pluvial-cerrado-como

http://panama.nlembajada.org/noticias/2015/04/drr-en-panama.html

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http://lac.wetlands.org/Noticias/tabid/999/ID/4132/En-busqueda-de-soluciones-parainundaciones-urbanas-en-Bahia-de-Panama.aspx

http://ciudaddelsaber.org/es/sala-prensa/post/en-busqueda-soluciones-inundacionesurbanas-bahia-panama/1927

http://www.entornointeligente.com/articulo/5750572/PANAMA-Alcaldia-firma-Carta-deCooperacion-con-Holanda-23042015

http://www.entornointeligente.com/articulo/5702584/PANAMA-Banfield-Hay-32comunidades-inundables-en-la-ciudad-20042015

http://www.prensa.com/sociedad/Arrasan-manglaresarena-playasreserva_0_4200330046.html

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ANNEX G – PROPOSED PROCESS FOR THE WATER DIALOGUE.

Water management needs continuous attention. In planning, construction, operation and maintenance, this is not a matter of opportunistic acting upon arising needs but assuring that you are prepared to whatever challenge might occur, be it too much, too little and / or insufficient water quality. Stakeholders have to be involved throughout the whole process. Optimization is an ongoing process Panama City can learn from experiences in other regions and countries. A Water Dialogue provides the platform to initiate and facilitate this ongoing process. It is a learning process, it opens new possibilities for stakeholders to work together and it helps to optimize initiatives on the three levels of water governance (content, institutional, relational) and to close the project cycle of Plan, Do, Check, Act. New financing structures can be identified and innovative techniques can be studied, discussed, approved and implemented. The Dialogue has to be initiated and facilitated by the responsible authority, but carried forward by all stakeholders affecting or being affected by the water system (socially, ecologically and economically). This Water Dialogue is to be initiated by Panama City and this process could be a suitable format for cooperation between the City of Panama and the Dutch Water Sector. During the DRR mission this idea has been opted. The mission of the DRR team can be seen as a first step in the Water Dialogue. Involved partners have indicated that they are convinced that ongoing cooperation can lead to the identification of structural and non-structural (hard and soft) solutions and implementation of measures to limit flood risks. Some of the recommendations of the DRR mission have already been materialized. The Water Dialogue, as a start of sustainable (flood risk) water management should be a process that covers at least a year of cooperation between different stakeholders. The Dialogue will provide the City of Panama with the platform (“the Water Lab”) to start some of the short term actions described in this document and to pave the road for the implementation of the midterm measures. Through ongoing cooperation it will also provide the dynamics to identify additional opportunities to work together (learning by doing), to exchange knowledge and to share information with the objective to limit flood risks in the areas of Tocumen, Pacora and Juan Diáz in a sustainable manner. It will also address responsibilities and cooperation with other authorities that are involved in water related activities. The first DRR mission has provided openings for initial interaction between the different stakeholders. This process of interaction, exchanging knowledge and studying the challenges at hand has to be continued to find the proper solutions and to assure that each stakeholder can and will act according to their own possibilities / mandate. Participants that have to be involved in the Water Dialogue are (amongst others):   

Panama: Panama City, Ministries, Local communities, private sector, NGO’s, Universities, Media Netherlands: Government, Knowledge Institutions, NGO’s, Private sector Others: IFI’s, foundations, Embassies, etc.

It is important to identify the proper roles of these actors in the interactive process. Who is to be kept informed, who to consult, who to involve in the preparation of decision making and who is to make the decisions. DRR-TEAM MISSION REPORT PANAMA CITY, PANAMA

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As indicated above, the Water Dialogue is proposed to cover a period of one year. During this year the program manager and the flood risk management team of Panama City will work closely together with a team of Dutch experts. This should include ongoing interaction including coaching by Dutch experts. Coordination can be done through a Dutch secretariat formed by Wetlands International. With their local representation they could take the lead in the coaching of the FRM-team of Panama City, the coordination of activities and the participation of the Dutch Water Sector. A first estimation would be an involvement of 1 – 2 days per week, to be reevaluated during the process. It is important that Panama City remains in the lead and asks the secretariat wherever assistance and additional knowledge is required. Additionally, during the year a series of sessions (e.g. each three months) could be planned. These meetings will take place in Panama and will allow the Dutch experts to:   

interact with the stakeholders to improve understanding, to strengthen the cooperation between the stakeholders and to reach a common understanding on how to limit risks, how to finance measures and how to distribute the responsibilities to carry out tasks advise on the information / data that has to be collected and the instruments that have to be developed to support sound decision making discuss responsibilities, how to distribute these responsibilities amongst the stakeholders, assist in decision making and identify means to finance the ongoing tasks that form integral part of these responsibilities.

For each meeting it should be evaluated in which way Panama City can be served best. It is essential that the agenda is discussed between the participants of the FRM team of Panama City and the Dutch Secretariat. The Secretariat can coordinate with the Dutch Water Sector to assure that parties can prepare in an optimal manner. The involvement of the Dutch will be based on the direct needs of Panama City. Reports of these sessions have to be action-driven, what are the next steps, who is responsible and when do these steps have to be carried out. The dialogue focusses on agreed understanding of the water problems. This may include agreed steps to take further actions such as the setting up of a design competition through which innovative solutions may be mobilized. Participants in the dialogue may agree on the principle of new publicprivate funding of water measures. A design competition can be targeted towards effective design & setting up of such measures. From the Panamanian as well as from the Netherlands side commitment is needed. Financial resources have to be identified to guarantee the implementation of this program over the full timeframe agreed upon. A detailed description of the activities during the Water Dialogues have to be developed. This has to be accompanied with an estimation of the costs. This will allow for establishing an agreement on how the included activities are to be financed by the different parties involved in the Water Dialogue. A commitment for a program as suggested will allow for in depth analysis of the challenges at hand. It will allow for a serious identification of opportunities to work together and it will provide the stakeholders the required understanding of the full range of issues comprised by water governance to establish a broadly supported road map towards flood risk management in the three catchments aforementioned. This experience and the road map can be used as lessons learned to be applied to other catchments and other water challenges in and outside Panama City.

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The DRR team recommends that the Vice Mayor of Panama City and the RNE continue to discuss the possibility to extend cooperation by means of a Water Dialogue, how this Water Dialogue can be detailed further, to align the stakeholders to be involved, to elaborate a budget and to identify the potential sources for these funds (Panama City, Dutch Government, IFI’s, Foundations).

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