Resilient Cities Urban Disaster Risk Management in Serbia

Partners

Editors Dr.-Ing. Josefine Fokdal Dipl.-Ing. Carsten Zehner Authors Bojana Antić Hoda Arminian Sheryta Arsallia Javier del Río Arteaga Jovana Bugarski Kurt Eduardo Steffens Bustos Maria Dolores Mazorra Cebrian Khadir Rashid Kairuz Diaz Sara Dević Aleksandra Đorđević Bosko Drobnjak Ana Dušmanović Mohd Farhan Shan Gao Shane O’Hanlon Eliana del Carmen Silva Hernandez Evandro Davi Holz Katarina Kožović Aram Lee Eun Young Lee Yan Liang Anđelina Lučić Ivana Mačkić Mila Madžarević Anastasia Maragdouli Seyedparham Mortazaviian Jelena Radosavljević Nawid Royaee Hicham Sader Cecilia de Fario Sampaio Olivera Šanta Aline Peres dos Santos Jelena Spasojević Achmad Faris Saffan Sunarya Roni Susman Aruho Apollo Tinka

Filip Trgovčević Adele Vosper Qi Yahya Yaqi Zhu Ivan Živadinović Ana Zorić Proofreading Mary Stewart Layout Jens Schulze Print ZeitDruck GmbH, Berlin Edition Berlin, February 2016

ISBN 978-3-9812769-1

Resilient Cities Urban Disaster Risk Management in Serbia

Report on the Results of a Case Study Research Project (2015) Urban Management Program, Berlin University of Technology in Collaboration with University of Belgrade, Faculty of Architecture, Master Program Integrated Urbanism Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH Ambero Consulting Municipality of Obrenovac, Serbia

Resilient Cities

Preface Serbia, as many of its neighboring countries, is located in a disaster prone area. Faced with extreme flooding events in May 2014, Serbia was severely challenged to provide appropriate response on the local level due to at least two aspects: 1) an emergency situation calling for urgent help in the most flooded areas around the rivers Sava and Danube and 2) a strongly centralized political and administrative system with a weak local level due to limited availability of resources, decision-making authority and technical capacities. The latter is a reflection of the dynamics at stake in a post-socialist context. Within this setting, there is a pressing need to consider how to improve the disaster risk management on multiple levels in order to create more resilient municipalities in Serbia as defined by United Nations International Strategy for Disaster Reduction (2012). The municipality of Obrenovac was most heavily affected by the flood events in 2014 and faced the multiple challenges a local government is confronted with when dealing with emergency, recovery and preparedness. The Serbian-German cooperation project ‘Strengthening of Local Land Management in Serbia’ has recognized the demand to work on issues of municipal disaster risk management within its overall objective to support sustainable land management and to enhance steering mechanisms that ensure greater social and ecological benefits in local development. It is supported by the German Federal Ministry of Economic Cooperation and Development (BMZ) and is being implemented by Ambero Consulting on behalf of the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ). The project is divided into two phases, with the first phase from 2010 to 2012 focusing on pilot projects on the local level in cooperation with thirteen municipalities, while the second phase (20122015) is also targeting policy development on the national level.

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The project has initiated an agreement with Obrenovac municipality to work on its case in order to better understand the problems at stake and to develop ideas for possible solutions. The Technische Universität Berlin together with the University of Belgrade were invited to collaborate in this study project. Hence, twenty six students from the Urban Management Program of TU Berlin together with ten students of the Integrated Urbanism Master Program at University of Belgrade had the opportunity to work together in a common project which culminated in a ten days workshop on ‘’Resilient Cities: Urban Disaster Risk Management in Serbia“ in April 2015. The students of the Urban Management Program (TU Berlin) and of the Integrated Urbanism Program (University of Belgrade) are a very heterogeneous group representing seventeen different nationalities (Afghanistan, Australia, Brazil, Chile, China, Columbia, Greece, India, Indonesia, Iran, Ireland, Lebanon, Serbia, South Korea, Spain, Uganda and Venezuela). In addition, the students from the Urban Management Program possess multidisciplinary professional backgrounds (university degrees in urban planning, architecture, engineering, geography, economics, political science, management, journalism and public health) and have practical experience in the public as well as in the private sector in their respective home countries. The collaboration between the Urban Management Program and the GIZ builds on good experiences within a long-standing working relationship. Since 2003, GIZ staff has been deeply involved in teaching in the Urban Management Program, e.g with the senior expert Prof. Günter Meinert, who is an honorary professor of the program. In addition to the close collaboration in the classroom, fieldwork has been conducted in cooperation with GIZ throughout the years.

Preface

Cooperation in the field includes projects in Syria (2007), Montenegro (2008), Bangladesh (2009), Egypt (2010), Ukraine (2011), Nepal (2012), Turkey (2013) and Italy (2014). In contrast to previous years, however, this year’s cooperation is unique due to the cooperation of four main partners: the Municipality of Obrenovac, the GIZ project with Ambero Consulting, the University of Belgrade and students from their Masters program ‘Integrated Urbanism’, as well as students from the Urban Management Program at the Technische Universität Berlin. This report is a common product of the collaboration. It is structured into three major parts. The first part introduces the topic of disaster risk management in the Serbian context. Moreover, it provides a background on the flooding events of 2014 in Obrenovac and the responses organized by students of the University of Belgrade. The second part presents the analytical findings based on the ten essentials leading towards an integrated SWOT analysis. In the third part the conceptual ideas for improved disaster risk management in Obrenovac are presented for each of the five key intervention areas. We would like to express our deepest gratitude to all people who have supported this project. For his trust and engagement we owe great thanks to Harald Müller, team leader of Ambero Consulting implementing the Serbian-German cooperation project ‘Strengthening of Local Land Management in Serbia’ on behalf of the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) with support of the German Federal Ministry of Economic Cooperation and Development (BMZ). Moreover, we wish to thank the entire project team for their support and dedication. A special thanks goes to Dr. Ratka Colic, national expert on urban planning, for her valuable contributions, guidance and coordination.

The cooperation with the University of Belgrade was a true enrichment to the project for which we greatly thank the Dean of the Faculty of Architecture Prof. Dr. Vladan Đokić. For their tireless support and great collaboration we would like to thank the much appreciated colleagues Ass. Prof. Ph.D. Marija Maruna (Head of the Integrated Urbanism Program), Ass. Prof. MSc Ksenija Lalović (Head of the collegiate of the Integrated Urbanism Program) and Danijela Milojkić (Secretary of the Integrated Urbanism Program). A very special thanks goes to the junior mentors Aleksandra Djordjevic, Jelena Radosavljevic, Jovana Bugarski and Ana Dušmanović. The municipality of Obrenovac warmly welcomed our group and dedicated a great deal of time and energy to support the cooperation project for which we want to thank Miroslav Čučković, Mayor of Obrenovac. A special thanks goes to Vesna Đoković, head of department of City Planning in Obrenovac for her intense support throughout the process. Many thanks to all the local experts who worked with the teams and dedicated their time and engagement to the project. We also wish to express our deepest gratitude to all the local residents in Obrenovac, who were willing to shared their traumatizing experiences with us and who made this project possible. Last but not least we want to thank all the students of the Urban Management Program and the Integrated Urbanism Program for their great commitment and inspiration to this project.

Josefine Fokdal and Carsten Zehner

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Resilient Cities

Foreword

Cover Obrenovac after the Flood Events Photos: Dragan Lazarevic, Vukasin Ljustina, Djordje Skoric (Background picture and details)

Discussion with the Mayor and Municipal Administration in Obrenovac Photo: Carsten Zehner

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Climate change and ongoing urban growth are the main causes increased disaster risk in urban areas. Extreme weather situations such as longer dry periods or more heavy rainfalls demand adaptations in the planning and management of our cities. The 2014 flooding disaster in Serbia dramatically illustrates the importance of being prepared for emergencies and in a position to react quickly. It also shows that we need to make our cities more resilient, or in other words, less vulnerable to such weatherrelated hazards. Preventive climate protection is today an essential task of sustainable urban development and needs to be a part of professional education in spatial and urban planning and management. Given that the introduction of new contemporary urban planning instruments is a key task of the GIZ project “Strengthening of local land management in Serbia” we were happy to support the initiative of the University of Belgrade, the Technical University of Berlin and the Municipality of Obrenovac to

implement a joint study project on Urban Risk Management in Obrenovac. It was the first time that such a “trilateral” project had been undertaken in Serbia. Bringing students from different countries together with local practitioners from planning and administration was a challenging task for everyone and no one knew how it would proceed. But in the end the gamble paid off. It was exciting to see how committed all the participants were and to witness the hard work they put in in order to produce a piece of work from which all could benefit: the municipality, the students, the teachers, the universities and ultimately all interested practitioners and planners. The report before us lays out the results achieved and impressively documents the diversity of tasks related to Urban Risk Management. I hope the report can provide some fresh impetus for education, research and practice. Harald Müller, Team Leader of AMBERO Consulting Gesellschaft mbH, on behalf of GIZ

Foreword

Foreword The classes were designed with the purpose of as a searching for solutions to important issues caused by the climate change. In addition to the possibilityAs well as being given the chance to develop their own opinions on the subject, the students were also ablehad the chance to lhearn more about disaster risk management, planning systems and, spatial and urban planning, as well as the consequences of the catastrophic 2014 flooding in Obrenovac, from the visiting teaching staff and consultants involved. in This is the second year in a row that the University of Belgrade Faculty of Architecture has collaborateds with the GIZ/AMBERO ICON Project “Strenghtening of Local Land Management in Serbia” by introducing innovative methods and study programmes. During the academic year of 2014/2015, the students of the master’s programme Integrated Urbanism Master Program at the Faculty of Architecture were given, having the topic of “Resilient Cities – Disaster Risk Management” as the subject of their master’s project, were given the opportunity to devise their master’s the project.

By following the current developments in the field of climate change in interdisciplinary collaboration with both international and local practioners, the students have developed their master’s projects with an understanding of complex participatory processes and their application during extreme weather conditions. Taking the characteristics of the subject area as well as the natural, socio-economic, geopolitical and cultural context as a basis, the students – supported by their mentors – delivered projects characterizsed by the high quality of the proposed solutions. The customizsation of the existing models, as well as the design and proposal of new models and ways to implement them, providmake a step forward towards newfurther and deeper insights into problems associated withthe climate change problems. Dr. Vladan Đokić, Dean, University of Belgrade Faculty of Architecture

The climate change and its effects are very complex and urgent problems facing the world of today. The challenge of the climate change adaptation lies in formulating locally specific policies, especially in developing countries, since they are more affected and less resistant to climatic hazards. A series of extreme weather situations, includingeven flooding in Obrenovac, has casted the light on the vulnerability of the cities to the effects of climate change effects. Locally relevant subjects were analyzsed and researched inunder real circumstances, then furtherly developed in collaboration with teachers and acknowledged professionals in relevant fields.

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Table of Contents Preface Forewords List of Abbreviations

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PART I: INTRODUCTION 1

Disaster Risk Management in Serbia and Flooding in Obrenovac Municipality

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2

Student initiative “New Housing Models for People Threatened by Floods”

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3

Methodology of the Cooperation Project

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PART II: THE 10 ESSENTIALS OF RESILIENCE ANALYSIS OF OBRENOVAC

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4

Institutional and Administrative Framework (1)

31

5

Financing and Resources (2)

39

6

Multi-hazard Risk Assessment - Know Your Risk (3)

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7

Infrastructure Protection, Upgrading and Resilience (4)

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8

Protect Vital Facilities: Health and Education (5)

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9

Building Regulations and Land Use Planning (6)

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Table of Contents

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Training, Education and Public Awareness (7)

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11

Environmental Protection and Strenghtening of Ecosystems (8)

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12

Effective Preparedness, Early Warning and Response (9)

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13

Recovery and Rebuilding Community (10)

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14

Integrated Analysis and identification of Conceptual Working Areas

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PART III: CONCEPTS FOR RESILIENT OBRENOVAC 15

Strategic Framework

101

16

Open Spaces for Protection

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17

Resilient Technical Infrastructure

133

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Resilient Vital Facilities

149

19

Resilient Housing

159

ANNEX References Lists of Figures/Tables/Maps List of Interviews Personal Profiles

171 179 181 182 9

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List of Abbreviations

Right Page Rescue Photo: Vukasin Ljustina

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BMZ CBO CHP CRACM DDOR DOE DPPI SEE DRM EcoTax EFD EPA EU EU WFD GDP GIS GIZ HUD HVS IPA ISO JICA JKP/JPZ LACCDR LEAP MDTF NGO NYSERDA OECD PPP RHMSS RSD SAP SECO SEM TENT UN UN Habitat UNDP UNISDR WMO WWF

German Federal Ministry of Economic Cooperation and Development Community Based Organisation Combined Heat and Power Center for Risk Analysis and Crisis Management Novid Sad Insurance U.S. Department of Energy The Disaster Preparedness and Prevention Initiative for South Eastern Europe Disaster Risk Management Ecological Taxation EU Floods Directive U.S. Environmental Protection Agency European Union EU Directive on Water Management Gross Domestric Product Geographical Information Systems Deutsche Gesellschaft für Internationale Zusammenarbeit U.S Department of Housing and Urban Development Housing Vulnerability Scorecard European Union Instrument for Pre-Accession Assistance International Organisation for Standardization Japan International Cooperation Agency Public Utility Company in Obrenovac Los Angeles County Community Disaster Resilience Local Environmental Action Plan Multi-Donor Trust Fund Non-Governmental Organisation New York State Energy Research and Development Authority Organisation for Economic Cooperation and Development Public-Private Partnership Republic Hydrometeorological Services of Serbia Serbian Dinars Strategic Action Plan Swiss State Secretariat for Economic Affairs Sector for Emergency Management Thermal Electric Nikola Tesla United Nations United Nations Programme for Human Settlements United Nations Development Programme United Nations Office for Disaster Risk Reduction World Meteorological Organization World Wide Fund for Nature

Resilient Cities

Part I: Introduction

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Disaster Risk Management in Serbia and Flooding in Obrenovac Municipality

1 Disaster Risk Management in Serbia and Flooding in Obrenovac Municipality

Authors Ratka Čolić Ksenija Lalović Marija Maruna Danijela Milovanović Rodić

1.1

General context

The catastrophic floods which engulfed Serbia in 2014 and caused enormous damage to people and the environment drew attention to the necessity of building an all-encompassing risk management system and accepting the concept of resilience as a key framework in the area of spatial planning and development. This implies the development of a solution based on improving the capability of cities and communities to resist, absorb, adjust and recover from the consequences of disasters in a timely and efficient manner. Risk management as a discipline includes preparation for disasters before they happen, response to the disaster and support after the disaster to allow society to recover. A resilient system requires a set of disposable resources and the capacity to respond to disasters, including the ability to produce and implement efficient adaptation strategies and to use them in order to cope with present or future incidents. Disaster risk management is conditioned not only by economic and technological capacities but also by social capacities such as human capital and management structure. This refers primarily to the need to establish an appropriate institutional framework with a clearly defined system of competencies and responsibilities, as well as to the adoption of adequate, strategically oriented development policies.

Last Pages Flood Event at Night Photo: Dragan Lazarevic Left Page Flooded Obrenovac Photo: Lazar Lazarevic

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Resilient Cities

The idea is to accept the decision-making concept in conditions of uncertainty, where specialized knowledge, instruments, capacities and resources related to the adaptation aspect play a crucial role. Efficient risk management is also based on the integration of activities undertaken by different institutions, private sector organizations and the community. Accordingly, the decision-making processes should include the establishment of a favourable climate for joint actions towards resilience. The creation of a strong institutional and administrative base requires the establishment of an appropriate legal framework for the improvement of resilience and risk reduction, as well as the strengthening of horizontal and vertical coordination between different sectors at the national, regional and local level. Serbia is characterized as an area prone to natural hazards, its vulnerability compounded by a climatechange-caused increase in the number of disasters (2012)1. Geophysical hazards threatening Serbia are earthquakes2 and landslides3, and meteorological hazards include floods, droughts and heatwaves. Severe weather in the region is (UNDP & EC, 2013) connected with climate change. Compared to the geophysical hazards, these incidents occur more frequently and emerge at all levels4. All this, combined with inadequate institutional capacities and significant socio-economic and spatial vulnerabilities, makes Serbia a state with an increased disaster risk (Gencer, 2014).

The most important strategic documents are: National Disaster Risk Management Program (2014)5 represents a framework for developing programs for protection against natural disasters and for the implementation of activities related to risk reduction and its management. It envisages the enhancement of disaster risk management systems, as well as an examination of existing practices, the improvement of current working methods and the introduction of new approaches. The program also defines different financing mechanisms in order to make “mobilization of financial assets from international donors and coordination between donors and key stakeholders“ easier. Among the components of the program are the strengthening of institutions, the improvement of knowledge and the development of financial tools in the area of disaster risk insurance. National Strategy for Protection and Rescue in Emergencies (2011)6 was formulated on the basis of the Hyogo Framework, which confirms the policy of Serbia in the area of disaster risk reduction. Pursuant to the report on Implementation of the Hyogo Framework in the Republic of Serbia, progress has been achieved in the area of legal harmonization, particularly within the Planning and Construction Law and the Residential Property Maintenance Law. The strategy also defines as compulsory the devel-

1

Procena ranjivosti na klimatske promene – Srbija. Beograd:

Centar za unapređenje životne sredine. (Assessment of climate change

Over the last year, Serbia has made a significant effort to improve disaster risk management, and a number of activities for further development and improvement of system resilience are underway at the moment. Activities related to the incorporation of disaster risk reduction issues in the field of urban and spatial development management, both at the national legislation level and at the level of implementation in the local community, have started. The amendment of regulations and their harmonization, as well as instrument and human capacity development for their implementation, especially at the local level, are still proceeding.

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vulnerability – Serbia. (2012). Belgrade: Environment Improvement Center.) 2

The Southeast Europe region is recognized as very prone to earthquakes

(UNDP & EC,2013). On the territory of Serbia there are zones endangered by earthquakes of great intensity (Radovanović, 2015). 3

Sources of national institutions are specifying that 30% of Serbian territory is

endangered by landslides (KLIZIŠTA, 2015). 4

Floods seize big watercourses, including the biggest settlements, agricul-

tural land of the best quality, significant public infrastructure and industry. According to the WMO (2012) reports, the area prone to floods covers the area of 1, 6 million hectares with about 500 bigger settlements, 1.200 km of railways and 4.000 km of roads. 5

RS Government Office for Aid and Reconstruction in Flooded Areas

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National Assembly of the Republic of Serbia

Disaster Risk Management in Serbia and Flooding in Obrenovac Municipality

opment of a National Action Plan within six months of adoption of the strategy. However, the action plan has not yet been developed. The Republic of Serbia has adopted laws important for the regulation of risk management, which – since the country is a candidate for EU membership – are in harmony with corresponding EU legislation. Some of the most important laws are: Law on Emergency Situations (2009, 2011) – As well as the declaration and management of emergency situations, this law also regulates the system for the protection and rescue of people, material, cultural goods and the environment in the event of a natural disaster. It defines a set of preventive measures aimed at strengthening community resilience, the elimination of possible causes of endangerment and disaster impact reduction. It introduces the principle of preventive protection, thus binding the national administration and local governments to implement preventive protection measures according to their competencies. Preventive measures also include risk and vulnerability assessment measures for reducing risks from different disasters. Law on Waters (2010) is harmonized with the EU directive on water management (EU WFD) and the EU floods directive (EFD). Nevertheless, this law has shifted the responsibility for most stream flooding on to local governments (since they are now responsible for “second category” water courses). Local governments often lack the technical knowledge and financial resources necessary to implement this law and undertake all necessary measures. This further contributes to flood risk, especially in mountainous regions. Law on Meteorological and Hydrological Activities (2010) includes the strategic priorities of the World Meteorological Organization (WMO). This law provides the legal framework for weather forecasting, early warning systems and the use of information related to weather and climate in order to assess risk.

Planning and Construction Law (2014) – Within the principles of planning, development and use of space, this law defines the duty to prevent technical and technological accidents, to ensure fire and explosion protection and protection from natural disasters, to eliminate causes of climate change, as well as the obligation to conform to European regulations and standards in the field of spatial planning and development. The report of the European Commission on Serbia’s Progress to EU Accession (2014)7 emphasizes the lack of a comprehensive national climate policy and strategy, as well as the fact that only modest progress has been achieved in this area and that little has been done in the way of addressing priorities. It was emphasized that disaster risk reduction and disaster management should be treated as a priority, through the development of civil protection, which is the reason why the Republic of Serbia was invited to join the EU Civil Protection Mechanism. According to the report, Serbia has not made progress in the development of horizontal legislation in the field of environment and climate change, whereas improvements in environmental reporting are in constant advancement. The report underlines the need for: innovation of waste management practices, strategic planning of investments for water pollution reduction (i.e. the creation of a national strategy for water protection), capacity building in the area of agriculture, environmental protection and the application of a large body of EU legislation related to water and risk management against industrial and chemical accidents, as well as the rapid improvement of systems and infrastructure for flood prevention and water management. The analysis of relevant documents and legal regulations showed that a risk reduction initiative does exist and has been recently initiated also at the local level.

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Government of the Republic of Serbia, European Integration Office,

http://www.seio.gov.rs/dokumenta/eu-dokumenta.211.html

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Regarding the implementation of legislation related to disaster risk management, the Republic of Serbia remains largely focused on emergency response, while the concept of preparedness and risk reduction has still to be implemented. 1.2

Floods in Obrenovac

The area of Obrenovac is a mining/power-supplying/ industrial zone of the greatest national significance, site of the most dense grid of electro-energetic infrastructural objects in Serbia. With its coal-fired power plants and coal ash landfills as black points, it is a polluted, environmentally degraded area. Before the floods of 2014, environmental pollution was seen as one of the main risks, so it was appointed a priority site for rehabilitation through pollutionreducing projects, by flue gas desulphurization at the TENT B plant and by decinisation at the TENT-A plant. Rural settlements directly threatened by ash disposal sites and landfills and others endangered by landslides and frequent floods were transformed and deagrarized. Obrenovac is a town (72000 Inhabitants; 410 km²) surrounded by the Rivers Tamnava, Kolubara and Sava. During the flooding, Obrenovac was completely under water after the Rivers Trstenica (a tributary of the River Tamnava) and Kolubara broke their banks a dozen kilometers upstream of the city. In some parts of the flooded areas, the water reached a height of several meters in a short time. The Sava embankment then came loose at two locations, so that the water from the flooded areas burst out into Sava river, thanks to the extremely unfavorable terrain configuration – some settlements are built on very low-lying land, in the abandoned backwaters of rivers, from which the water had to be pumped out. The floods in Serbia took human lives, inflicted a great deal of damage and caused huge losses. In Obrenovac alone there were 17 dead and 25,000 people temporarily displaced after the floods. The first estimates, compiled by the EU in the immediate aftermath of the disaster, stated that the damage and losses amounted to more than 1.5 billion euros; this figure was later revised to 2 billion euros. The

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cost of repairing the consequences of the disaster is estimated at 1.346 billion euros, of which 30% for recovery (financing assistance to vulnerable citizens to renew their personal household income, to restore the level and availability of basic healthcare, education, water and sewerage services, and to restore productivity in agriculture, industry, trade, tourism, etc.) and 70% for reconstruction (financing of repairs and renewal of destroyed or damaged infrastructure, according to disaster-resistant standards and conditions). In Obrenovac, as in other towns in Serbia (24 in all), the floods were the result of the interaction between natural and anthropogenic factors. The main natural cause was extreme precipitations which showed levels of a one-hundred or even one-thousand-year flood probability. There are more anthropogenic factors: one of the most important was the lack of communication between some flood protection institutions regarding warnings of heavy rain and water levels above the extraordinary emergency limit. Also to blame were the incompletely developed river flood defense system and the poorly maintained and regulated riverbeds and embankments. Stream floods and their consequences revealed systemic weaknesses, from a lack of investment in erosion protection and reforestation, weaknesses of spatial and urban planning and illegal construction along the urban watercourses, to the improper disposal of waste, contributing to a reduction in the leakage power of watercourses and to drastic water pollution.

Disaster Risk Management in Serbia and Flooding in Obrenovac Municipality

1.3

Recommendations

Bearing in mind the recent experiences of Obrenovac and other settlements in Serbia affected by floods, it is important to draw attention to a few key aspects of risk disaster management: the integration of development policies and strategies at the national level, decentralization of competencies, responsibilities and resources, preservation and development of the professional capacities for disaster risk management at all administration levels and the allocation of resources for improving disaster risk management. Seen from the point of view of disaster risk management at local level, which requires an urgent and proactive approach, it is important to emphasize the need to encourage and establish broader local autonomy in the process of creating policies and strategies for disaster risk reduction, to establish better intersectoral cooperation at local level and to develop partnerships with neighboring municipalities, to increase the exchange of information, knowledge and experience with relevant institutions and stakeholders, and to specify competencies, responsibilities and procedures in the risk management process.

- Improvement of local planning and management practices through the development of locally specific short-term and long-term models and instruments towards resilience, including the long term monitoring and evaluation of their application - Finding locally and regionally specific programs to raise awareness and to develop public communication and a culture of sustainability and resilience The floods which struck the region in May 2014 are the main indicator of the state in risk management sector, and the example of Obrenovac is a good testing ground for analyzing management practices in natural disaster conditions.  

Such a proactive approach by local authorities, in close cooperation with competent national institutions, could bring multiple social benefits: - - -

Formulation of national programs and action plans based on actual and specific local needs Strengthening the capacities of local governments and all social sectors to act proactively and take responsibility for the safety and quality of life Strengthening and restructuring of compe- tent national institutions, focusing on coordination and delegation of authorities to the local and regional levels

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Student Initiative “New Housing Models for People Threatened by Floods”

2 Student Initiative “New Housing Models for People Threatened by Floods”

Authors Jovana Bugarski Aleksandra Đorđević Ana Dušmanović Jelena Radosavljević Ana Zorić

The following article introduces an initiative by students of the Faculty of Architecture, University of Belgrade, taken immediately after the floods in May 2014. Although not a formal part of the collaboration project presented in this report, the engagement of the students and their achievements have been a source of inspiration. 2.1

Introduction

During May of 2014, heavy rainfall led to a rapid and unexpected increase in the water levels of the main rivers of Serbia, producing floods which affected up to 80% of the land belonging to the municipality of Obrenovac (World Bank, 2014). During that time, the citizens of Serbia showed great humanity, which resulted in various collective actions and displays of voluntarism across the country. As students, we did not have a lot of money, food or clothes to donate to the people who needed them most. What we had and were glad to donate, were our energy and knowledge.. We were very keen to help the people and make ourselves available to them, to organize and help with the repair of houses and the rebuilding of the communities after the floods. With this in mind, we invited our colleagues from the Faculty of Architecture, University of Belgrade, and wrote a letter to our professors to establish an initiative and start reacting to the emergency situation. One of the main problems identified and to which we could contribute with a possible solution, was housing.

Left Page Workshop impressions Photo: Authors

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Consequently, the initiative was named “New Housing Models for People Threatened by Floods“.

promoting cooperation between the various interested individuals and institutions.

In order to quickly create a network of students, we chose Facebook as an active platform for the mutual exchange of information, good practices, ideas and suggestions for future activities under the Initiative. After the initial organization of students through social media, the initiative was presented at the teaching staff meeting of the Faculty of Architecture, held on May 18th 2014, only four days after the floods and while most of the flooded area was still inaccessible. To ensure the effectiveness within the initiative, working group of professors and students were formed the same day.

At the beginning, we set the main goals of the expert meeting as education and the opening of a multidisciplinary theoretical discourse as a starting point for developing a methodology in the process of reconstruction of areas threatened by natural disasters. The expert meeting was organized as a one-day event during which lectures were held by professors and representatives of relevant institutions responsible for acting in the event of natural disasters.

2.2

Establishment of initiative and realization

In order to create a rapid response to the situation and to react in an effective manner, one of the first steps taken was the setting up of a database of all participants and their skills. By filling out the online questionnaire, participants provided their personal contact information, as well as details of previous work experience, knowledge of foreign languages, readiness to carry out fieldwork and organizational skills which we considered important for further action within the initiative. Along with this data collection, the working groups sent an official letter to the government of the Republic of Serbia and to the line ministries concerned in the name of the Faculty of Architecture. The goal of this letter was to establish communication with the relevant institutions and to offer our expertise directly to the country and municipalities in need. During the first period of the initiative, information technology, such as social media, played a large role in allowing the exchange of information, ideas and suggestions in real time. As a result of “online brainstorming” and meetings between working groups and the student organization “Letnja Škola Arhitekture” (Eng. “Architecture Summer School”), the idea of an expert meeting and workshops emerged. Accordingly, an expert meeting and workshops were recognized as being the best platforms for the dissemination of knowledge and for

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The agenda of the expert meeting was created according to earlier research contained in the UNISDR 2012 annual report in order to develop essential knowledge in risk management, planning and design in high-risk areas (UNISDR, 2012). Following that report, three sub-topics concerning the time before, during and after floods were defined. We invited professors from five different faculties: Faculty of Civil Engineering, Faculty of Forestry, Faculty of Technology and Metallurgy, Faculty of Mining and Geology and Faculty of Architecture, as well as representatives from the Jaroslav Černi Institute for Water Management, the Statistical Office and a GIS Data company. The expert meeting was opened by the Deputy Prime Minister of the Republic of Serbia and the Minister of Civil Engineering, Transport and Infrastructure, Zorana Mihajlović PhD, and followed by the Dean of the Architecture Faculty at Belgrade University. Experts held fifteen lectures on the planning, design and construction of settlements vulnerable to floods and landslides. The main conclusions of the expert meeting were the importance of prevention, information, awareness raising and the need for multidisciplinary approaches, which altogether presented a pre-step for several later workshops. The three-day workshops were organized with new housing models as the main topic. These workshops were organized by twenty mentors, professors, assistants and associates of the Faculty of Architecture, who suggested different aspects of the problem of housing in the wake of natural disasters. As a result, seven workshops were created, each with a different

Student Initiative “New Housing Models for People Threatened by Floods”

approach to the same problem. Students had a chance to gain insight into the multidisciplinary approach of planning and design in high-risk areas and to include that knowledge in designing and developing new housing models for people threatened by floods. More than 130 students of various levels of study participated in the workshops and worked in teams on creating conceptual designs for projects of temporary and permanent housing units, planning scenarios for housing in situations of emergency and researching ways to implement these projects and provide funding resources. The students’ approaches to the problem of housing in an emergency situation were based on prefabrication, use of local materials, the possibility of improvement according to the citizens’ financial possibilities, and an examination of the minimum and optimum standards of housing in order to achieve a certain degree of quality of life. In addition to problems of housing after natural disasters, some workshops also highlighted the importance of healthcare after and during floods and the temporary and rapid reallocation of elderly, sick and injured people and developed scenarios to be followed in those situations. This four-day action resulted in the production of conceptual designs for twenty residential buildings, eight mobile checkpoint projects for public health preservation in extreme situations, typology of housing in emergency situations and three ideas for reconstruction projects financed by different identified funds. These results were just the beginning of dealing with the problems associated with housing for people threatened by floods, the aim being to illustrate the importance of strategic thinking on the topic of housing in emergency situations in future city development. 2.3

Results of the initiative

A presentation of the preliminary workshop results was held on the last day of the workshop in the amphitheater of the Faculty of Architecture, University of Belgrade. The presentation was followed by a discussion of further objectives within

the Initiative, which threw up the idea of publishing an account of the process and the results of the workshops. Over a period of ten days, students prepared posters and designed publication presented on the digital publishing platform Issuu, which made it available to different groups of users from various regions (Issuu, 2014). Official statistics showed that most of the people who read it were from the areas threatened by the floods - Serbia, Bosnia and Herzegovina and Croatia. As well as working onthe publication design, the “Građanske inicijative” NGO (Eng. “Citizens’ Initiatives“) prepared a transcript of the lectures. The basic idea was to create a publication that would contain articles presenting the results of the experts’ scientific research along with student work produced during the workshops. The following year, the initiative received an honorable mention at the 23rd Urban Planners Exhibition (Salon urbanizma, 2014) and received the special recommendation and support of the council of the 37th Salon of Architecture for Affirmative Action in Architecture (Salon arhitekture, 2015). The initiative was presented as part of an additional program of the salon and was followed by a discussion of the results of the initiative and the operational capacity of the profession for acting during times of natural disaster. After an exhibition held for the professional community, we were given the chance to present our results to the citizens of Obrenovac, for whom, from the beginning, the initiative was intended. Another result was the inclusion of these topics in the Faculty of Architecture curricula and the opportunity given to the student initiators to participate in the teaching of master projects on the Integrated Urbanism Master Program. In addition to these results, it is important to emphasize all the indirect results that accrued from the initiative, such as joint action and the contribution of students of different study levels, plus the enthusiasm and dedication of more than 200 young architects and urban planners motivated by simple humanity. This led to a raising of awareness and the creation of a knowledge database for the planning and design of cities threatened by floods.

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Methodology of the Cooperation Project

3 Methodology of the Cooperation Project

Authors Josefine Fokdal Carsten Zehner

The municipality of Obrenovac was heavily affected by the floods in May 2014 and is currently in the process of rebuilding and recovery - economically, socially, physically and psychologically. The scope of the collaboration was to jointly understand the related challenges and to develop ideas and concepts for enhancing the resilience of the municipality through disaster risk management. Conceptually, the study project was oriented along the framework for resilient municipalities developed by the United Nations Office for Disaster Risk Reduction (UNISDR) and more particularly on the guideline “How to Make Cities More Resilient?” (UNISDR 2012). This framework proposes a process of five steps to make cities more resilient:

1) Preparing to Incorporate the ten essentials 2) Diagnosis and Assessment of the City’s Risk 3) Developing a Safe and Resilient City Action Plan 4) Implementing the Plan 5) Monitoring and Follow Up

The project’s approach has been developed on the basis of that and has followed the first of these proposed steps in order to produce inputs to the continuation of this process. Left Page Discussion Photo: Carsten Zehner

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Resilient Cities

The overall working process started in February 2015 and was divided into three phases. During the preparation phase, the Urban Management students studied a comprehensive selection of materials on related topics such as disasters in Serbia, the governance system, post-socialist transition, local land management etc. Moreover, ten small groups of students analyzed the ten essentials specified by the UNISDR (2012) as key topics for creating resilient municipalities: 1) Institutional and Administrative Framework 2) Financing and Resources, 3) Multi-hazard Risk Assessment 4) Infrastructure Protection, Upgrading and Resilience 5) Protect Vital Facilities: Education and Health 6) Building Regulations and Land Use Planning 7) Training, Education and Public Awareness 8) Environmental Protection and Strengthening of Ecosystems 9) Effective Preparedness, Early Warning and Response 10) Recovery and Rebuilding Communities

Right Page Visiting the Area where the Flood occured Photo: Carsten Zehner

26

The research of these topics included a general study on state-of-the-art approaches, secondary data on the current situation in Obrenovac as well as guiding questions for the upcoming field study. In parallel, the Integrated Urbanism students developed essays on the ten essentials and further investigated the local context in relation to these issues. In the second phase, a joint workshop with all students and the four cooperation partners took place in Serbia between April 17th and 29th 2015 at the Faculty of Architecture (University of Belgrade) and in the municipality of Obrenovac. During the workshop, the students continued their work in mixed groups. The first half of the workshop was dedicated to the analysis of the current situation in Obrenovac. To this end, the preliminary findings of both the student group from Belgrade University and the student group from TU Berlin on the ten essentials were presented, discussed and combined. Moreover, these findings were complemented through refined guiding questions, which were used to gather

further primary information through fieldwork in Obrenovac. Hence, the students visited the municipality to study the area and to meet different local stakeholders from the public and private sector as well as from civil society. Through different methods such as interviews, observations and surveys further information was collected by the different groups for each of the ten essential topics. After completion of data collection and analysis, the findings for each essential were presented, discussed and assessed in a comprehensive and integrated SWOT analysis, which combined all findings from the ten essentials in one general framework. Based on this, five topics of key priority were identified for which conceptual ideas were developed during the second half of the workshop. Thus, five new and mixed student groups were formed to work on:

1) Institutional framework 2) Resilient open space 3) Resilient infrastructure 4) Resilient vital facilities 5) Resilient housing

The task was to develop a series of conceptual ideas for enhancing the resilience of Obrenovac through disaster risk management with the focus on each of these five key topics. Finally, the results were presented in Obrenovac to the Mayor, administrative staff members and other local actors involved in the process and feedback was provided. After the finalization of the workshop, the mixed student groups further elaborated and consolidated their proposed concepts according to the feedback provided by local stakeholders. Moreover, both analytical findings and conceptual proposals are documented and published in this report. The objective of this report is to present the concepts as a contribution to open up a debate on disaster risk management and resilience in Obrenovac. It is recommended to initiate a follow-up process in Obrenovac in order to complete the five-step process suggested by UNISDR to make the city more resilient. In this context, the proposals should be seen as inspirational inputs to be critically considered and tested.

Resilient Cities

Part II: The 10 Essentials of Resilience Analysis of Obrenovac

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Essential 1: Institutional and Administrative Framework

4 Essential 1: Institutional and Administrative Framework

Authors Katarina Kožović Andjelina Lučić Seyedparham Mortazavian Adele Vosper

4.1

Introduction

The fact that each year more than 226 million people are affected by natural disasters suggests that cities and their communities need to be resilient and ready to face the threat of natural disasters (UNDP, 2012). Rather than aiming to prevent the occurrence of a natural disaster, resilience refers to “the ability of a system, community or society exposed to hazards to resist, absorb, adapt, and recover from the effects of the hazard in a timely and efficient manner” (UNISDR 2012:85). As its name suggests, the first essential, “Institutional and Administrative Framework”, involves establishing a mechanism for overarching organization and coordination of disaster risk reduction and preparedness (UNISDR 2012). In doing so, it is important that a holistic approach is taken, with representatives from civil society, the private sector and government departments participating in all elements of disaster risk reduction and preparedness (UNISDR 2012).

Last Pages Everyday Life with the Flood Photo: Lazar Lazarevic Left Page Discussion with the Planning Department of Obrenovac Photo: Carsten Zehner

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Resilient Cities

In its handbook for local government leaders, the United Nations Office for Disaster Risk Reduction (UNISDR) lists four key actions under this essential (UNISDR 2012): a) Establish or strengthen the city-level institu- tional and coordination capacity b) Establish a legislative framework for resilience and disaster risk reduction c) Coordinate all emergency services within the city d) Create alliances and networks beyond the city

Emergency Situations, which integrates the concept of risk reduction; and the Law on Fire Protection. The system for emergency management in Serbia is regulated by the Law on Emergency Situations, according to which the Department for Emergency Situations (under the Ministry of Internal Affairs) coordinates the activities of all government institutions dealing with emergency situations. According to this law, municipal governments, such as Obrenovac, have the main responsibility to manage disaster response and recovery. Other relevant laws are listed in the table below.

4.2 Institutional and administrative framework in Serbia and Obrenovac

Laws / Regulations / Decisions

4.2.1 Regional level The Disaster Preparedness and Prevention Initiative for South Eastern Europe (DPPI SEE) is a regional initiative in South Eastern Europe with eleven partners including Serbia (Kešetović & Samardžija 2014). The overall goal of the DPPI SEE is to foster regional cooperation in disaster preparedness and prevention (DPPI SEE n.d.). It aims to contribute to the institutional capacity building of disaster organizations of the member countries. In addition, as this initiative cooperates with international and European organizations like the UNDP and UNISDR, administrations in SEE countries can be linked to these organizations through the DPPI (Kešetović & Samardžija 2014). Concerning the 2014 flood in Serbia, it was not possible to determine if any projects or programs were established according to the DPPI framework. This is not entirely surprising, as there is no mandate to use DPPI mechanisms in times of crisis (Kešetović & Samardžija 2014).

1

The law on Emergency Situations (“Official Gazette of RS”, no.

2

Law on Amendments to the Law on emergency situations (“Off. Gazette of RS”, no. 92/11)

3

Law on Fire Protection (“Off. Gazette of RS”, no. 111)

4

Water Act (Fig. Gazette of RS, no. 30/10)

5

Law on meteorological and hydrological activities (“Off. Gazette of RS”, no. 88/2010)

6

Police Act (“Official Gazette of RS”, no. 101/05, 63/09 - US and 92/11) (only for employees of the Sector of Emergency Situations)

7

The Law on Environmental Protection (“Official Gazette of RS”, no. 135/04, 36/09, 36/09 etc. Law, 72/09 - Dr. Law and 43/11 - US)

8

Defence Act (“Official Gazette of RS”, no. 116/07, 88/09 - Dr. Law and 104/09 - Dr. Law)

9

The Law on Ministries (“Official Gazette of RS”, No. 72/12)

10

Law on capital (“Off. Gazette of RS”, no. 129/2007 and 83/2014 -

4.2.2 National level

Table 1: The Legal Framework for Disaster Risk Management Source: Authors

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In recent years, Serbia has made progress in strengthening the legal framework and institutional capacity to respond in emergency situations. Steps towards the establishment of an integrated system of protection and rescue include the adoption of the following laws: the Law on Emergency Situations; the Law on Amendments to the Law on

Dr. Law)

11

Local Government Act (“Off. Gazette of RS”, no. 129/2007 and 83/2014 - Dr. Law)

12

Law on Planning and Construction (“Official Gazette of RS”, no. 72)

Essential 1: Institutional and Administrative Framework

13

Regulation on establishing a general plan for flood overall plan for the period from 2012 to 2018 (“Official Gazette of RS”, No. 23/12)

Regulation on the content and method of making plans for 14

protection and rescue in emergency situations (“Official Gazette of RS”, No. 8/11)

15

Regulation on the composition and work of headquarters for emergency situations (“Official Gazette of RS”, No. 98/10)

16

Regulation on the implementation of evacuation (“Official Gazette of RS”, No. 22/11)

Regulation on compulsory means and equipment for personal, 17

interpersonal and collective protection from natural and other disasters (“Official Gazette of RS”, No. 3/11)

Guidelines on the methodology for the development of risk 18

assessment - risk and plans for protection and rescue in emergency situations (“Official Gazette of RS”, No. 96/12)

19

Regulations on the organization and method of use of specialized civil protection units (“Official Gazette of RS”, No. 26/11)

20

Gazette of RS”, No. 92/10)

- Program for the reconstruction of damaged family houses - Program for the reconstruction of destroyed family houses - Program for people living in rental apartments - Program for encouraging economic activity

Regulation on Amending the Regulation establishing the Office

4.2.3 Municipal level

Decision on determining authorized and trained legal persons for protection and rescue (“Official Gazette of RS”, No. 36/11)

22

23

In response to severe flooding in the Republic of Serbia in mid-May 2014, the Government of the Republic of Serbia (the Government) established the Office for Reconstruction and Flood Relief by government decree on May 22nd 2014 (Government of the Republic of Serbia 2014). The office was established to coordinate assistance to inhabitants of the flooded areas (Government Office for Reconstruction and Flood Relief n.d.). Its main responsibilities concern the distribution of humanitarian aid, damage assessment, and development, execution and reporting of recovery and construction plans (Government Office for Reconstruction and Flood Relief n.d.). In undertaking its role, the office cooperates with numerous stakeholders, including local governments (Government Office for Reconstruction and Flood Relief n.d.). The Office for Reconstruction and Flood Relief carries out its functions through four main programs (Interview with Ms Olivera Zdravković, head of Department for General Administration, April 22nd 2015):

Decision on the Establishment of the Republic of Staff for Emergencies (“Official Gazette of RS”, No. 75/12)

21

Figure 1 provides an overview of the governance structure in Serbia, responsibilities at each level and the linkages between them.

Decision on the education budget fund for emergencies (“Official

for assistance and rehabilitation of flooded areas (“Official Gazette of RS”, no. 110/2014)

Although quite complex, it is important to have at least a basic understanding of the governance structure of Serbia in order to better understand the response to the 2014 floods.

During and after the floods in May 2014, the Department for General Administration in Obrenovac was responsible for coordinating communication with the Office for Reconstruction and Flood Relief and providing them with essential information. One of their major tasks was to undertake damage assessment and later to distribute financial assistance allocated by the Office for Reconstruction and Flood Relief for reconstruction (interview with Ms Olivera Zdravković, head of Department for General Administration, April 22nd 2015).

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Resilient Cities

34

Essential 1: Institutional and Administrative Framework

In addition, after the flood, a Committee for Emergency Situations was established at both the level of the city of Belgrade and the municipality of Obrenovac. The Mayor of Obrenovac sits on the Committee for Emergency Situations at city level, while the committee at municipal level is comprised of seventeen members from different sectors (e.g. fire department, education and the power plant) (Interview with Ms Olivera Zdravković, head of Department for General Administration, April 22nd 2015). It became clear that there is a significant degree of cooperation between different government departments, public enterprises, providers of communal infrastructure (e.g. water and sewerage) and the thermal power plant. It is also clear that a range of national and international NGOs provided assistance in the wake of the 2014 floods. However, it was much more difficult to ascertain the level of community participation. The existence of various citizen committees (e.g. youth committee) and local communities (mesne zajednice) was noted, but the extent to which they represent citizens’ views and are consulted by the municipality could not be determined. In the aftermath of the flood, new civil society initiatives in Obrenovac arose, such as the Obrenovac Youth Foundation, which was founded in June 2014 (interview with Mr Branko Spasić, head of the Obrenovac Youth Foundation, April 22nd 2015). According to Mr Spasić, they try to fill the gaps left by the state in its response to the 2014 floods, for example through (re)building infrastructure for young people and children, undertaking awareness raising on disaster preparedness and prevention, and providing psychological services. In addition, an exchange of experiences and cooperation through the sharing of resources between a number of municipalities was initiated during the 2014 floods. According to the Chief of the Committee of Emergency Services the cooperation with other municipalities located along the river is continuing (interview with Civil Defense Department Inspector, April 22nd 2015).

4.3 Key Issues of Institutional and administrative framework 4.3.1 Potentials Two major potentials have been identified. First, a number of new programs and institutions have been launched. For example, on March 4th 2014 the Office for Reconstruction and Flood Relief presented the National Disaster Risk Management Program (Government Office for Reconstruction and Flood Relief 2015). The program, which will initially be managed by the office, represents a shift in policy, by placing greater emphasis on tackling the issue of prevention (Government Office for Reconstruction and Flood Relief 2015). The program is comprised of six components, the first of which is the “building and development of institutions” (Government Office for Reconstruction and Flood Relief 2015). Although little information has been provided to date regarding the specific activities of the program, there is the possibility that Obrenovac will be able to use the program to strengthen its institutional and administrative framework. However, a representative from the municipal Department for General Administration advised that the office is still focused on rebuilding and reconstruction. Further, the Center for Risk Analysis and Crisis Management (CRACM) is a professional organization and association of citizens. The goal of the center is “to build the organizational capacity in both private and public sector, local communities and civil society institutions in the analysis of the security risks, as well as strengthening the capacities and response to emergencies” (Center for Risk Analysis and Crisis Management n.d.). The center has developed relationships with a number of state institutions, however, there is uncertainty regarding the type of assistance provided or offered to the municipality of Obrenovac. Second, a series of training sessions provided by various institutions have been conducted in order to strengthen capacities and awareness in emergency situations. The DPPI Seminar on Emergency

Figure 1: Institutional Framework Photo: Authors

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Resilient Cities

Response Plans, which was held in February 2015 in Belgrade, is a case in point. Here member countries had the opportunity to exchange experiences in the “planning of an organized local authorities response to flood” (DPPI SEE n.d.). They also discussed “training and equipment necessary for local-level stakeholders and responders” engaged in disaster (DPPI SEE n.d.). There is potential to build on this cooperation. In addition, the members of the municipal Committee for Emergency Services participated in a six-week training program run by the National Security Agency, during which they learnt how to cooperate during emergency situations. They were also trained in risk assessment and on April 23rd 2015, a team was due to commence a full risk assessment of the municipality. This is expected to take six months and will form the basis for developing a plan for protection and rescue. This plan will clearly define responsibilities in emergency situations. The Ministry of Interior Affairs will approve both the risk assessment and plan. The Committee for Emergency Services have already prepared an evacuation plan based on their experiences during the 2014 floods and ensured that there are now working sirens to cover the whole municipality (interview with Ms Olivera Zdravković, head of the Department for General Administration, April 22nd 2015; interview with Civil Defense Department inspector, April 22nd 2015). 4.3.2 Challenges Many of the challenges faced by the municipality of Obrenovac stem from limited financial, human and physical resources and the need to seek approval from the city of Belgrade before local plans and regulations can be adopted. Since 2009, when many responsibilities were moved to the city of Belgrade, the municipality of Obrenovac has been restricted in what actions it can take (interview with Civil Defense Department Inspector, April 22nd 2015). Related to this is the fact that most decisions regarding flood relief were not made by the municipality itself, but rather by higher levels of government and by people who did not have first-hand experience of the situation in Obrenovac.

36

Furthermore, a concrete understanding of roles and responsibilities regarding disaster preparedness and risk management was not evident at the municipal level prior to the 2014 floods. During a workshop with consultants held for students at the Faculty of Architecture, University of Belgrade, a number of difficulties regarding the relationship between the municipality of Obrenovac and the Office for Reconstruction and Flood Relief were raised (“Workshop with Consultants” 2015). These concerns were echoed by the head of the Department for General Administration (Ms Zdravković). As required by the Office for Reconstruction and Flood Relief, ten days after the flood, the municipality developed a checklist and organised ten commissions to assess the damage caused by the floods. However, this was not undertaken by skilled professionals due to a lack of human resources at the municipal level. Furthermore, all objects (approximately 11,500) were required to be assessed before July 17th, when an international donor conference was scheduled. The information collected by the commissions was sent to the Commission for Disaster Assessment, which was organized by the Serbian Chamber of Engineers. The Chamber of Engineers classified objects under six categories; with category one representing buildings with only minor damage and category six representing buildings which were totally destroyed. However, the only information used to inform this assessment was the water level during the floods and the number of days the water remained in the building. The Office for Reconstruction and Flood Relief made the final decision on financial resources to be allocated to each category. However, as the office is comprised primarily of politicians, rather than experts in architecture, urbanism, planning, and other related fields, there were communication difficulties between the office and the municipality. Furthermore, they also felt that the office, being located at state level, did not fully understand the problems at the local level. This was compounded by the fact that the Law of Emergency Situations did not adequately define responsibilities. (It is understood that subsequent amendments made to the law have resolved this issue.)

Essential 1: Institutional and Administrative Framework

Moreover, at the time of the 2014 floods, institutions at the level of Obrenovac did not function properly, and responsibilities were not clear. Staff at the municipality were not aware that they should know about risks and hazards. However, as a result of the floods, awareness on risk assessment and preparedness has increased (interview with Mr Jovan Vaskovic, member of the Committee for Emergency Situations, April 22nd 2015). 4.3.3 SWOT Analysis

Strenghts

Weaknesses

Members of Committee for Emergency Services have undertaken training and are currently undertaking municipal risk assessment which will be used

Members of Committee for Emergency Services are professionals only

as basis for a plan

(no civil society)

Some cooperation with other municipalities already established

Damage assessment was undertaken by untrained people

In 2009 many responsibilities were moved from the municipality of Floods have increased awareness and highlighted the importance of risk

Obrenovac to the city of Belgrade

management and delegation of responsibilities Citizens have limited participation in disaster preparedness and management

Opportunities

Threats

Reinstate Civil Protection System

Still a number of homes to be rebuilt and people living in temporary accommodation

Use local communities (mesne zajednice) for grassroots involvement of community in disaster preparedness

Office for Reconstruction and Flood Relief can begin to focus on prevention

Conflicting information regarding current activities being undertaken at the

work

municipal level regarding risk assessment and preparedness.

Willingness of community (incl. architecture students) to volunteer

Use DPPI SEE to build institutional capacity

Table 2: SWOT Analysis Source: Authors

37

Essential 2: Financing and Resources

5 Essential 2: Financing and Resources

Authors Sara Dević Shan Gao Evandro Holz Hicham Sader

5.1

Introduction

“An action plan remains just a plan unless it has dedicated resources to ensure that actions can be carried out” (UNISDR, 2012, p.30). The impact of natural disasters on cities is directly associated with the allocation of financial resources throughout the lifecycle of such events, including both ex-ante (pre) and ex-post (post) circumstances. In addition, the level of impact incurred greatly influences the capacity of stakeholders to obtain resources for the recovery of the local economy and the implementation of necessary measures. For instance, natural catastrophes can result in business interruption and the consequent loss of employment and outputs, decreased tax revenues, impaired institutional capacities and a rise in poverty levels, among other things. Many financial mechanisms can be used to cover financial losses, and these can be categorized into two main types. Ex-ante refers to arrangements of financial means before a disaster strikes, including risk retention in the form of a national reserve or contingency fund; and risk transfer options such as catastrophe insurance and bonds. Ex-post refers to financing means that are brought in after a disaster: e.g. international aid or loans, reallocation of government budget, and funds raised by increasing government revenues such as taxes (Ingirige et al., 2014).

Left Page Destroyed House Photo: Vukasin Ljustina

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Resilient Cities

The following are potential financing tools and mechanisms for disaster risk financing: incentives and penalties associated with disaster risk management, local budget, national funds, insurance systems, public-private partnerships (PPPs), international climate financing, and trade emission systems. Financing disaster risk management requires efforts from different social actors: government at both national and local levels, the private sector (i.e. private businesses, banks, insurance companies and other financial institutions); civil society actors including NGOs, CBOs and local communities (which can play a role in decision-making and directing financial resources); and international organizations and countries. The local government plays a leading role, being responsible for investing in risk reduction measures by integrating them into the local government budget (UNISDR, 2012) and also by seeking financial assistance from the central government, the private sector, civil society and external organizations. Additionally, it should establish institutional arrangements, ensuring risk and market assessment, policies and technical regulations, setting incentives and penalties regarding risk reduction and environmental protection, encouraging PPPs, and coordinating the roles of other stakeholders. The private sector can collaborate by investing in risk reduction programs, providing technical expertise (i.e. disaster risk assessments, and infrastructure standards and quality assurance), compensation for losses (mainly insurance companies), and acting as a source of funds for social recovery programs (mostly banks). The driving forces for private sector involvement in disaster risk management (DRM) are associated with economic benefits, compliance with existing laws and regulations, and social responsibility.

5.2

Analysis of Obrenovac case

5.2.1 Assessment of damages/losses and needs Based on information provided by the Serbia Floods 2014 report (UN Serbia, European Union and World Bank Group, 2014), the damage and losses resulting from the floods that occurred in 2014 amount to 1.7 billion euros at national level, of which around 57% is associated with physical assets (damage), whilst the remaining 43% refers to production (losses). The estimated impact of the disaster on economic growth is -0.9 percentage points, leading to a contraction of the economy of 0.4% in 2014, compared to a previously projected growth of 0.5%. Regarding the manufacturing sector, total disruptions add up to approximately 103 million EUR, with Obrenovac accounting for 22% of total costs. For government-owned enterprises, this value is 15.91 million EUR, of which 36% relates to companies in Obrenovac. The fallouts of the floods in the trade sector were most significant for micro and small enterprises, and amounted to a total of 235.63 million EUR nationally, of which 148.71 million EUR (64%) related to Obrenovac. In terms of public infrastructure, specifically for Obrenovac, estimates put damage and losses at approximately 2 million EUR for energy, 17.29 million euros for transport and communications and 6.31 million EUR for water and sanitation. In addition, public facilities such as schools, healthcare facilities and public buildings were affected. An anticipated total of 412,565 working days were lost (an income loss of 535.4 million RSD – 4.43 million EUR), and a estimated 51,800 jobs were temporarily discontinued due to the interruption of economic activities. At national level, post-disaster needs were valued at 1.346 billion EUR up to 2016 – 30% of which represents recovery activities and 70% reconstruction needs (UN Serbia, European Union and World Bank Group, 2014).

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Essential 2: Financing and Resources

According to information gathered during an interview with the Department for Budget, Finance and Economy for Obrenovac, the municipality did not conduct a loss assessment after the flooding. However, the national government conducted an evaluation on dwellings and subsequently categorized them into three levels based on the damage incurred. This was used for the payment of compensation, which ranged from RSD 150,000 to RSD 400,000 (1,241.73 – 3,311.29 EUR). Reportedly, for the Serbia Floods 2014 report, the national government used secondary data collected from several associations and unions. 5.2.2 Sources and application of funding Sources of financial support for remedy and recovery that were accessible during and shortly after the floods, as well as for prevention measures to be employed in 2015 are depicted in Table 3.

As it was responsible for coordinating the application of most of these funds, the municipality is required to provide a detailed account of their use to the national government (parliament). This will also serve for a potential refund by the European Union of the costs incurred at local level. As far as additional funding from taxation and penalties is concerned, the only possible source was EcoTax, which is imposed on companies that cause damage to the environment as a side effect of their operations. In the case of Obrenovac, this tax is only paid by the thermal power plant located within the municipality. Previously, 40% of this tax went to the city of Belgrade and 60% to the national government, but since July 1st 2014 the whole amount has to be submitted at the national level, in order to be distributed later. After the 2014 floods, EcoTax revenues were used for the upgrading and reconstruction of public infrastructure.

It should be noted that post-disaster resources on the international level were channeled through the Office for Recovery and Assistance in Flooded Areas. This unit was replaced by the recently established National Program for Disaster Risk Management that also plans the use of resources from the following: Multi-Donor Trust Fund – MDTF, Global Facility for Disaster Reduction and Recovery, European Union Instrument for Pre-Accession Assistance (IPA), Swiss State Secretariat for Economic Affairs (SECO), Disaster Risk and Insurance, and World Bank – Austria Urban Partnership Program.

Reportedly, no mechanism for electing priorities was in place for post-disaster restoration activities, and decisions were made on an ad hoc basis. The first structures to be repaired were the water and sewage and heating systems. Resources for housing reconstruction came mostly from private donors and the national government in the form of compensation, as stated above (interview with Jasima Jerinic, head of the Department for Budget for the municipality of Obrenovac, Obrenovac, May 2015).

According to information provided by the municipality, the first funds made available at the time of the disaster came from the local budget (1.5 million euros) and from the city of Belgrade (670,000 – 661,000 EUR were used for the recovery of public enterprises and the remaining 9,000 EUR for shelter). These funds were redirected from existing budgets for departments such as infrastructure and environment, since no budget for DRM was established, neither for recovery nor for future prevention.

Prior to the 2014 floods, between 60% and 70% of companies (public and private) and 10% of houses and all public enterprises and buildings were insured. However, most insurance policies did not cover the type of flood that occurred (characterized as being caused by engineering issues), hence only a few policy holders were reimbursed (interview with Miroslava Pavicevic, local manager for DDOR Novid Sad Insurance, Obrenovac, May 2015).

5.2.3 Insurance

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Resilient Cities

Common local practice for houses and farms is to be insured individually, and the government subsidises insurance on farms by paying 40% of the premium based on a national law. Public infrastructure and buildings are also insured on an individual basis. Three insurance companies operate in Obrenovac: Delta Generali, Danube Insurance and DDOR Novi Sad. Delta Generali stated that a proposal has been submitted to the municipality for a mass housing insurance program based on a standardized house type (60 m²). No risk assessment considering the particularities of each house and location has been conducted, and premiums and associated compensations have been calculated based on the damage level assessment and compensations provided by the national government. The implementation plan includes cooperation with the Public Water and Sewage Company, with the submission of a noncompulsory invoice alongside the monthly water bill. It is expected that 10% to 15% of the inhabitants will join the program. No significant increase in the number of insurance policies taken out after the 2014 floods has been observed and it is believed that the main reasons are an understanding that the government will provide compensation regardless of dwelling status and that a similar flooding event will not occur again in the short-term. Lastly, no arrangement exists between the government and the insurance companies as to how losses should be paid after a disaster, but the insurance companies claim sufficient capacity to cover reimbursements in the case of a major event.

Table 3: List of Sources of Funding for Emergency and Prevention Measures Source: Authors

42

5.2.4 Challenges/potentials The key issues identified during this preliminary assessment on the topic of financing and resources are: - Limited data availability, and the relevance and accuracy of data (particularly regarding evaluation of losses and recovery needs) - Non-efficient collaboration (horizontally and vertically) between different institutions managing financial resources - Adaptation of international models of disaster risk financing to the local context - Budget dependency of the municipality on city and national level, and inconsistency of the budget provided - No budget allocated for DRM at municipality level - No proper prioritization of employment of funds - Lack of communication and understanding of insurance importance, as well as its terms and conditions As for potentials associated within the field, the following were considered: - Improvement of incentives, penalties and taxation policies and employment in order to enforce commitment from the various stakeholders - Consideration of additional funding sources, such as carbon emission trade market and higher percentage of EcoTax from national government - Development of appropriate conditions for enhancing PPPs’ role in financing and implementations of protection measures, as for instance by facilitating the exchange of information between private companies and state departments - Cooperation between insurance companies and the municipality to increase coverage of insurance, in particular for private dwellers

Level

Source

Utilised

Planned (for 2015)

Essential 2: Financing and Resources Descritption

Local

Amount in RSD

Amount in EUR

Amount in RSD

Amount in EUR

1.365.496.200

11.379.135

1.344.932.771

11.207.773

634.600.000

5.288.333

265.156.000

2.209.633

1.063.250.000

8.860.417

444.710.612

3.705.922

Public Enterprise for Environmental Protection

25.000.000

208.333

58.893.000

490.775

Fund for Financing of Projects for Environmental Protection

500.000.000

4.166.667

500.000.000

4.166.667

929.902.000.000

7.749.183.333

924.382.608.000

7.703.188.400

Ministry of Agriculture, Forestry and Water Management

5.423.929.000

45.199.408

41.433.438.000

345.278.650

Ministry of Energy, Development and Environmental Protection

5.507.941.000

45.899.508

Project for Environmental Protection and Climate Change

175.634.000

1.463.617

Agency for Environmental Protection

204.375.000

1.703.125

205.006.000

1.708.383

Ministry of Natural Resources, Mining and Spatial Planning

703.715.000

5.864.292

Department of Water Affairs

14.399.000

119.992

14.399.000

119.992

2.758.245.000

22.985.375

3.120.134.000

26.001.117

Ministry of Internal Affairs

68.602.664.000

571.688.867

63.219.614.000

526. 830.117

Budget Fund for Emergency Situations

70.290.624.000

585.755.200

557.531.000

4.646.092

Ministry of Civil Engineering, Transport and Infrastructure

25.362.987.000

211.358.225

23.954.689.000

199.622.408

Ministry of Civil Engineering and Urbanism

4.206.990.000

35.058.250

Department of Water Traffic

76.190.000

634.917

Department of Waterways

206.941.000

1.724.508

76.190.000

634.917

Department of Metereological Services

957.149.000

7.976.242

714.161.000

5.951.342

Department of Geodesic Services

4.450.292.000

37.085.767

3.656.897.000

30.474.142

Department of Seismical Services

34.826.000

290.217

27.573.000

229.775

Office for Recovery and Assistance in Flooded Areas

28.155.000

234.625

28.155.000

234.625

5.457.215.027

45.476.792

1.000.000.000

8.333.333

24.837.000

206.975

Municipality of Obrenovac

Public Enterprise for Building

Public Enterprise for Water and Sewage Systems

National

Budget from the Republic of Serbia

Budget fund for Water Resources of Republic of Serbia

Fund for Development of the Republic of Serbia

Budget of Office of Ministry without Portfolio

International

Donations

26.280.000.000

219.000.000

Funds of Solidarity

7.224.000.000

60.200.000

European Union Funds

11.040.000.000

92.000.000

Bilateral Donations

3.120.000.000

26.000.000

43

Essential 3: Multi-Hazard Risk Assessment - Know Your Risk

6 Essential 3: Multi-Hazard Risk Assessment Know Your Risk

Authors Rashid Kairuz Olivera Šanta Eliana Silva Kurt Steffens

6.1

Introduction

The essential topic of multi-hazard risk assessment is an analytical methodology for decision makers and planners. This is the phase where risk managers identify areas and elements at risk, vulnerabilities, hazards, people capacities, losses estimation, inter alia. Additionally, this is the basis for urban development plans and decisions, and the first step to prepare or improve a disaster resilience city strategy. Multi-hazard risk assessment determines the nature and magnitude of risk by analyzing potential hazards and evaluating existing conditions of vulnerability that could pose potential damage to people, livelihoods, economy, information, reputation and the environment on which they depend (UNISDR, 2009, p. 26). This assessment is part of the Risk Management Cycle, “in which learning from a disaster can stimulate adaptation and modification in development planning rather than a simple reconstruction of pre-existing social and physical conditions” (Westen et al., 2011, p. 31) (see figure 2).

Left Page Flooded Garden Photo: Vukasin Ljustina

45

Resilient Cities

A disaster is an extreme phenomenon of large scale and intensity occurring at a certain location in a limited time frame and causing loss of life, a threat to public health and physical damage. Risk results from the combination of hazards, vulnerability conditions and insufficient capacity or measures to reduce the potential negative consequences of risk (Westen et al., 2011). 6.3

Disasters cannot always be prevented, but it is at least possible to reduce their effects on people and communities (Birkmann, J, 2006). Cities have to understand the risk they face in order to develop effective disaster risk reduction plans or strategies. Geographic Information System (GIS) mappings based on a well-maintained database will provide the basis for risk assessment and management (UNISDR & GFDRR, 2012). The following analyzes the current situation of Multi-hazard Risk Assessment in Serbia - specifically the municipality of Obrenovac - and identifies associated potentials and challenges. 6.2 Relevant definitions of Multi-hazard Risk Assessment

Figure 2: The “traditional” disaster cycle and the role of risk assessment. Source: Adapted from Westen et al., 2011

46

In order to understand the variables and concepts that are stated in this essential, it is important to distinguish between the terms hazard and disaster. A hazard is a potentially damaging physical force, phenomenon or human activity that may cause loss of life or injury, property damage, social and economic disruption or environmental degradation. A hazard has a probability of occurrence within a specified period of time and within a given area, and also has a given intensity (Westen et al., 2011, p. 75).

Types of assessments

There are many types of assessments to reduce risks. After recognizing the potential hazards, the planners can develop the following assessments: a) Identify the elements at risk such as assets, persons, animals, activities and processes that may be adversely affected by hazardous phenomena b) Prepare a hazard assessment that involves the analysis of the physical aspects of the phenomenon to provide the estimation of the temporal and spatial probability of occur rence and the magnitude of the hazardous event c) Assess the type of vulnerabilities in the elements of risk such as physical, economic, social and environmental d) Calculate losses estimation such as deaths, injuries, property, livelihoods, economic activity disrupted or environment damaged (Westen et al., 2011) For the risk assessment, the risk analysis tools are necessary to communicate the different scenarios of how risks can affect the vulnerable area (OECD, 2012). Other risk tools that can be used are Risk Matrix, Risk Curves, Institutional Assessment and Participatory Mapping (OECD, 2012)(World Bank, 2012) (Reichel & Frömming, 2014).

Essential 3: Multi-Hazard Risk Assessment - Know Your Risk

6.4

Analysis of Obrenovac case

In order to reduce disaster threats, risk managers must characterize the potential hazards of a community and its environment as well as analyze social and physical vulnerability and determine the potential risks from several hazardous scenarios to implement measures to reduce them (Westen et al., 2011). The major natural hazards in the Republic of Serbia are: floods, torrential floods, storms, heavy rains, hail, drought, landslide or landslip, snow and avalanche, extreme air temperatures, ice accumulation on the water flow, earthquakes, epidemic livestock diseases and the emergence of pests and other large-scale natural phenomena (Republic Hydrometeorological Service of Serbia, 2013; Commission, 2009). In Serbia, the most severe hazards with the highest frequency are floods and drought in the period from 2006 to 2014 (World Meteorological Organization, 2012). Particularly in Obrenovac the most severe natural and manmade hazards that threaten infrastructure, houses, and human lives are floods, garbage dumps, pollution and secondary hazards, landslides, polluted ground and water and air (RS, 2009) (see figure 3). The Sector for Emergency Management of the Ministry of Internal Affairs is the national level authority for managing and developing risk assess-

ment. The Water Directorate of the Ministry of Agriculture, Forestry and Water Management is responsible for floods assessment in protected areas. Concerning unprotected areas, the municipalities are responsible for preparing this assessment. Additionally, the Water Directorate is responsible for flood protection of infrastructures and planning, and flood risk assessment for areas with flood defenses, but not for other areas or for those under the responsibility of different water management institutions (see figure 4) (Republic of Serbia, 2009; World Meteorological Organization, 2012). The Republic Hydrometeorological Service of Serbia is responsible for producing tools for interpreting the risk analysis. This entity develops vulnerability maps, risk maps, charts of averages, trends, variability levels and extremes levels, which are delivered to several stakeholders related to risk management (World Meteorological Organization, 2012). The responsibility of this institute is to provide timely and reliable information in accordance with the Law on Emergencies and the Law on Meteorological and Hydrological Activities. Likewise, it develops risk maps for a particular meteorological hazard and delivers them to the Ministry of Internal Affairs, which is the coordinator for the preparation of protection and rescue plans (Commision, 2009).

Figure 3: The Most Severe Natural and Manmade Hazards in the Municipality of Obrenovac Source: Authors based on Public Enterprise for Environmental Protection from Obrenovac

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Resilient Cities

6.5

Potentials and challenges

After the interview with the municipality of Obrenovac and the research developed in multi-risk assessment, the following potentials and challenges were identified: 6.5.1 Potentials a) National Level A responsible entity that develops multi-hazard risk assessment and establishes the guidelines for local and regional assessments. Currently, the Sector for Emergency Management is responsible for developing multi-hazard risk assessment in Serbia; however, this entity is new and needs to consolidate its institutional capability and financial resources in order to ensure the final implementation of risk assessment. Methodology for multi-hazard risk assessment available. The Ministry of Internal Affairs, through the Sector for Emergency Management, has developed a methodology for multi-hazard risk assessment. It should be the guide that facilitates risk assessment development. The high institutional capacity level of the Republic Hydrometeorological Service of Serbia. The institutional framework of the Republic Hydrometeorological Service of Serbia (RHMS) has a high capability level. Also, this service is the receptor for the most important risk assessment information. However, this institution could improve the quality of its information through the implementation of new technology, automation of procedures and financial support (World Meteorological Organization, 2012). b) City and municipal level Project to develop a municipal multi-hazard risk assessment. Currently, the municipality of Obrenovac is working on the final draft of a report on hazard risk assessment and expects to come up with the final document in December 2015 (to be passed to the Ministry of Internal Affairs).

48

This is an opportunity to define the different roles and coordination mechanisms between the stakeholders and to initiate the decentralization of power. The willingness of the municipality to undergo training. The municipality recognizes the importance of training official staff in order to reduce risks and make the community aware of those risks. It is necessary to improve the current cooperation agreement between team experts (NGOs, universities, etc.) and municipal staff. (Eg. by training municipality staff in GIS system and mapping risk.) 6.5.2 Challenges Urban planning does not consider all risks: It is necessary to integrate multi-hazard risk assessment into the spatial urban planning strategies of Obrenovac. Currently, the Urban Planning Department has a landslide map, but the inclusion of other risks into the urban planning is recommended. Lack of updated risk information: The updating of available data requires the development of common procedures for collecting, generating and updating data (GIS database) for all entities involved in risk assessment. Additionally, the updating of urban planning maps is needed to redefine risk and vulnerable zones. The absence of responsibility for developing risk assessment at the local level: The municipality should be responsible for multi-hazard risk assessment. After the disaster in 2014 the municipality was not responsible for data collection and risk assessment. These activities were only developed by the Ministry of Internal Affairs. However, the national government affirmed that the Emergency Situation Law will be changed to incorporate a clause that obliges local governments to assign responsibility for prevention, risk management, protection, and evacuation.

Essential 3: Multi-Hazard Risk Assessment - Know Your Risk

Lack of coordination between the national level and local level for the development of a comprehensive risk assessment: A comprehensive and coordinated risk assessment demands that the Ministry of Internal Affairs be involved in the development of the municipal multi-hazard risk assessment. Disintegrated information: There are isolated efforts for mapping hazards and vulnerabilities. Consolidated and coordinated information on risk assessment is needed. The non-existence of inter-municipal coordination and cooperation: Coordination and cooperation between municipalities before, during and after disasters is needed to identify good practices and improve risk assessment capacities regarding technical assistance, financial leverages, and information exchange. Low level of cooperation between stakeholders: It is indispensable to foster cooperation among different stakeholders involved in risk assessment, such as universities, insurance companies, NGOs, communities, and national and local government, in order to develop a comprehensive risk assessment that takes full advantage of their knowledge and experience. Ministry of Internal Affairs

Emergency Situation Sector (Part of the Ministry of Internal Affairs)

National Hidrometereological Service of Serbia

RISK ASSESSMENT

Ministry of Agriculture

Water Directorate FLOOD RISK ASSESSMENT

Municipality Offices

Figure 4: Institutions Responsible for Risk Assessment in Serbia Source: Authors

49

Essential 4: Infrastructure Protection, Upgrading and Resilience

7 Essential 4: Infrastructure Protection, Upgrading and Resilience

Authors Dolo Mazorra Cebrian Aram Lee Ivana Mačkić Nawid Royaee

7.1

Introduction

Natural disasters can happen in any part of the world, regardless of location or geography. When they occur in inhabited areas such as villages, towns and cities they can jeopardize human life and ecosystems. Natural hazards - floods, earthquakes, landslides and storms - become disasters as a result of human and societal vulnerability and exposure, which can be addressed by decisive policies, actions and the active participation of local stakeholders. “Disaster risk reduction is a no-regret investment that protects lives, property, livelihoods, schools, businesses and employment.” (Chengdu Declaration of Action, August 2011). This chapter focuses on the protection of physical infrastructures against natural disasters, specifically flooding and landslides in the area of Obrenovac, Serbia. Infrastructures are the anatomy of cities that provide essential services within a city and a society. Infrastructures contribute to the economic growth of a society and have the potential to improve the quality of life within a society. Examples of infrastructures include transportation networks (such as motorways, railways, bridges, and tunnels), energy provision and distribution (such as water power, electric power generation, dams, gas networks and fuel storage facilities), water

Left Page Affected Infrastructure Photo: Carsten Zehner

51

Resilient Cities

supply and sanitation networks, as well as social and communication facilities. Natural disasters such as floods and landslides endanger the economic strength of societies and cities by threatening these infrastructures. They not only threaten the physical destruction of these infrastructures but also have social and ecological consequences. The protection of infrastructure against natural disasters, especially against flooding, is vital not only for the physical existence of infrastructures themselves but also for the survival of a society, a city and a country. Flash floods are the most devastating types of floods that happen suddenly and are hard to predict. As flooding affects physical infrastructures, necessary protection and upgrading of infrastructures is important for the purpose of withstanding future floods and improving resiliency. As well as analyzing the causes and impacts of the flood in 2014, the research team of TU Berlin and the University of Belgrade had the opportunity to visit Obrenovac and conduct meetings with public enterprises managing infrastructures of water, sewage, heating and electricity. We found that it is important to understand the problems in Obrenovac not only from a perspective of physical vulnerability but also taking into consideration environmental impacts. 7.2

52

7.3

Infrastructure in Obrenovac and damages

Infrastructure was severely damaged by the floods, including power plants, roads, sewage systems, water supplies and electricity production lines etc. The extent of physical damage varies between infrastructures. Drainage and Sewage System The flood affected the existing waste water system, mixing stormwater drainage with sewage and contaminating the river. In the aftermath of the floods, damaged pipes mixed drinking water and black water from the sewage system, delaying the return of evacuees to their homes.

Analysis of Obrenovac case

Obrenovac was one of the towns most severely affected by the floods in May 2014, with 80% of the town affected. One of the primary factors contributing to the exceptionally severe situation in Obrenovac was its topographical level which is lower than that of neighboring cities. Moreover, citizens and public enterprises in charge of water could not have anticipated that the small rivers in the southern hinterland would be the main cause of the flooding.

Map 1: Map of Landslide and Flooded Area in 2014 Source: Authors

measures (e.g. trees). As a result, landslides happen frequently in Obrenovac, for the most part after flooding. All the buildings, including schools, health care facilities and amenities, were flooded and unusable. The effects on the already vulnerable social and physical infrastructure were twofold: a direct deepening of vulnerability for those whose accommodation (whether illegal, legal or institutional) had been damaged by the floods, possibly worsened by the indirect mid-term impact of reduced resources, and an increase in the cost of public services (Center for Social Welfare) responding to the needs of the poorest.

The riverbanks hindered the water flow, causing increases in water levels in Obrenovac of up to four meters. Obrenovac suffers not only from floods but also from landslides, due to the high level of underground waters. Areas threatened by landslides lack proper storm drainage and protective planting

Energy The Termoelektrana Nikola Tesla power plant, located near the town of Obrenovac, is comprised of Tent A and Tent B and is one of the largest power plants in Serbia. The available data provided by the company indicate that the power plant itself was not affected by the flood but that distribution was affected. Water During the May 2014 floods, the operation of the Public Enterprise for Water and Sanitation, which provides a service to nearly 70,000 inhabitants of Obrenovac, was completely disrupted due to physical damage to its infrastructure. The risk of disease from polluted drinking water was comprehensively addressed, mainly by the Institute of Public Health.

Essential 4: Infrastructure Protection, Upgrading and Resilience

53

Resilient Cities

During the suspension of the regular water supply, drinking water for the affected population was supplied through bottled water and water tankers. Heating The Public Enterprise for Heating provides a heating service for the inhabitants of Obrenovac. The water in the pipes is heated by steam from the Nikola Tesla power plant. The pipes were not affected by the flood.

7.4

Key Issues

7.4.1 Potentials - Infrastructure including water supply and heating systems fully functional and capaci- tated. - Existing experience and awareness of need for change 7.4.2 Challenges

Transportation Most of the roads connecting the inner city of Obrenovac to Belgrade were affected and were closed during the flood. The rebuilding of damaged roads has begun. Apart from the damage inflicted by the floods, the condition of infrastructure had been degrading over previous years due to poor maintenance, in spite of existing plans. The “Spatial Plan of the Municipality of Obrenovac” (2007 and 2013), as well as other urban plans, offers potential solutions for most of the challenges involved, but none of these plans has yet been fully implemented. Due to a lack of financial resources, the priority after the floods was to rebuild infrastructure, rather than upgrade it or make it more resilient. The only measure implemented during the year since the floods was the rebuilding of flood protection to the same level as before, in spite of the proof that this was inadequate. The biggest problems in Obrenovac are the poor condition and maintenance of all infrastructure systems, as well as a lack of technical and operational regulations. Moreover, some areas of the city do not have proper infrastructure such as a sewage system or a water supply. Another significant problem is the high number of unauthorized landfills, which contaminate water during floods.

Map 2: Map of Infrastructure and Landfills in Obrenovac Source: Authors

54

- No water treatment - Leakage in heating system - Contaminated ground water - Lack of financial independence of public enterprise (lack of resources) - Insufficient finance for infrastructure reconstruction - No risk assessment of infrastructure system - lnfrastructure damage assessment is incomplete - Lack of coordination among the different infrastructure systems - Lack of accurate combined data - Infrastructure reconstruction prioritized over upgrading

Essential 4: Infrastructure Protection, Upgrading and Resilience

55

Essential 5: Protect Vital Facilities: Health and Education

8 Essential 5: Protect Vital Facilities: Health and Education

Authors Sheryta Arsallia Boško Drobnjak Mohd Farhan Qi Yahya

8.1

Introduction

Schools and healthcare facilities are essential centers for the provision of education and healthcare in a society. They are key places for the development of educational, physical, and psychological wellbeing. As such, special attention must be paid to their safety and risk reduction measures that focus on ensuring that they can maintain their functionality during natural disasters must be put in place. They play an essential role during and after disasters as places to accommodate and treat survivors. It is common during a disaster to see the functional collapse of these facilities, where the structure may remain standing but cannot be used for a variety of preventable reasons. To avoid this, hospitals and schools must be constructed to high standards of resilience, access routes must remain open and the water supply, electric power and telecommunications must continue to function in order to guarantee continuity of operations. To allow them to remain functional during disasters, health facilities should be prepared with immediate action plans so that services are not disrupted. This is doubly important since these facilities also function as laboratories where tests are conducted to control the outbreak of disaster-related diseases. A disaster-safe, resilient educational facility is vital because it functions not only as a center of education but can also serve as a temporary residence for people denied access to their homes.

Left Page During the Flood Photo: Lazar Lazarevic

57

Resilient Cities

It is also a place where the planning and sharing of information can take place. Disaster resilient facilities hold out the potential of normalcy in times of chaos and help people recover from physical, financial and psychological traumas. To protect health and educational facilities, the following assessments need to be carried out (UNISDR, 2012): a) Keeping Schools and Health Facilities Functional during Disaster: - Topography analysis, mapping of the current condition of infrastructure: vulnerable and safe conditions - Evaluate both topography and existing condition, prioritize by reinforcing the weakest - Risk assessment, compliance with safety standards for further action - Implement better action plans for better management of resources to promote disaster resilience based on vulnerability, feasibility, and resources - Good coordination between members of different professions to find better solutions for protection and promotion of disaster resilience b) Recognize the Relevance of Priority Services and Operations after a Disaster: - Boost safety of public health and educational institutions - Strengthen and motivate private facilities to contribute - Provide incentives to attract private institutions as partners According to these assessments and considering the case of Obrenovac, five research questions were developed based on the UNISDR (2012), which guided the research.

58

1) Which are the most vital and vulnerable health and education facilities? (In terms of location and usage of facilities.) 2) What are the safety standards and safety procedures, either implemented or planned, for the protection of vital facilities? 3) How to measure the quality and resilience of vital facilities? 4) How to maintain the functionality of vital facilities during a disaster? 5) What was the condition of the vital facilities before the disaster and what is the current condition of these facilities? Taking into account supply and demand (building capacity, number of patients or students, and human resources) and the quality of the facilities (both physical and non-physical infrastructure). Based on these five questions, several key issues were identified which define the condition regarding disaster resilience of education and health facilities and how to keep them functioning during a disaster. 8.2

Analysis of Obrenovac case

Obrenovac has one health center, ten kindergartens, one traveling kindergarten, nine elementary schools and three high schools (municipality of Obrenovac, n.d.). The city has no hospital for performing surgeries and other procedures. People requiring surgery have to go to hospital in Belgrade. For the treatment of general illness and drugs provision, Obrenovac has one main healthcare facility, which provides medical care. According to the interview with Maja Todorović, health center principal, (April 22nd 2015, at health center) 2,000 patients are treated per day. Supporting the health center are eight medium-scale medical units and four small-scale clinics located throughout the city and surroundings. A staff of 464, including 94 doctors and 168 nurses, plus technical staff, serve the health center. Each small-scale clinic has a doctor, a nurse, and technical staff.

Essential 5: Protect Vital Facilities: Health and Education

Veseljko kindergarten has a kitchen which supplies food to all the other kindergartens in Obrenovac. According to one of the teachers (Dragana Nikolic), Veseljko has 300 children, while its capacity is for only 220 children. There are three kindergarten teachers for each group of between 29 and 42 children. All kindergarten buildings have only one floor. One of the high schools is an old building with sixteen classrooms, 450 students and a staff of 44 (Protić, 2015), whereas the agricultural high school is housed in a new building, built in 2005, and has 600 students and 64 teachers (Zlatanović, 2015). It also has a farm and agricultural land located ten kilometers from the city. The municipality building of Obrenovac was flooded for about one and a half months. The health center and schools were flooded for an average of three months, with water levels reaching between one and a half and two meters. Veseljko kindergarten was under two meters of water for two weeks and was closed for eight months, until January 2015. During that time, the children were moved free of charge to Belgrade, with the parents given a choice of kindergarten. During the disaster, all school students were also moved to Belgrade. The first floor of the agricultural high school is now operational, but the ground floor has still not been renovated and is being used for research on disaster resilient building (Protić, 2015). Administrative files on the first floor of the agricultural high school were saved. The health center building was under renovation when the flood happened (Todorović, 2015). On the first day of the flood, the center moved its operations to the elementary school, then moved to the Hotel Obrenovac for ten days. On day 11 it returned to its own building, the first building in Obrenovac to get back in operation after the floods. Operational expenses at the center during the flood were four times higher compared to normal times (Todorović, 2015). For one month there was no mains power supply, but power was supplied by a generator. The center provided people with a first aid kit, which included an instruction manual of do’s and don’ts, as well as gloves and a mask.

Chapter two of the Public Health Regulation (“Off. Gazette of RS”, no. 72/09) refers to public health in natural or other major disasters and emergency situations and states that the Department of Public Health is obligated to plan and develop action plans to deal with natural or other major disasters and emergency situations within the territory for which they are established. Moreover, the law on emergency situations (Official Gazette of RS” no. 111/09, 92/11, 93/12), article 16 states that companies and other legal entities in the field of healthcare, educational activities, social care and other activities, responsible for the protection of large numbers of people, are obligated to plan, organize and implement measures and tasks of civil protection. 8.3

Key issues

Several key issues need to be addressed in order to protect health and education facilities and these will be explained according to the “five essentials” research questions. The issues were investigated during site visits to Obrenovac on April 22nd and 23rd 2015. 8.3.1 Condition of vital facilities before and after the disaster Number of human resources (e.g. teachers, doctors) The availability of workers related to the education and health sectors is very important if they are to keep functioning during a disaster. A resilient building is not enough; adequate staff numbers are also crucial. There are 464 staff members at Obrenovac Health Center, many of whom worked during the disaster to help people. In addition, doctors and nurses from Belgrade came to Obrenovac to support the health service. Maja Todorović, the health center principal, was in charge of them all. They cleaned the health center by themselves, allowing it to become operational again eleven days after the flood.

59

Resilient Cities

At the time of the flood fifteen staff members were present at the center and they tried to save important materials by moving them to the second floor. Staff at the schools transferred students to other schools in Belgrade, resulting in no educational activities in Obrenovac (Todorović, 2015).

agricultural high school principal, and Militsa Stojanović, head of the Obrenovac Mayor’s office, April 22nd and 23rd 2015, Obrenovac).

Ground floor level buildings Schools, health centers, and other buildings with multiple stories can evacuate people and important belongings to a higher floor to prevent greater damage and extend the functionality of the building.

Geographical location of buildings Being located in a water run-off area, the healthcare center is quite vulnerable. All the small clinics around the center of Obrenovac, including the private clinics, were badly flooded. With regard to education facilities, the central kindergarten is located in a lowelevation area and was therefore badly affected by the flood. Other childcare facilities were also flooded. Five of the nine elementary schools were affected by the flood, two of them severely damaged. The high schools are also located in geographically vulnerable areas. Before the disaster, there was no awareness among local authorities of their vulnerability to floods.

In Obrenovac the elementary schools, high schools and the health center all have at least two stories. so people, belongings and documents could be saved on the upper floors. However, the kindergartens were all one-story buildings, resulting in the destruction of all furniture, documents and other belongings. Funds to rebuild or renovate The availability of a budget is a crucial factor. Health is the main target of many donations due to its importance. However, education facilities also attract donations because they are publicly-owned buildings. The limited budget should be prioritized according to importance and vulnerability. The renovation of the health center was covered by donations and insurance, the latter providing three million RSD (24,834.67 euros). The government also provided support through the donation of two cars. Another donation came from the government of Norway, for building reconstruction. The Novac Djokovic Foundation provided money for the renovation of education facilities. They hired their personal staff to carry out the renovations after seeking permission from the Ministry of Education. The government of Israel donated 1,700 US dollars for the renovation of the Veseljko kindergarten kitchen. The municipality’s top priorities were public infrastructure such as roads and sewage systems, followed by educational and healthcare facilities (interview with Maja Todorović, health center principal, Nikolic Dragana, kindergarten teacher, Ivica Protić, high school principal, Dragoljub Zlatanović,

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8.3.2 Factors affecting vulnerability of health and education facilities

Damage level There is a need for a detailed assessment of damage to buildings. Where buildings have been totally destroyed, new disaster resilient buildings should be constructed. The basement and ground floor of the health center were completely flooded. After the disaster, the entire basement and ground floor were renovated. However, technical equipment was damaged or lost during the flood. Several education facilities were also badly affected. Two kindergartens were totally demolished by the flood. The kindergartens were designed as one-story buildings because it is not appropriate for children to have to reach upper floors by stairs. The Veseljko kindergarten, which houses the central kitchen facility supplying food to all the other kindergartens in Obrenovac, was one of the worst affected. In addition, the nine elementary schools and three high schools were also badly affected. The ground floor of these buildings was destroyed, resulting in the damage or destruction of much of the equipment and materials. One of the high schools still cannot use its ground floor due to excessive damage.

Essential 5: Protect Vital Facilities: Health and Education

8.3.3 Safety standards and safety procedures to protect vital facilities Regulation of safety standards and safety procedures The regulation of safety standards and procedures is much needed to ensure that education and health facilities are disaster resilient and education and health workers are trained in appropriate responses in the event of such disasters. In the days of the former Yugoslavia, disaster resilient building regulations did in fact exist. Since the 2014 floods both, central and local governments have been working on the formulation of new regulations for building standards and procedures for disaster preparedness. 8.3.4 Instrument to measure the quality and resistance of vital facilities: Quality and resistance measurement instrument It is important to know the current condition of buildings in order to assess their general level of resilience. Measures can then be identified to increase this level. So far, special measures or inspection schemes have not been made available. The condition of all public buildings should be investigated before they are put back in use. One high school is undergoing a more thorough study because of huge damage to the ground floor. 8.3.5 Functionality of vital facilities during disaster Potential place for evacuation shelter (i.e. public or private facilities) Many places around a city could be used as evacuation shelters or serve as temporary health and educational facilities. Not only publicly-owned buildings, but also private facilities could contribute to this.

The health center was moved to an elementary school on the first day of the flood, and then moved again to the Hotel Obrenovac for ten days. The following day, the health center became the first facility to resume operations in Obrenovac. The Hotel Obrenovac was the only building which was not flooded. Students from schools affected by the flood were initially moved to Belgrade then transferred to other schools in Obrenovac which were in safer locations and had not been affected. Accessibility during disaster (e.g. road network) Infrastructure and multi-network conditions influence ease of access during floods. In Obrenovac, the only modes of transportat during the floods were boats and helicopters. It was impossible to access the city by car. The floodwater was significantly contaminated. Evacuation modes (e.g. boats, amphibian vehicles) During the floods, boats were the main mode of transport for people and materials. The supply of boats to educational and health facilities must be evaluated to make the evacuation process smoother. During the Obrenovac floods, massive evacuation from the health center and schools was not needed as the floods occurred during night. All the evacuation was conducted by boat and helicopter. Capacities of vital facilities The available capacities of vital facilities are important to consider for disaster management. Schools and hospitals with additional capacities can accommodate transferred students, patients and refugees. At the time of the floods, the Obrenovac health center had already exceeded its capacity. After the flood, plans were made to extend the facility or construct additional space. Most of the schools and kindergartens have adequate capacity for their students. The high school has sixteen classrooms with 450 students and 44 staff members. One of the affected elementary schools had overcapacity issues prior to the flood. Also one of the kindergartens has 300 children, with a capacity of only 220.

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In general, three teachers are provided for each group of 29 to 42 children. The special school for agriculture has 600 students with 64 teachers. Knowledge of disaster management (e.g. public awareness) A basic knowledge of disaster management is needed, so that people in educational and health facilities know what their tasks and responsibilities are in the event of a disaster. Generally, posters are displayed to educate people about appropriate behavior during disasters. However, prior to the Obrenovac flood, no education was provided to students or staff in health and education facilities about what to do during a disaster. Transfer procedure from affected to non-affected facilities (i.e. students and patients) The procedure for the transfer of students and patients from affected to other facilities needs to be clear. During the Obrenovac flood, all students were temporarily transferred to schools in Belgrade as per a decision by the Ministry of Education. Coordinated decision-making Efficient coordination among actors is very important to maintain basic functioning of the education and health systems during a disaster. During the flood, the national government made some immediate decisions such as the transfer of students to Belgrade schools. The emergency measures in the health sector (especially regarding operational issues, human resources and logistics management) was efficiently led by the director of the health center. However, comprehensive coordination between national and local level authorities was not in place.

Right Page Visiting an Affected School Photo: Carsten Zehner

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Essential 5: Protect Vital Facilities: Health and Education

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Essential 6: Building Regulations and Land Use Planning

9 Essential 6: Building Regulations and Land Use Planning

Authors Mila Madžarević Anastasia Maragdouli Faris Sunarya Zhu Yaqi

9.1

Introduction

Building regulations1 and land use planning2 are topics related to the reduction of the underlying risk factors for disasters. They include understanding and mapping hazard risks and vulnerabilities, using necessary knowledge to make plans and land management policies and provide the capacity for local institutions to implement, monitor and adapt land use plans (Johnson, 2011). Inefficient land use implementation can potentially increase the exposure and vulnerability of people and goods to natural disasters. Therefore, it is important to adopt the right process and methodology, including preparatory phase, plan production, implementation and monitoring. The preparatory phase is especially crucial in terms of risk reduction at local level: hazard identification, vulnerability assessment and risk assessment provide necessary information for the formulation of plans and future urban planning solutions, and urban planning instruments which should integrate regulative measures with different types of incentives (financial and participatory) (Burby, et al., 2000). Adequate regulation can reduce vulnerability to natural hazards and in this way reduce possible risks. The formulation of specific rules and standards should follow some general guidelines which consider the local context (use of local materials and building techniques), documentation (it should be available and understandable) and informal settlements (regulations have to include instruments to treat informal settlements).

Left Page House in Obrenovac Photo: Vukasin Ljustina

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Resilient Cities

9.2

Analysis of Obrenovac case

9.2.1 The specific planning instruments in Obrenovac The planning realm in Serbia suffers from a lack of rationality and planning practices. This is due to the lack of a fundamental institution and the transition from a socialist to a market-oriented society. The Serbian government closely controls the legal position in terms of land use and is attempting to introduce a new more cooperative planning process through dynamic negotiation with local government and private investors.

However, since there is still no proper overlay analysis between geological map and land use plan, the understanding of the risk is limited. Hence, the absence of a risk and hazard map results in flawed considerations of disaster mitigation and preparedness in the Obrenovac spatial plan. Further investigation is needed to analyze in detail the building types and area vulnerability in order to understand in an integrated way the risk for specific areas. However, the initiatives are still in a state of suspension due to budget limitations (interview with Vesna Djokovic, Obrenovac, April 22nd 2015). b) Opportunities to enhance urban resilience

A strong political will, however, will be required to move the current system towards the new urban land market system. The discourse of new marketbased models consists of: 1) Liberal market approach with dominance of private ownership of urban land 2) Market model of urban land transactions with dominance of public ownership of urban land (with introduction of leasehold of public land), and other ’hybrid’ models (Zekovic, 2009, p 18). 9.2.2 Spatial level analysis a) Challenge of land use planning in response to flooding

Map 3: Spatial Map Source: Municipality of Obrenovac Map 4: Geological Map Source: Municipality of Obrenovac

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After the floods in 2014, an official request was sent from the city of Belgrade to the municipality of Obrenovac asking them to revise all their planning documents. The municipality analyzed the topography of Obrenovac and the geological structure of the soil from an existing geological map. The map revealed that a large percentage of the northern part of Obrenovac is located on alluvial soil, which is affected by floods. In addition, the geological map indicated that most areas could be considered unsuitable for construction because of the the geological risk.

The municipality of Obrenovac’s most recent spatial plan was produced in 2013 and is due to be updated in 2018 (see Map 3). Prior to producing new spatial plans (during the review of previous spatial plans phase), flood mitigation and associated strategies should be considered. The existing built-up area around the city center is one of the areas that was most affected during the flood. Tackling the issues in this area would cover the biggest percentage of damage in the city. Hence, it should be carefully considered whether or not this area should be replaced. However, removing people from the city center to a safer area would be expensive and difficult. Therefore, an incremental approach through the upgrading of the flood response capacity of each housing unit is a possible basic strategy. 9.2.3 Building regulations regarding risks and floods After studying the legal framework of national building regulations in Serbia it is concluded that there is a lack of regulations regarding flood risk. There are no specific guidelines referring to regulations in the event of floods. There are some general policies which refer to general facts, e.g. maximum construction indexes, the possible position of the building in the plot, etc. However, a comprehensive legal framework properly considering risk protection is not in place.

Essential 6: Building Regulations and Land Use Planning

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9.2.4 Housing reconstruction During the reconstruction, general guidelines were laid down by the international actors. The municipality applied a twelve-step reconstruction procedure which involved citizen proactive action, public enterprises and international donors (see figure 6). International donors played a significant role in deciding which buildings to prioritize for financial support. They defined six reconstruction categories. The municipality speeded up the process in order to reconstruct almost all damaged houses before the upcoming winter. As a result, almost 100% of damaged houses have been reconstructed (interview with Vesna Djokovic, Obrenovac, April 22nd 2015). However, not all these steps are embedded in clear criteria regarding flood risk reduction and they lack enforcement in the implementation. Further investigation would be needed to analyze whether the reconstructed houses are in better condition or not. 9.2.5 Enforcement of building regulations A neighborhood close to the center of Obrenovac is categorized by the municipality as one of the areas most vulnerable to flooding (interview with Vesna Djokovic, Obrenovac, April 22nd 2015). All of the houses in the area are below the water level of the River Sava. In addition, most of the houses in the area do not have formal building permits. Serbian law specifies that informal housing should be denied any kind of reconstruction support, but this gave rise to a political dilemma since most of the informal dwellers were flood victims. Consequently, after the flood, the municipality implemented a policy to formalize these buildings and facilitate reconstruction. Informal housing numbers need to be reduced in order to reduce vulnerability, but this should be done through appropriate negotiation and not just on paper.

Figure 5: Three Meter High Flood Mark Source: Authors

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During observation in the field in April 2015, we noticed that the three-meter high flood mark was still visible on the facades of some houses (see figure 5). Moreover, we detected that the building mate-

rials used differed from one house to the other, i.e. concrete, pre-concrete, and shacks built of wood. The physical building quality needs to be considered in any further analysis, in order to understand the vulnerability of particular houses. We also found that some houses were overcrowded. The main reason for overcrowding mentioned by one of the residents during an interview was lack of access to affordable proper housing. In addition, it was mentioned that the reconstruction of their houses after the floods was difficult due to a lack of financial means. Hence, we believe that socioeconomic factors and the number of inhabitants per house need to be considered in order to determine vulnerability. 9.3 Key issues Based on the existing condition of Obrenovac and essential findings from the empirical data collected (through observation, interviews and primary sources such as maps and legislation), the following potentials and challenges were identified:

Essential 6: Building Regulations and Land Use Planning

Damaged building report

Owner Agreement

Donor confirmation

House dimension survey

Condition from all public entreprises (water, heating, electricity)

Report for donor guideline

Owner list verification

Tender+Design Geodesy survey

Empirical photography

Design transfer to municipality

Statement of condition

Potentials

Challenges

Strong willingness to improve planning and building regulations:

Centralized plans and decision-making:

An official request from the city of Belgrade for the local community

Since 2009, planning documentation has been formulated and adopted

to revise all their planning documents, especially detailed regulations

in the city of Belgrade without reference to the urban planning sector of

concerning hydro-technical solutions for the flooded areas. Every four years

the municipality of Obrenovac. NGOs cannot make donations and a public

there is a revision of the spatial plan.

tender controlled by the government in Belgrade must be held for the reconstruction of public areas.

Positive changes to regulations:

Limitations to plan:

Six categories were defined for building reconstruction. The reconstruction

Due to budget limitations the plans revised after the flood have not been

process was speeded up (three days being the shortest period) through

put into practice. Also it is hard to enforce building inspections due to

the intervention of the municipality. Depending on existing conditions,

poverty in the community. In addition, the current trend is to move into

the municipality suggested different solutions for flood protection, e.g.

the city and there is strong resistence to resettlement in safer areas (the

double embankments for built-up areas. The municipality also considered

suburbs). All the above lead to plans failing to be implemented.

Actual reaction after flood: The regional (Belgrade) and inter-municipal urban sector are collaborative after the flood. Approximately 100 euros/m2 financial support was granted

Obstacles to regulation implementation:

by the municipality for the improvement of infrastructure. Almost all

Housing recovery is failing to consider protection measures. Houses at risk

houses were reconstructed.

were still being constructed. Building permits are compulsory for additional exterior constructions, but the penalties for violations are mild. Municipality

Aid from international actors:

officials lack the flexibility and independence to manage housing issues that

Support included technical assistance and financial aid. During the recon-

arise due to unclear “informal” guidelines.

struction process general guidelines were provided by the international actors and donors had the flexibility to decide which project they wished to aid..

„Building Regulations set standards for the design and construction of buildings to ensure the safety and health of people in or about those buildings. They

1

also include requirements to ensure that fuel and power is conserved and facilities are provided for people, including those with disabilities, to access and move around, inside buildings” (English and Wales planning portal, 2015). 2

„Land use planning creates the preconditions required to achieve a type of land use that is environmentally sustainable, socially just and desirable and economi-

cally sound. It thereby activates social processes of decision making and consensus building concerning the utilization and protection of private, communal or public areas“ (Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH, 2012).

Figure 6: Reconstruction Procedure of Obrenovac Municipality Source: Authors Table 4: Potentials and Challenges Source: Authors

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Essential 7: Training, Education and Public Awareness

10 Essential 7: Training, Education and Public Awareness

Authors Hoda Aminian Jovana Bugarski Aline Peres

10.1 Introduction “Disaster risk reduction is everyone’s job. As a team effort, it provides a unique opportunity to strengthen participation” (UNISDR 2012, p.20). Public awareness, public education and training for disaster risk reduction are seen as important assets to empower and engage normal people everywhere to contribute in reducing future problems and distress. They should be followed up with training in pre-disaster risk reduction and during disaster and post-disaster recovery. According to the International Federation of Red Cross and Red Crescent Societies, public awareness, training and education “mobilize people through clear messages, supported with detailed information” (2011). Public awareness is defined as the processes of informing the general population and increasing their level of consciousness about risks.Training is defined as the process of developing programs to enhance community awareness and preparedness. Finally, education is in this chapter understood as long-term and comprehensive personal education programs, including formal and informal education. “Today, examples around the world are beginning to reveal the power of both formal education in disaster risk reduction, integrated into curricula for all age levels, as well as informal education introduced through co-curricular and extra-curricular activities that begin at school” (Petal and Izadkhah 2008, p.1).

Left Page Student Exhibition on Disaster Response Photo: Carsten Zehner

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Resilient Cities

Formal education in disaster risk management is included in the main curriculum of schools and universities, integrating existing courses such as geography, biology, science etc. Informal education can take many forms such as extra-curricular activities after classes in schools and universities, cultural and art performances, sports day activities related to risk reduction, exhibitions and stand-alone courses etc. Public awareness, public education and disaster prevention training involve different phases: preparation, planning, implementation, monitoring and evaluation. There are many types of communication for delivering information to an audience: one-way broadcasts (from one single source to a wide audience); two-way face-to-face interactions; many-tomany interactions (as in social networking using telephones and web tools). Moreover, depending on the target groups, time factors and capacities, different approaches can be used, such as campaigns, participatory learning, formal education and informal education. Each approach has its special tools for implementation. In order to reach and engage the largest number of citizens, it is important to follow the public awareness principles: consistent and standard messages, legitimacy and credibility, scalability (activities should be promoted to a large number of people) and sustainability (shift to culture of safety). The means of communication should take into consideration the diverse groups inside the community. The messages should consist of relevant local information and should be delivered in a clear and uncomplicated way, using basic language and easy to understand terms; illustrations are important to attract people’s attention. Continuous campaigns focusing on pre-, during and post-disaster events should be published in different local media, and it is also important to communicate in a direct way with the local community through participatory approaches such as surveys, interviews, group discussions etc.

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10.2 Obrenovac case In May 2014, exceptionally heavy rains fell on Serbia leading to a flood disaster situation. The city of Obrenovac was the worst affected in the country, with more than 25,000 people evacuated from their homes. Interviews with the local people in Obrenovac showed their lack of preparedness to deal with the disaster. Since there had been no training or specific education in risk situations before the flood, many citizens did not know where to find specific information about how to react during the disaster and had to improvise using their own instincts to act quickly and find the best way to escape from the flood. 10.2.1

Pre-disaster

Public awareness, training and education have been approached in different ways over the years in Serbia. After WWII, a program of civil protection was implemented at national level in formal education, from primary school to university level. Its main goal was to inform citizens and prepare them with knowledge of how to act during any unexpected emergency situation, e.g. fire, flood, contamination, car accident etc. This educational program was conducted up until 1999, when there was a change in the political system. From 2000 until the date of the last flood in May 2014, there was a lack of educational training programs, formal and/or informal education, or specific public awareness activities regarding disaster management. 10.2.2

During disaster

During the flood in May 2014, the main sources of information were social media and television. Many people relied on Facebook and Twitter to find and share information and to help citizens in the flooded areas. The Obrenovac community had to learn how to react during the disaster because they had had received little previous instruction. Some days after the flood, booklets with guidelines were prepared by a group of volunteers to instruct people how to clean their houses, what to do with water-damaged furniture and how to deal with garbage, plus information about the risk of contamination etc.

Essential 7: Training, Education and Public Awareness

10.2.3

Post-disaster

Since the flood, training, education and public awareness programs have been held at both national and local level, with the civil society and the municipality as the main actors. However, these programs are not yet sufficiently comprehensive and practical and are not tailor-made for the local context. The Center for Risk Analysis and Crisis Management (CRACM) is an NGO created to build organizational capacity in both the private and public sectors and in local communities and civil society institutions for the analysis of security risks and the strengthening of capacities and response to emergencies, in accordance with modern international, European and national standards and legislations. a) Emergency A Committee for Emergency Situations was created at the municipal level with members from the municipality, the police and public enterprises. This committee has been holding meetings every week to gather information about the current situation in the city of Obrenovac regarding disaster and risk management. Reports are published in local media, television, newspapers, radio and social media every week to inform the local population. These reports are presented in a clear way, using easy to understand terms in order to communicate with all citizens. The Committee for Emergency Situations has also prepared an evacuation plan document that was published on April 7th 2015. This consists of information about places where people can go to be safe when a disaster happens; it also provides comprehensive contact information for each committee member, and the responsible persons at each evacuation spot, as well as for public enterprises. Although the document is relevant and provides basic information on evacuation during disaster, it was not structured in a way that is clear and easy to understand and lacks illustrations and maps, which some groups of people might find more useful.

According to Jovan Vasovic, a member of the Emergency Committee, the local government provides training courses on risk management for the municipality staff. The idea is to prepare the workforce to be responsible for the local people and equip them to provide help in the event of a future disaster. The citizens in general do not receive any specific education on disaster management, and there is no formal plan to include them in the training courses. The Obrenovac Youth Foundation NGO was founded in June 2014, after the flood. In cooperation with another NGO called Save the Children and the Care International organization, they are preparing some courses on security, disaster management and evacuation in emergencies to be delivered to all interested citizens of Obrenovac, especially children and young people. The main goals are to inform the population about the current situation of the city regarding flood risk and to instruct them in disaster management. b) Monitoring The Obrenovac Youth Foundation NGO has organized a number of monitoring groups which are responsible for observing the state of the rivers and publishing information, photos and documents on social networks in order to increase public awareness. This NGO also republishes official statistical data such as river conditions, weather forecasts and flood risk in a format that all citizens can easily understand. In addition, the NGO is creating a “flood dictionary” to provide basic information on flood risk, with instructions on how to act during and after a disaster.

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10.3 Key issues Field visits comprised of both observation and interviews identified the following potentials and challenges related to public awareness, training and education in Obrenovac. 10.3.1

Potentials in the Obrenovac context

- Obrenovac Youth Foundation – active local NGO - Evacuation plan - Municipality’s eco camps for children - Local TV - Social media: for instance Facebook and Twitter - Center for children and young people - Flood anniversary – memorial day - Public events (May 1st; January 1st square of “open heart event” for children; August – traditional music and dance festival) - Public spaces (city center: main square and park; cultural Center; schools; Zabran - forest near River Sava) - Activities for children where parents are also involved - Social centers and associations for the elderly - Civil protection program 10.3.2 - - - -

Right Page After the Floods Photo: Dragan Lazarevic

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Challenges in the context of Obrenovac

Citizens’ fear of flood, which could cause more problems during a disaster Difficulty of engaging adults in special courses in their free time Lack of option of public spaces around the city that can be used to inform people during other activities, such as theaters, cinemas, gymnasiums etc. Lack of formal and informal education in disaster risk management

Essential 7: Training, Education and Public Awareness

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Essential 8: Environmental Protection and Strengthening of Ecosystems

11 Essential 8: Environmental Protection and Strengthening of Ecosystems

Authors Shane O’Hanlon Cecilia Sampaio Jelena Spasojevic

11.1 Introduction This section deals with aspects of environmental protection and the strengthening of ecosystems, specifically dealing with the issues related to urban expansion and the protection of natural resources - chiefly agricultural land and animals. Focusing on agricultural land was of importance because of the huge role that such land plays in the economic and physical landscape of Obrenovac, with over 50% of the local economy relying on agriculture for income. Thus, flooding has the most significant impact on this sector since it is the low lying fertile flood plains that both provide for the residents an economic resource, and situates them in such precarious disaster-prone zones. These issues will only get more severe as climate change and increased manipulation of river flows (through hydropower dams and other such structures) alter the profile of the rivers. The impact of climate change on global flood events has been witnessed through catastrophes such as Hurricane Katrina in New Orleans (2005), Hurricane Sandy in New York (2012), widespread floods in India and Pakistan in 2014 (Luo, 2015). “More people are affected by floods than by any other type of natural disaster. New analysis shows that approximately 21 million people worldwide are affected by river floods each year on average. That number could increase to 54 million in 2030 due to climate change and socio-economic development.” (Luo, 2015)

Left Page Fields around Obrenovac Photo: Vukasin Ljustina

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In May 2014, Obrenovac was subjected to what had previously been described as a “once in a 1000 year flood”. The frequency of such events however is increasing. With rain records only dating back 120 years and the impact of human development having increased exponentially in this time, the municipality and international experts are reassessing the likelihood of such flood events occurring. Located on the confluence of the Rivers Kolubara and Sava, the city of Obrenovac is in a precarious position. With high groundwater levels requiring the use of the Kupinac Canal for drainage, Obrenovac is a high flood risk area. 11.2 Analysis of Obrenovac Agriculture accounts for 10% of Serbia’s GDP, with half of the population living in rural areas and two thirds of these relying on agriculture as a source of income (2011 statistics, from Serbia Floods 2014, United Nations Serbia, EU and World Bank group (2014). In Obrenovac, agriculture provides the income of a large section of the population, yet there are data showing that polluted water and soil may be contaminating Obrenovac’s crops. For that reason, we will describe the approaches of some actors and municipalities to the topic and offer a brief overview of the agriculture sector’s main natural resources. 11.2.1

- Eco filters for factory emissions - System to transport and dispose of ashes and slag - Construction and implementation of processes to reduce nitrogen oxide and sulphur emissions - Continuous measurement of emissions of hazardous and harmful substances - Reduction of negative impact of ash pollutants on the environment - Prevention of negative impact of waste on land and water (storage for temporary waste disposal, purification of oil waste water etc.) TENT is one of the greatest polluters in Obrenovac and its impact is acknowledged and addressed on the company’s website. Future plans to assess environmental impacts are under review. In 2008, TENT obtained ISO14001, which is a certification for environmental management and in 2011, TENT was again certified under this ISO. In spite of this environmental certification, however, there are several measures that the company must take to avoid depleting the municipality’s natural resources. Their environmentally-related plans are broad and it is not possible to pin down exactly when they will be implemented, or even if they will be implemented.

TENT

The (Thermal Electric Nikola Tesla) TENT is located inside the municipality of Obrenovac and is one of the main sources of electric energy in Serbia, producing more than 50% of the country’s electricity. However, Obrenovac does not receive energy produced in these power plants. TENT is a 100% state-owned company and the Electric Power Industry of Serbia governs it. The company is trying to develop projects to address the environmental degradation caused by their activities, such as:

Obrenovac is one of four municipalities subject to the EcoTax imposed on major polluters. This tax is managed by the city of Belgrade Territorial Unit, where it is collected and later distributed back to the local authorities (i.e. back to Obrenovac). In the case of Obrenovac, once this tax revenue is returned, it is used to fund trips for schoolchildren to the region’s forests. 11.2.2

Air

Thermal power plants produce energy by burning large amounts of low calorie coal that emits harmful substances such as SO2, NO2, CO, CO2 and particulate matter.

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Essential 8: Environmental Protection and Strengthening of Ecosystems

“The biggest polluters in Obrenovac are the Nikola Tesla thermal power plants (TENT A and TENT B), traffic, individual heating units, animal farms and natural contaminants - allergens.”(SAP, translated by the authors.) In Obrenovac, air pollutants are measured hourly at three measuring stations (Grabovac, Obrenovac - center, Obrenovac - elementary school) and the results published on the municipality website. 11.2.3

Sewage

Only 41% of households in Obrenovac are connected to the public sewer network; the remaining households uses their own septic tanks. However, there is no sewage treatment in Obrenovac and the raw sewage is discharged into the Rivers Kolubara, Tamnava and Kupinac. The septic tanks pose a threat not only in terms of groundwater pollution, but also as triggers of landslides, since some of them were built in landslide areas.

Water

Obrenovac is surrounded by the Rivers Sava, Kolubara, Tamnava and Kupinac. The groundwater level is known to be very high, in some areas reaching surface level. “Contamination of surface waters is produced by the discharge of utility and untreated wastewater from industries and households, as well as the work of the cooling power plants. Groundwater is being polluted by erosion from traffic areas, landfills and ash dumps. The Kolubara River is contaminated with coal particles that are washed down from Reiki Kolubara. There is no register of polluters of groundwater and surface water.” (SAP, translated.) 11.2.4

11.2.5

Solid Waste

The Public Utility Company (JKP Obrenovac), which is responsible for the maintenance of several public facilities, such as sports, administrative facilities and cemeteries, is also responsible for waste management in Obrenovac. The waste collected from households and industries is disposed of in an open and uncontrolled dumpsite. Currently, around 70% of households are serviced by JKP Obrenovac. Their dumpsite is located inside the area of the city that was flooded and poses a huge environmental threat in the event of a flood. There are also many illegal open dumpsites (more than 90 already mapped) that could cause clogging in the drainage systems and secondary catastrophes post-flood in relation to health, hygiene and sanitation.

11.2.6 Strategic Action Plan 2014-2016 and Local Environmental Action Plan 2012-2015 The municipality of Obrenovac has shown concern for their natural resources in the Strategic Action Plan (SAP), with all the problems stated in a realistic manner. Thus, many projects listed in Obrenovac’s Local Environmental Action Plan (LEAP) already attempt to tackle some of these issues. For instance, the SAP mentions the agreement on the joint management of waste for the municipalities of Kolubara County (Valjevo, Lajkovac, Ljig, Mionica, Osecina, Ub and Obrenovac). In this project, a regional waste management center would separate the waste to facilitate recycling, waste disposal, composting, and recycling of construction waste. Once this regional center for waste management has been constructed, the dumpsite and sorting facility in Obrenovac will be turned into a transfer station. The LEAP document lists projects ranging from the creation of an organized supply system and the guarantee of safe drinking water for the population to using grated asphalt, scrap stone with ash and slag from coal combustion from thermal power plants to rebuild roads. Unfortunately, due to the catastrophe in 2014, most of these projects failed to be developed within the projected three-year period. Recent reports suggest that LEAP is already being revised in 2015 and that the municipality is now in a position to address environmental protection leading to a sustainable and resilient Obrenovac.

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11.3 SWOT analysis of environmentally related potentials and challenges Considering all the information, a SWOT analysis has been conducted on issues related to Obrenovac’s environmental protection.

Strenghts

Weaknesses

Large amounts of fertile land

Weak river defenses

Active community with strong social capital

treatment (recycling) and final disposal of municipal, industrial and other

Inefficient organization and management of the collection, separation,

(hazardous and toxic) waste

International aid and EU focus on climate change issues lends itself to

Long-term negative and detrimental impact of TENT, with evident conse-

further funding and resources (consultants)

quences on the natural and man-made environment, and especially the health of the population and production

Partnerships with other Danube and Sava agencies and cooperations

Derelict and unregulated banks of the river basin

The growing interest of individuals, NGOs, professionals and general public

Lack of a strategy of disaster prevention at the municipal level

to protect nature and the environment

Increasing the degree of compliance of national legislation in the field of environment and biodiversity with EU legislation and international conven-

Air, soil and water pollution

tions

Opportunities

New typology of housing can be explored for future development (flood prevented)

Threats

Strengthening of environmental efficiency through the use of strict protection measures, monitoring and control of TENT Growth of Obrenovac encroaches on natural limits and flat land

Increase density on existing land

Insufficiently restrictive penal policy for negligent endangerment and environmental pollution

Establishment of regional waste management system Table 5: SWOT Analysis of Environmentally Related Potentials and Challenges Source: Authors

functionality

Recycling system solution according to European standards Low level of environmental awareness Strengthening of environmental efficiency through the use of strict protec-

Right Page Protection Measures in Obrenovac Photo: Carsten Zehner

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Disruption, isolation and fragmentation of habitats, and therefore their

tion measures, monitoring and control of TENT

Essential 8: Environmental Protection and Strengthening of Ecosystems

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Essential 9: Effective Preparedness, Early Warning and Response

12 Essential 9: Effective Preparedness, Early Warning and Response

Authors Javier del Río Arteaga Roni Soessman Aruho Apollo Tinka Filip Trgovčević

12.1 Scope of the essential This chapter focuses on effective preparedness, early warning systems and response in emergency situations. It calls for cities and communities threatened by risk of disasters to develop preparedness plans in order to react in a fast and effective way and reduce injury, loss of lives and minimize destruction of property. Moreover, disaster resilience under this essential requires: establishment of institutional and legal framework; establishment of multi-hazard early warning system; integration of preparedness and response strategies at all levels; improvement of emergency response capabilities (UNISDR, 2012). 12.1.1

Relevant definitions

This section briefly highlights relevant definitions relating to essential number nine. a) Effective Preparedness Preparedness concerns the development of the capacity to be ready for and respond to different disaster scenarios facing a community, to save lives and minimize destructive impacts of the disaster. This involves putting mechanisms and systems in place to identify the particular disaster and levels of risk and vulnerability, building capacity to monitor and detect their occurrence, and respond appropriately and timely; and establishing and maintaining stand-by capacity and a humanitarian supplies stockpile during and immediately after the disaster (United Nations, 2008).

Left Page Rescue Photo: Lazar Lazarevic

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b) Early warning Early warning systems are communication and information dissemination tools and systems focused on empowering individuals and communities threatened by hazards to act in sufficient time and in an appropriate manner to reduce the possibility of personal injury, loss of life and damage to property and the environment. It is essential that communities understand their risks, understand the warning messages, respect the warning service and know how to react. The community should be well informed of options for safe behaviour, available escape routes, and how to minimize damage and loss of property. Warnings must reach all those at risk. For this, multiple communication channels are necessary to ensure an extensive coverage of the disaster area and avoid the risk of information flow failure that can occur when using only one channel (UNISDR and Germany Federal Foreign Office, 2006). c) Response The response refers to the aggregate operations and programs taking place after the disaster, to support those affected by the disaster and minimize loss of life and destruction of property. It involves activities in emergency operations for relief, search and rescue of persons and livestock, and immediate livelihood supplies (United Nations, 2008).

Communities did not know how to respond, and evacuation messages relayed were not understandable to sections of the affected communities and this led to slow evacuation. The institutional framework that would ensure the preparedness of vulnerable local areas is centralized, with coordinating offices at the national level and in the city of Belgrade. It is only after the onset of the disaster that a temporary office at the local level (municipal headquarters for emergency situations) was established for evacuation and emergency response coordination. This temporary arrangement still has minimal decision-making authority. For example, the emergency sirens are under the control of the Sector for Emergency Management (SEM) of the Ministry of the Interior (Civil Defense Department Inspector, 2015). However, this provides an opportunity, drawing from the lessons learnt from the recent flood disaster experience, to permanently establish a municipal coordinating center. Moreover, it provides a basis to organize disaster preparedness at the local level, well equipped and capacitated to operate efficiently. The legal and institutional frameworks already in place (cited in WMO, 2012), are a big point of leverage for the implementation of sound preparedness against disasters. For example, the following regulations exist:

12.2 Analysis of Obrenovac case 12.2.1

Disaster preparedness in Obrenovac

According to the Department of Civil Defense of the municipality of Obrenovac, the civil protection and preparedness mechanisms in the former Yugoslavia provided civic education in schools and public awareness, and regular drills in communities to ensure high levels of preparedness (interview with Civil Defense Department Inspector, April 2015). However, this was stopped during the late 1990s which had a negative effect on the impacts of the 2014 flood.

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Law on Emergency Situations (Official Gazette of the Republic of Serbia, No. 111/09), which focuses on protection of citizens and their property in disaster situations. One of the focuses is disaster risk reduction. Furthermore, the provisions follow the guidelines and framework of the United Nations International Strategy for Disaster Risk Reduction (UNISDR) as well as fundamental principles of the action framework and the institutional structure to manage disaster risk reduction to be established at all administrative levels (national, autonomous and municipality).

Essential 9: Effective Preparedness, Early Warning and Response

- -

Law on Meteorological and Hydrological Activity (Official Gazette of the Republic of Serbia, No. 88/2010), guiding the Republic Hydrometeorological Services of Serbia (RHMSS) to the development of hydrometeorological early warning systems, hazard mapping, vulnerability mapping, development of disaster databases. Law on Waters (Official Gazette of the Republic of Serbia, No. 30/2010), for protection against flooding and shipwreck water pollution.

12.2.2 Early Warning Only nine sirens, installed in 1980 and covering the then urban settlement, still exist in the municipality. The urban settlement has since more than doubled in size. Only five of the sirens are now functional and are not operable from a central location as they are manually operated. During the disaster, mobile sirens were utilized to supplement and cover the vast area affected by the floods (Inspector for Civil Defense, 22nd April 2015). There is an obvious need for more sirens to be installed to cover the vulnerable community. Modern technology and tools for use in early warning and preparedness and response need to be employed to bolster and strengthen preparedness and early warning mechanisms. The utilization of such available quick communication channels as TVs, cell phones and mobile alarms during the disaster provides an entry point for strengthening the use of modern technology – for example, realtime smartphone detection and the relaying of disaster information and evacuation routes and safety points. These channels can provide quick, integrated, wide and centrally-controlled communication means for the vulnerable community. The municipality of Obrenovac has been designated as a pilot center for disaster preparedness and early warning by the city of Belgrade (interview with Civil Defense Department Inspector, April 2015). This pilot center provides an avenue for relearning through past experiences and best practices from other worldwide locations affected by similar disasters.

The Republic Hydrometeorological Service of Serbia’s (RHMSS) operation and coordination mechanisms with other departments and ministries, nongovernmental and international actors (WMO, 2012) need to be strengthened in order to reach vulnerable communities. The RHMSS also collaborates internationally in the various fields of meteorology and hydrology, working on vulnerability assessment and risk mapping for particular meteorological hazards. Furthermore, it monitors, detects, forecasts and issues warnings of hydrometeorological hazards and makes available to other designated actors the information that has been gathered and processed. An example of these other actors is the Sector for Emergency Situations (SEM) (WMO, 2012, p.168). Below are figures illustrating the structure and organization of SEM and RHMSS, (adapted from WMO, 2012). 12.2.3 Response “When the disaster struck, all response decisions were made at city level. It took a long time before evacuation orders were given” (interview with Civil Defense Department Inspector, April 2015). For effective and well-coordinated communication in times of emergency, all decisions need to emanate from a central source, but the length of time between the receipt of information and feedback in effecting critical operations is vital in saving lives. Furthermore, this process requires a coordinating office at local level to ensure the consolidation of information from a credible source and quickly relay it to enable subsequent quick decisions. Weak communication and coordination mechanisms are a prelude to aggravated disaster effects. Information from the department of civil defense indicates that a considerable number of volunteers were deployed to the flooded areas to undertake rescue and other response operations, but that these operations were uncoordinated, with no central communication and coordination mechanism. This kind of uncoordinated voluntary work exposes rescue personnel to risk and is ultimately ineffective and frustrating for those involved.

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In addition to coordination, all response programs need to be well financed and planned. As disasters are not a matter of whether but of when they will appear, disaster response needs prior planning. The personnel involved need to be well equipped and trained for the targeted tasks. In Obrenovac, this was lacking. For example, the firefighting department has 33 personnel, but lacks the necessary tools and equipment (Civil Defense Department Inspector, 2015). This situation weakens morale and the capacity of the staff to undertake effective response activities in the event of a disaster. However, there exists a general inter-level governmental awareness and cooperation to minimize the negative impacts. The coordinating arm of the Office for Emergency Situations established a branch in Obrenovac after the disaster. This cooperation, enhanced and strengthened with the requisite financial and technical resources, provides a solid base for the proper coordination required in disaster preparedness, early warning and response mechanisms (United Nations, European Commission, World Bank Group and Republic of Serbia, 2014). 12.3 Conclusion Setting aside weaknesses in disaster preparedness and subsequent interventions in response to the disaster, the focus needs to be directed at strengthening disaster risk reduction programs. Resourcing and financing of preparedness and response programs should be high on the agenda at all levels of government, learning from local experience and also from the international experience of countries that have experienced similar and other disasters. Often, more funds are directed to recovery and reconstruction and less to soft but effective preparedness programs, for example, civic education. The challenge is now to balance the need to consider both soft and hard approaches to postdisaster programs, with more community preparedness strategies that are people centered. Right Page During the Floods Photo: Vukasin Ljustina

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Essential 9: Effective Preparedness, Early Warning and Response

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Essential 10: Recovery and Rebuilding Community

13 Essential 10: Recovery and Rebuilding Community

Authors Bojana Antić Eunyoung Lee Yan Liang

13.1 Introduction According to Norris et al (2008), the community is defined as a complex composition of built natural, social and economic environments. Based on this definition and on lessons learned from disasters in other countries, both physical reconstruction and the socio-economic recovery of communities in Obrenovac need to be accomplished. Thus, analysis of this topic, Recovery and Rebuilding Community, is divided into three parts: 1) Physical reconstruction, 2) Social recovery, and 3) Economic recovery. At the same time, it is important to point out that these three parts demand parallel coordination, which means that the development of the social capital of the community, eco nomic recovery, and homes reconstruction should not only take place simultaneously but also adjust to each other’s plans within a realistic environment. In order to achieve a resilient community in Obrenovac, both bottom-up and top-down approaches are being followed. On the one hand, NGOs and the local municipality established participatory initiatives such as education activities and open space recovery along with the efforts of the local youth. On the other hand, from a top-down perspective, technical issues, such as assessing damage and defining reconstruction policies, building responsible teams, allocating financial resources, setting up new disaster-resilient building codes and creating communication mechanisms and monitoring systems, need to be arranged by the municipality and related levels of government.

Left Page Building Rehabilitation Photo: Carsten Zehner

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13.2 Analysis of Obrenovac case 13.2.1

Physical reconstruction

Since the floods, more than 100 apartments and houses have been reconstructed by the municipality for victims whose homes were completely demolished by the floods. Disregarding the legal framework of normal building process, the construction of these new homes was implemented by the municipality through an adjusted process in order to quickly accommodate homeless citizens. Legal titles to the properties will be permitted in the future. Other citizens who did not receive adequate subsidies used private savings and loans to repair their damaged homes. 13.2.2

Social recovery

Although the municipality has not yet prioritized the social recovery of the local communities, local NGOs have actively developed a number of projects at community level, with support from international funds and NGOs. A questionnaire on psychological issues and expectations for future community activities was conducted among the local youth. Based on an analysis of the results, open spaces such as playgrounds have been provided or repaired, to be used for youth activities. 13.2.3

Economic recovery

The flood is the one of the main reasons for the deterioration of the local economy in Obrenovac. The flood paralyzed economic activities. Private donations have become a crucial financial resource for community recovery after floods.

Table 6: Key Issues Source: Authors

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By contrast, the insurance companies in Obrenovac will not be offering any financial compensation to insurance carriers for the damaged houses, because of a “non-coverage for high-damage natural disasters clause in the contracts”. In future, citizenprotective house insurance policies should be made a priority with the support of the municipality of Obrenovac.

Essential 10: Recovery and Rebuilding Community

13.3 Key issues

Approach Levels

Potentials

Challenges

Human resources: Individuals are highly motivated to

Individual Level

assist in community recovery

Victims of psychological problems in the community after

Initiatives at neighborhood level at the time of the

disaster

disaster

Society-based active organization and cooperation

Scarcity of funding for community recovery

Community/

among partners - Obrenovac Youth Foundation and

Informal settlements in Obrenovac

Neighborhood Level

People in Need from Czech Republic, Foundation

Problems with realization of planning solutions

Ana/Vlade Divac, Center E8, Fond B92, Civil Initiative,

Lack of knowledge about disaster management

Donation, International Olof Palme Center

Lack of reconstruction plan at the local level – no priority budget list for community recovery No new building code/risk assessment of housing Local Level

Physical resources: fertile land, energy resources poten-

Limits of local business in Obrenovac

tial (power plants)

Environmental risk from huge industrial areas located on the boundaries of Obrenovac Weak geological location: surrounded by Rivers Sava, Kolubara and Tamnava, ground water, landslide. Obrenovac sits on a plain between rural industrial areas

National Level

Lack of reconstruction plan at the national level – no priority Political support at the national level

budget list for community recovery No equal compensation/treatment for inhabitants

International organizations and donors – UN Habitat, European Environment Agency, World Bank, Swedish International Level

International Center, Regional Environmental Center,

Climate Change

WWF, UNDP, Greenpeace, International Organization, Red Cross, CityNET, Rockefeller Foundation)

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Integrated Analysis and Identification of Conceptual Working Areas

14 Integrated Analysis and Identification of Conceptual Working Areas

Authors Josefine Fokdal Carsten Zehner

Based on desk research and fieldwork regarding the ten essentials, an integrated analysis was conducted in order to share and discuss the main findings of the individual working groups. This analysis was based on the SWOT approach focusing on strengths, weaknesses, opportunities and threats. However, for logistical reasons the analysis was simplified and negative as well as positive aspects were combined. All ten working groups contributed their main findings which they presented to the whole group to be discussed and confirmed. This integrated analysis helped to gain a common understanding across the individual topics and complete the analytical phase of the project. Below, a summary of the main findings regarding weaknesses/threats and strengths/ opportunities is documented. The number of the essential topic which has contributed the respective finding is mentioned in brackets. 14.1 Weaknesses and threats - - - - -

Lack of horizontal coordination in municipal administration and beyond (between sectoral departments as well as between municipalities) (1) Lack of citizen participation (1) Substantial number of people still in temporary/emergency shelter (1) Centralization of decision-making power to the city of Belgrade in 2009 (1) Agency for reconstruction doesn’t yet take on mandate for prevention/protection (1)

Left Page Discussions Photo: Carsten Zehner

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Low level of engagement of adult population (1) Two billion Serbian dinars (RSD) (16.5 million euros) per year of EcoTax revenue in Obrenovac is centralized, with only 5% of return / unclear procedures of accessibilities (2) Lack of coordination in financing of reconstruction, prevention and emergency (no prioritization) (2) Insurance companies do their own risk assessments (based on six categories) / coordination with municipality limited to data exchange (2) Lack of awareness of insurance conditions (2) Unpredictable budget transfers to municipal level / local dependency on national level (2) No budget planned for disaster management (2) Lack of financial independence of public enterprises (lack of resources) (2) Ad hoc data collection without institutionalized coordination (3) Hydro-meteorological institute lacks technical capacities and human resources (3) Lack of capacity development for disaster management (not obligatory) (3) Lack of data and coordination for risk assessment (3) Undefined mandates/commands in local disaster management (3) Lack of coordination between actors in risk assessment / response (3) Lack of multi-hazard risk mapping (3) No consideration of different scenarios (3) Protection measures not based on risk assessment (3) Inactive role of Ministry of Interior in municipal risk assessment and Monitoring & Evaluation (3) No wastewater treatment (4) Lack of maintenance of municipal infrastructure (4) Leakages in heating system leading to contamination of groundwater (4) Damage assessment of infrastructure is incomplete (4) Infrastructure reconstruction prioritized over upgrading (after flood) (4)

- - - - - - - - - - - - - - - - - - - - - - - - -

Insufficient finance for infrastructure reconstruction (4) Multi-level responsibilities (municipal vs. city vs. national) in infrastructure management with lack of coordination (4) No risk assessment of infrastructure systems (4) Lack of horizontal coordination of different infrastructure systems (e.g. lack of accurate and combined data) (4) Centralized health and education functions in risk areas (5) Lack of emergency shelter (5) Centralized emergency reactions in education sector (5) Lack of space and facilities in education and health sectors (5) Lack of professional consultation services for housing reconstruction (6) Limited support for housing recovery (especially in affected informal settlements) (6) Centralized planning process (6) Housing recovery is not considering protection measures (6) Budget limitation for revision of plans (6) Unwillingness to resettle to safer areas (6) Lack of implementation of plans (6) Limited coordination between civil society organizations and municipality (7) Planning is focused on formal procedures compliant with legal framework / limited room for informal planning instruments (7) Traumatized population with lack of psychological support (7) Capacity development limited to municipal staff (7) Dysfunctional solid waste separation / recycling after flood (8) Risk assessment is not conducted (national and local level) (8) Urban growth disrupts natural habits which negatively affects permeable areas (8) Lack of external auditing (8) Competing priorities between environmental protection and other development sectors (conflict of interest) (8) Incomplete coverage of solid waste management in Obrenovac (8)

Integrated Analysis and Identification of Conceptual Working Areas

- - - - - - - - - - - - - - - -

Lack of policing / enforcement of environmental protection (8) Lack of implementation of environmental protection plans of TENT plant (8) Lack of awareness to link pollution to public health (8) Lack of communication means and awareness of pollution information (intransparency) (8) Landfill unprotected from floods (8) Landfill leakage to groundwater (8) Obrenovac doesn’t have a local river police (9) Manual siren operation is only done on an ad hoc level TENT power plant and electric devices factory with separate warning systems (9) Lack of implementation of EU standards in early warning systems (9) Top-down approach of planning with limited authorities on local level (9) Incomplete coverage of municipal area with early warning systems (especially new or informal settlements) (9) Centralized information flow and decision making for early warning (9) Outdated technology for early warning systems (9) Limited support by the municipality for affected businesses (10) Lack of participation in municipal decision making during reconstruction (10)

14.2 Strengths and opportunities - - - - - - - - -

Inter-municipal cooperation has started (up/ downstream) (1) Training for municipal staff has started (1) Crisis headquarters from flood 2014 still exists (but not institutionalized) (1) Incentives given for insuring agricultural land (2) Transfer of disaster risks to insurance sector (2) Obrenovac is one of nine municipalities in Serbia eligible for EcoTax collection (2) Multiple sources of financing available (2) Transparent finance reporting available in municipality (2) Methodology for multi-hazard risk assessment available on national level (3)

- - - - - - - - - - - - - - - - - - - - - - - - - - -

Integration of spatial planning and risk assessment planned (3) Chamber of engineers is supporting risk assessment in Obrenovac (3) Willingness of municipality to implement local risk assessment (3) New law defining role of risk managers (3) JICA (Japanese cooperation) support for landslide risk assessment (national level) (3) Regulatory function of insurance policy (3) Waste water treatment plant planned (4) Risk awareness of public enterprises has increased (4) Infrastructure system is again fully functional (4) Health and education sectors are attractive for donations (5) Municipality gives high priority to health and education (5) Demand for revision of plans is recognized (6) Participation of citizens in infrastructure improvement (6) Revision of spatial plan every four years (6) Municipality is open to consider new ideas and concepts (6) Regional / inter-municipal coordination has started after the flood (6) Readiness in municipality to allow for NGO finance and engagement in reconstruction process (6) Simplified building permit process established for reconstruction phase (6) 120 totally damaged houses reconstructed (almost all) (6) Willingness of municipality to develop building regulations (6) Municipal planning department is cooperative (6) Active public and social media in Obrenovac (7) Evacuation procedures have been developed (after the flood) (7) Municipal activities to initiate EcoCamps for local youth (7) Active local NGO (Obrenovac Youth Foundation) (7) Committee for Emergency Situations has been established (7) Existence of social centers and associations (7)

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Right Page Challenges and Potentials Photo: Carsten Zehner

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Availability of large amounts of fertile land (8) EU membership process gives strong support to environmental laws (8) International aid and EU focus on climate change issues and provides funding/resources (8) Destroyed properties provide a fresh start for new flood resilient housing typologies (8) Planned regional coordination of solid waste management (8) Waste separation capacities available (technical facilities and human resources) (8) Community committees with increasing roles (9) Organization “Save Serbia” is developing a risk assessment and training for Obrenovac (9) Increased public awareness about risk management and willingness to invest in it (9) The city of Belgrade has selected Obrenovac as pilot for establishing an early warning system (9) Availability of human resources for psycho- social support (9) Local TV available as means of mass communication (9) Local emergency unit created (not yet trained) (9) Activation of “old” civil protection system (9) Increasing willingness to volunteer (but not coordinated) (9) Mobile vehicle with siren function available in municipality (9) Private engagement for housing reconstruction (10) NGO engagement for psycho-social support and awareness raising (10) Culture of public events for awareness raising (10) Citizen engagement for reconstruction (self-help) (10)

14.3 Identification of conceptual working topics Based on the integrated analysis of findings resulting from desk and field research on the ten essentials, five key topics were identified as most essential for conceptual inputs: 1) Institutional framework, 2) Resilient open space, 3) Resilient infrastructure, 4) Resilient vital facilities and 5) Resilient housing. Hence, it was decided to work on these topics during the conceptual phase of the project. Consequently, new mixed working groups of students from Belgrade and Berlin were formed which developed conceptual ideas for each of these topics. The main results of their work are presented in the following chapter.

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Part III: Concepts for Resilient Obrenovac

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Strategic Framework

15 Strategic Framework

Authors Hoda Arminian Shan Gao Evandro Holz Katarina Kožović Andjelina Lučić Parham Mortazavian Jelena Spasojević Kurt Steffens Ivan Živadinović

15.1 Scope of work and context This strategic framework has the overarching objective of providing an underlying structure for conceptual ideas of disaster risk management (DRM) in the municipality of Obrenovac. It serves as a foundation for the strategies to be further developed on more specific areas – open spaces, technical infrastructure, vital facilities and housing. In line with the Hyogo Framework (UNISDR, 2005), the aim of this strategy is to move from the culture of response, to one of prevention and mitigation, thereby improving resilience. Priority actions should encompass the building of institutional capacity, knowledge and assessment of potential risks, reduction of these risks and preparedness for response, and should promote an understanding and awareness of these aspects. Therefore, this strategic framework touches mainly on non-spatial aspects, such as urban governance, institutional framework, financing and resources, etc, which has particular significance in Serbia as the country is going through a transitional phase, from governmental planning towards a market economy (for more background see Hadzic and Zekovic, 2005; Simmie, 1989; Vujosevic, 2001 and 2004). This shift comprises modifications at all government levels as well as in the private sector and in civil society, adding yet another level of difficulty to the

Last Pages Conceptual Brainstorming Photo: Carsten Zehner Left Page Discussion at Night Photo: Vukasin Ljustina

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development of policies in more specific areas. It is therefore of the utmost importance that a newly developed DRM framework considers these higher levels of institutional change in order to introduce adequate new concepts and ideas as part of this transformation. Therefore, the workflow for the process of developing a DRM strategic framework is envisioned to be incremental and rather cyclical, in order to include an ongoing participatory, self-reflective and open approach. An initial plan based on preliminary information should be followed by a phase of implementation in parallel with discussions with the various stakeholders. The results of this second step should then be fed back into the framework and used as a platform for its upgrade. Subsequently, the newly proposed strategy should be implemented and discussed, generating new feedback and successive updates to the plan. 15.2 Challenges and potentials 15.2.1 Introduction In recent years, regulatory framework and institutional capacity regarding planning for disaster management in Serbia have been enhanced. By establishing an integrated system, which includes the different levels of government, Serbia has made progress towards the distribution of responsibilities and pluralization (Vujošević, 2004). In this section, the situation of DRM, including the mechanisms for cooperation between state and civil society institutions, governance structure, plans and programs for disaster risk reduction and the framework for post-disaster recovery in the context of the municipality of Obrenovac, are analyzed. However, in order to provide a more extensive image, the main challenges of Serbia’s institutional organization and planning system as a “post-socialist” country are briefly looked at. Afterwards, the main issues concerning Obrenovac’s disaster management framework were investigated through a SWOT analysis, having as an outcome the potentials and challenges in the field. Table 7: Challenges and Potentials of a Strategic Framework Source: Authors

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15.2.2 Serbia’s institutional and planning system background In the early 1960s, Yugoslavia changed the basis of its governance system and introduced decentralization policies into its government. Until the second half of the 1980s, Yugoslavia was still among the most decentralized and participative countries in the world and such concepts as “bottom-up” and “self-management and societal planning” were practiced in the country (Simmie, 1989). However, due to political conflicts and civil war – as well as economic crises – the entire governance system was transformed, resulting in radical recentralization during the 1990s. Consequently, the “sub-national” tiers of government, including city and municipality levels, have been undermined in the decision-making and planning processes (Vujosevic, 2004). This was followed in the 1990s by the collapse of the socio-economic planning system, which has not been replaced by a new and comprehensive plan that responds to the complexities of fundamental political, economic and social changes. Planning degraded to a tool for crisis management and for the privatization and marketization of public goods, as well as a tool for political pluralization (Vujosevic, 2004). Recently, Serbia has experienced a period of economic recovery, labeled “growth without development” and based on poor transitional reforms, and at the same time suffers from the “collapse of its strategic thinking, research and governance” (Vujosevic, 2004). For further analysis of the changing planning paradigms and respective approaches as well as the influences of privatization and corruption please see Vujošević, Zeković and Maričić (2012 a and b). 15.2.3 SWOT analysis With the aim of analyzing the DRM situation in Obrenovac, a comprehensive SWOT analysis was conducted, from the perspective of each of the UNISDR ten essentials towards making resilient cities (see part 2 of this report).

Challenges

Potentials

Strategic Framework Participation - Decentralisation - Networking

There is lack of participation of citizens of the municipality in the process of decision-

Local communities as the most localised and pluralised branch of state in the government

making in the municipality, particularly in disaster preparedness and management.

hierarchy. Although they have limited cooperation with the municipality, they can provide good mean for preparedness and awareness of the people.

Lack of public information system and centralised information flow derived from rigid

Public awareness towards disaster management has increased due to the floods and made an

centralised planning system in all levels of governance.

opportunity to involve different stakeholders in decision-making process.

Members of Committee for Emergency Services are professionals from different sectors

Locals have been engaged in the reconstruction, moreover there are different associations such

and there is no representative from the civil society (Zdravković, 2015).

as architecture students and international activists willing to participate in risk reduction and relief as volunteers (Spasić, 2015).

Since 2009, when Obrenovac was incorporated to the city of Belgrade, administrative system became more centralised as many responsibilities were moved from the municipality to the city level.

Regional cooperation between the municipalities affected by the floods has already been established post-event (Zdravković, 2015).

Although there are various levels of government, including national, city, municipality and local communities, the cooperation between them is limited. The lower local government is highly dependent of its higher counterparts for taking any action.

Finance

Since 2014, 100% of the money from “Eco-tax” has been collected by City of Belgrade and

“Eco-tax”, which is currently used to run “Eco Camp” for youths by the municipality, could serve

the share directed to the municipality is inconsistent.

to other purposes.

The municipality budget is limited for risk assessment and revision of the plans. Moreover,

There are multiple potential and actual sources of fund, such as EU funds concerning climate

municipality’s budget should be ratified by the city of Belgrade assembly.

change, international donors, as well as Serbian foundations.

Incentives are available for insuring agricultural land.

Institutional Framework, Capacity Building, Education

Reinstate and activating the former Civil Protection System. There is a lack of coordination and mutual understanding of the plans and activities between different departments of municipality regarding disaster management.

’Methodology of Hazard Risk Assessment’ guideline has been introduced by Department of General Administration at municipality level.

There is conflicting information about municipality’s programmes regarding risk assess-

The government “Office for Reconstruction and Flood Relief” has been established after the flood

ment and preparedness.

for direct cooperation with Obrenovac municipality (Zdravković, 2015). The office can link the municipality and national level directly.

Structural trainings regarding disaster are practiced in education system, mainly in high schools. There is no assessment of municipality’s operation after the flood. Moreover, an independent audit organization is lacking.

There is a financial reporting compiled by the municipality, however accessible only by the parliament.

Committee for Emergency Situation has been established at the municipality and the members have undertaken 6 weeks training and are currently elaborating municipal risk assessment Staff of different departments of the municipality were not trained with disaster manage-

(Zdravković, 2015).

ment issues. The new risk assessment which is due to beginning of 2016 will define all the roles and responsibilities.

Hydrometeorological Institute suffers from the lack of technical and human capacity.

“Save Serbia” is an NGO who helps with developing and training for risk assessment in Obrenovac.

After the floods, the town was faced with many traumatised people, including the munici-

“Youth Foundation” is an active NGO which focuses on children and youth issues. They already

pality’s staff, with lack of psychological support.

conducted a pr oject to support psycho-social problems after the flood (Spasić, 2015).

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Information was collected from desktop research – academic articles, available official documents and online sources, as well as in the field, where interviews were conducted with different stakeholders such as municipality staff, NGO directors and local residents. After data collection and evaluation, the main issues regarding the strategic framework were critically reviewed and grouped into associated challenges (combining weaknesses and threats) and potentials (combining strengths and opportunities), in relation to governance, participation, decentralization, financing, networking, institutional framework, education, empowerment and capacity building. In Table 7, the challenges and potentials concerning the aforementioned are detailed.

15.3 Proposed strategies and tools 15.3.1

Introduction

Following the SWOT analysis and resulting list of challenges and potentials, outstanding issues were selected and grouped according to their interlinkages, and five major topics were defined for discussion and development of proposals on a strategic framework:

1) Risk assessment 2) Institutional framework 3) Capacity development 4) Participation 5) Financing

15.2.4 Conclusion Although many issues faced by the municipality of Obrenovac concern financial resources and technical shortcomings, from a wider perspective Obrenovac’s main challenges regarding DRM are intertwined with social and governance practices. One of the main challenges of the DRM in Obrenovac is that it is based on insufficient risk assessment at national level and the absence of it at municipality level. The 2014 flood, however, raised public awareness and, consequently, the municipality launched an Emergency Committee, which is currently elaborating a risk assessment. However, the staff members responsible for DRM in Obrenovac have not received appropriate training. Moreover, there is a lack of coordination and mutual understanding concerning DRM, both between different levels of planning (national/regional/city/municipal) and between different sectoral departments of the municipality. Finally, the planning system, information flow and decision-making process applied to DRM in Obrenovac are highly centralized leaving only limited responsibilities to the municipal level. At the same time, there are many potential human resources, communities and volunteers, along with newly established institutions in coordination with new programs and laws, to enable local solutions and proposals.

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The flowchart in figure 7 illustrates the interrelations and envisioned workflow between the topics above, as well as associated involved stakeholders. The risk management process is seen as having two phases – elaboration and implementation, closely linked to each other and following a cyclical process. This iterative approach consists of a continuous upgrade built on evaluation and feedback from the diverse stakeholders whilst coordinating and collaborating with each other. It must also be pointed out that not only do these subjects follow a linear development, they also interact in parallel throughout the project cycle. As described above, each phase of the DRM process involves its particular range of stakeholders. It is essential that a detailed assessment of the actors and their potential interlinkages with each steps is conducted, leveraging these connections to enhance their relationships. The following types of stakeholders should be considered: a) Government (multi-level) The local municipality plays the leading role in such events, because it is best placed to define what is most needed at the local level (UNISDR, 2012, p.20) and it has the responsibility to protect the population from disaster and help those affected (Bannerman, Rashid and Rejve, 2011).

Strategic Framework

Thus, it is responsible for establishing an interrelated institutional framework which brings actors and stakeholders from different social sectors into play, all contributing on common ground. Alongside this, it is also necessary to clarify the responsibilities and commitments of each department included in the framework, thus ensuring a high-functioning mechanism during an emergency. b) Private sector The private sector plays a significant role in both pre- and post-disaster management, by providing technical expertise and financial assistance, and is also highly valuable for capacity building and data exchange, among other things. A close interaction between private enterprises and the government is needed to achieve appropriate strategies of risk preparedness, risk reduction and risk sharing (Srinivas, 2015).

c) Civil society - Local communities: As one of the major stakeholders, local communities should be given a role in decision making. The implementation of actions regarding risk prevention and recovery after disasters, such as preparedness, capacity development, early warning and responses, and community recovery and reconstruction, would not be effective without the participation of the risk- prone communities. These can also be of great importance for information provi- sion and exchange during the process of risk assessment. A concise and compelling risk analysis should always be based on a knowl edge data base shared between the expert teams and the local communities. - NGOs and other social associations: These actors assist distinct fronts. NGOs help encourage and support positive initiatives (Srinivas, 2015), direct financial resources, provide expertise and experiences and participate in decision making.

Figure 7: Risk Management Flowchart Source: Authors

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They also contribute to the development process through engagement in capacity development, education and training, policy research and advocacy (Behera, 2002). As an example, a stakeholder mapping exercise was carried out for the risk assessment elaboration. Based on available information, it can be observed that, currently, limited interactions are in place, the majority being found within the government sector and little engagement of the private sector and civil society. A depiction of the five main subjects of study, their interrelations and importance, as well as associated proposed strategies and tools with the view to the development of a strategic DRM framework in the municipality of Obrenovac, are described below. 15.3.2

Risk assessment

Risk assessment is considered the baseline for building a resilient society. The effectiveness of DRM and responding mechanisms relies on the accuracy of risk assessment (Jongman, Koks, Husby and Ward, 2014) - the evaluation of what kind of disasters can potentially happen, where, when and how often they are likely to happen, and who will be affected by these disasters and to what extent. An accurate assessment is of great importance for the government in decision making regarding the public reserve for disaster management and institutional arrangements. It also provides a knowledge base for insurance companies to develop proper insurance schemes, as well as motivation for private businesses and house-owners regarding risk prevention. The following are the proposed actions to ensure that an appropriate risk assessment is in place for Obrenovac.

Figure 8: Stakeholder Mapping Source: Authors

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a) Complete risk assessment at local level consistent with national level (new National Law on Emergency Situations) The municipality of Obrenovac has begun risk assessment implementation, in accordance with the Law on Emergency Situations. It is required to

enable the appropriate environment in order to complete the process. Tools: - Organize regular meetings to review and discuss risk assessment implementation between the Ministry of Internal Affairs and the local level. - Ensure the collection of accurate data to vali date the process. - Encourage the use of participatory tools such as participatory mapping, in order to involve the community in the risk assessment elaboration and to facilitate the collection of information that is difficult to access. - Promote information exchange with other institutions and organizations doing multi- risk assessment (e.g. insurance companies), in order to coordinate actions and proposals. - Capacity building of competent authorities in order to apply the methodology of vulnerability assessment of the population and certain economic sectors to multi-hazard risk assessment, including the risks associated with climate change. b) Utilize risk assessment outcomes in urban planning and public infrastructure maps In accordance with current regulations, “natural disaster threat maps were made relating to forest fires, floods, landslides, earthquakes, droughts, storms and hailstorms and these represent an integral part of the Spatial Plan of the Republic of Serbia” (UNDP, 2015, p.18). However, the municipality of Obrenovac does not hold comprehensive map information. Together with risk assessment implementation, it is essential to ensure coordination between different risk assessment outcomes with urban planning and public infrastructure maps, on all spatial levels. This aims to avoid both the locating of new developments in risky areas and the surface water run-off impacts of new developments in downstream areas (Local Government Association UK, 2014). It is fundamental to identify an authority (local level) that coordinates this linkage, and to provide it with the necessary resources. In addition, it is necessary to “update periodically and widely dissemi-

Strategic Framework

nate risk maps and related information to decisionmakers, the general public and communities at risk in an appropriate format” (UNISDR, 2005, p.7). c) Establish legal framework for enforcing development and implementation of risk assessment at local level

mentation. Hence, it is recommended to establish a respective legal framework. In addition, it is recommended to enhance coordination between multirisk assessment and other municipality policies, such as poverty reduction and sustainable growth, and in the allocation of financial resources to incorporate risk assessment in local development budgets.

The Law on Emergency Situations establishes the need to adopt risk assessment. However, its legal body does not provide the legal framework to incentivize multi-risk assessment development and imple-

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15.3.3

Institutional framework

Institutional frameworks consist of legal structures and organizations or institutions, both governmental and non-governmental. Within the framework, each stakeholder has its recognized roles and rights, with mechanisms for coordination and collaboration among involved entities. Actors involved in planning and supporting implementation and practices are usually coordinated and linkages among different levels, from local to national, are created (Mattingly, 2002, p.20). Capable and effective institutional arrangements may be established through a legal framework (Mattingly, 2002, p.21) which makes different players legally responsible for specific actions and activities. This provides a basis for a functioning governmental body and external partners. Below are described the proposed tools and actions associated with the building of a DRM framework in Obrenovac. a) Increase autonomy of the municipality in DRM decision making: In order to develop effective risk management and to ensure the sustainability of this process, in accordance with the city’s development objectives, it is necessary to increase the autonomy of the municipality. Tools: - Facilitate direct communication between the municipality and the national level - in particular, the Office for Reconstruction and Flood Relief - through regular meetings and/ or committees (e.g. Emergency Committee), to involve the national government during the development process of local initiatives (not only for approbatory purposes). - Improve direct coordination between the municipality of Obrenovac and the city of Belgrade, facilitating instances of discussion, negotiation and joint works.

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b) Enhance cooperation between different departments within municipality and public enterprises More effort is required to broaden the necessary cooperation between different departments within the municipality of Obrenovac, in order to encompass and coordinate other departments involved in the municipality’s development (e.g. Department of Planning and Construction Works, and Finance). Tools: - Organize regular meetings between different departments within the municipality to coordinate action plans and provide regulatory guidance. - Create information exchange platforms. - Ensure consistency of regulations for housing, infrastructure and vital facilities, integrating disaster risk reduction. c) Ensure independent tools and clear methodology for auditing, transparency and accuracy of data Data are essential in the DRM process and must be accessible to all key stakeholders and decision makers. Accordingly, all information needs to be evaluated and audited in order to verify its accuracy and quality. All stakeholders responsible for the establishment of databases and information related to disasters must “ensure the application of international standards and methodologies for the management of these databases” (UNDP, 2015, p.19). Tools: - Engage independent consultants to ensure neutrality and accuracy of audits. - Include regional organizations as consultants to provide feedback regarding the quality of the information and the means to collect it (e.g. DPPI SEE, Balkan Institute).

Strategic Framework

d) Define institutional roles and responsibilities of involved actors The National Law on Emergency Situations is being updated and any potential lack of clear mandates must be tackled, particularly for corrective DRM strategies. Clarification will more easily connect the national strategies and policies to action plans, avoiding the overlap and/or lack of measures to be taken. Tools: - Ensure the clear definition of institutional roles and responsibilities in the (new) National Law on Emergency Situations. - Create necessary frameworks for the implementation of DRM, such as clear mandates, guaranteed financial resources, realistic timeframes and methods for tracking the implementation progress with measurable indicators. To this end, it is necessary also to provide update guidelines for public sector staff on how to organize, manage and monitor progress during the implementation process. 15.3.4 Participation DRM is a team effort (UNISDR, 2012, p.20). Hence, it requires a participatory approach to involve and combine knowledge, technology, expertise, institutional capacities, management skills, and practical experience for an optimum strategy. It provides a good opportunity to strengthen civil participation and private-public partnership. An effective DRM mechanism demands the involvement of stakeholders from the government (multi-level), private sector, civil society, NGOs and other third sector associations in a participative framework.

a) Provide incentives for the creation of local associations (CBOs, NGOs). b) Enhance collaboration and participation of local associations and citizens in DRM. Tools: - Delegate responsibilities to local associations. - Provide facilities and resources for meetings of local organizations. - Regular meetings organized by municipality. 15.3.5 Capacity Development Capacity development is defined by the UNDP (2008, p.2) as “the process through which individuals, organizations and societies obtain, strengthen and maintain the capabilities to set and achieve their own development objectives over time”. An enabling and engaged civil society is vital to support DRM. It plays an important role in simulating and contributing to the development of the knowledge, capacities and motivation needed to build disaster resilient nations and communities (CADRI, 2011). In order to achieve this goal, the overarching need is to “elaborate and implement a comprehensive capacity development plan” in Serbia in general, and Obrenovac in particular. This can be accomplished through both “government-driven” and “society-driven” approaches which should be linked to each other and derived from “top-down initiatives towards greater community involvement as the basis for improving environmental monitoring and management” (Fraser et al., 2006, pp.114–115). There are common and specific tools for the implementation of these approaches. Some of the following proposed tools are based on current identified potentials whilst others are new suggestions.

In view of the importance of participation and the lack of community-based associations and coordination between current NGOs, associations and the municipality in Obrenovac, some suggestions for increasing local participation and coordination between stakeholders are described below. The municipality of Obrenovac is considered to be the main actor in this process.

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a) Government-driven This approach includes activities that government at the national and/or local level is responsible for implementing, in order to increase the capacity of the local community, governmental departments and organizations associated with DRM. Tools: - Provide information regarding insurance conditions: Interviews showed that the local community does not have enough informa- tion about insurance conditions. Local government should provide this information in cooperation with insurance companies and publish it in the local media, on social networks, via posters and brochures. - Illustrate and provide clear instructions on evacuation plans: The municipality of Obrenovac provided an evacuation plan with detailed information about who to contact during a disaster, evacuation points, etc, but this information was not easy for everyone to understand. The municipality needs to provide illustrated maps and clear, understandable instructions to make the evacuation plan useful to the community. - Use local television and newspapers: Since local television is one of the most popular media tool in Obrenovac, it can potentially be used to broadcast information regarding the different phases of DRM and increase the community’s capacity. Local newspapers are another tool suited for this purpose, but their coverage is not as wide. - Training of municipality staff, public enter prises and community: According to the Law on Emergency Situations, the municipality should provide its staff with risk management training, especially concerning flood. This training should be provided to public enter prise staff, teachers, health center staff and, on a wider scale, to interested people in the community.

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- Education at different levels in schools: Education in DRM and climate change is a very important tool for promoting capacity development in a sustainable way, even though it is a long-term and comprehensive process (Dufty, 2010). Upgrading and implementing the country’s old civil protec tion system could be the first step in this process. In addition, some other tools could be used for this purpose, such as school drills, textbooks, modules, case studies, exercises, hands-on learning materials, etc. - Informal education for all citizens: “Informal education in communities and schools is the most flexible of all approaches with respect to setting, audience and time frame” (Red Cross, 2011, p.28) in order to increase public awareness and education. According to the Red Cross guidelines (2011) on public awareness and public education for disaster risk reduction, some specific tools for informal education include: - Publications: posters, guidelines, flyers, brochures, booklets, activity books, paper models, comic books, story books, coloring books, assembly kits and teacher resources. - Curricula, modules and presentations: teacher briefings and community training. - E-learning: self-study curricula. - Performing and cultural arts: plays, dances, poems, songs, street theater, puppet theater. - Games and competitions: card games, board games, activities role play, drawing competitions, writing competitions, tour naments, radio quizzes. - Audio and video materials: short videos, radio programs, telvision programs. - Web pages and activities: websites, online games, online quizzes. - Social media and telecommunications: SMS, early warning.

Strategic Framework

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Organize campaigns to increase public awareness: Campaigns provide “uniform, large- scale impact with standard messages” (Red Cross, 2011, p.23). The majority of tools available for informal education can also be used for campaigning.

b) Society-driven This approach refers to activities that engage community participation and involve it in decision making in order to increase empowerment. Different stakeholders, from the local government and NGOs to the local community, should be involved in the process. Tools: - Use available resources for psychological support: Interviews showed that local people still suffer from the psychological effects of the flood. Local NGOs such as Obrenovac Youth Foundation and volunteers can be helpful in this regard. - Social media (e.g. Facebook and Twitter). - Use public spaces and public events: These offer a real opportunity for NGOs and local groups to organize campaigns. Some tools that can be used for campaigns are described in the government-driven approach. - Campaigns and informal education. 15.3.6

Financing

Risk preparedness and social recovery in DRM need financing, so any proposed actions should consider their potential funding sources. In addition, appropriate institutions and mechanisms should be in place to ensure proper cash flow towards the priority areas within applicable timeframes. In line with the above, the proposals to enhance financing in DRM in Obrenovac include the following:

a) Improve private sector role in compensation risk share balance After the flooding event in 2014, the majority of funds for compensation, in particular to private dwellers, came from the national government. The two main reasons for this were the lack of insurance of most properties and the non-coverage of the insurance for the particular type of event that occurred. Therefore, there is a potential for increasing insurance coverage on properties and for reducing the burden of providing compensation carried by the government. Tools: - Subsidize insurance premiums, in particular for properties in high-risk areas and for infr structure requiring a high rehabilitation priority. - Tax deductions for insured properties, in the same circumstances as above. - Facilitate penetration of insurance companies in the market, for instance by providing clear information on insurance conditions for the population, enabling an exchange of data with government bodies and establishing partnerships for mass insurance schemes. b) Prepare annual DRM budget with inclusion of different/additional sources (for instance EcoTax, international funds for special projects and recycling revenue) Currently, the municipality of Obrenovac does not produce a yearly DRM budget, and such a budget is actually unknown at city or national level. As a starting point, a fund should be set aside as part of the strategic framework. Additional sources for financing can also be considered. Tools: - Include DRM as one of the topics in the annual municipal budget revisions. - Establish penalties and legal responsibilities for public and private enterprises regarding the implementation of DRM measures such as the improvement of property resilience, in particular for vital facilities.

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- Revision of the legal framework to ensure a proper background for such penalties and responsibilities, plus enforced compliance with the law through ongoing monitoring. - Assessment of additional resources through negotiations with different government levels (e.g. EcoTax, budgets from different departments, such as infrastructure, environment, etc.) and international enti- ties (e.g. funding for special projects in the field of climate change) and assessment of local resources (e.g. revenue from recycling activities). c) Enforce bilateral exchange of information regarding financial aid provided by different sources to ensure proper prioritization Although the majority of funds were channeled through the municipality of Obrenovac at some point, parallel donations were significant, in particular for housing reconstruction. Taking these sources into consideration is of great importance in order to ensure that funds are being directed to the most affected areas. In addition, prioritization of employment of funds was made on an ad hoc basis, with a limited assessment of the general context.

Figure 9: Examples of Stakeholder Synergy Enhancement and Collaboration Potential Source: Authors

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Tools: - Contact with donation receivers and donors, as it is understood that some donations were deliberately made outside of the government umbrella due to a variety of reasons (e.g. lack of confidence, formal restrictions). - Focus on qualitative rather than quantitative data. Assess whether an area or issue has already received sufficient funds, instead of scrutinizing details of amounts. - Prioritize employment of resources by devel- oping a strategy for the necessities and focus on vital facilities and infrastructure. - Create a network of professionals for damage assessment, in order to ensure quick and technically sound assessment for prioritization.

d) Use participatory budgeting to determine the allocation of funding Participatory budgeting entails the engagement of private and civil society actors in the decisionmaking process for the application of public financial resources. This can be carried out in addition to and alongside the technical evaluation of priorities and budget necessities for each aspect of DRM. 15.4 Conclusion In order to implement a comprehensive and feasible DRM strategic framework whilst ensuring consistency throughout its lifecycle, appropriate mechanisms to facilitate the flow of resources – e.g. human resources, financial resources, etc. – should be in place. To this end, the different actors involved in the plan, with their different objectives, roles and responsibilities, should be in line with and a part of the overall approach. Moreover, cooperation in all directions and in diverse aspects, is essential, (i.e. partnerships, information exchange, etc.). According to the issues identified during this evaluation, there is no clear need for the creation of new institutions for DRM, rather the focus should be on increasing the synergy shared by existing entities. In this sense, both vertical (decentralization) and horizontal (cooperation) within the various levels of government provide substantial room for improvement. Furthermore, engagement and empowerment of the private sector and civil society can be established (when non-existent) and enhanced (when already in place). A schematic view of examples of these approaches is portrayed in Figure 9.

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Open Spaces for Protection

16 Open Spaces for Protection

Authors Dolo Mazorra Cebrian Shane O’ Hanlon Aline Peres Mila Madžarević Adele Vosper Zhu Yaqi

16.1 Scope of work and context There is no universally agreed definition of the term “open spaces”. However, a useful starting point comes from the United States Environmental Protection Agency, which defines open space as “any open piece of land that is undeveloped (has no buildings or other built structures) and is accessible to the public” (US EPA, n.d.). The issue of public accessibility is an important component of many definitions (see for example: Francis, 2003), even though it is recognized that some open spaces may also be private, for example, backyards. The issue of development is also contentious, with other definitions acknowledging that open spaces may be developed or undeveloped (Tract Consultants and H.M Leisure Planning, 2001). It is widely recognized that multiple social, cultural, economic, aesthetic, environmental and health benefits can be derived from open spaces (Committee of Ministers, 1986; Tract Consultants and H.M Leisure Planning, 2001; Woolley, 2003; McConnell and Walls, 2005; Waltham Forest Council, 2010). As climate change and its effects (in particular increasing frequency of extreme weather events) gain importance on political agendas worldwide, the important role that open spaces can play in mitigating and adapting to the effects of climate change has also been recognized (see for example Waltham Forest Council, 2010; Walker et al., 2012).

Left Page River nearby Obrenovac Photo: Dragan Lazarevic

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In particular, it has been noted that open spaces are being specifically used as part of flood mitigation strategies (McConnell and Walls, 2005; Petrow et al., 2006; Walker et al., 2012; Brody and Highfield, 2013). The purpose for which open space is being used therefore seems important in developing a definition. For certain environmental issues, for example heat island effects, it may be important to include all non-built up areas, including backyards. In contrast, when considering opportunities for recreation, only public and semi-public open spaces may be taken into consideration. For the exploration of protective functions open spaces can take on for DRM in Obrenovac, a broad perspective has intentionally been taken, which defines open spaces as open pieces of land that are accessible to the general public. The land may be undeveloped or developed, however, it should contain no buildings other than those which provide services which are directly related to the purpose for which the land is reserved (e.g. sports club house). According to this definition, open spaces include: - parks, gardes - forests - plazas, squares - outdoor sports facilities - waterways - commmunity gardens, urban farms - agricultural land - children’s playground - vacant public land

Figure 10: Flood Resilient Functions of Open Spaces Source: Authors Figure 11: Outcome of SWOT Analysis Source: Authors

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It is important to remember that open spaces are multifunctional and don’t just provide a single land use solution (CIRIA, n.d.). Instead, as already noted, it is possible to derive multiple benefits from a single open space. Open spaces therefore have the potential to play an important role in improving the resilience of Obrenovac during flood periods, while at the same time providing an important community resource for day-to-day activities. At the most basic level, designating and preserving the most flood-prone areas as open spaces, can be part of an “avoidance strategy”, where damage from

floods is reduced because people and buildings are not located there in the first place (Petrow et al., 2006; Brody and Highfield, 2013). However, open spaces can also contribute to building the flood resilience of Obrenovac through: a) Providing points of evacuation b) Diverting and pooling floodwater c) Providing physical protection against flood damage

While serving to build flood resilience, open spaces can and should simultaneously be used as a community resource during non-flood periods, by providing opportunities for exercise, relaxation, children’s play, arts and education (Waltham Forest Council, 2010). As will be described in subsequent sections of this report, these community uses should not be considered separately from the flood resilience functions of open spaces. On the contrary, they can be built into the design of flood resilience. Indeed, open spaces for protection must also be combined with other uses such that Obrenovac is not simply a city surrounded by levees, but that alternative year round uses are designed for in these protection measures (such as bike paths, recreation spaces etc.). Multi-use protection measures increase the added value of these structures.

Open Spaces for Protection

16.2 Challenges and potentials Issues relevant to the topic of open spaces for protection in Obrenovac were identified in the SWOT analyses conducted by each of the ten essentials working groups (see part 2 of this report). In the interest of simplification, strengths and opportunities were grouped under the category of “potentials” and weaknesses and threats were grouped under the category of “challenges”. There was a considerable degree of overlap between the issues identified by each of the ten working groups. The first stage of the analysis therefore, was to group related potentials and challenges and ascertain the underlying issues. From this, three main issues related to open space in Obrenovac emerged: 1) Inadequate preservation of open spaces for flood resilience 2) Low level of community awareness and understanding of the importance of open spaces for flood resilience 3) Limited budget and minimal control of financial resources by the municipality of Obrenovac

There are manifold reasons why regulations stipulating where residential development may and may not occur have not been systematically enforced in Obrenovac. Many of these relate to limited municipal financial resources. From 2009 this was exacerbated once a number of responsibilities were taken from the municipality and placed with the city of Belgrade. Housing is also a highly politicized issue in many cities around the world. Without the full understanding of both the government and community of Obrenovac concerning the important role open spaces can play in building flood resilience, addressing the problem of illegal and informal housing has the potential to be used merely as a political tool to win votes.

The first two issues suggest that the value of open spaces in building flood resilience has not yet been recognized in Obrenovac. Municipal land use plans designate land where residential development can occur, as well as land that is not suitable (for example due to flood or landslide risk). However, despite being legally binding, these plans have not been systematically enforced, giving rise to numerous informal and illegal settlements. These terms are often used interchangeably, however, in this chapter, the term “informal settlements” is used to refer to settlements that were not planned, are without infrastructure, whose residents generally do not own the land, and generally have poor quality housing. “Illegal settlements” also denote houses built without a building permit, however, in this case the residents own the land and the housing is generally of good quality. In some cases these illegal settlements have later been formalized by the municipality.

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The three main issues identified in the SWOT analysis were subsequently framed as general themes in order to facilitate classification of both challenges and potentials. The next step was to develop ideas for addressing the challenges and capitalizing on the potentials. Following discussion with other working groups, it was decided that the issues related to finance were outside the scope of this chapter and would be better dealt with comprehensively in the chapter on strategic framework. 16.3 Objectives As noted at the beginning of this chapter, open spaces can play an important role in building the flood resilience of Obrenovac while at the same time providing a valuable community resource. However, as identified in the SWOT analysis, lack of awareness and knowledge as well as lack of enforcement of land use plans are resulting in inadequate preservation of open spaces in Obrenovac. These two contrasting facts led to the formulation of the following objective regarding open spaces for protection in Obrenovac: Objective: To capitalize on open spaces as resources for building flood resilience. Following the floods in May 2014, which inflicted heavy damage on Obrenovac, the municipality is currently undertaking a comprehensive risk assessment, with the view to developing a plan for the safety and protection of the municipality. Recognizing that the municipality has both limited financial resources as well as legislative powers it will be essential to take advantage of existing resources which have the capacity to build flood resilience. In order to realize this objective, three key tasks were identified:

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a) Designate functions Open spaces, according to the definition established above, within the municipality of Obrenovac should be identified, and criteria should be applied to designate specific functions regarding flood resilience. In addition, a complementary day-to-day community use for the open space should be stipulated. b) Engage the community Difficulties in protecting land from residential encroachment were identified in the SWOT analysis. While ongoing enforcement of building regulations is crucial, it is also important to build the awareness and knowledge of the community regarding the importance of open spaces in building flood resilience. Direct community engagement offers an opportunity to build awareness and knowledge, while at the same time creating a sense of community ownership vis-à-vis open spaces. It is anticipated that this will in turn reduce the likelihood that informal and illegal settlements develop on these sites as communities begin to self-regulate. c) Communicate It is essential for the municipality of Obrenovac to establish a communication strategy in order to inform members of the community not directly engaged in the planning process about: - The importance of open spaces in building flood resilience - The functions designated to specific open spaces This is necessary in order to ensure safety during flood events (i.e. community members know which open spaces they should go to for evacuation, and which they should avoid due to pooling of water), as well as for the long-term sustainability and success of these measures. This chapter will only address the first two tasks, as these should be implemented as a matter of priority, with the third task building on the outcomes of this process.

Open Spaces for Protection

Community mapping was identified as an appropriate tool for undertaking the first two tasks, as it is not only able to generate data to inform the designation of functions, but also to actively engage the community in the process. Community mapping for flood resilience should be seen as a complementary tool to the existing planning process. The only types of open spaces denoted in the 2013 Spatial Plan of Obrenovac are: woodlands, waterways, and agricultural land. Public green spaces, parks and squares are only included in the Detailed Regulation of the Central Zone under the category of public land.

Community mapping for flood resilience can therefore provide an additional layer through identifying and allocating functions to all open spaces in Obrenovac. Furthermore, community mapping also supports the implementation of national planning requirements. Specifically, Article 45a of the Law on Planning and Construction stipulates that the public must have the opportunity to participate in the early review of development plans.

Layers Functions Community Mapping Topography Land Use Plan Existing Area

Figure 12: Community Mapping as Part of Land Use Planning Source: Authors

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16.4 Strategies and suggestions In addition to engaging the community, an important role of community mapping for flood resilience is to designate functions and uses to open spaces. The following sections provide useful guidance for this process. 16.4.1

Open spaces for flood resilience

a) Open spaces for evacuation Open spaces for evacuation are spaces dedicated to the purpose of allowing people to withdraw from or flee a threat, generally that of a natural disaster. From this location centralized help and collection is then arranged. In the case of Obrenovac an evacuation space is required during floods. International Good Practice: Japan In Japan, the importance of open spaces for evacuation has been recognized in their Tsunami Evacuation Plans. According to the valid tsunami hazard map, evacuation spaces should be located on higher land. By following the evacuation route, evacuees can find the nearest evacuation space surrounding their communities. When determining which open spaces are suitable to serve as sites for evacuation, the following criteria should be considered:

Figure 13: Open Spaces for Evacuation Source: Authors

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Open spaces for evacuation should be set close to a main road. This makes it easy for different neighborhoods along the main road to evacuate to the appointed place in an emergency situation.

Additionally, the location of an evacuation zone close to a main road facilitates easy access for large rescue trucks or equipment. Open spaces for evacuation should have a large uncluttered surface area. Spaces with large surface areas include parks, playgrounds, plazas etc., so long as they are not encumbered by equipment, vegetation or structures. This setting is in line with human instinct, which is to seek a wide, open space in a disaster (for reasons of security and visibility). Large areas are also practical as they can hold a large number of evacuees, thereby centralizing operations for rescue efforts. Large areas are also naturally better for facilitating access of helicopters, boats and trucks. Open spaces for evacuation should be set in areas of topographical advantage. It is advantageous to utilize natural topography and locate evacuation spaces on land that is higher than the highest levels of floodwater. Using natural topography instead of artificial high structures provides security and safety in all conditions, regardless of the extremity of the disaster. Unlike built structures, open spaces are available at all times and without restricted access. Open spaces for evacuation should be close to communities and areas of dense settlement. In a disaster, locating an evacuation space close to areas of high population density (e.g. clustered apartment blocks) allows for a more efficient and safer evacuation process. At the same time, it makes possible the temporary location of the rescue team in the evacuation space. The space can also serve as a base for search and rescue operations in the flooded areas.

Open Spaces for Protection

b) Open spaces for diversion/pooling Open spaces can also be used for diversion or pooling of floodwater. When used for diversion, networks of open spaces provide a channel to divert the flow of water from one course to another, or to direct the flow of water to a specific area. In this way it is possible to minimize the flow of floodwater through residential and other areas of importance. When used for pooling, open spaces effectively act as a basin for storing and containing floodwater. Compared with underground water storage, the use of open spaces for diversion/pooling on the surface allows for faster diversion of floodwaters. It is also easier for observation and control. Finally, it will reduce the requirement for the construction of channels and ditches. In Obrenovac specifically the groundwater level is very low, and so open space for diversion/pooling of floodwaters will mainly serve the purpose of retaining water and not infiltrating it.

When determining which open spaces are suitable to serve as sites for diversion or pooling, the following criteria should be considered: Open spaces for diversion/pooling should follow the contours of the local topography. Choosing low-lying areas for diversion/pooling of water will reduce the construction of artificial channels and ditches. The selected open spaces should take the location of the original watercourse into consideration. Open spaces for diversion/pooling should take into account the type of surface (soil, gravel, rock, asphalt etc.) as well as the quantity of space available. The space available must be sufficiently large to retain a large flood event or a portion thereof. Porous rocks can absorb water, whereas soft soil or peat is generally eroded during a flood event.

International Good Practice: Jakarta, Indonesia In Indonesia, following numerous floods, open spaces for diversion/pooling were incorporated into the concept of “Jakarta Sponge City”. The idea behind Jakarta Sponge City is the provision of various multifunctional uses of water, such as incorporating/creating pools, eco-parks and wetlands in open spaces. These can help ease the pressure of trying to drain water during flood events and in non-flood situations can be used as facilities that are beneficial to the community.

Open spaces for diversion/pooling should be close to riverflows. Directing floodwaters in the most efficient and direct way possible is crucial during a flood event to avoid additional damage. Directing floodwaters to designated floodable open spaces should require minimal diversion or construction of barriers, such that water naturally flows to this retention space.

Figure 14: Open Spaces for Diversion/Pooling Source: Authors Figure 15: Surface Pooling in the Construction of a Bank Source: Authors

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Open spaces immediately in the vicinity of large potential polluters (such as a landfill or sewage treatment plant) should not be used as general open spaces for diversion or pooling, in order to limit contamination. Due to the potential of contaminated water mixing with floodwater, open spaces in proximity to polluters should serve as retention spaces for contaminated waters and not general floodwater for pooling. c) Open spaces for protection Open spaces can serve functions that protect and inhibit the flow of floodwaters into population centers. Utilizing naturally high land, such as hills and alluvial moraines, can serve to provide barriers to the intrusion of water. Making use of such natural defense opportunities in spatial planning can help protect Obrenovac and reduce the costs of artificial defense measures. It is important to note that in the context of Obrenovac “flood protection” does not include protection at the level of individual properties (excluding vital facilities), as this would not allow for an effective community mapping exercise, leading to individual concerns outweighing those of community scale priorities.

Figure 16: Multifunctional Bank which can easily drain or absorb Water in the Flooded Area Source: Authors Figure 17: Drainage Channel in Obrenovac Source: Authors Figure 18: Kolubara Levee Source: Authors

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With regard to protection from floodwater, it must also be noted that floodwater stemming from rivers is a trans-regional and also an international issue. There are thus political and economic issues underlying flooding and floodable zones. Protecting certain areas upstream will inevitably lead to heavier flooding downstream. Obrenovac has rivers passing through it which extend beyond its municipal controls.

There are many ways to provide protection from rising floodwaters, including proprietary technologies as well as simple low-tech solutions. The Netherlands is a country extremely well versed in such technology, both low and high tech, with large systems of dikes, dunes, levees and other measures protecting its inhabitants. When determining which open spaces are suitable to serve as sites for flood protection, the following criteria should be considered: Open spaces for flood protection must have specific geological characteristics. For example, a naturally high bank used for protection must also be composed of strong impermeable stone and not soft, easily eroded sand. Similarly, open spaces should be vegetated, for example for the purpose of cohesion and integrity of the levees, and not isolated, unprotected mounds of soil.

Open Spaces for Protection

There must be a discernible height difference between open space for protection and that used for flooding. Taking advantage of natural topographical inclines (such as the alluvial levees left on the edges of flood plains), makes for less costly construction of earthworks and dikes. Utilizing open space for flood defense has to take into account that certain facilities are the highest priority for protection during flood events. For example, hospitals should generally be protected at all costs due to their vulnerable inhabitants and for the treatment of survivors.

16.4.2

Open spaces for community use

As previously noted, open spaces should not only provide functions related to building flood resilience, but also serve everyday community uses. Due to the very nature of open spaces, they are accessible to everyone and can engage the whole community. The report “Understanding the Contribution that Parks and Green Spaces can make to improving People’s Lives”, written by the Chartered Society of Designers, provides a useful resource for understanding the multiple benefits and community uses of open spaces.

Figure 19: Open Spaces for Protection Source: Authors Figure 20: Designation of functions - criteria Source: Authors

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Recreational and leisure activities can contribute to building a sense of community as well as providing positive physical and mental health benefits. Sometimes specific infrastructure is required to support these activities, such as providing children’s playground equipment, sports facilities or walking/ bike paths. Open spaces also provide spaces suitable for undertaking community events such as education and raising awareness; arts and cultural events; and local markets. Regarding flood resilience, community education sessions could be held in open spaces to increase understanding of flood risk management strategies and emergency procedures. Community gardens can help increase community awareness and knowledge around the interrelationships between food, health and the environment. In addition, they can contribute to the local food system and foster a sense of community. 16.4.3 Community mapping The functions and uses of open spaces discussed in the previous sections are important components of the community mapping process. This section describes the community mapping approach and how it can be specifically used in a flood resilience context. Community mapping is an interactive approach that draws on local people’s knowledge, enabling participants to create visual and non-visual data to explore social problems, opportunities and questions (Pathways through Participation, 2010). The main purposes of this participatory tool are to engage the community in the planning process and to generate additional data, which can be incorporated into formal planning methods. “By designing and leading the mapping process, community residents and organizations are better positioned to ensure that the maps provide community benefit and accurately reflect community needs” (Policy Link, n.d.). Figure 21: Steps of Community Mapping Source: Authors

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The process of community mapping provides important information not only for the local community, but also for the municipality. Community mapping aims to create learning and understanding between community people themselves, and with the supporting agencies, as well as government officials, with regard to both physical aspects and more intangible matters such as social organization, culture, and the beliefs of people (ACHR Secretariat, 2011). Community mapping has been applied in different countries of the Global North and Global South, in urban and rural areas, and across a diverse range of cultural backgrounds. It can also be used as an instrument to build community resilience. Through citizens’ engagement and mutual cooperation, the mapping process can create awareness and promote a sense of ownership among the local people, can foster stronger neighbor-to-neighbor relationships and increase preparedness. According to Policy Link , the community mapping process contains five broad steps and each step builds upon the information obtained in a previous one. Implementation process and methods

Data Issues Recognition collection identification areas

Map creation

Use map

1) Identify community issues and problems: Organize community knowledge and community mapping team. It is important to determine who it is that you are working Data Map Issues Recognition Use map with andareas why. Bycollection working together creation in teams identification the community members can develop strong relationships – trust is vital – and look for solutions for all. 2) Determine appropriate geography: Recognize the most important areas to be mapped, considering accessibility, topography, human settlements, and activities.

Collect own data vulnerability, hazards and resources

Understand the risk possible future disaster

Open Spaces for Protection

3) Collect data – by surveys, public data, GIS (Geographic Information System) 4) Create maps – paper or web based format depending on the level of expertise. 5) Use maps to promote neighborhood revitalization/resilience – transforming data and spatial analysis into action. The knowledge stays with the community that is now informed and aware of the problems, and can work with the municipality and NGOs for improvements and solutions. The municipality of Obrenovac would play a leading role in facilitating the community mapping process. In order to take into account the views and involve members from all sectors of the community, the municipality should consider working together with local NGOs (e.g the Obrenovac Youth Foundation) as well as local communities (mesnezajednice). Using their existing networks it should be possible to reach members of the community who may not be reached by more formal processes and therefore ensure that the community mapping process is representative. Methods of mapping1: Ephemeral mapping: this, most basic method, involves drawing maps on the ground. Sketch mapping: is a slightly more elaborate method. A map is drawn from observation or memory. It does not rely on exact measurements, such as having a consistent scale, or geo-referencing. Scale mapping: is a more sophisticated mapmaking method aimed at generating geo-referenced data. This allows community members to develop relatively accurate scaled and geo-referenced maps, which can be directly compared with other maps. 3D modelling: integrates spatial knowledge with elevation data in order to produce three-dimensional stand-alone, scaled and geo-referenced relief models.

When the model is finished, a scaled and geo-referenced grid is applied to facilitate data extraction or importation. Photomaps: are printouts of geometrically corrected and geo-referenced aerial photographs (orthophotographs). Orthophoto-maps are a source of accurate, remotely sensed data that may be used for large-scale community mapping projects. Global Positioning Systems (GPS): is a satellitebased positioning system that can tell you your exact location on the earth using a known co-ordinate system such as latitude and longitude. GPS has become more affordable and its use has spread rapidly among NGOs and community organizations. Data recorded are frequently used to add accuracy to information shown on sketch maps, scale maps, 3D models and other less technology-rich community mapping methods. Map-linked multimedia information systems: local knowledge is documented by community members using digital video, digital photos and written text, stored on computers, and managed and communicated through the interface of an interactive, digital map. GIS is a computer-ba sed system designed to collect, store, manage and analyze spatially referenced information and associated attribute data. GIS technology is increasingly being used to explore community-driven questions. In the case of community mapping for flood resilience, two additional steps should be included: -

Risk assessment: Consolidate data inputs and maps from various departments and check with technical agencies to find updated data and information about hazards.

- Analysis of disaster impacts: Consult specific data.

1

International Institute for Environment and Development, 2006.

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Data Issues Recognition collection identification areas

Map creation

Use map

Collect own data Data Issues Recognition collection identification areas

Map creation

Use map

vulnerability, hazards and resources

Understand the risk possible future disaster

In the municipality of Obrenovac the tool of participatory mapping can help the community to collect their own data on vulnerability, hazards and resources, as well as to understand the risks of a possible future disaster and what measures should be implemented to enhance flood resilience. Maps have the power to communicate complex information related to flood resilience. Moreover they enable non-experts to participate in the planning process. The Obrenovac community can thus gain a better understanding of the importance of open spaces in building flood resilience, participate in determining the functions of open spaces in this regard, as well as decide on their everyday uses. Link to formal planning The appropriate use of community mapping has to be linked to the current planning process and existing planning documentation. So far, formal planning procedures have lacked a participatory approach (Vujošević, Zeković, & Maričić), thereby excluding citizen engagement and the knowledge of planning experts from the planning solutions. Existing planning documentation includes the spatial plan of Obrenovac and plans of general and detailed regulations that cover specific settlements of the territory of Obrenovac.

Figure 22: Community Mapping for Flood Resilience Source: Authors Map 5: Spatial Map Source: Municipality of Obrenovac

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The spatial plan of Obrenovac was adopted in 2013 (prior to the flood events) and it is anticipated that this plan will be revised due to its inability to cope with the unexpected flood risk situation. The land use plans included in the spatial plans have designated types of open spaces whose main functions are protection against pollution and the provision of protective corridors around main river fronts, which regulate the flow of the river and, if well maintained, could reduce flood risks.

There are no other uses defined for these spaces аnd there are no guidelines about their design and maintenance. A large part of the local territory is covered with agricultural and forest land, which should be taken into consideration as open spaces. These could have a vital role in flood protection. The land use plan below shows the spatial relationship between different types of open spaces: the light green colour represents existing forest land, dark green shows protective vegetation and light brown depicts agricultural land. Construction areas are marked in yellow. Analyzing two existing plans of the general regulations covering the area of the Nikola Tesla power plant complex and one of the settlements located in the central city area (Zvečka, Rvati, Petlovobrdo and Zabrežje), we found different approaches to the classification of open spaces. The map below shows that the land use plan for the area around the “Kolubara B” power plant has open spaces in the form of protective vegetative green belts and green areas. The land use plan for part of the Zvečka, Rvati, Petlovobrdo and Zabrežje settlement again shows the designation of one type of open space, namely green areas. Existing plans of detailed regulations mostly cover centrally located areas and feature more specific types of open space. The map of public land included in the plan of the detailed regulations for the central zone of Obrenovac features only one type of open space, which includes public green areas, parks and squares. The detailed land use plan of Topolice, a spa, sports and housing complex, includes green areas, forest parks, forests in the riparian area, sports areas and different types of river embankments.

Open Spaces for Protection

An analysis of the existing planning documentation of Obrenovac reveals planned designation of open spaces but with limited connection to the specific function of flood resilience. It also reveals that the network of existing and planned open spaces could become an important resource to incorporate flood risk reduction measures and that the local context allows for the designation of some new areas for the same purpose.

Regarding the future implementation of participatory methods, community mapping is an appropriate model to use in the Obrenovac local context, engaging local officials, community-based organizations and citizens at the same time.

The instrument of community mapping would in this context provide necessary information for the municipality of Obrenovac and engage different communities in the planning process, raising their awareness about the importance of open spaces prior to, during and after flood events.

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Map 6: Plan of General Regulation of “Kolubara B” Power Plant Source: Municipality of Obrenovac

Protective Vegetative Green Belt Green Areas

Map 7: Plan of General Regulation for Part of the Zvečka, Rvati, Petlovobrdo and Zabrežje Settlement Source: Municipality of Obrenovac

Green Areas

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Map 8: Plan of Detailed Regulation for the Central Zone of Obrenovac Source: Municipality of Obrenovac

Public Green Areas, Parks and Squares

Map 9: Plan of Detailed Regulations of Topolice, Spa, Sports and Housing Complex Source: Municipality of Obrenovac

Green Areas Forest Park Forest in the Riparian Area River Embankments

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International Good Practice: Los Angeles, USA

International Good Practice: Preston, UK

Los Angeles Community Resilience Mapping Tool2 In 2013, the Sahana Software Foundation in cooperation with Rand Corporation and the Los Angeles County Department of Public Health started to develop a new tool to be used by the local community in order to enhance resilience. The project is an initiative within the Los Angeles County Community Disaster Resilience (LACCDR); it aims to engage community-based organizations in providing leadership and partnership working with the municipality to promote community resilience. By looking at the relationship between the data gathered in the Community Resilience Mapping tool and data from external sources such as the Census and US Geological Survey, communities can build preparedness and awareness about disasters and emergencies (Howden, 2013).

Community Mapping Tool Kit3 In 2011, Preston City Council developed a toolkit to be distributed within the community during a Community Street Audit. The local government invited local people, councillors and the Neighbourhood Policing to take part in the planning process. The community mapped their priorities and values, identified opportunities and generated ideas on how to improve their community through a variety of strategies.

2

http://sahanafoundation.org

3

http://www.preston.gov.uk

4

https://carse.crowdmap.com

International Good Practice: Gowrie, Scotland Case of Gowrie Project4 The community mapping project in the Carse of Gowrie in Scotland aimed to empower the local residents to manage their assets, in light of potential risks and opportunities from climate change (Sniffer, 2013). Through a series of workshops, they created a set of maps of biodiversity, drainage, historic orchards and many other assets in the area. The maps provide a unique dataset for local and national government and agencies to engage the local community in identifying priorities for planning at the local level and making planning decisions.

Figure 23: Implementation of Community Mapping Source: Authors

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17 Resilient Technical Infrastructure

Authors Sara Dević Rashid Kairuz Aram Lee Ivana Mačkić Nawid Royaee Cecilia Sampaio Olivera Šanta Aruho A. Tinka

17.1 Scope and context The technical infrastructure section focuses on developing an infrastructural system that will prepare Obrenovac to increase resilience to floods. Resilience is defined as a minimum capacity that allows containment of floods to facilitate evacuation of people and livestock, and enables quick recovery after the floods. The approach considered for resilient Infrastructure is a multi-dimensional one, proactively considering a process based management framework in maintenance and upgrading. A multi-dimension approach to infrastructural provision is a process that considers different systems as supportive and dependent on each other. For example, infrastructural assessment and mapping data should form the basis for general maintenance programs and activities, and in turn for infrastructure systems upgrading to accommodate increased capacities. The maintenance and upgrading actions should be tailored to further conform to environmental standards to address environmental concerns that could aggravate the impact of floods The multi-dimensional approach is underpinned by disaster risk assessment and infrastructure systems assessment in Obrenovac, as the starting point to provide an informed basis for further action.

Left Page Bridge in Obrenovac Photo: Vukasin Ljustina

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This information should be integrated to form a single database accessible to public enterprises and other actors. Considering the amount of infrastructure systems recovery needs, it is recommended that prioritization be considered following the criticality and relevance of a particular system, improvement requirements and the urgency of undertaking the proposed improvements. The following infrastructure systems are considered in this section: sewerage, water supply, waste management, surface drainage, roads, electrical, heating and land mass protection systems. 17.2 Challenges and potentials The challenges and potentials were identified after fieldwork which consisted of gathering information from existing plans and diverse interviews with representatives of public enterprises for water, sewerage, electricity, heating, and environmental protection. Afterwards, this information was discussed and analyzed with a SWOT analysis considering the ten essentials. 17.2.1

Challenges

Lack of integrated data: Much of the information regarding infrastructure, vulnerabilities and hazards is isolated. It is important to integrate these data in order to propose systematic strategies for the resilience of the city.

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Lack of risk assessment: The municipality does not have a guideline on risk assessment that allows the development of measures that reduce damage to the city. Such an assessment is important for prioritizing infrastructure projects that improve the performance of the city against a potential catastrophe. Lack of finance for reconstruction: Potential financial sources for reconstruction have not been allocated to Obrenovac. The municipality has to negotiate access to these resources with the national government. Lack of maintenance: The infrastructure in Obrenovac is not well maintained, due to fragmented institutional arrangements and insufficient financial resources. This creates lower resilience and a more difficult recovery from damage. In addition, when infrastructure is properly maintained, its cycle of service is longer, which means less investment in existing infrastructure and more budget available to invest in new resilient infrastructure. Lack of proper drainage system: The existing drainage system was not capable of draining the floods in 2014 and did not protect the vital infrastructure of Obrenovac. It is important that the city’s infrastructure be provided with a more capacities of for drainage. This would improve infrastructure performance in an eventual flood and would avoid the domino effect of causing another disaster such as landslides.

Lack of coordination between public enterprises in charge: Development, maintenance and financing of different types of infrastructure at different levels (national, city of Belgrade, municipality) is not sufficiently coordinated. There is no integration of information, strategies and policies between the different public enterprises.

Lack of protected roads for evacuation: Proper evacuation and the delivery of emergency support for first aid and other emergency actions is only possible if the city is provided with protected strategic roads that allow these actions to be carried out.

Low level of implementation of existing spatial/ urban plans regarding infrastructure development, lack of strategic priorities linked with available financing.

Unregulated and unprotected riverbanks: The banks of the Rivers Sava and Kolubara need to be regulated and protected. These riverbanks are the first defense lines in containing floods; therefore strategies and actions to improve their performance are a priority.

Resilient Technical Infrastructure

Inadequate assessment of damage to infrastructure: After the floods, a commission was created to evaluate the damage in the city. However, the infrastructure assessment was superficial and did not provide detailed information. No waste water treatment facilities: The lack of a waste water treatment plant poses a public health risk to Obrenovac and all municipalities downstream of the river. Currently, the sewerage and stormwater systems are combined and discharge directly into the river. The municipality should ensure that a treatment plant is built, operated and maintained. No solid waste management: The municipality has weak solid waste management. This is a public health risk for the city. Also, when solid waste is not disposed of properly, it can clog the drainage system and prevent it from working at full capacity in storm events. No backup solution for power outages: The power plants located in Obrenovac, Termoelektrana Nikola Tesla, including Tent A and Tent B, are the main suppliers of energy for the area, including Belgrade. During the flood, the power plants were flooded and Tent B had to be shut down. 17.2.2

Potentials

Availability of hydrotechnical data: The Republic Hydrometeorological Service of Serbia has the responsibility to share information concerning weather forecasting and weather warnings. It collects important data that should be considered in the development of new infrastructure and in the design of infrastructure drainage systems in Obrenovac. The proper use of information on infrastructure design will allow Obrenovac to manage floods and landslides, among others natural disasters. Institutional capacity for infrastructure development and maintenance is available at different levels (roads, rivers, electricity - national level; roads and rivers - city level; water supply, water treatment, heating, etc. - municipality level).

Technical support from foreign agencies: Diverse international agencies are providing technical support. It is important that the municipality takes advantage of this knowledge and extends it to the local level to develop projects that incorporate international expertise and good practices. Willingness to develop risk assessment: Risk assessment is an important step to guaranteeing resilience in infrastructure. The municipality is committed to developing this tool, which will address the development of resilient infrastructure in Obrenovac. Availability of internal and external financial resources: After the floods, diverse international agencies increased their commitment to provide financial aid to Obrenovac. In addition, the Nikola Tesla power plant, which is located in the municapilty of Obrenovac, is liable to pay EcoTax. It is important that these financial resources be allocated for investment in infrastructure. Existing underutilized solid waste separation facility: Although the municipality produces less waste than the sorting facility is capable of sorting, the equipment was out of use for a year after the flood, due to necessary maintenance work. However, even when it is operating, not all waste can be sorted for recycling, due to a lack of staff for the sorting process. 17.2.3

Objectives

The strategies and interventions proposed in this chapter have as their objectives the improved resilience of Obrenovac´s infrastructure, the upgrading of infrastructure facilities, improved emergency response, reduced impacts in future catastrophes, reduced vulnerability and a reduction of the risks to public health. In order to achieve these objectives, it is important to develop a multi-hazard risk assessment that is integrated into Obrenovac’s infrastructure plans. In addition, proposed strategies such as integration of infrastructure data and Cadaster, implementation

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of measures for maintenance, intervention in infrastructure related to the drainage system, improvement and upgrading of the regulation of riverbanks and enhancement of solid waste management, are intended to increase resilience in Obrenovac. 17.3 Strategies and suggestions In this section the concept of infrastructure resilience in the specific case of Obrenovac is framed on three areas of intervention.

Secondly, it is recommended that an area-wide hazard risk assessment be undertaken and that critical areas and infrastructure systems at risk in the event of a disaster be identified. The risk assessment should quantify the likely impacts on existing infrastructure and feed information into the master planning process to enable the formulation and design of adequate solutions to the current infrastructure challenge and anticipate the minimum performance capacities of the infrastructure systems considering the worst case scenarios. Thirdly, master planning should be conducted as a participatory planning process including multiple stakeholders, focused not only on formulating a tangible development plan, but also on setting a basis for a needs-based performance process. This process should involve continuous information flow (feedforward and feedback) into the other elements of the framework, to ensure that the resultant product conforms to the minimum individual system performance standards, serves to present the expected minimum resistance against disasters to allow the evacuation of people and livestock, and further allows quick recovery and reconstruction after the disaster.

Identity, assess and monitor disaster risks and enhance early warning

Figure 24: Infrastructure Resilience Conceptual Framework Source: Authors Figure 25: Cycle of Infrastructure Database, Risk Assessment and Spatial/Urban Plan Source: Authors

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Firstly, the municipality of Obrenovac should undertake a mapping exercise of all existing infrastructure systems, detailing their condition and operational capacities. This would serve two major purposes: to provide an area-wide infrastructure systems database of the status and operational capacities that would further inform maintenance needs; and to feed information on upgrading required at a later stage of infrastructure master planning. This database needs to be updated regularly.

Resilient Technical Infrastructure

This is feasible if three main hinges of the operation and management process of infrastructure systems are followed: a) Maintenance: This may be regular or periodic systems maintenance, to render the system operational as designed; b) Systems upgrade by time or necessity based on information from assessments to elevate performance capacity; c) The systems designed should be environmentally friendly. 17.3.1

Maintenance of infrastructure

Resilient infrastructure presents a system functioning efficiently as designed, has an additional capacity to withstand a disaster event to a minimum level that allows escape of people and livestock, and allows quick recovery from the disaster shock. These constituent elements serve in tandem, one dependent on the other for system efficiency. Maintenance of infrastructure systems allows their efficient performance and ensures that they function to their designed lifespan and capacity. In Obrenovac, drainage pipes and channels are not regularly de-silted; some sections of road have worn down, losing camber and the capacity to shed water; manholes are clogged with solid waste; vandalized solar power streetlights have not been replaced. This lack of maintenance prevents a system from functioning efficiently by limiting its capacity. With time, the system is rendered non-functional, and in the event of a disaster, for example floods, the impacts on the system itself are great and further hamper other dependent functions. For example, clogged stormwater pipes and channels cause increased flooding on roads and render them inaccessible or dangerous to access during evacuations. This assessment is mindful of the fact that maintenance functions for different local systems are handled at different levels of government. Without dwelling on organizational intricacies, which is not the objective of this section, care should be taken to harmonize the operation and effective maintenance

of infrastructure systems. Furthermore, this section does not focus on maintenance as central, but recognizes it as an important constituent of infrastructure resiliency. a) Maintenance levels According to Archibald (2013), infrastructure resilience should be analyzed on three scales: city level, infrastructure system and infrastructure element. The city level is the largest scale and involves multiple stakeholders, who have to establish the policies and strategies of the city. The infrastructure system involves the managers in charge of certain infrastructure, such as the water supply system. The infrastructure element is the basic unit that forms the system, such as pipelines. In every part of this third scale maintenance management plays an important role in enhancing resilience. Obrenovac needs to consider these three scales with regard to maintenance, in order to strengthen its resilience. At the city level, it is important that the mayor and planning offices create policies that set out efficient maintenance procedures and strategies. These policies should place emphasis on the institutional process and financial management in order to develop a technical body that plans, operates, monitors, maintains and repairs the infrastructure, and guarantees the sustainability of these activities. It is important to establish maintenance leaders in Obrenovac to manage infrastructure (storm water system, sewage system, riverbanks, road system, bridges, water supply system, electric system, etc). The maintenance leader of each institution needs to prioritize investment and operation, considering the most strategic branches of the system as well as the most vulnerable. It is necessary to have a regular maintenance procedure for the whole system for the early identification of eventual damage. When an infrastructure system is not regularly monitored, a single defective element can affect the whole system.

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The infrastructure element should always be included in the maintenance management of a system. If elements are not integrated into an infrastructure system and a program of maintenance, this element could be neglected and eventually affect the response of the infrastructure when a natural disaster occurs. Infrastructure maintenance is an important procedure on every scale to ensure a long service cycle of the elements in the infrastructure system and provide resilience to Obrenovac. A disaster-prone city that practices good maintenance management at all levels will find that infrastructure affected in a disaster is more likely to be resistant and that the reconstruction process is more manageable. Although maintenance is an important factor in resilience, it is important to point out that infrastructure designed without taking into account risk assessment is completely vulnerable. Maintenance alone is not enough to provide resilience. 17.3.2

Upgrading infrastructure projects

The central goal of this section, as highlighted in the objectives, is to propose upgrading interventions for developing resilient infrastructure systems in Obrenovac. A number of interventions are proposed regarding drainage, green infrastructure, waste management, roads upgrading and redundant energy. These proposals are a result of an extensive SWOT analysis and the resulting challenges identified to developing resilient infrastructure systems for Obrenovac.

It was found that the retaining walls at the top and bottom of respective hills have a proper structure and a proper drainage system. Although the retaining walls have some drainage weep in the lower part (see figure 26), more weep holes are proposed in order to improve drainage performance.

Many retaining walls collapse because there is no appropriate drainage. Hydrostatic pressure can be high for any kind of wall if excess water accumulates behind the wall. Therefore, it is necessary to provide the maximum possible number of water escapes and this can be done by inserting weep holes into the wall. Weep holes are small pipes which allow the release of both the underground and surface water that runs along the slope and is trapped behind the retaining wall. Another drainage strategy is the provision of parallel drains, or channels, along the slopes. Currently, in areas at risk of landslides, channels have already been provided at the top and bottom of the slopes, but channels also need to be provided in the middle of the slopes in order to decrease the speed of the surface water and to provide other drainage options for the surface and underground water.

a) Drainage

Figure 26: Retention Walls in Obrenovac Source: Authors

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Drainage in retaining walls and slopes The municipality of Obrenovac has constructed retaining walls in diverse areas with the potential of landslides, which demonstrates the municipality’s commitment to diminishing potential damage by landslides. However, the implementation of additional drainage elements in retaining walls and slopes would decrease this risk even more.

Additionally, the planting of gardens along the slopes is recommended. Gardens provide a natural solution for decreasing the speed of surface water and avoiding hill erosion and the formation of currents that can cause landslides. They also provide soil stability due to the plants and trees forming a solid layer of rocks and soil. The planting of gardens is recommended in uninhabited areas where the construction of retaining walls is not a priority.

Resilient Technical Infrastructure

Surface drainage of roads Roads present the most feasible and speedy means of escape in the event of a flood. However, if their capacity to shed water from their surfaces is limited due to performance inadequacy, they can present a great challenge to the evacuation process. Road drainage interventions improve performance, and the following are recommended following brief field surveys of the roads in Obrenovac and the identification of challenges in road drainage. Any one or combination of the proposed interventions can be used following a thorough assessment and appropriate design. Side drains on either side of the road with a considerable capacity to hold stormwater should be provided. These are to connect to underground drains laid at intervals to keep the road surface clear of stormwater and facilitate easy and quick evacuation. The side drains feed into main drainage channels through a channel on the tail side. Sufficient road camber (cross-falls) should also be provided to allow the quick shedding of water into side drainage channels. The median strip can be used as a temporary retention pond and provided with underdrains for drawing water to the main drains. The median may also be designed to act as a filter (swale) for spilled vehicle oils.

General surface In low-lying neighborhoods, the general landscape can be provided with a network of underdrains and/or covered open channels feeding into main drainage channels or open retention ponds. This system increases the floodwater holding capacity and allows sufficient time for evacuation in the event of excessive floods. Vital facilities For vital facilities, the construction of drains/ temporary reservoirs or temporary flood barriers surrounding the facilities, or a combination of the two, is recommended. The drains can hold a minimal quantity of floodwater as it drains through gradually, but if the quantity of floodwater increases, then temporary building shields can be hoisted. These may be inclined or vertical, operated manually or automated and may cover a whole street or only entrances to buildings, to block the ingress of water into the buildings for a considerable amount of time. The combined drain and temporary flood barrier operates as an open channel with an increased capacity to hold more water. Storm drainage at riverbanks The following project proposals are suggested for the flood-prone areas of Obrenovac. They are suggested only for areas such as riverbanks. These models facilitate the drainage of water from flooded areas, directing it back to the river.

Covered drainage channel provided with under drain pipes at intervals to prevent

Road surface provided with sufficient

water flooding the road and hampering

camber top shed water off to side drains

evacuation at the onset of floods

Covered drainage channel receiving, holding and transfering excess storm water to the main channel

Underdrain pumps laid at intervals along the road Figure 27: Illustration for Proposed Road Surface Drainage Source: Authors

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Resilient Cities

When flash floods occur the water level of the river rises abruptly and overflows beyond the river’s banks. The water level of the river drops back to its normal level in a short period of time, but the flooded areas beyond the riverbanks remain under water. This is due to the absence of proper drainage on the riverbanks. In areas like Obrenovac, where the underground water level is also very high, the water on the ground’s surface is unlikely to be absorbed. Therefore it is necessary to consider proper drainage on the riverbanks. The following models elaborate drainage solutions for the riverbanks and areas along the river, especially at strategic locations. These models are proposed for flood-prone areas, specifically in Obrenovac. Flooded Water Level

Project proposals: Model 1: Where the natural ground level is higher than the water level of the river, sloped drainage is a possible solution. This model consists of covered drainages which function as water catchment basins for excessive water during flooding. As the water level of the river drops it automatically drains the overflowed water from the surface of the ground back into the river (Figure 28 and 29). Model 2: Where the natural ground level is lower than the water level of the river, pump-out drainage is a possible solution. This model consists of covered drainages which function as water catchment basins for excessive water during flooding. As the water level of the river drops, it pumps out the overflowed water from the surface of the ground back into the river (Figure 30 and 31).

Non Return Valve Type

Sloped Drains 2% NGL

Normal Water Level

Ø 10’ Steel Pipe

River Banks

Non Return Valve Type

Sloped Drains 2% Normal Water Level

Figure 28: Type I Drain at Riverbanks/ During Flooding Source: Authors Figure 29: Type I Drain at Riverbanks/ After Flooding Source: Authors

140

Ø 10’ Steel Pipe

NGL

Resilient Technical Infrastructure

However, a number of essential points must be taken into consideration at the planning stage of flood control structures, as well as in the construction phase. Records of previous flood occurrence must be assessed before planning the proposed models. The size and capacity of each proposed model is relevant to previous data, for instance, the amount of overflowed water. Therefore the structures must be designed and built based on the frequency of overflowed water. It is very important to understand that the discharge of water from the drains is only possible after the water level of the river has dropped back to its normal level. The proposed models are more flood control structures than flood protection measures. Proper storm drainage on the riverbanks not only reduces damage magnitude but also facilitates a faster recovery phase.

b) Green infrastructure

The proposed models also function as long-term projects. In the case of future riverbank improvements and overflow protection along the river, the proposed models will drain rainwater from the ground surface into the river.

The municipality of Obrenovac already has plans and a budget to upgrade and maintain the riverbanks. This project aims to guide in a more resilient green infrastructure.

Eco-friendly riverbanks This proposal involves not only the regulation of damaged riverbanks and the construction of new ones in a resilient way, but also creates an opportunity to develop a wetland along the river channel. In this wetland, some species of plants known to de-pollute rivers can be planted to increase the water quality and reduce pollution. Today, one can see that Obrenovac’s riverbanks are mainly constructed of soil and are covered in vegetation, which is a simple and sustainable way to develop such structures. But it is important to develop drainage on these riverbanks as described in the drainage section.

Flooded Water Level

Normal Water Level Pump Out Drains NGL

River Banks

Non Return Valve Type

Normal Water Level Pump Out Drains NGL

Ø 10’ Steel Pipe

Figure 30: Type II Drain at Riverbanks/ During Flooding Source: Authors Figure 31: Type II Drain at Riverbanks/ After Flooding Source: Authors

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Resilient Cities

Primary school courtyard During the visit to Obrenovac the group was invited to develop a project to turn an unused courtyard at the primary school into a good example of resilient and sustainable infrastructure.

Figure 32: Example of Riverbanks Upgrading and Wetlands Source: Authors Figure 33: Conceptual Image of Primary School Courtyard Source: Authors

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A concept was developed with the following options: 1) Use of permeable pavement to reduce runoff in rain events; 2) Development of a collection and storage system of rainwater to reuse as service water; 3) Use of green areas for gardens, including vegetable gardens, to create awareness among children of food production and green spaces;

4) Extensive use of green rooftops, to show a good example of green infrastructure to the citizens and to promote the advantages of green rooftops (i.e. reduction of heat island, reduction of runoff, increased energy effi ciency). c) Waste management “Clean Obrenovac” program The wild dumpsites are a threat to the environment and to the drainage system since the garbage can clog the system. Obrenovac has 97 wild dumpsites mapped and this uncontrolled dumping should be addressed more resolutely. In order to address the problems, a “Clean Obrenovac” program is being proposed.

Resilient Technical Infrastructure

The main measure proposed is the collection and transportation of the existing wild dumpsites’ solid waste to the official dumpsite for sorting and recycling and final disposal of what cannot be recycled. The program should start with waste collection from all wild dumpsites mapped. The municipality should also plan to carry out waste collection in the entire Obrenovac area. Currently, some distant rural areas have no waste collection and the municipality does not control its disposal. It is important to create awareness about uncontrolled waste dumping, and for that there should be a campaign to promote an understanding of the consequences of wild dumping to the environment and people’s health. Educational campaigns are needed in every city if a paradigm shift towards waste is to be realized. There could be a contact point (telephone or e-mail) for citizens to denounce wild dumpsites to the JPZ public enterprise which is responsible for waste collection.

Project – Increase sorting usage Next to Obrenovac’s biggest and official dumpsite there is a sorting facility for separating recyclable materials collected by JPZ. After the flood, the equipment remained unoperational for a year while essential maintenance was carried out. The equipment has now been repaired and once again is planned to be used to increase the percentage of solid waste recycled in Obrenovac.

According to the dumpsite manager, the sorting capacity of the equipment is 150 tons of solid waste per day, but the waste disposed of in Obrenovac is only 70 tons per day. However, there is no guarantee that all 70 tons will be sorted for recycling since the facility suffers from a staff shortage. This could be an opportunity to employ members of the Roma population who can be seen picking over the waste on the dumpsite. They could be hired to work in the sorting facility and be paid a proper income, provided by the revenue from the waste sorted and separated for recycling. Another problem that needs to be tackled is the lack of maintenance of the equipment at the dumpsite. Regular maintenance would increase efficiency in the proper management of the layers of waste at the dumpsite. Obrenovac itself collects less waste than the dumpsite’s sorting capacity. Hence, the collection rate needs to be increased. Moreover, this offers the potential to use the sorting facility also for neighboring cities. According to the municipality’s future waste management plans, the dumpsite and sorting facility will become a transfer station for the regional solid waste management facility.

Figure 34: Wild Dumpsite seen During Obrenovac Visit Source: Authors Figure 35: Sorting Facility for Solid Waste and Warehouse next to the Dumpsite Source: Authors

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Resilient Cities

d) Road upgrading for evacuation In the event of a flood a resilient city needs a rapid response to bring in assistance and for the evacuation of people. Thus, the construction of embankments on some strategic sections of the main roads in Obrenovac is a priority. In the event of a flood these protected roads provide a safe space to set up operations such as evacuation centers, temporary shelters and first aid stations. The level of the embankments should be sufficient to allow the free circulation of vehicles. In addition, the base of the embankments should be of a permeable material to allow the free flow of water. This would avoid floods in the surrounding areas. Besides the permeable material in the base of the embankments, the construction of Box Culverts is also recommended. These are civil works that allow the passage of a high water volume; they are recommended for areas where natural water channels are formed.

Figure 36: Heating Substation Flooded during the 2014 Flood Source: Authors

144

e) Redundant energy infrastructure (system) Floods often result in power outages that can have a major effect on drinking water and wastewater utilities. Without a backup solution, outages can disrupt all kinds of utility services, including boiling water advisories, and can lead to sewer backups or the discharge of raw sewage. To secure continued service in the event of a power outage, a utility should take into consideration a number of different strategies to run the crucial components of its system (e.g. backup generators, energy efficient equipment, alternative sources of power etc.) (ICF International 2013, p.3). Obrenovac is well known for the two Nikola Tesla thermal power plants that produce 60% of total electric energy in Serbia (City Municipality of Obrenovac 2014, p.4). However, the power plant had to be shut down at the time of the flood as much of the electricity grid system in the city was submerged or impaired, resulting in an extensive energy shortage all around Serbia, with Obrenovac amongst the areas hardest hit (U.N. et al. 2014, p.47). A redundant energy solution should be addressed here.

“Redundancy” refers to spare capacity purposely created within systems so that they can accommodate disruption, extreme pressures or surges in demand. It includes diversity in terms of the presence of multiple ways to achieve a given need or fulfil a particular function. Distributed infrastructure networks and resource reserves are examples of redundant energy measures. Redundancies should be intentional, cost-effective and prioritized at a city-wide scale, and should not be an externality of inefficient design. Redundant electric systems with at least minimal back-up power capacity, such as a fuel-fired electric generator or a solar-electric system with islanding capability should be provided. Onsite CHP (combined heat and power) generator in vital facilities Combined heat and power (CHP), also known as cogeneration, refers to systems that sequentially or simultaneously generate electricity and utilize the thermal energy that would otherwise be wasted. CHP provides the opportunity to improve resilience of critical infrastructure and vital facilities, mitigating the impacts of an emergency by keeping critical utility services running without any interruption in electric or thermal service.

Resilient Technical Infrastructure

If the electricity grid or power plant is damaged, a specially devised CHP system can continue to operate, ensuring an uninterrupted supply of power and heating or cooling to the host facility. Critical infrastructure and vital facilities, ranging from hospitals to evacuation shelters and data centers, need standby generation systems. They should function independently regardless of blackout derived from the main grid system in the city. In many countries, building regulation laws require certain facilities to have backup power systems. International Good Practice: Conneticut, USA Greenwich Hospital in Greenwich1 The CHP system in the Greenwich Hospital was installed in 2008 and consists of two 1,250 kW natural gas-fired reciprocating engines. The hospital also has a 2,000 kW backup generator. The system normally runs 24 hours a day, seven days a week, except for routine maintenance. The hospital utilizes the thermal output of the system for hot water and space heating. The area surrounding Greenwich Hospital lost power due to Hurricane Sandy for seven days. The transition from using grid power to operating solely on its CHP system went steadily. The entire process took only five minutes for the CHP system to shut down and restart in emergency saving mode, while power was supplied to the hospital by backup generators. The CHP system allowed the hospital to continue normal operations throughout the storm and admit additional patients that could not be seen at other facilities. In 2009, the New York State Energy Research and Development Authority (NYSERDA) supervised an assessment and found that the most appropriate focus and prioritization of CHP should be at hospitals and water treatment/sanitary facilities, followed by nursing homes, prisons, and places of refuge.

Benefits of CHP - Both environmentally and economically advantageous. - Capturing and using waste heat allows CHP systems to reach efficiency ratings in excess of 80%, in comparison with the efficiency of gas power stations ranging between 49% and 52%. Coal-fired plants have a much lower efficiency rate of around 38%. (The Association for Decentralised Energy ) - Ability to utilize the existing, centralized electricity grid as a backup source to meet peak electricity needs. Also, in the case of impairment of the electricity grid, the CHP system continues to operate, ensuring an uninterrupted supply of electricity to the host facility. - CHP can use a variety of fuels, from renewable fuel to biogas from the anaerobic digestion process, to produce power and thermal energy, thus preventing emissions of air pollutants. - Critical infrastructure facilities normally have backup generators to supply electricity in the case of natural disasters or a grid failure. However, CHP systems offer several advantages over backup generators. In some sectors, such as hospitals, the existence of a CHP system may not override the necessity of having a backup generator, which is required by law (ICF International 2013, p.6). CHP systems provide regular benefits to their host facilities, rather than just during emergencies.

1

New York State Energy Research and Development Authority 2009; ICF

International 2013, p.12

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Resilient Cities

Normal Backup Generators

CHP Systems

Infrequently used and poorly

Run daily and are typically better

maintained so that they encounter

maintained.

problems during an actual emergency.

Normally rely on a limited supply

Have a constant supply of fuel at

of fuel, which is often not enough

their disposal.

for a longer period.

May take time to start up after

Permanent and primary source

grid failure. Lag time can appear if

of electricity for the site they

backup generators are not perma-

contribute to, and if appropriately

nently located on-site and must be

planned and configured, are not

delivered to the sites, leading to

impacted by grid failure.

further delays in recovery.

Typically depend on reciprocating

Typically burn natural gas, a less

engines burning diesel fuel, a

polluting fuel, and carry out signifi-

polluting method.

cantly greater efficiencies, lower fuel costs, and lower emissions.

Only supply electricity.

Supply thermal water as well as electricity to keep facilities operating.

17.4 Conclusions

Right Page Conceptual Drafts of Students Photo: Carsten Zehner Table 8: Advantages of CHP Systems over Backup Generators Source: U.S. Department of Energy (DOE), U.S Department of Housing and Urban Development (HUD), and U.S. Environmental Protection Agency (EPA) (2013) Guide to Using Combined Heat and Power for Enhancing Reliability and Resiliency in Buildings

146

The impacts of disasters on physical infrastructure systems are diverse depending on their intensity and the capacity of the systems to withstand such disasters. The impact of the floods on Obrenovac’s infrastructure system was significant, with 57% of the physical infrastructure requiring reconstruction (United Nations, et al, 2014). The overall objective of enhancement of infrastructural resilience can be achieved with the implementation of the various strategies for upgrading infrastructure proposed in this document and if an integrated infrastructural planning and implementation mechanism is realized in Obrenovac. The planning process for different infrastructure systems needs to consider existing infrastructure systems mapping, disaster risk assessment and spatial planning as a cyclical system.

It is important to engage the citizens in this process and to promote education and cooperation with regard to information on infrastructure, also in remote areas of the city. For instance, the population could be engaged by inviting them to report damage to their area’s infrastructure. The resilience of an infrastructure system can be further enhanced if its maintenance is considered a priority and periodical upgrading is carried out to increase its disaster containment capacity.

Resilient Vital Facilities

18 Resilient Vital Facilities

Authors Sheryta Arsallia Boško Drobnjak Mohd Farhan Ron Soesman Filip Trgovčević Qi Yahya

18.1 Scope and context According to the UN (2012), education and health facilities provide essential social services. Thus, special attention must be paid to their safety and risk reduction efforts must focus on ensuring that they can continue to provide services when most needed. While it is true that the structural collapse of a school or hospital generates severe problems for a disaster-affected city, it is more common to see the functional collapse of these facilities, where structures may remain standing but cannot be used due to a variety of preventable reasons (UN, 2012). This study concentrates on both health and education facilities in Obrenovac as key vital facilities. In Obrenovac, there is one health center, which is located in the city center. Supporting this center are several medium-scale medical units and smallscale clinics located throughout the city. Regarding education facilities, there are ten kindergartens, one traveling kindergarten, nine elementary schools, and three high schools. Of these, five kindergartens, the traveling kindergarten and five elementary schools are located outside the city center. All the facilities located in the city center and one kindergarten outside the city center were affected by the flood. Left Page Pharmacy in Obrenovac Photo: Lazar Lazarevic

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Resilient Cities

Data collection was carried out through desk study, interviews, and observation. From these sources, a number of challenges and potentials of the vital facilities were generated. A selection of the main challenges and potentials identified during fieldwork in Obrenovac are listed below.

evacuation plans were designed around potential fire breakouts rather than flooding. Centralized facilities in disaster-prone areas The health center and all kindergartens and high schools are located in the city center in a water run-off and thus flood-prone area.

18.2 Challenges and potentials 18.2.1

Challenges

Lack of risk assessment and multi-hazard risk mapping Before the disaster, there was no risk assessment in Obrenovac in general in the context of health and education facilities. Therefore multi-hazard risk mapping could not be carried out in order to forecast the scale of damage to these facilities. Information on disaster-prone areas that could be used to forecast damage to individual facilities was not available. Map 10: Condition of Health and Education Facilities during Disaster Source: Authors (Map based on Google Maps)

150

Lack of integrated evacuation plan The municipality of Obrenovac had no integrated evacuation plan. Some health and education facilities had their own evacuation plans, but these were not integrated at city level. Moreover, these building

Outdated warning techniques There was a lack of technologies for providing early government warnings to health and educational facilities. As a result, the people in the health and education facilities were neither expecting nor were prepared for the flood. Loss of materials and equipment due to onestory buildings Due to the disaster, the health and education facilities suffered heavy losses in equipment, furniture, documents and medicines, among other things. The health center stockroom was located in the basement, resulting in all of the medicines being destroyed. The kitchen of the kindergarten responsible for supplying food to the other four kindergardens was located on the ground floor and was flooded during the disaster.

Resilient Vital Facilities

Lack of emergency shelters As the flood came unexpectedly, emergency shelters were not well prepared. On the first day of the flood, the health center was moved to an elementary school and later to the Hotel Obrenovac. All educational activities were moved to Belgrade. During the flood, the Hotel Obrenovac was the only building unaffected by the flood and it was used as an emergency shelter. Lack of space/facilities The health center and some of the education facilities are still lacking in capacity. It is crucial for the health center to have excess capacity because of the possibility of the outbreak of disease during a disaster. Furthermore, education services would be functional if they had excess capacity. Non-resilient building plans There were no disaster-resilient health and education building standards in place before the disaster. After the disaster, the buildings were renovated to the same standards to which they had originally been built. Lack of coordination between actors Several groups assisted in the recovery of Obrenovac, such as Safe Serbia and the Chamber of Engineers, as well as various donors, students, experts and volunteers, among others. The committee in charge of coordinating these groups was the Government Office for Reconstruction and Flood Relief. However, the level of coordination was very weak. Centralized/national level emergency response in education During the disaster, the functioning of education facilities was directed by the Ministry of Education. All education services were temporarily moved to Belgrade and nearby towns. This move may have prolonged the recovery of the education services. Lack of capacity development Health and education facility staff, including students, have little information about how to act during a disaster. There is no standard safety procedure to help them react appropriately in such events.

18.2.2

Potentials

Risk assessment by Chamber of Engineers The Chamber of Engineers is the association of licensed engineers in Serbia. Since the disaster, they have been supporting the planned development of risk assessment for Obrenovac. Development of evacuation plan Not every health and education facility had its own evacuation plan. Thus, when the disaster came, the evacuation process was ineffective. Learning from this experience, the health and education facilities intend to develop an evacuation plan based on the risk assessment which is in process. Eagerness to develop building regulations Currently, there are no regulations for disaster-resilient building in the context of flood. In the wake of the disaster, there are plans to update building regulations to include flood disaster resilience. “Safe Serbia” organization developing risk assessment and training in Obrenovac Safe Serbia is an NGO that focuses on helping Serbia during and post disaster. Together with other stakeholders, they have started to develop a risk assessment for Obrenovac. They are also helping to train people in how to react during a disaster. Adaptation of ideas from old civil protection system In the former Yugoslavia, disaster resilience building regulations were more comprehensive and a system for educating people in how to act in times of disaster was in place. This old civil protection system could potentially be reactivated and adapted to current Serbian regulations. As a result, health and education facilities would be more disaster resilient and able to keep functioning during disaster. Education in disaster and climate change Education programs on climate change are available in high school, especially in the agricultural high school. In the future, high schools plan to include learning programs on disasters in their curricula.

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Resilient Cities

High priority instructions The municipality of Obrenovac places a high priority on the rebuilding and renovation of public buildings, including the health center and the schools. These are the second priorities after the repair of roads and repairs to the water, electricity and sewerage systems, etc.

Sectoral governance, communication and coordination Effective decision-making hierarchy including multisector representation at local level which is operational during a disaster and directed by the municipality with good communications with city-level Belgrade and national-level Serbia.

Good coordination at health facility During the disaster, the Ministry of Health directed the emergency response of Obrenovac Health Center. However, the management of the health center was trusted with managing on their own the continued functioning of the center’s services during the disaster. On the eleventh day after the flood they were able to return to the health center building, making it the first building in Obrenovac to resume operations.

Sectoral finance Fast and prioritized funding procedures to catalyze the revival of education and health facilities in the shortest possible time; measures to improve trust and support of donors; establishment of special funding procedures for health and education, etc.

Growing public awareness After the disaster, health and education facility staff, including students, were more aware of the issue of disaster. This could be a good start for capacity development through the provision of workshops, training and simulation. Health and education attractive to donors A large number of donations were made for the rebuilding and renovation of health and education facilities and for the replacement of lost equipment. Apart from insurance, these donations covered most of the amount required. 18.2.3

Objectives

Based on the analysis of challenges and potentials, the following general strategic measures are proposed on a general level with the objective to increase the resilience of vital facilities in Obrenovac:

Urban planning approaches and regulatory framework The introduction of instruments that lead to more resilient buildings in order to mitigate losses and support the optimum functioning of health and education facilities during disaster. Capacity development Comprehensive education programs are necessary to ensure that people working in the health and education sector are well informed regarding potential risk, disaster management and evacuation plans and know what to do before, during and after a disaster. Preparedness, functional protection Being well prepared for a disaster with a reliable and integrated early warning system, followed by a comprehensive evacuation plan that is understandable by all people is important for keeping health and education facilities operating during a disaster. Based on the proposed general strategic measures, more concrete actions are proposed below. 18.3 Conceptual ideas

Figure 37: Providing Emergency Shelters Source: Authors Table 9: Action Plan for Disaster Resilient Vital Facilities Source: Authors

152

Urban risk assessment Reliable and comprehensive risk assessment to be incorporated into urban development plans, regulations and actions.

Based on the strategic measures and actions proposed above, selected conceptual ideas have been developed in different areas of intervention.

Resilient Vital Facilities

18.3.1

Resilient building regulations

a) Potential emergency shelters The provision of special locations and buildings for use as emergency spaces for disaster evacuation is important in order to minimize casualties. Thus a big hall that can accommodate a large number of people is needed. The proposed safe house should be equipped with a portable toilet, a mobile ambulance service, communication facilities and other emergency facilities. Ease of access is important, both to and from the safe house location, to facilitate the evacuation team and allow disaster victims to reach the evacuation point. The location should be secure from floods and other disasters. Considering the existing buildings in Obrenovac, the most suitable place would be on the fourth floor (16 meters above ground) of one of the hospitals or schools or some apartment block.

Sectoral

b) New resilience measures Clear indicators should be developed for measuring the resilience of a vital facility before the disaster in order to assess how the building would be affected by the disaster. This would help to identify measures for increased resilience, such as the creation of a special space for storing goods and essential supplies during a flood or the construction of a parking area for ambulances and a storage facility for vital medical equipment on the roof or on some other floor not affected by floods.

Urban Planning

Governance,

Approaches

Urban Risk

communication,

and Regulatory

Capacity

Assessment

coordination

Framework

Development

Sectoral Finance

Preparedness/Functional Protection

Physical

Non-Physical

Multi hazard risk

Formalize HQ

Transparency and reliable

Formatting regula-

Capacity building

Flood protection system (latest

Human resources manage-

assessment &

crisis team which

reporting of donations to

tion and protection

of the municipality

and feasible technology)

ment procedure during

mapping

consists of multi-

attract more donors

measures based on

(learn how to do

local risk assessment

advanced mapping)

sector actors Engaged Save

at municipality

Propose special funding

(specializing in flood,

Serbia and

level (principal

procedures for health and

landslide, etc.)

Chamber of

of health and

education. (representative of

Engineers in risk

education, also

municipality in budget plan-

Mapping potential

assessment and

local emergency

ning process)

places for emer-

other studies

unit)

gency shelter Transparency and reliable

Regular inspection

Decentralized

reporting of donations to

Compliance with

of health and

emergency reac-

attract more donors

safety standards to

education facilities

tion in education

increase resilience

disaster Upgrade and integrate early warning system

Create, learn and

Study and adapt old civil protection into education

implement safety

Avoid loss with two level infra-

program and create reli-

procedures

structure systems.

able action plan.

Disaster simulation,

Maintenance and upgrading,

Create sufficient safety

safety training and

based on new resilient tech-

procedures and compre-

drills

nology and risk assessment

hensive evacuation plan

Education program

Alternative services system equipment

(including maps, resources, procedure, vehicles, etc.)

(decision making

Propose special funding

for disaster manage-

by HQ crisis at

procedures for health and

ment

local level)

education. (representative of

improvement in health

municipality in budget plan-

facility for public

Psycho-social support

ning process)

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Resilient Cities

d) Facilities to extend functionality during emergency To safeguard the continuity of hospital services, generators and large-capacity water pumps can be installed as a priority. These generators and pumps should be placed in a safe area of the building, for example on the top floor or in some water-resistant room.

c) Integrated early warning system An effective integrated early warning system, which centrally links far apart places, is very important. It is also beneficial to create a comprehensive evacuation plan that includes maps, resource management, human resources management, standard operational procedure and vehicle flow. At the time of the 2014 floods, only TENT, the main power plant, had a central alarm system. In order to protect vital facilities such as schools and health facilities, the implementation of an integrated early warning system is proposed.

e) Regular maintenance and inspection Regular maintenance and inspection is required not only to uphold the condition of vital buildings but also the condition of facilities such as water and drainage systems and mobile pumping systems.

Phase 1

The warning system switches on when the water level reaches 20-50 cm above the normal level. This is the first emergency level. The authority makes first-stage preparations such as preparing a boat in a certain area, activating a generator for vital facilities and other preliminary rescue actions.

Figure 39: Integrated Warning System Source: Authors Figure 40: Providing Generators and Pumps Source: Authors Table 10: Phases of Warning System in Case of Emergency Source: Authors

154

The warning system automatically activates when the water

Phase 2

level reaches 80 cm above the normal level. This is the second

The basic idea is to develop a connectivity system between the three actors, i.e. the alarm center at TENT, the police station and the people of Obrenovac. This alarm system might be used in three different phases. Inter-connectivity should be provided to the hospitals and schools. An early detection system would deliver a warning signal to the management of the schools and hospitals, allowing the evacuation process to get under way as early as possible. It could be improved in a simple way, such as via an SMS gateway.

emergency level leading to the activation of the second evacuation plan. The authority organizes the provision of such vital aid as water pumps, generators and security systems, and mobilizes vehicles to transport people to emergency shelters within the city.

The warning system automatically activates when the water level surpasses 80 cm above the normal level. This is the third Phase 3

Figure 38: Providing New Resilience Measures Source: Authors

emergency level. The emergency and evacuation unit evacuates people to other cities not affected by the floods and the security system works to protect residential and commercial property, offices, hospitals, schools and power plants.

Resilient Vital Facilities

Periodic maintenance of drainage systems might include the dredging of sediments, waterflow control and the control of the placement of the pumps in the drainage tunnel. These measures can minimize the threat of flooding in vital facilities.

Informative noticeboards, either permanent or temporary, should be placed in various locations in the city to inform people of evacuation routes and evacuation points and how most safely to reach them. Information about the location of boats would also be needed in a flood situation. f) Upgrading and flood protection Another concept in minimizing losses and the effects of flooding on vital facilities is the installation of flood-proof doors and windows, as well as ventilation holes as a permeable protection system. This technology has been used in several buildings in Hamburg, Germany, as well as along the banks of the River Thames in London. This can minimize damage to buildings and vital equipment in hospitals and schools. h) Resource management and transfer scenario Vital facilities need an evacuation procedure that is clearly communicated to staff and users. Moreover, supply with necessary resources such as food, medicines as well as medical equipment needs to be logistically prepared.

Figure 41: Maintenance of Drainage System Source: Authors Figure 42: Flood Protection of Buildings Source: Authors

g) Improving evacuation plan Emergency evacuation plan Emergency maps and evacuation plans should be present in every hospital and school to inform people of evacuation routes, etc. Signs to direct people during the disaster should be easily recognizable by users.

FLOODING

Figure 43: Providing Emergency Evacuation Plans Source: Authors Figure 44: Providing Emergency Noticeboards Source: Authors Figure 45: Providing Management Scenarios Source: Authors

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Resilient Cities

17.3.2

Capacity development

a) Training and simulation Appropriate training, simulations and workshops on disaster management, including anticipation and the introduction of drills would be useful for making resilient communities. Training and simulations could be carried out every six months, managed by the civil protection unit in Obrenovac.

b) Study and adapt old civil protection into education program As part of the former Yugoslavia, Serbia had a disaster management system that was created 50 years ago. This system is still relevant for certain situations like floods. The renewal of this system would be a critical step towards early warning and a proper evacuation procedure.

FLOODING Living with disaster

Figure 46: Providing Community Training Source: Authors Figure 47: Education Program for Disaster Management Source: Authors Figure 48: Providing Better Coordination Source: Authors

156

Program Schools

18.3.3

Institutional cooperation

a) Coordination among actors and levels At the national government level, three ministries are currently in charge of disaster management, health and education, namely the Ministry of the Interior, the Ministry of Health and the Ministry of Education. The Ministry of the Interior has a special unit that handles emergency disaster situations. The Ministry of Health is responsible for the sustainability of health services at central and regional levels, while the Ministry of Education is responsible for the education system. Therefore, coordination between agencies at national level in the preparation of a disaster management system for schools and hospitals is of paramount importance for the development of adequate risk management for vital facilities.

COORDINATION AMONG OTHERS

At the local level, the municipal government of Obrenovac has special institutions in charge of disaster and civil protection. For the formulation of policies to deal with disasters these should sit together with their counterparts at national level. Better coordination means broader experience and the application of a wider expertise in the handling of these kinds of situations.

Resilient Vital Facilities

Funding and Technical Support National

Experts

Level

Local Experts Municipal

Systems

Level

Top Down System

b) Clear decision-making hierarchy The roles of representatives conducting the systems and procedures and basic requirements before, during and after the floods should be well defined – e.g. in a committee. This should ensure that services related to vital facilities are well organized during the disaster.

Infrastructure Vital

Equipments

Facilities

c) Special funds procedure for donations Schools and hospitals have become a focus of interest to international aid providers and private actors offering financial support during the reconstruction process. In the case of Obrenovac, a mechanism is to be set up to allow the provision of direct assistance and aid to education and health facilities for the building and reconstruction of buildings and facilities after the flood. This scheme will involve the setting up of a framework for the regular monitoring of aid, with an audit by an independent agency to ensure transparency and accountability in the use of funds. The existing funding system is a top-down system where the donation is passed down directly from national level. A new funding scheme is proposed to be based on proposals put forward by the user for both education and health facilities. Such a mechanism would be assessed by an expert at national level as well as by local experts. The national level will present the proposals to the international donor. The most crucial part of this scheme is fund management, which will assure the donor that the donation has been properly used.

Figure 49: Better DecisionMaking Process Source: Authors Figure 50: The Existing Funding System Source: Authors Figure 51: Better Funds Management Source: Authors

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19 Resilient Housing

Authors Bojana Antić Achmad Faris Eunyoung Lee Yan Liang Anastasia Maragdouli Javier del Río Hicham Sader Eliana Silva

19.1 Scope and context Based on the understanding that housing is not only a physical asset but also a complex system interrelated with multiple aspects of urban development, the challenge of resilient housing needs to encompass a multitude of issues in order to adequately respond to people’s needs in the event of flooding or other natural disaster. While the municipality of Obrenovac has yet to fully recover from the flood in May 2014, local stakeholders are trying to keep a balance between a trend for quick reconstruction to respond to the immediate need for housing and a simultaneous responsibility to protect people from future potential disasters by considering more resilient planning practices. This chapter tackles the topic of resilient housing mostly from an urban governance perspective and does not go far in terms of building practices on the engineering and architecture levels. It analyzes the topic in the context of Obrenovac and tries to provide recommendations for the municipality to better respond to the current challenges of reconstruction and to be better prepared for any future flood. Left Page Flooded Obrenovac Photo: Vukasin Ljustina

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As defined by the United Nations, a disaster resilient city “is one where the local authorities and the population understand their risks and develop a shared, local information base on disaster losses, hazards and risks, including who is exposed and who is vulnerable” (UNISDR, 2012). This definition is the basis for the conceptual work on resilient housing in this chapter. Nevertheless, other parameters were taken into account as well, such as the empowerment of people to “participate, decide and plan their city together with local authorities and value local and indigenous knowledge, capacities and resources” (UNISDR, 2012).

- Unwillingness to resettle in safer areas: Around 25,000 local people have temporarily moved to sports centers, hotels and other cities, but the majority have stayed in their areas. - Lack of housing risk assessment: Due to a low level of understanding about housing vulnerability, the majority of housing remains prone to risks of flooding. - Local directorate for construction does not yet take on the mandate for prevention. Reconstruction of housing should consider design aspects to protect from disasters.

Although the municipality of Obrenovac is trying to decrease the number of informal settlements, especially those built in risky areas, informal settlements are included in the scope of study of this chapter as one of the various typologies of housing that presents its own conditions.

The non-physical challenges: participation, finance, civil protections, information and services, are summarized as follows.

19.2 Challenges and potentials 19.2.1

Challenges

In the wake of the flood, housing in Obernovac is one of the most crucial challenges for the affected people. This is because housing is a fundamental need, especially after a disaster (Monre, 2008). The challenges need to consider both physical and nonphysical factors regarding housing. The physical challenges of housing reconstruction: building regulation, land use, resettlement, are summarized as follows:

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Lack of housing protection measures, such as coverage by early warning system: Only a limited share of housing is covered by an early warning system. This has caused a special level of disaster vulnerability in the majority of localities in Obrenovac. Lack of new building codes which include measures for housing resilience: In the event of a similar flood, the level of damage would be similar.

- Lack of citizen power for decision making in planning and implementation has affected conditions of new housing. - Limited financial resources for resilient housing: Lack of budget has led to a focus on basic reconstruction excluding measures for resilience. - Lack of public information: Limited under standing by the public of disaster preparedness. - Limited support for housing reconstruction in informal areas: Informal settlement have not been considered equally during the reconstruction process. - Lack of municipal ownership in decision- making during reconstruction: Due to the centralized governance, the municipality only has very limited authority in the reconstruction process. - Lack of awareness of insurance conditions: General lack of information about insurance conditions such as coverage in case of disasters.

Resilient Housing

19.2.2

52

53

54

55

Potentials

Apart from the challenges presented above, there are a number of potentials that have been identified through fieldwork.

- Social minority groups in informal settlements were considered for reconstruction support (small share). 19.2.3

- Strong citizen engagement for reconstruction/self-organization - Active private donors: Substantial level of private donations for the reconstruction of housing. - Active international aid and EU focus on climate issues: International organizations and institutions are willing to support resilient housing. - Transfer risk from municipality and house holds to insurance sector: Municipality and insurance companies can cover more than 50% of households’ risks after a disaster.

Objectives

1) Reducing vulnerability of housing with consideration not only for physical location and construction quality but also additional risk criteria such as building type, number of inhabitants, socio-economic level and legal status. 2) Strengthening neighborhood resilience by raising awareness of communities about housing risk factors and measures for preparedness. 3) Facilitating housing risk assessment to support the municipality to identify priority housing projects considering neighborhood resilience.

Figure 52: Reconstruction Housing in Obrenovac Source: Authors Figure 53: Newly-Built Housing for Local Flood Victims who Lost Their Houses Source: Authors Figure 54: Newly-Built Housing Complex Source: Authors Figure 55: New Apartment for Flood Victims in Obrenovac. This House was Funded by Private Donor Dejan Stanković (football player). Source: Authors

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19.3 Conceptual ideas The conceptual ideas presented in this chapter comprise two main elements: 1) A measurement of housing vulnerability through an algorithmic model that considers the multiple factors that contribute to the risk. 2) Potential solutions on each level, bringing examples of good practices in this regard from various countries, as well as financial and technical support in some cases. The proposed system can help raise the awareness of households about the level of vulnerability of their houses and offers a plan for upgrading to a higher level of resilience. The tool can also serve as a source of information for the municipality and can be used to create a vulnerability map that is constantly updated. 19.3.1

Measurement factors and categories

The main conceptual idea for tackling resilient housing issues is to provide a tool that measures specific problems and defines vulnerability. This tool should include different features: it should be 1) be accessible to all stakeholders, 2) a communicative tool and 3) a management instrument for urban planners. Therefore, a housing vulnerability scorecard (HVS) tool is proposed. As a basis for the tool, the five most relevant factors influencing housing vulnerability were identified: location, building, socio-economic factors and legal framework. a) Location As a first factor, the houses are classified according to their proximity to disaster-prone areas. In the context of floods and landslides, these have been identified based on the most recurrent disasters in the study area and available on a geological map. Low-risk locations are those completely outside hazardous areas. Medium-risk locations are those inside a buffer zone of 500 meters from the borders of the hazardous areas. High-risk locations are those inside hazardous areas.

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b) Building characteristics As a second factor, various characteristics of buildings were taken into consideration: Building materials The first category of material is concrete, which signifies that the housing quality is reliable. The second category is pre-concrete, a mix of solid materials with less solid materials like wood. The third category is wood or a wood mix, which is less resistant to floods. Building type As a general rule, three types of building can be identified in Obrenovac. The first type is multi-family housing. The second is single-family housing on two or more levels. The third is single-family housing on one level. Type 1. Multi-family (apartments) The multi-family category is a free standing building on a minimum of three levels including the basement. These buildings occupy 70% of the total land parcel (Ministarstvo životne sredine, rudarstva i prostornog planiranja, 2011). Most of the apartments in Obrenovac are located close to the town center. The apartment buildings typically obtain heating and water services from public enterprises and use the basement to house the heating system. Some apartment buildings are in a state of deterioration due to poor maintenance of common facilitities, e.g., façades and corridors. Type 2. Single-family housing on two or more levels The first floor is usually for primary usages, such as living room, garage, and kitchen. This level is the most vulnerable to flooding. This type of housing includes freestanding houses and terraced houses and occupies a maximum of 70% of the building land parcel (Ministarstvo životne sredine, rudarstva i prostornog planiranja, 2011). In some cases, these houses use open fire with chimney and a septic tank for sewage.

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Type 3. Single-family housing on one level This type of house includes freestanding houses and terraced houses and occupies a maximum of 70% of the building land parcel (Ministarstvo životne sredine, rudarstva i prostornog planiranja, 2011) In some cases, diverse construction materials have been used, i.e., concrete, pre-concrete, and wood (for shacks). These houses typically use open fire with chimney and a septic tank for sewage.

c) Socio-economic factors Inhabitants The number of inhabitants per building is another relevant factor affecting the vulnerability of a building and its residents. The population density of the building leads to greater loss of property, even in a moderate flood (Sanyal et al, 2005). Three categories have been defined: 1) 1-10 inhabitants per building type; 2) 11-50 inhabitants per building type; 3) 51 or more inhabitants per building type. Economic Level The economic level of the inhabitants is considered to be a relevant factor in vulnerability, based on the understanding that income correlates with resilience due to the availability of economic resources for preparedness and rehabilitation. Three groups have been defined: 1) High-income group, 2) Mediumincome group, and 3) Low-income group. d) Legal status Concerning formality of housing it is considered whether the building holds a proper building permit or not. Hence, there are two categories: 1) Formal housing includes buildings which hold a proper title, were constructed according to the building regulations established in the building codes,were constructed in areas defined for construction and are provided with urban infrastructure 2) Informal housing includes buildings which do not hold a building permit, were not constructed according to the building regulations established in the building codes and are located in areas prohibited for construction, such as hazardous areas or protected areas for water supply.

Figure 56: Multi-Family Apartments in Obrenovac Source: Authors Figure 57: Two-Storey House in Obrenovac Source: Authors Figure 58: One-story House in Obrenovac Source: Authors

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Factor

Category

Location

Building

Score

Risk

Low

1

Medium

2

High

3

Building Type

Multi-family housing

1

Single-family housing on two

2

or more levels

Single-family housing on one

Strong

1

Medium

2

Poor

3

Number of Inhabitants

1-10

1

11-50

2

51 or more

3

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The score matrix includes the four topics: location, building, socio-economic and legal status. As mentioned above, each topic was divided into different categories. Each category is assigned a score from 1 to 3, with the lowest score representing low vulnerability and the highest score representing high vulnerability.

𝒏𝒏

∑ 𝑽𝑽(𝒏𝒏) = 𝑳𝑳𝑳𝑳(𝒏𝒏) + 𝑩𝑩𝑩𝑩 (𝒏𝒏) + 𝑺𝑺𝑺𝑺 (𝒏𝒏) + 𝑳𝑳𝑳𝑳 (𝒏𝒏) 𝒊𝒊=𝟎𝟎

V (n): Vulnerability (n) LS (n): Location score (n) BS (n): Building score (n) SS (n): Socio-economic score (n) LS (n): Legal score (n)

19.3.3 Process for implementing housing vulnerability scorecard (HVS)

Social Situation

High-income group

1

Medium-income group

2

Low-income group

3

Building Permit Formality

Formal

1

Informal

3

Total (Vulnerability Index)

Using all relevant factors, a model was developed to calculate the degree of vulnerability for different housing typologies in Obrenovac.

The matrix is used to calculate the vulnerability level of a particular building based on the formula provided below. With this tool, the housing vulnerability index can be calculated for each building.

Construction Materials (Quality)

Legal Status

Matrix

3

level

Socio-Economic

19.3.2

6 to 18

Based on the calculation model presented above, the implementation of a housing vulnerability scorecard (HVS) system is proposed. Several steps need to be carried out.

Resilient Housing

a) Data collection The idea is to cover the whole population and have a broad housing database that can be easily updated and used for risk assessment. The creation of a website page is proposed for the collection of these data. This website should be promoted on official local government websites with the aim of inviting the population to learn about risks and housing vulnerabilities. In parallel, members of local NGOs and community leaders should carry out a housing census to reach the whole population, including those who do not use the internet. Both on the website and in the census people should supply relevant information about their houses regarding the criteria established above: location, building type, socio-economic level and legal status. These data will be applied to a geographic information system (GIS) in order to integrate, analyze, process and share with the public the information collected about housing vulnerability. b) Classifying houses with the housing vulnerability scorecard Once the collection of information is complete on the website or in the census, an index indicating the level of vulnerability for each specific house type will be calculated. This is the housing vulnerability scorecard (HVS) which will use different colors to represent different points on the risk scale. Concerning the development of the index, equal ranges for each score were included, because it was assumed that the relationship between risk and disaster is linear. If, in the future, there are appropriate statistical data to prove the correlation between risk and hazard in Obrenovac, this assumption could be improved.

c) Provide solutions Based on an increased awareness of the risk calculated by the housing vulnerability scorecard, the municipality can offer a set of handouts which will include customized solutions considering three main aspects: 1) Building standards; 2) Socioeconomic level; 3) Communication. The municipality will be in charge of ensuring technical and legal assistance to the population in upgrading their HVS score and reducing the vulnerability level of their houses. Below, selected measures are proposed to increase the protection of housing.

Table 11: Score Matrix Source: Authors

REDUCTION VULNERABILITY

LOW

HIGH

The aim is to make people aware of what their housing vulnerability is. Armed with this information, they would be equipped to take measures to reduce their vulnerability and upgrade their HVS. This housing categorization is a strategic approach to educating the population and could involve them in a participatory resilient city plan.

Additionally, the municipality and other stakeholders would have a tool for determining which houses or neighborhoods have priority in the implementation of resilience projects. To promote public awareness, it is suggested that a sticker showing the HVS results be delivered to every house.

Figure 59: Formula for Housing Vulnerability Source: Authors Figure 60: Housing Vulnerability Scorecard Stickers (HVS) Source: Authors Figure 61: Improving Vulnerability Levels Source: Authors

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19.3.4 Selected measures for reducing vulnerability The proposals made for housing protection and disaster prevention are categorized along three aspects: 1) Building standards 2) Socio-economic and legal issues 3) Communication a) Building standards To reduce housing vulnerability it is important to assess the construction quality of houses and the status of infrastructure provision in order to find affordable measures to prevent damage in the event of a disaster. A good building standard includes prevention and protection. Prevention - Connect upper floors to exits through an external staircase: This solution enables people to evacuate the house immediately via the upper floors if the ground floor starts flooding and the main exit becomes blocked. - Floodable ground floor: This allows the flood to enter the ground floor without affecting upper floors. - Elevated house: An elevated house would resist minor floods without major damage and allow more time for protection and evacuation.

Figure 62: External Staircase to Upper Floor Source: Authors Figure 63: Floodable Ground Floor Source: Authors Figure 64: Elevated Buildings Source: Authors

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Protection - Protection of technological installations: Installations such as heating, power etc. should be isolated in order to protect them from flooding. - Use of appropriate construction materials: It is suggested using waterproof materials for housing construction.

b) Socio-economic and legal issues Socio-economic and legal aspects are also crucial to reduce housing vulnerability. The following measures are proposed: Economic support Financial support such as subsidies or loans can be provided to citizens in order to upgrade their houses and make them more resilient. This financial aid should be customized in line with each individual case and the priority group for receiving loans should be the high risk group identified by the housing vulnerability scorecard.

Resilient Housing

Upgrading and regularization of land ownership titles The residents of informal areas, who often do not hold property rights or legal building permits, are one of the most vulnerable groups in Obrenovac. A procedure for the upgrading of these neighborhoods and regularization of land ownership titles and building permits is proposed. International Good Practice: Chile1

c) Communication A social network and a sense of community are also essential for reducing the impact of a disaster. Therefore, a continuous participation process is recommended, using existing community contact groups or creating new ones. At the same time, the municipality should take the lead in technical assistance through its public offices in order to institutionalize the mechanism for upgrading housing conditions in the city.

One example of a land regularization framework can be found in Chile. According to the Chilean Library of Congress, the regularization of land ownership titles makes it possible to upgrade the urban conditions of existing land (Library of Congress, 2015). The same institution further argues that land regularization is a way of providing people with access to the various urban financing programs offered by the government, for example the development of sewerage systems and the laying of roads.

Network creation Community committees can warn households of imminent risk. These committees can directly inform all citizens in the area about imminent floods, using existing contact groups or by creating new networks. With this solution, every inhabitant can be informed immediately and given time to react to the dangerous situation. More time would be needed for the municipality to warn every single citizen about an imminent disaster.

International Good Practice: Jakarta, Indonesia2

Public offices Existing public offices can offer consultation hours for providing advice on housing resilience. The aim of this service is to guide people and advise them on the best and most affordable options for making their houses more resilient. These consultation services would be provided by a team consisting of one senior environmental civil engineer, students from the engineering and architecture faculties of the Obrenovac university and international volunteers.

The local government of Jakarta has relocated the slum dwellers who occupied an area of 2.1 hectares of illegal land surrounding the Ria Rio pond, as the area was categorized as being vulnerable to floods. This action was taken as part of the Jakarta Flood Control Project, which aimed to normalize pond function and increase its capacity. All of the slum dweller were relocated to RUSUNAWA (Social Rented Apartments) free of charge for two months and with free furniture. As a result, the Ria Rio pond function has now been normalized. The government has opened a new buffer zone that can be used to absorb and retain floodwater. It is important to mention that the solution was developed within a legal framework covered by at least three national laws, one of which is the National Construction Law (Library of Congress, 2015).

Communication with insurance sector Communication between NGOs, the municipality and the insurance companies should be enhanced through monthly meetings, in order to give people the opportunity to acquire more information from insurance companies about their rights, particularly with regard to flood cover.

1

Library of Congress, 2015.

2

Kaskus.co.id.

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19.3.5 Opportunities offered by the housing vulnerability scorecard (HVS) tool a) Various fields of application HVS helps identify and map out different levels of risks for communities, leading to a standardized risk assessment in the housing sector. To this end, it could be useful to involve other experienced stakeholders such as local insurance companies and the Chamber of Engineers. Once a housing vulnerability map has been developed, it can guide policy making for urban resilience and support decision making in budget allocation. More specifically, the use of this tool is recommended in the creation of a local resilience policy and the accompanying revision of building codes for flood resilience. Further, when policies and strategies have been refined into housing projects, HVS could play an important role in prioritizing housing projects, as Obrenovac has limited financial resources during a short period of time after floods. Using the risk assessments for all types of buildings in various locations, high-risk buildings should be prioritized for reconstruction, resulting in more effective fiscal budget planning. Furthermore, HVS has the potential to be developed into an online system providing a communication mechanism for stakeholders such as the municipality, NGOs and citizens. As a transparent system providing information on housing conditions and the housing upgrading process, it could be used by civil society, NGOs and the private sector to access information on implementation procedures. As “civil society and the private sectors are important parts of the solution” (World Bank, 2010), this information system could serve as a basis for participatory approaches during different phases to achieve resilient housing through joint effort.

Right Page Buildings Affected by Flooding Photo: Carsten Zehner

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b) Roles and responsibilities As described above, different stakeholders and institutions at various levels, such as the Belgrade Secretary of Urbanism and Construction at city level, the Department for Planning and Construction and

the Construction Directorate of Obrenovac at local level, plus insurance companies in the private sector, NGOs and citizens, need to be involved in a variety of scenarios using HSV. In these different scenarios, stakeholders and institutions should always be aware of their roles and responsibilities. For example, the local municipality is responsible for establishing a policy to guide the reconstruction program, with empowerment and financial support from central government (World Bank, 2010). In addition, people affected by a disaster, as the first responders during the emergency, should play an active part in policy making and local implementation. (World Bank, 2010). c) Capacity building In order to fully exploit the opportunities offered by HVS, capacity building by different stakeholders and institutions will be essential. Education in risk reduction in housing, along with public awareness, should be given sufficient prominence to attract enough attention to guarantee future cooperation. An adequate and operational institutional framework, including role and responsibility identification, should be built up to ensure coordination among various actors, with a certain flexibility. Training in the basic concepts of resilient building and participatory approach implementation are necessary to achieve resilient housing.

References

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Lists of Figures/Tables/Maps

Lists of Figures/Tables/Maps List of Figures Figure 1 Figure 2 Figure 3 Figure 4 Figure 5 Figure 6 Figure 7 Figure 8 Figure 9 Figure 10 Figure 11 Figure 12 Figure 13 Figure 14 Figure 15 Figure 16 Figure 17 Figure 18 Figure 19 Figure 20 Figure 21 Figure 22 Figure 23 Figure 24 Figure 25 Figure 26 Figure 27 Figure 28 Figure 29 Figure 30 Figure 31 Figure 32 Figure 33 Figure 34 Figure 35 Figure 36 Figure 37 Figure 38 Figure 39

Institutional Framework  The “Traditional” Disaster Cycle and the Role of Risk Assessment  The Most Severe Natural and Manmade Hazards in the Municipality of Obrenovac  Institutions Responsible for Risk Assessment in Serbia  Three Meter High Flood Mark  Reconstruction Procedure of Obrenovac Municipality  Risk Management Flowchart  Stakeholder Mapping  Examples of Stakeholder Synergy Enhancement and Collaboration Potential  Flood Resilient Functions of Open Spaces Outcome of SWOT Analysis  Community Mapping as Part of Land Use Planning Open Spaces for Evacuation  Open Spaces for Diversion/Pooling  Surface Pooling in the Construction of a Bank  Multifunctional Bank which can easily drain or absorb Water in the Flooded Area  Drainage Channel in Obrenovac  Kolubara Levee  Open Spaces for Protection  Designation of functions - criteria  Steps of Community Mapping  Community Mapping for Flood Resilience Implementation of Community Mapping Infrastructure Resilience Conceptual Framework  Cycle of Infrastructure Database, Risk Assessment and Spatial/Urban Plan  Retention Walls in Obrenovac  Illustration for Proposed Road Surface Drainage  Type I Drain at Riverbanks/During Flooding  Type I Drain at Riverbanks/After Flooding  Type II Drain at Riverbanks/During Flooding  Type II Drain at Riverbanks/After Flooding  Example of Riverbanks Upgrading and Wetlands  Conceptual Image of Primary School Courtyard  Wild Dumpsite seen During Obrenovac Visit  Sorting Facility for Solid Waste and Warehouse next to the Dumpsite  Heating Substation Flooded during the 2014 Flood Providing Emergency Shelters  Providing New Resilience Measures  Integrated Warning System 

34 46 47 49 68 69 105 107 113 116 117 119 120 121 121 122 122 122 123 123 124 126 131 136 136 138 139 140 140 141 141 142 142 143 143 144 153 154 154

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Figure 40 Figure 41 Figure 42 Figure 43 Figure 44 Figure 45 Figure 46 Figure 47 Figure 48 Figure 49 Figure 50 Figure 51 Figure 52 Figure 53 Figure 54 Figure 55 Figure 56 Figure 57 Figure 58 Figure 59 Figure 60 Figure 61 Figure 62 Figure 63 Figure 64

Providing Generators and Pumps  Maintenance of Drainage System Flood Protection of Buildings Providing Emergency Evacuation Plans  Providing Emergency Noticeboards Providing Management Scenarios  Providing Community Training Education Program for Disaster Management  Providing Better Coordination  Better Decision-Making Process  The Existing Funding System Better Funds Management  Reconstruction Housing in Obrenovac  Newly-Built Housing for Local Flood Victims who Lost Their Houses  Newly-Built Housing Complex New Apartment for Flood Victims in Obrenovac. This House was Funded by  Private Donor Dejan Stanković (football player). Multi-Family Apartments in Obrenovac Two-Storey House in Obrenovac  One-story House in Obrenovac  Formula for Housing Vulnerability Housing Vulnerability Scorecard Stickers (HVS)  Improving Vulnerability Levels External Staircase to Upper Floor  Floodable Ground Floor  Elevated Buildings

154 155 155 155 155 155 156 156 156 157 157 157 161 161 161 161 163 163 163 164 165 165 166 166 166

The Legal Framework for Disaster Risk Management SWOT Analysis  List of Sources of Funding for Emergency and Prevention Measures  Potentials and Challenges SWOT Analysis of Environmentally Related Potentials and Challenges  Key Issues  Challenges and Potentials of a Strategic Framework  Advantages of CHP Systems over Backup Generators Action Plan for Disaster Resilient Vital Facilities Phases of Warning System in Case of Emergency  Score Matrix 

32 37 42 69 80 91 103 146 153 155 164

List of Tables Table 1 Table 2 Table 3 Table 4 Table 5 Table 6 Table 7 Table 8 Table 9 Table 10 Table 11

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List of Interviews

List of Maps Map 1 Map 2 Map 3 Map 4 Map 5 Map 6 Map 7 Map 8 Map 9 Map 10

Map of Landslide and Flooded Area in 2014  Map of Infrastructure and Landfills in Obrenovac Spatial Map  Geological Map  Spatial Map  Plan of General Regulation of “Kolubara B” Power Plant Plan of General Regulation for Part of the Zvečka, Rvati, Petlovobrdo and Zabrežje Settlement  Plan of Detailed Regulation for the Central Zone of Obrenovac  Plan of Detailed Regulations of Topolice, Spa, Sports and Housing Complex  Condition of Health and Education Facilities during Disaster 

53 54 67 67 127 128 129 130 130 150

List of Interviews

Djokovic, Vesna (Urban Planning Office of Obrenovac Municipality) Dragana, Nikolic (Teacher at “Veseljko”central kindergarten) Protić, Ivica (High school principal) Spasić, Branko (Head of the Obrenovac Youth Foundation) Stojanović, Militsa (Head of the Obrenovac Mayor’s office) Todorović, Maja (Principal of health center) Vaskovic, Jovan (Member of the Committee for Emergency Situations) Zdravković, Olivera (Head of Department for General Administration) Zlatanović, Dragoljub (Principal of agricultural-chemical school) N.N. (Chief of Committee of Emergency Services/Inspector for Civil Defense)

Obrenovac

22/04/2015

Obrenovac

21/04/2015

Obrenovac Obrenovac

21/04/2015 23/04/2015

Obrenovac

21/04/2015

Obrenovac Obrenovac

22/04/2015 22/04/2015

Obrenovac

22/04/2015

Obrenovac

21/04/2015

Obrenovac

22/04/2015

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Personal Profiles Faris Achmad is an urban planner from Indonesia. He had three years experienced working for GIZ (Deutsche Gesellschaft Internationale Zusammenarbeit) as professional planner in Sustainable Urban Transport Improvement Project in Indonesia. At the time, he specialized in public transport development, sustainable streetscape design, and participatory planning. Faris earned his bachelor degree from Bandung Institute of Technology at School of Architecture and Planning in 2012. He is interested in urban transport issue and urban economy issue.

Hoda Aminian holds a M.A. in urban and regional planning from Tehran University, Iran. She has gained a career as an urban planner, working for 5 years as well as carrying out research in the field. Since 2010, she has worked as facilitator of participatory processes. Moreover, she is a co-founder of the NGO “Bahamestan” which has been working in the field of Right to the city for citizens, especially marginalized groups in Iran.

Bojana Antić is a landscape architect and student of urban planning from Novi Sad in Serbia. After the first master degree, she studied urban planning at Faculty of Architecture at Belgrade University. She worked for the city administration of Belgrade at Secretariat for Urban Planning and Construction. She is volunteering for the studio project in the field of urban design at Faculty of Architecture at Belgrade University. She wants to continue the study of urban planning/design specially connected to landscape architecture.

Born on 25th June 1989, Sheryta Arsallia achieved her bachelor degree in Urban and Regional Planning from Bandung Institute of Technology, Indonesia. During her bachelor, she gained several experiences on urban transportation planning. Thereafter, she worked one year as a researcher assistant in her university and two years as an urban and transportation planner in a private city developer near to Jakarta. Her specific interests are on the topic of urban mobility, urban design, tourism planning, and transit oriented development. Portraits of Urban Management Students and Advisers Photos: Authors

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Personal Profiles

Jovana Bugarski is an architect, born in Belgrade, Serbia. She graduated with bachelor and master degrees in Architecture from the Faculty of Architecture, University of Belgrade. During and after her studies, she participated in numerous national and international workshops and exhibitions and, as one of a team of authors, in several award winning projects in architectural and urban design.

Dolo Mazorra Cebrian is an architect and urban designer with a degree in Architecture from the University of Las Palmas de Gran Canaria, Spain. Since 2010 she has been working in the field of architecture and urbanism in Spain, the U.K., and Germany. She has been involved in Co-Housing and alternative projects while at the TU Berlin and has participated in workshops, seminars and colloquium regarding housing and affordable housing.

Sara Dević was born in 1991, Belgrade, Serbia. Completed Bachelor degree in Architecture, University of Belgrade, 2013. Currently enrolled at Master studies of Integral Urbanism, faculty of Architecture. Participated in several workshops in Belgrade, Helsinki, Vienna, Moscow, that dealt with architecture, public space and cities in general. Co – founder of University UNESCO Club, Belgrade, 2013. Exhibited student’s work on Resilient Cities conference, 2013. and Union of Engineers’ conference, 2014.

Aleksandra Đorđević was born in Vranje, Serbia. After obtaining a degree in Architecture in 2012, she graduated with two master degrees – Integrated Urbanism and Architecture –, both from the Faculty of Architecture, University of Belgrade. During her studies she showed great interest in the field of urbanism and took part in numerous international and national urban design competitions. She is currently enrolled in a PhD program at the Faculty of Architecture, where she recently started working as a teaching assistant.

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Resilient Cities

Bosko Drobnjak was born in 1988 in Belgrade, Serbia. He studied Interior architecture in Belgrade. Since his graduation, he has worked in an art bookshop. In 2013 he enrolled in Master Studies in Integral Urbanism at the Faculty of Architecture, University of Belgrade. He has experience in teaching, as a student-teaching assistant at the Faculty of Architecture, and he is an associate member of the Association of Engineers in Belgrade.

Ana Dušmanović was born in Belgrade, Serbia. She graduated with bachelor and master degrees in Architecture from the Faculty of Architecture, University of Belgrade. As part of a team, she started the “New housing models initiative for people threatened by floods”. She participated in several national and international exhibitions and workshops in the field of architecture and urban design. As a former dancer of modern ballet, she is interested in other types of art, such as music and dance.

Mohd Farhan, born 1990, is a Civil Engineer from Aligarh Muslim University, India. His bachelor’s dissertation was in Hydraulics namely Dam, Reservoir and Spillway Design. He is experienced as a Construction Engineer. He joined TU Berlin for getting a different perspective on sundry institutions and cities. His professional interests are in Project Management, Travel and Tourism, Disaster Management and Civil Engineering.

I am Shan Gao from China. I have a background of architectural and civil engineering and have finished a bachelor’s and a master’s degree in Tongji University in Shanghai. I have been working on building structural engineering and steel structural engineering. Before coming to Berlin, my work was mainly focused on the structural design of electricity transmission towers. I am quite interested in energy management and city issues, and would like to engage in urban planning and management work for future career.

184

Personal Profiles

Evandro Holz holds a B.Sc. in Civil Engineering from the Federal University of Rio Grande do Sul (UFRGS), Brazil. He has 3 years of experience in the construction industry, being involved from planning to oversight of civil works. Moreover, he worked for 7 years as an environmental consultant, developing projects on management of contaminated land and environmental impact assessments, with experience in South America, Africa and Asia.marginalized groups in Iran.

Rashid Kairuz is a Civil Engineer and M.Sc. in Transportation from the National University of Colombia. He worked since 2009 in the field of urban transportation in Colombia in projects related to Bus Rapid Transit Systems and Strategic Transportation Systems. As well, he worked on transportation infrastructure policies in the Ministry of Transportation. Currently, he is a master student of Urban Management at the Technische Universität Berlin, where he is expanding its knowledge in the development of sustainable strategies in urban areas.

Katarina Kožović was awarded a bachelor degree from the Faculty of Architecture, University of Belgrade, in 2013. Currently, she is in her second year of master studies in Integrated Urbanisam at the Faculty of Architecture.

Aram Lee holds a B.A. in Communication from Yonsei University, South Korea. She has many experience of curating and coordinating intellectual and cultural events such as TEDxSeoul, Junglim Architecture Forum and Off and Free International Film Festival. She worked as a journalist and editor for GRAPHIC magazine, Bicycle magazine and Architecture Newspaper in Korea by profession for last 4 years. She initiated and directed relief design actions named ‘non:temporary project’ which was collaborative action supporting the village with various architects, artists and designers when the 80% of informal settlement was damaged after the big fire in 2011.

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Resilient Cities

Eunyoung Lee is from South Korea. She has Bachelor degree of German interpretation and translation. With the background in political science and European Union studies, she received her master degree in international areas studies. She worked for KETEP (Korea Institute) as a R&D researcher in the strategy team. She has various experiences related to European cities; England, Austria, France and Germany. She wants to keep going her career in the urban study field related to the sustainable tourism development.

Yan Liang is a real estate analyst from China. She worked with E-commercial China, a real estate consulting firm, for three years, and with Starbucks China for half a year. During her studies, she did an internship in Drees & Sommer, focused on Business Development with Chinese investment and Real Estate Analysis. Her interest is sustainable urban development.

Anđelina Lučić obtained a degree from the University of Belgrade, Faculty of Geography, Department for Spatial Planning in 2013. Currently she is in her second year of master studies in Integrated Urbanism at the Faculty of Architecture.

Ivana Mačkić is interior and furniture designer, born in Belgrade. Since 2011, she has been working mostly on residential and commercial projects. In 2013 she enrolled Master Study program, Integral Urbanism on Faculty of Architecture. Since, she developed interest not only in environmental, but also in community-based design.

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Personal Profiles

Mila Madžarević is a graduated landscape architect currently enrolled in the Master of Integral Urbanism at the Faculty of Architecture, University of Belgrade. Since graduation, her working experience has focused on the field of landscape design where she is engaged in a variety of projects from residential gardens to large scale industrial complexes.

Anastasia Maragdouli is from Greece. She received her Diploma Engineering degree from the Architecture Engineering Department of the Democritus University of Thrace. She worked as an Architect Engineer in a Technical office in Greece. She has completed a 2-month internship, during which she was occupied as an external scientific collaborator, in cooperation with the Institute of Housing and Urban Development (IHS) Institute in Rotterdam, Netherlands. The main subject of her internship work was the implementation of Place Making in specific areas which is the scientific sector she wants to extend her professional career.

My name is Seyedparham Mortazavian and I am an Iranian architect from Tehran. I am holding a Bachelor in architecture from Tehran Azad University. I have been working in a renovation project in a suburb in Tehran. I also worked as freelance artist and photographer. I am greatly enthusiastic about multidimensional essence of urban issues and looking forward to pursue my career in interdisciplinary research projects.

Having studied civil, structural and environmental engineering in Dublin, Ireland, Shane O’ Hanlon then started working in the Irish energy sector before ultimately moving to Vancouver, Canada. Here he worked in the green building and sustainability sector for four years, also earning a certificate in Urban Design. He now intends to focus on urban development and climate change, with aims to work on the regional scale in the European Union.

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Aline Peres holds a B.Sc. in Social Communication from the Pontifical Catholic University of Rio Grande do Sul (PUCRS), Brazil. She has over eight years of experience in Broadcast Journalism, working mainly with environmental journalism. Prior to enrolling in the MSc in Urban Management at TU Berlin, she worked also in urban projects involving Placemaking, Public Spaces and Urban Interventions. She has focused her master studies on urban sociology and urban governance.

Jelena Radosavljević is an architect. She graduated with bachelor and master degrees in Architecture from the Faculty of Architecture, University of Belgrade. During her studies she worked as a volunteer, teaching several subjects in the field of urbanism. She has participated in many international and national competitions in the fields of architecture and urban design, and as a team member has gained awards for several projects.

Javier del Río Arteaga is a Geographer graduated from Pontificia Universidad Católica de Chile. His working experience is mainly in private consultancy, developing territorial strategies for different companies and local Governments. During his studies, he did internships in areas such as a public policy to strength residential integration. Currently, he is a board member of Empropolis Foundation, Chile.

Nawid Royaee is an architect and urban planner from Kabul, Afghanistan; he graduated from Kabul University and worked for 6 years in design and construction projects in various places in Afghanistan. Interested in Urban Studies – Came to Germany to complete his masters degree in Urban Management. He is a DAAD scholarship holder.

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Personal Profiles

Hicham Sader is holding a bachelor degree in finance from the Lebanese University, and an MBA from the American University of Science and Technology –Beirut. He has done a number of internships in the banking sector, and he has more than five years of experience in accounting and technical accounting mostly for reinsurance brokerage companies. He is currently enrolled in a Masters program in Urban Management at TU Berlin and working with ‘World Vision’ as an intern.

Cecília Sampaio holds a B. Sc. in Civil Engineering from Paulista State University (UNESP) in São Paulo, Brazil. She worked for 7 years in many constructions in Brazil, such as buildings, factories, a railroad and a World cup Stadium. She experienced project design, planning, executing and financial measurements. While working, she also finished a MBA in Project Management from Getúlio Vargas Foundation, in Brasília. Now studying Urban Management, she intends to engage her career in environmental friendly urban solutions.

Olivera Šanta. Landscape Architect, born in Novi Sad, where she had finished Bachelor studies. Currently enrol in Master Studies of Integrated Urbanism, faculty of Architecture in Belgrade. During landscape architecture and urban design workshops in England, Italy, Poland and Slovenia she has gathered experience and developed interest in applying innovative ways of dealing with problems in urban areas. Co-founder of organisation for young landscape architects in Serbia.

Eliana Silva is an economist from Universidad Central de Venezuela. She has worked at CAF-Development Bank for Latin America in Caracas, where she held different positions in Private sector, Countries Program, and Social Development areas. During her studies of Urban Management, she did an internship at UN-Habitat in Nairobi. She worked in the Urban Economy Branch, particularly in the strategy of Financial for City Leaders. She wants continue her studies about open spaces planning.

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Jelena Spasojević holding a Degree from University of Belgrade, Faculty of Geography, department for Spatial planning since 2012. Currently 2nd year on Academic master studies in Integrated urbanisam, Faculty of Architecture.

Kurt Steffens. Architect, Universidad Central of Chile. He has been working in urban issues since 2007. First, in the Ministry of Housing and Urbanism and then, in the NGO Emerging City. He worked as an adjunct professor at the Universidad Central de Chile and in the volunteer program of INFOCAP, the Labourer University. His areas of interest are the urban regeneration and local processes, by means of governance and social capital.

Roni Susman I have been working as an architect in Infrastructure Department, Regional Development Planning Board of West Java Province, Indonesia. I am responsible for urban infrastructure planning, industrial area and facilities as well as housing development program. I graduated from Architecture, Bandung Institute of Technology. Since I learn about Urban Management, I am keen on the issue of urban-rural disparities, urban governance and urban economy which is always relevant for the time being.

Aruho Apollo Tinka is a Civil Engineer from Uganda. He possesses several years of experience in the urban management and development field in the East African region. Prior to enrolling on the Urban Management Program at TU Berlin, he worked with UNDP and UN Habitat, South Sudan. Aruho is interested in urban development planning, with a special focus on urban transport planning, Informal settlements upgrading studies, and Urban Governance.

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Personal Profiles

Filip Trgovčević, B. Arch, was born in Belgrade, Yugoslavia in 1990. He graduated from Faculty of Architecture, University of Belgrade in 2013. Currently a student of the Integrated urbanism master course of the same faculty. During his bachelor studies his focus shifted from architecture to urbanism. Beside professional interests loves cooking, music, travelling and animals.

Adele Vosper holds a MPH from La Trobe University, and a B.A (Economics and German) and Dip. Arts (International Studies) from the University of Melbourne. She has experience working in the field of public health in Australia, for the Department of Health and Ageing, and internationally, for the Kenya Red Cross Society. Adele intends to pursue a career in the field of urban health, supporting cities in providing healthy environments for their residents.

Qi Yahya was born at 17th June 1990, in Bogor, Indonesia. He graduated from Civil Engineering at University of Indonesia in 2012 with his bachelor thesis about railway track. In the same year, he started working for GIZ in Sustainable Urban Transport Improvement Program (SUTIP) for his hometown, Bogor. In 2014, he decided to pursue Urban Management Master Program in TU Berlin.

Yaqi Zhu, comes from China, has rich experiences in project management working with international teams. She has been involved in a wide range of projects ranging from master plan, mixed-use urban design, real estate development to landscape design. Her projects won the 2011 ASLA Planning Honor Award and 2010 AIA Merit Award for Urban design. Environmentalism and urbanism are the two consistent themes throughout Miss Zhu’s practice.

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Ivan Živadinović obtained a B.Arch from the Faculty of Architecture, University of Belgrade, in 2013. Currently he is in his second year of master studies in Integrated Urbanism at the Faculty of Architecture.

Ana Zorić was born in Nova Varoš, Serbia. She graduated with bachelor and master degrees in Architecture, from the University of Belgrade. She is enrolled in a PhD programme at the same faculty, where she is working as a teaching assistant. Besides professional development in the field of architecture, she is interested in fine arts and has taken part in numerous art exhibitions.

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Technische Universität Berlin / Berlin University of Technology Urban Management Program Faculty VI Planning Building Environment Sekr. HBS 5 Hardenbergstr. 16-18 10623 Berlin Federal Republic of Germany Phone: + 49-30-314-21468 Fax: + 49-30-314-27323 E-Mail: [email protected] Internet: www.urbanmanagement.tu-berlin.de

ISBN 978-3-9812769-1