Land use and building code adjustment for better urban resilience the case of denpasar city against tsunami

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand XXX-X-XXXX-XXXX-X/XX/$XX.00 ©20XX 7ACEE Land Use and Building Code Adjustment for

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand

XXX-X-XXXX-XXXX-X/XX/$XX.00 ©20XX 7ACEE

Land Use and Building Code Adjustment

for Better Urban Resilience -

The case of Denpasar City against Tsunami

Dr Kien To

International Division Eight-Japan Engineering Consultants Inc.(EJEC)

Tokyo, Japan kien-to@ej-hds.co.jp

Abstract - Along with intensifying urbanization, nature

exploitation and climate change, our modern era is witnessing

a rising number of disasters and their rising severity In

ASEAN region, due to climatic and geographical conditions,

numbers of disasters and their risks are high This paper

introduces a sub-project of a larger one, which aims to

strengthen urban resilience in ASEAN cities It focuses on

tsunami disaster, and takes Denpasar City in Indonesia as a

demonstration city, where tourism-based rapid economic and

urban development conflicts with cultural and ecological

conservation It adopts the emergent approach to incorporate

disaster risk management (DRM) into urban planning and

development, thereby effectively strengthening both disaster

prevention and response as guided by the Sendai Framework

for Disaster Risk Reduction The assessment of DRM-related

land use and urban development is based on both expert

analysis (such as the overlay of the most agreed risk map onto

land use and infrastructure planning maps in GIS platform),

and inputs of related local agencies through multiple

workshops For example, some critical areas officially classified

as national strategic ones like Benoa Port and Sanur Beach are

assessed as tsunami prone Thus, some structural and

non-structural protection solutions are proposed In addition, key

regulation and policy documents such as mid-term and

long-term spatial development plans as well as building code are

also reviewed Based on these assessment outputs as well as

good practice lessons from other Indonesian coastal cities such

as Pacitan, a set of recommendations are made and broken

down into short-, middle- and long-term For example, taller

hotels are encouraged to renovate their facilities to facilitate

tsunami evacuation, and the traditional local regulation of

building height limit of 15m in Bali Island is recommended to

give an exception for special structures like new tsunami

evacuation towers The results of the project are finally shared

at a national workshop and a regional forum In short, this

project demonstrates how land use and building code

adjustment can enhance urban resilience It brings

multi-sectoral stakeholders together, strengthens their capacity, and

promotes inter-city and international collaboration towards

regional resilience and sustainability

Keywords - Urban resilience, land use, building code, disaster

risk management, tsunami disaster

I INTRODUCTION Along with intensifying urbanization, nature exploitation and climate change, our modern era is witnessing a rising number

of disasters and their rising severity In ASEAN region, due

to climatic and geographical conditions, numbers of disasters and their risks are high This paper introduces a sub-project

of a larger one, which aims to strengthen urban resilience in ASEAN cities It focuses on tsunami disaster, and takes Denpasar City in Indonesia as a demonstration city, where tourism-based rapid economic and urban development conflicts with cultural and ecological conservation It adopts the emergent approach to incorporate disaster risk management (DRM) into urban planning and development, thereby strengthening both disaster prevention and response

as guided by the Sendai Framework for Disaster Risk Reduction (elaborated hereinafter)

A New approach in DRM

Urbanization, nature exploitation and deterioration, emissions and climate change are among key causes of a rising number of disasters and their rising severity

Traditionally, disasters have been tackled with the response

only approach, which has been shown ineffective and unstainable However, there has been an emergent global

paradigm shift from the traditional disaster response only approach to disaster prevention and response one (more

comprehensive and more sustainable) In other words, there

is a fundamental shift from response to resilience (see for

example UN, 2008 [1]; Jenkins, 2015:132 [2]; Chmutina et

al., 2014 [3]); or from vulnerability to strength Resilience is

increasingly seen as paramount And the Sendai Framework for Disaster Risk Reduction 2015-2030 - adopted at the Third UN World Conference in Sendai, Japan, on March 18,

2015 - is an important example being adopted globally The Sendai Framework is the successor instrument to the Hyogo Framework for Action 2005-2015 (themed “Building the Resilience of Nations and Communities to Disasters”) In the Sendai Framework, the most significant shift is a strong emphasis on disaster risk management as opposed to disaster management Moreover, the scope of disaster risk reduction (DRR) has been broadened significantly to focus on both natural and man-made hazards and related other related hazards and risks [4] DRR measures should be seen as a continuous process, with resilience being systematically built

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand into the design, construction and operation processes

(DCOP), rather than added on to a construction project as an

‘afterthought’ (Bosher et al., 2007 [5]) With regard to DRM

and DRR, the Sendai framework sets out four priorities: 1)

Understanding Disaster Risks, 2) Strengthening Local

Governance to Manage Disaster Risk, 3) Investing in

Disaster Risk Reduction for Urban Resilience, and 4)

Enhancing Disaster Preparedness for Effective Response and

Build Back Better

This paper emphasizes the key role of urban planning in

disaster prevention, as it helps guide and govern mid- and

long-term plans towards sustainable development Planning a

city without proper resilience strategies to cope with

disasters is just like wasting resources and more severely,

putting people, infrastructure, assets and the economy at risk

Disaster resilience is thus a desired goal that cities should

ultimately achieve in their urban planning, design and

governance strategies Infrastructure and utilities systems

which incorporate and enhance resilience can enable cities to

withstand disasters sustainably Focusing on DRR is a good

and suitable starting point towards disaster resilience Spatial

planning is increasingly becoming an important tool for

DRR, as it presents an opportunity to regulate the long-term

use of space through which exposure to natural hazards and

human-induced threats can be minimized (Sutanta et al.,

2010 [6]) Chmutina et al (2014, [3]) also shared this

opinion, and they focused on identifying the commonalities

and differences between key stakeholders who should be

responsible for integrating DRR activities into urban design

and planning, and emphasized the gaps in stakeholders’

involvement

In short, the key step is to incorporate disaster risk

management (DRM) inputs into existing and future urban

planning plans This can be done in two steps The first step

is to overlay the risk map onto urban planning plans

(including zoning, land use, infrastructure and utility

networks, building distribution) - and GIS can be an useful

platform to do so - to identify disaster prone networks and

structures, then recommend amendments The second step is

to review key regulation and policy documents such as the

Mid-term (5 years) and Long-term (20 years) Spatial

Development Plans as well as the Building Code

Subsequently, the parts related to DRM may be revised or

supplemented

B Brief introduction of urban planning system and policy

in Indonesia, and governmental initiatives

Indonesia is the fourth most populous country in the world,

and is made up of over 17,500 individual islands The

government of Indonesia is three-tiered, consisting of

provinces (34 including special provinces), cities (93 urban

local government), and regencies (416 rural local

government) (All data as of June, 2015) The respective

governments have the authority to draft socioeconomic

development plans according to the National Development

Planning System Law (Law No 25/2004) and spatial plans

according to the Spatial Planning Act (No 26/2007)

Development in the country centers on these plans There are

two scales of development plans: Long-term Development

Plans (RTRW) function to outline the direction of

development policy including vision, mission, and strategy

for 20-year period, while Medium-term Development Plans

(RPJMD) include development strategy, macroeconomic

framework and prioritized measures for the next five years (MLIT, 2017 [7]) RTRW spans across levels: RTRWN (N: National), RTRWP (P: Provincial), RTRW Kabupaten (Regency), RTRWK (K: Kota or City)

Ministry of Agrarian Affairs and Spatial Planning (ATR, established in 2015) is in charge of spatial planning It took

an initiative to enhance urban resilience by integrating Disaster Risk Reduction (DRR) and Climate Change Adaptation into the national level policy and coordination, including spatial planning Some good examples include the pilot project in Pacitan City in the south of Java, and the retrofitting of some public buildings to function as tsunami evacuation shelters in Padang City in West Sumatra

Located at Java’s Southern coast, Pacitan was selected as

a pilot area for an integrated model of tsunami mitigation Pacitan faces a seismic gap between two tsunami-earthquake events, which were the 1994 (M 7.2) and the 2006 tsunami (M 7.7) Comprehensive risk assessment was conducted, and detailed tsunami simulations were carried out in addition to the preparation of vulnerability analysis (Muhari et al., 2012) [8] In 2017, the ATR took an initiative to incorporate DRM into land use planning, and for the first time in Indonesia, overlaid a tsunami risk map onto Pacitan’s land use map in order to assess and specify areas prone to tsunami (Fig 2)

C Brief introduction of the demonstration city: Denpasar

Denpasar City - also known as Kota Denpasar in Indonesian language - is the capital city of Bali Province and

well-Fig 1 Spatial planning system in Indonesia

(Source: MLIT, 2017)

Fig 2 Overlaid map that helps identifying tsunami prone areas in

Pacitan (left) and retrofitted public buildings in Pedang to serve as temporary evacuation centers (right) (Source: ATR, 2017)

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand known globally as the main travel destination and is the

primary access to Bali Island The name Denpasar came

from the Balinese word "den" (north) and "pasar" (market)

This name was taken because it is located just in the North of

Kumbasari Market Denpasar has a total area of 127.78 km²,

equivalent to 2.18% of the total area of Bali Province About

2768 hectares of land are rice fields, accounting for 21.6% of

the total land area Denpasar City is located at an altitude of

0-75 m above the sea level Located just in the South of the

equator, Denpasar has a tropical wet and dry climate The

city has various attractions for holiday seekers, and beaches

can be found at different parts of the island In the city

center, there are cultural tourism attractions and places of

interest such as Bali Museum, Bajra Sandhi Monument

(Renon), Puputan Badung Monument and Denpasar square,

Taman Budaya Ardha Chandra (Bali Art Centre)

Fig 3 Masterplans on Land Use (Left map Light blue: Benoa Port; purple:

Southern mangroves green belt; yellow: residential) and Spatial Structure

(Right map Dark blue: City service center, magenta: Sanur strategic area)

in Denpasar City (Source: Development Planning Agency aka BAPPEDA)

As a predominant Hindu region, in Bali Island, there is a

local wisdom namely Tri Hita Karana (literally "Three

Causes of Well-being" or "Three Reasons for Prosperity”)

The three causes in the principle, which relate to the

imaginary hierarchy on a land’s map are: (1) Harmony

between Man and God (the “Head” part, where sacred

buildings are preserved amidst green spaces), (2) Harmony

among People or between Man and Man (the “Body” part,

where government and public buildings, commercial and

services are), and (3) Harmony between Man and

Nature/Environment (the “Leg” part, where eco-tourism,

warehouses, big infra facilities, commercial are) (See Fig 4)

This local wisdom is refereed to across scale such as the

scales of the entire city, district, village or even a home It

highly affects the zoning and land use plans of the city,

which in turn, affects DRM and DRR

With regards to disaster, Denpasar is confronted with many types of disasters, including volcanic disaster, earthquake, typhoon, flooding, coastal abrasion, seawater intrusion, etc Denpasar never experienced any massive tsunami disaster previously, but some reports indicate future tsunami risks caused by potential earthquakes at Sunda Trench Once a tsunami disaster hits a Denpasar coastline, it will spread broadly in Bali Island However, concrete actions

to mitigate tsunami risks have not been identified so far, and

a sufficient number of tsunami evacuation buildings have not been designated or prepared in most areas in Denpasar Denpasar City promotes itself to become a smart city (http://smartcity.denpasarkota.go.id) In order to do so, for instance, it offers an open source geo-portal called

(http://geoportal.denpasarkota.go.id/) - a platform for sharing geospatial data and maps Anyone can search for geospatial data published by local government agencies Data is available for browsing, exploring, and aggregating with other geospatial data services In this way, the city actively crowd-sources its citizens for public feedbacks and reporting of categorized urban issues through phone apps such as “Pro Denpasar” app (also available online at: https://pengaduan.denpasarkota.go.id/) Besides, an advanced one-stop data center named Damayana Center provides real-time data, real-real-time monitoring as well as GIS data Some local universities such as Udayana University and Universitas Hindu Indonesia also offer GIS courses and services

II ASSESSMENTOFDRM-RELATEDLANDUSE

DRM-related land use and urban development in Denpasar are assessed in various ways in order to formulate a synthesized assessment

A Assessment based on expert analysis

First of all, with regards to Tri Hita Karana concept,

Denpasar lies at the “Body” (middle) part of Bali Island (Head: North of Denpasar; Leg: South Badung) Therefore, it

is suitable to feature the “Harmony between Man and Man” This is indeed the political, cultural, economic (and thus, development) center of Bali province, where busy activities take place

As mentioned earlier, a key step to incorporate DRM inputs into existing and future urban planning plans is to overlay a tsunami risk map onto the city’s spatial planning, land use and infrastructure network maps, using GIS platform However, it was found out that there had been different versions of tsunami hazard maps issued by different organizations Specifically, these organizations include the Center for Volcanology and Geological Hazard Mitigation - PVMBG (2008 version and 2012 version), National Disaster Management Authority (BNPB) and German GTZ (GIZ) Notably, the tsunami risk analytics in these versions at some specific areas can be very different As it is crucial to officially specify one single version to base on, upon a discussion among various related agencies, the version issued by PVMBG was selected for the risk assessment, considering that PVMBG has the main role and mandate for preparing hazard maps

Fig 4 “Tri Hita Karana” concept for Denpasar City

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand

Upon overlaying the maps (Fig 5), the following key

assessments regarding spatial planning could be made

First, Table 1 lists up infrastructure networks, facilities,

and buildings that are exposed to tsunami (tsunami prone)

T ABLE 1: ASSESSMENT OF TSUNAMI PRONE NETWORK, FACILITIES

AND BUILDINGS

Critical

infra-structure

- Three officially specified strategic areas: Sanur, Benoa

Port, and Serangan Especially, Benoa Port is a special

and critical infrastructure which stores hazardous

materials, and thus, a vulnerable point If struck by

tsunami, it will cause catastrophic consequences

- Other critical infrastructures such as the future

terminal, depot (depo BBM), the power network, the

telecom network, bus terminal (type B and type C), an

arterial road (Jalan Bypass Ngurah Rai), and an MTR

route (Sarbagita BWK)

- At the provincial scale, one of Bali Province’s key

arterial and logistics routes (Jalan Bebas Hambatan)

that partly runs through Denpasar City is prone to

tsunami This route connects Nusa Dua through

Mandara Toll Road, Jalan Bypass Ngurah Rai in Sanur

to Padang Bai Port It has no alternative routes, so if

struck by tsunami, logistics in the south parts of

Denpasar and Bali Island will be disrupted

Cultural

buildings

- Important Hindu temples including Pura Mutering

Jagat SIdakarya and Pura Sakenan

Commer-cial

buildings

- Commercial and service areas in Serangan and the

southern belt connecting Kuta-Sanur

Residentia

l buildings

- Some densely populated areas, like those located inside

Jalan Bypass Ngurah Rai in the South and East parts

Social

services

- Hospitals and community health centers such as

Puskesmas Denpasar Selatan II and RS Bali Mandara

- Panti Sosial Tresna Werda Wana Seraya social center

Besides, Denpasar City lacks a complete evacuation

system, such as a looped evacuation route network and their

associated, scattered evacuation center locations (Fig.6)

B Assessment based on multi-stakeholder workshops

In this demonstration case, there are two types of workshops

which provide inputs for the assessment of DRM-related

land use and urban development: Checklist workshops (the Checklist B part), and the Action Plan workshop

The first highlight is the Checklist workshops for ASEAN Urban Resilience It comprises of two main components: Checklist (A) for Disaster Risk Management and Checklist (B) for Resilient Urban Planning and Development The workshops cater to and are participated

by various relevant public agencies in Denpasar City as well

as Bali Province in order to assess the coping capacity to disasters Like Checklist (A), Checklist (B) is assessed by quantitative analysis with the scoring system installed into the way of questions and answers in the checklist The total score for Checklist (B) is 17.3 points out of 40 points Looking into details of the scores (Fig 7), it can be seen that measures related to “B1-Understanding the Risk” and “B2- Investing in Disaster Risk Reduction for Resilience” should

be strengthened

0 2 4 6 8 10

B1 Understanding Disaster Risks

B2 Investing in disaster risk reduction for resilience

B3 Enhancing disaster preparedness for effective response and to “Build Back Better”

B4 Strengthening disaster risk governance to manage disaster risk

Resilience Radar Chart by SFDRR

Fig 7 Result of Checklist (B)- Resilient Urban Planning and Development in

Denpasar in line with 4 priority actions of Sendai Framework for DRR

The next highlight is the Action Plan workshop held in May 2018 and attended by participants from various related

Fig.5 Overlaid map of PVMBG tsunami risk map onto existing building

distribution map in GIS platform Red, yellow and green colors show 3

levels of tsunami scenarios (Source: Inoue, 2018 [10])

Fig 6 The current incomplete evacuation network (red line) and

evacuation places/centers (red dots)

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand agencies to jointly specify priority actions both for Disaster

Management Plan and Urban Land Use and Development

Plan A participatory process and systematic thinking method

in the brainstorming and formulating action plans were

secured Participants from relevant agencies both of Kota

Denpasar and Bali Province discussed four themes extracted

from the results of the checklist and wrote down their

opinion regarding the following questions: (a) Current

situation regarding the issue, (b) what have been done about

the issue, and (c) what kind of action is necessary for the

issue (Fig 8) Since some of the staff had been involved in

some previous workshops and knew which actions were

related to their agency, they actively proposed their

additional opinions and ideas for possible actions from their

own motives

Fig 8 Collected ideas and opinions during the Action Plan Workshop

C Assessment based on reviewing key regulations and

policies

a) Review of Long-term Spatial Development Plan (RTRW)

One of the most important official documents related to

urban planning and development is the Long-term Spatial

Development Plan (RTRW) 2011-2031 In the case of

Denpasar City, “Rencana Tata Ruang Wilayah Kota

Denpasar Tahun 2011-2031” or RTRW Kota Denpasar

(Spatial Plan for Denpasar City Period 2011-2031), 92 pages,

is the key spatial planning guiding document

A review of the RTRW Kota Denpasar 2011-2031

document from the viewpoint of DRM has shown the parts

that need to be given attention, updated or revised The

following are a few major shortcomings:

- The document mentions in a few parts of Tri Hita

Karana concept, but a detailed explanation along with an

associated guidance on how to adopt it is not provided

- The document mentions in a few parts about Benoa Port

as a “strategic area” and an international port to be

However, as articulated earlier, the port is located in a

highly tsunami prone area with very high risks

- The document mentions in a few parts about “protected

areas” (in environmental, cultural, historical or spiritual

dimensions) as well as “heritage” However, no detailed

lists and maps of such areas and/or buildings are available

- The document mentions in a few parts about “evacuation routes” It also spells out specifically some of them such

as Jalan Ngurah Rai, Jalan Hang Tuah, etc However, a complete and looped evacuation route network - to be associated with a network map - does not exist yet Similarly, the document mentions specifically some evacuation places (both open field type such as Lumintang Square in North Denpasar District, and indoor type such as Sports building of Lila Nyamuk in North Denpasar) However, a complete evacuation place list – to be associated with a location map - does not exist yet These important lists and maps shall be made and open to the public to raise awareness about disaster evacuation

Fig 9 An excerpt from the detailed review of the RTRW

b) Review of Building Code (Bangunan Gedung)

Building Code (Bangunan Gedung) set out local regulations for buildings design and construction, approved by the House of Representatives of Denpasar City and Mayor’s Office, and governed by the PU (Public Utility) A review of the Building Code (Perda Denpasar No.5 of 2015) (Fig 10) has shown some key shortcomings as follows:

- In “Building requirements in areas prone to natural disasters”, the document lists out “areas prone to natural disasters” including landslides, tide, flooding, hurricanes and natural disasters geology (Section 7, article 80), but tsunami, earthquake or volcanic disaster are not listed Therefore, there is no dedicated paragraph for “Building requirements in areas prone to tsunami”

- The document mentions about tsunami prone areas as

“the coastal areas with a low elevation and/or potentially

or have experienced a tsunami” (Article 89), that the implementation of these areas must meet the requirements

in accordance with the provisions in RTRW, RDTR, zoning regulations, etc (Article 89), and “shall have certain technical engineering capable anticipating occupant safety and / or building collapse Building due to tsunami waves” (Article 89) However, there is no details

to define such terms as “low elevation” or “potentially experience”, no details of correlation with those legal documents, and no details of the standard of acceptable

“technical engineering”

- The document mentions about required “technical engineering capacity” for new construction and

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand reconstruction, as well as “community home improvement

aid”, without providing hints on how to acquire them at

the local level Therefore, it is suggested to mention

explicitly the available resources of such technical

engineering capacity For example, the existing Building

Expert Team (TABG) is one of the resources This team

shall be strengthened and more active

Fig.10 An excerpt from the detailed review of the Building Code

III RECOMMENDATIONS

A Recommendations for improvement of land use

Based on synthesized assessments from three ways

mentioned earlier, some recommendations for adjustment

and improvement of land use in Denpasar can be made and

sorted out in the two low-score measures in Checklist (B):

B1-Understanding the Risk:

- Urban networks, facilities and buildings that have to be

protected include electric, water supply, sewage and

disposal systems, local government and public

buildings, village offices including Kantor DESA and

Kantor Lurah, and many schools, etc

B2-Investing in DRR for Resilience:

- Establish a dedicate spatial plan for coastal zones,

which incorporates DRR through set-back zones,

coastal forests/green belts, and access roads from the

beach to the hinterland for evacuation purposes Several

Indonesian regencies and cities which already did that

include Pesisir Selatan of West Sumatra Province,

Bengkayang of West Kalimantan Province, Bontang

city of East Kalimantan Province and North Minahasa

of North Sumatra Province The demonstration case in

Pacitan can also be a good reference (Fig 11)

Fig.11 DRR-based Coastal Zone Planning (section) for Pacitan City

as proposed by the ATR (Source: ATR, 2017)

- According to the Tri Hita Karana concept, the Southern belt should feature “Harmony between Man and Nature/Environment” Previously, the Ministry of Environment has planted mangrove forests in these areas Although the original purpose of this mangroves planting initiative was not for tsunami protection, it does indeed provide a “bio-shield” against tsunami for the southern part of Denpasar In the future, more green belts can be planned and/or strengthened as “bio-shields” Eco-tourism can be most suitable here Furthermore, it is suggested to plant mangroves where possible in the green spaces on the Western side of Ngurah Rai Bypass (Sanur part) to strengthen that green belt as “bioshield”

- As Sanur area is specified as a strategic area for coastal tourism, it is impossible to build a giant wall to reduce tsunami damage However, mangroves can be planted

as bio-shields in some certain spots in Sanur Evacuation center sites, signage improvement can be included in the upcoming revised RTRW

- Plan and build a supporting arterial route for Ngurah Rai Bypass (the part running through Sanur), which will serve as an alternative in the event Ngurah Rai Bypass

is struck by tsunami Study on a plan to upraise Ngurah Rai Bypass, if the budget allows

- Work with Benoa Port’s operator to co-invest and build seawall and embankment at Benoa Port However, for developing countries like Indonesia, the downside of using hard structures is the expense In addition, they might create aesthetic and environmental problems in the coastal zones As the scale and hazard level of a tsunami disaster depends on various factors such as population, geomorphology and land use of the coastal zone, etc., the effective combination of suitable soft and hard structural countermeasures in Indonesia should be developed Soft structures, land-use arrangements and set-back zones might be appropriate for many coastal areas of Indonesia considering the sociocultural and environmental conditions

- Amend and complete the evacuation route network and the evacuation center system (already specified, plus newly specified)

B Recommendations for adjustment and improvement of the Building Code

According to Bali’s construction regulations, all buildings in Bali must not exceed 15m in height Traditionally, local community regards this as the building must not exceed the height of a coconut tree Coconut tree has been chosen as a symbol of the interaction between humans and environment

(as part of Tri Hita Karana philosophy) All parts of a

coconut tree (root, stem, leaf, and fruit) are seen to bring benefits to the people and community Although coconut trees are varied in height, this figure of 15m is widely acceptable among locals This local regulation was made in the early of 1970s, and only one building in Bali - Grand Bali Beach Hotel (10-storey), which was built before the launch

of this regulation, is higher than 15m This is a constraint when it comes to plan and build new temporary evacuation centers for tsunami disaster as well as to renovate existing public buildings like how Padang City did as introduced in Fig 2

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand

To overcome this constraint, the project team discussed

with related agencies, especially the PU Kota Denpasar and

the BAPPEDA, and proposed to them to revise the

Construction Regulations and Building Code to give way for

an exception of “special buildings” such as temporary

evacuation centers In fact, this idea has some legal basis In

the Mayor Decree No.5 of 2015 on Building Code, the

Article 20 states that the height of buildings may not exceed

15 m […], except special buildings upon getting an approval

from the city government In the end, agreement and

consensus on the approval-based possibility for the exception

were reached

Besides tall temporary evacuation centers, Regional

Disaster Management Agency (BPBD) Bali Province has

taken an initiative to approach, persuade, and sign a

memorandum of understanding (MOU) with a number of tall

hotels near the coastal lines, so that they would renovate their

buildings and facilities by themselves to meet the city’s

requirements and receive a tsunami-safe certificate Hotels

need to pass 52 indicators for all disasters to get certified So

far, 42 hotels have been certified, and the BPBD Bali

Province targets to have 160 hotels certified in the entire

Denpasar (each year to have around 25 more hotels

certified) In an event of tsunami disaster, those hotels will

open for the public to evacuate to and temporarily stay in

their property This good initiative set ways to demonstrate

and feed back to the Building Code to promote high hotels to

renovate their facilities to include tsunami evacuation

facilities such as outdoor staircases and flat roofs

Furthermore, it is recommended to expand and enhance

capacity of the existing Building Expert Team, as they are an

essential local resource for the communities, and then specify

more explicitly the team’s roles in the Building Code

C Other recommendations

The following key points are some other more general

recommendations:

- At the national level, the national policy and guidelines

for tsunami mitigation should address an integrated

coastal management It is useful to establish and

leverage on a national network or forum of different

municipalities who share a common disaster risk for

information exchange, experience sharing, capacity

building as well as possible collective efforts For

example, in this project, the ATR – the central agency

for spatial planning based in Jakarta - has helped

suggest a list of tsunami potential cities in Indonesia

with an aim to make them become a forum to provide

collective efforts for tsunami DRR in the country

- Develop a comprehensive disaster management system

for Denpasar City, and strengthen local preparedness

level for disaster response and relief

- Enhance lateral and vertical inter-agency

communication and coordination Conduct training (by

lead local government officers in collaboration with

local universities) on risk and asset assessment and

develop capacity building programs

- Strengthen community awareness and knowledge for

DRR and disaster response and relief through

community events, exhibitions, workshops, flyers, etc

- Shift DRM from the business-of-government-only to the

business-of-all In this regard, disaster management is everybody’s affair and responsibility Stakeholders shall include individual, family, local or national government, the private sector, NGOs and others

IV DISCUSSIONSANDCONCLUSION Land use, urban planning and development can be assessed

in several ways and by various stakeholders as demonstrated

in this project It is very important that the derived assessments (as outputs) shall support or feed to each other

to improve the entire system For instance, assessments by expert analysis has been reported to the related local agencies, so that they can timely incorporate the outputs into their periodical reviews of the key plans (such as the upcoming review of the Mid-term Development Plans aka RPJMD on a 5-year-basis), or to revise the Long-term Development Plans (RTRW) as well as the Building Code The utilization of various types of workshops - including the Checklist workshops, GIS training workshops and the Action Plan workshop – was effective, and the extensive participation by officials and staff from different related agencies at both city and provincial level was remarkable It was observed that awareness, relationship, and coordination among the institutions have been enhanced through better mutual understanding, role sharing, and task demarcation In the end, capacity of local government agencies has been improved GIS training and preliminary risk assessment have also been seen to be useful tools to help local officials and staff to understand disaster risks and manage disaster risk reduction Most encouragingly, there was active involvement

of junior staff who enthusiastically went beyond conventional “passive” participation to support the project team under their guidance on some technical analysis of GIS data

Based on the results, the effectiveness of the ASEAN Urban Resilience Checklists was confirmed and evaluated as one of the useful tools for identifying issues and necessary actions for urban resilience The checklists are also useful for evaluating local governments’ coping capacity against disasters with regard to coordination among organizations, data collection and information sharing Therefore, it can be introduced to other local governments in ASEAN region after necessary revisions and improvement

To disseminate the results and lessons learnt from the project to other cities nation-wide, a national workshop was held on 9 May 2018 in Denpasar, with 53 participants from the national government, BNPB and PVMBG as well as delegates from many guest coastal cities in Indonesia (Fig 12) The purposes of the national workshop were to raise awareness on concepts, importance and methods of building urban resilience for Indonesian cities and beyond, to share the results of the demonstration case in Denpasar City and discuss lessons learnt and further issues with the national government as well as with other cities There were active sharing and discussion by various city representatives who share a common tsunami threat Through active and effective sharing and exchange, it was observed that consensus and motivation to strengthen urban resilience at national level among participants were increased

Paper ID #0173 The 7 Asia Conference on Earthquake Engineering, 22-25 November 2018, Bangkok, Thailand

Fig.12 A scene of the National Workshop in Denpasar in May 2018

Based on this momentum and taking a further step, the

results and lessons from the demonstration case in Denpasar

have been introduced at the Third ASEAN Urban Resilience

Forum held in July 2018 in Luang Prabang, Lao PDR -

another demonstration city but focusing on flood disaster

The results from the demonstration project in Denpasar was

reported by members of PCU (BNPB and ATR) and PIU

(BPBD and BAPPEDA Kota Denpasar) themselves to 41

participants of 7 ASEAN Member States and other relevant

organizations - a form of “peer-to-peer” sharing, inspiring

and learning The forum contributed to understanding tools

for urban resilience, sharing experiences and lessons

In conclusion, this demonstration project in Denpasar

City has successfully demonstrated on how to build urban

resilience for cities based on the paradigm shift from the

traditional disaster response only approach to disaster

prevention and response one (more comprehensive and more

sustainable) It showcases the essential and emerging

approach to mainstreaming DRM into urban planning and

development plans as a regular management and planning

process, and as an integral part of the local government

functions, operations, and services The project could also

involve a large and inclusive participation from multi-level,

multi-disciplinary, multi-sectoral stakeholders, and

strengthen their capacity through training workshops and the

actual participated processes of the project implementation

More specifically, this paper demonstrates how land use

and building code adjustment and improvement can be done

in various methods and by various stakeholders Based on

these, synthesized outputs in form of a set of

recommendations can be derived However, the next

important step is to ensure how the local governments and

other local stakeholders can sustain the momentum and

continue to make efforts to implement the recommendations

based on their own capacity and resources At the regional

level, the results and lessons learnt in Denpasar can be useful

and scaled up in other ASEAN countries who share common

or similar disaster risks towards strengthened national and

regional resilience and sustainability in ASEAN region

ACKNOWLEDGMENT The demonstration project in Denpasar has been supported

by the Japan International Cooperation Agency (JICA), and

been jointly implemented by an expert team from

Eight-Japan Engineering Consultants Inc (EJEC) and Nippon Koei

Co., Ltd., and supported by partners from PACET company,

to whom the author’s greatest gratitude goes Special thanks

go to Mr Masashi Inoue and Dr Iwao Suetomi for their technical supports in the demonstration case, as well as for some data cited in this paper The case would also not have been possible without kind collaboration and supports from officials and staff from the following agencies: BNPB, ATR, PVMBG, BPBD Kota Denpasar, BPBD Bali Province, BAPPEDA Kota Denpasar, PUPR Kota Denpasar, PUPR Bali Province, JICA Indonesia, ACDM Working Group on Prevention and Mitigation, and ASEAN Secretariat

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