Making Cities Safe and Resilient to disaster

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Making Cities Safe and Resilient to Disasters
* Jit Kumar Gupta
Introduction
Globally, nations are urbanizing
rapidly, making large contributions to
the national wealth and population of
the cities. Cities are growing
disproportionately, with larger cities
growing faster than smaller sized cities.
The way world is urbanizing and cities
are growing, it is estimated that by
2050, more than two thirds of the world
population is projected to live in urban
areas, and most of this urban growth will
take place in lower and lower-middle
income countries. Fast growing cities
and urban areas of the world are
considered and valued as promoter of growth and accumulators and generators
of wealth. This growth positively impacts physical development, social, cultural
and educational improvements in the urban area. In addition, it leads to
concentration of the activities in a small and a compact area.
Urban areas are invariably distinguished by the concentration of people in the
buildings and concentration of buildings on the land, making the urban
development highly dense. But densely built-up urban spaces tend to come with
their own opportunities and challenges. If dense development leads to economy
of scale and making all specialized activities economically viable and
operationally efficient, evidences also demonstrate that fast economic growth,
combined with fast population expansion and dense development in urban areas,
also increase disasters and expose urban settlements to larger risk of
vulnerability. Therefore, looking at the criticality of cities in leveraging economy,
growth and employment, there is an urgent need to ensure that urban areas
should be appropriately secured and made safe, inclusive, sustainable and
resilient.
The Inter-governmental Panel on Climate Change (IPCC), in the year 2012
noted that next few decades will witness colossal economic damage and losses
from disasters and these damages will have genesis in the increasing
concentration of people and assets, largely in the hazardous locations in the
urban areas. Based on the studies made and analysis carried out in 2014, IPCC
also found that major proportion of the world’s population, adversely impacted by
extreme weather events, is concentrated in urban centres and that too in the
areas prone to disasters. However, despite repeated onslaught of disasters,

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these urban centres continue to lack basic knowledge, capacity, expertise and
necessary infrastructure to reduce effectively and deal efficiently with these risks
and disasters.
In the decade, 2005-15, disasters are known to have taken a heavy toll globally
and accordingly, well-being and safety of large number of human beings,
communities and nations had been adversely impacted. Over 700 thousand
people were estimated to have lost their lives, over 1.4 million faced injuries and
approximately 23 million were rendered homeless, as a result of disasters during
the said decade. Globally, more than 1.5 billion people were known to been
adversely impacted by disasters in various ways. Women, children and people, in
vulnerable situations, were known to be major victims and were
disproportionately impacted by such disasters. The total economic loss, during
the decade, was placed at more than $1.3 trillion. In 2005, Hurricane Katrina in
the Atlantic, with wind velocity going up to 140 mph, hitting the US Gulf Coast,
killed over 1,800 people and caused $160 billion worth of damage. Between
2008 and 2012, 144 million people were known to have faced displacement due
to disasters.
Disaster related risks continue to increase globally, with more people and assets
getting localized in the hazardous areas. Available figures and data reveal that,
during the past 30 years period, the proportion of the population living in the
flood‐prone river basins, increased by 114 per cent and on cyclone‐exposed
coastlines by 192 per cent. More than half of the world's large cities, with
population ranging from 2 to 15 million, are currently located in areas of high risk
of seismic activity. The World Urbanization Prospects, 2011, highlighted that
approximately 890 million people were living in areas prone to immanent
disasters in the cities of Latin America, Northern America and Asia. Flooding
remains the most frequent and greatest hazard that repeatedly affects cities and
urban agglomerations. Globally, it has been estimated that at least 250 cities are
located in/close to areas, that face high risk of flooding, potentially affecting 663
million inhabitants.
Disasters, many of which are generally propelled by the climate change( which
are increasing both in frequency and intensity), significantly impede progress
towards sustainable development. Evidence indicates that exposure of persons
and assets in all countries has increased faster than reduction in their
vulnerability, thus generating new risks and a steady rise in disaster-related
losses, with a significant economic, social, health, cultural and environmental
impact in the short, medium and long term, especially at the local and community
levels. Recurring small-scale disasters and slow-onset disasters particularly
affect communities, households and small and medium-sized enterprises. Such
disasters constitute high percentage of all losses. All countries – especially
developing countries, where the mortality and economic losses from disasters
remain disproportionately higher – are faced with increasing levels of possible
hidden costs and challenges, to meet financial and other obligations arising out
of disasters.
Main drivers of disaster and vulnerability have been found to be poorly planned
and managed urbanization, environmental degradation, poverty and weak

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governance. As per, United Nation International Strategy for Disaster
Reduction,2015, disaster vulnerability can be reduced to a large extent by
launching cities on the path of sound development. On the occasion of World
Cities Day 2018, UNU-EHS Senior Scientist Dr. Simone Sandholz, called upon
the need of evolving appropriate strategies and options to make cities and their
growing populations safe, sustainable and resilient. Accordingly, it will be critical
to anticipate, plan and implement the strategies which, reduce disasters and risks
, protect persons, communities and countries, their livelihoods and make human
settlements safe and secure places to live and work.
Issues
Disasters have existed since the origin and inception of this planet earth and are
going to stay here till planet earth remains. Disasters form integral part of, the
process and have genesis in the very systems, which have led to the formation of
the planet earth including sea, land, bio-diversity flora and fauna. Accordingly,
disaster are the most dynamic forces/events on this universe, which remain ever
evolving , ever evolving, never static, never finite and never defined. Considering
the large-scale destruction and damages caused to the built environment, flora,
fauna, bio-diversity, economy, infrastructure, human life, social and economic
fabric of a society/ area, disasters have emerged as an area of major concern
and focus of international, national, state, local governments and communities.
Disasters in majority of cases shatter the economy of the area, requiring long
span of time for putting them back on the rails. In the process, large number of
families are destroyed, numerous human lives are lost and social fabric in many
cases is damaged beyond repair; development programmes get shattered and
the resources earmarked for development are used and consumed in rebuilding
the infrastructures and built environment. The disasters are not bound by political
boundaries and have no social/economic considerations. They not only have
local and national implications but also global implications, because extent of
losses and needs of reconstruction and rehabilitation sometimes exceed the
existing capacity of the impacted country.

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As per Secretary General’s Report in 43rd U.N. General Assembly, the major
disasters contributing to the enormous loss of human life and property (1900-
1987) were earthquakes (50.9%), Floods (29.7%) and Cyclonic Storms (16.8%),
whereas Volcanic Eruptions (1.9%), Tsunamis (0.5%) and Landslides (0.1%)
caused only minor damages. Between 1991-2000, Asian countries accounted for
83% of the population impacted by disasters globally. While people affected by
the disasters in the rest of world were placed at 1,11,159, whereas Asian number
was placed at 5,54,439. Majority of the deaths occurred in India. Further it has
been observed large scale destruction was caused in the developing regions of
the World comprising of Asia, South and West pacific (85.5%), whereas
developed regions, like Europe and America, accounted for comparatively small
share (14.5%) of the total loss.
Economic losses due to this natural phenomenon are also multiplying rapidly and
increasing at an alarming rate of 400% for each decade. High intensity
earthquake in Haiti caused colossal loss in terms of life and property with human
causalities placed at more than 1,50,000, highest recorded so far in the human
history. With rapidly growing population and increasing economic activities
alongwith their concentration in few cities/pockets, the destruction of human lives
and economic activities have also been rising very rapidly. It has also been
observed that vulnerability of the poorer strata of society is much more in the
face of these disasters and as such poorer people are hit much harder and suffer
the maximum damage during the disasters.
Indian Context
As per studies made by Building Materials and Technology Promotion Council,
Indian sub-continent is prone to natural hazards as depicted in the Vulnerability
Atlas of India. Most parts of India suffer from one or other natural hazards, most
common among them are earthquakes, cyclones and floods. Vulnerability to
natural disasters in India can be largely attributed to its unique geo-climatic
conditions. As per studies made, it has been estimated that 60% of the land
mass of the country is liable to moderate and severe damage during earthquakes
of various intensities, over 40 million hectares of land remain prone to floods,
8.4% of the total area prone to cyclonic winds and storm surges, besides 68% of
the land is susceptible to drought. Thus, more than two third area of the country
suffers from one or other natural disasters. Further, as mandated through
Disaster Management Act, India needs to be more pro-active rather than reactive
while considering threat posed and damage caused by the earthquakes,
tsunami, etc. It is also learnt from recurrent earthquake which occurred for last
two to three decades in Indian subcontinent that in order to have pro-active
approach, it is pre-requisite that we prepare ourselves better for disasters by
generating know-how, mapping hazard scenarios, creating risk maps,
vulnerability & risk analysis, retrofitting strategy and more and most importantly,
building capacities within communities and cities.
Accordingly, it is essential that appropriate strategies are worked out to minimize
the adverse impact of the natural disasters and eliminate the loss and damage
caused to built areas, economy and social fabric of the community. To achieve

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the defined agenda, it would be essential to ensure sustainable development of
the area on long term basis, for making optimum utilization of scarce resources
available with the developing countries and to safeguard the interest of
vulnerable strata of society. Sustainable Development Goals also mandate to
make all cities safe against natural and manmade disasters.
During natural disasters, the sector prone to maximum damage is the built
environment in urban spaces, which has wider implication due to enormous loss
caused to the human lives and property. It is said that human losses are more
due to failure of structures/buildings rather than natural disasters. It has been
estimated that country loses more than a million housing units every year due to
earthquakes, floods and cyclones, causing enormous strain on development
efforts. Six earthquakes in India over the past 14 years have provided constant
reminders of the vulnerability of Indian constructions. Each of these earthquakes
emphasized on at least one aspect of the seismic behavior. In the 1988 Bihar-
Nepal earthquake, the widespread liquefaction of soil was experienced in
addition to the damages to structures. The hill-constructions of Himalayan
regions performed poorly during the 1991 Uttarkashi earthquake. The 1993
Killari earthquake resulted in large scale deaths, owing to failure of stone
masonry (in mud mortar) dwellings in the villages. The semi-urban and urban
constructions were severely impacted in the 1997 Jabalpur earthquake.
Occurrence of the 1999 Chamoli earthquake in the hill districts of Himalayas near
the area affected by the 1991 Uttarkashi earthquake, provided an opportunity to
evaluate the effectiveness of some of the earthquake-resistant features,
introduced in the region after the 1991 event. However, it was the 2001 Bhuj
earthquake that stirred up maximum concern of the vulnerability of Indian
constructions, particularly of the modern reinforced concrete structures. This
tragic event vividly exposed the inadequacies prevalent both in design practices
and the construction industry.

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Looking Forward
 Adopting Pre-disaster Mitigation
If strategy of pre-disaster mitigation rather than post-disaster relief is adopted,
the loss to human life and property to a large extent can be avoided. Resources
used and investment made in disaster mitigation are much more productive and
cost-effective than expenditure on relief and rehabilitation. Thus, approach has to
be preventive rather than curative. Unfortunately, in majority of cases, agencies
vested with the power of managing disasters only believe in firefighting and come
into action, when disaster strikes that area and that too after damage is done to
human life and property. Disaster preparedness always remain a long term
strategy, involving looking holistically at the entire gamut of typologies of
disasters striking the settlements; identifying the area prone to disasters; extent
of vulnerability of the area, people and buildings located therein; creation of basic
and essential support services required, to mitigate the impact of disasters;
empowering, creating awareness and involving communities; creating options for
mitigation and minimizing damage etc.
Based on the studies made and analysis carried out, appropriate strategies can
be evolved and put in operation, to prepare the area/settlements, for facing the
challenges posed by the disasters. Pre-disaster mitigation has proved to more
effective, more efficient and a highly productive strategy, while considering the
life-cycle assessment and impact of making provision of disaster related
amenities, services and infrastructures. It will be important and vital, to know and
evaluate the typologies and extent of risks faced and vulnerabilities existing in
the place of disasters, for evolving pre-disaster management strategies. This
will help in bringing down and mitigate the adverse impact of disasters in the
rapidly changing urban environment.
Carrying out Land Suitability Analysis
Disaster mitigation and disaster management has to be initiated right at the
inception of any project or development of any area. In order to minimize the
disaster, it will be essential to consider the vulnerability of the site to the
disasters. If care and caution is taken at the stage of site selection, then impact
of disasters can be minimized on life and property. Therefore, it will be vital that
Vulnerability Atlas prepared by BMTPC is duly considered, studied, analyzed and
evaluated, while selecting the site for the project, so that safety is built, right at
the inception of the project. It will be appropriate that sites prone to earthquake,
cyclone, flooding and tsunamis are invariably avoided while locating projects in
the coastal areas; areas subjected to earthquakes, flooding and eco-sensitive
areas. In addition, Atlas can help you avoiding the area, which fall under the high
seismic zones. Study of the past history and record related to disasters can also
form a good guide and basis to choose a suitable, appropriate and safe site.
Atlas can also help in detailing measures, to promote safety in vulnerable areas,
in case there is no other option or alternate where site is being selected.

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Once site is selected and area is identified for development, it will be important to
do the evaluation of the entire site, for its suitability for development. It will be
vital and essential, to carry out a land suitability analysis of the entire area in
order to identify the appropriate uses to which the different parcels of land in the
site can be used in the development. Land development strategy and
development options must invariably be based on carrying out a land suitability
analysis. This analysis helps in identifying areas, which are to preserved,
conserved, protected and promoted through value addition. All areas
under/containing heritage (both manmade and natural); areas under bio-diversity;
eco-fragile areas; areas under forest/ protected forests and area under water
bodies, will fall under this category. These areas will not be permitted to be used
for any kind and form of urbanization and shall be reserved for protection and
promotion in their natural form.
Areas, which are low lying and are known to be subjected to disasters, shall also
be labeled as areas, where no urban development should be permitted. This
area shall always be used for promoting recreation in the city by using them for
creating green belts/parks/ zoos/ botanical gardens, so as to be used as green
lungs for the project . These low lying areas can also be used for creating water
bodies in the shape of lakes at the local/city level, depending upon their location
and size. This will help in avoiding flooding of the areas and mushroom growth of
slums/illegal developments. Creating water bodies will help in improving the
micro climate of the area/city, making them cool and energy efficient. Water
bodies also help in ground water recharging besides absorbing and storing large
quantum of rain water. In addition, all existing water bodies must be clearly
defined and protected from being urbanized by creating a well-defined green belt
along/around them. This would help the city in not only retaining nature but also
help in making drainage more effective and efficient, These water
bodies/channels can be easily gelled with development of
residential/commercial/institutional areas, to integrate the natural and manmade
development by bringing them on the same platform.All areas, which are
subjected to legal restrictions ie areas falling under the High Tension Electric
Lines; areas falling along the major roads/national highways/bye-passes; areas
under heritage sites; areas around defence sites; or areas restricted for
urbanization and urban development, under various acts/laws applicable at the
local level, should invariably be used for creating green belts and similar uses
and should not for urbanization
After having done the land suitability analysis, area which are derelict and not
falling under any above mentioned categories shall be permitted to be used for
urbanization. Carrying out a detailed, objective and professional land suitability
analysis, will help in making cities/development safe against majority of
manmade and natural disasters.
Redefining Master Plans
Majority of the cities in India, are faced with large number of disasters and remain
unsafe/vulnerable to both, manmade and natural disasters. Looking at this

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context, it has been seen that safety and security have never been made integral
part of planning and development prices. Majority of the master plans prepared in
the country, defining the future urban agenda of growth and development of cities
and towns, have simply marginalized the principles of promoting safety to the
cities and focused only on the land-use planning ,without undertaking a detailed
land suitability analysis. Accordingly, in order to make cities more livable , safe
and sustainable , disaster mitigation and disaster management has to be
included and made integral and essential part of city planning.
Making cities safe against disasters, would require a new approach, methodology
and process to achieve the objective of safety. Cities will need decentralization
and division into self- contained and self-sustaining neighborhoods, to be
planned on the principle of safety and security against disasters. Size of such
neighborhoods could be in the range of 10,000- 15,000, considering the element
of 10-15 minutes walkability. These neighborhoods will need to be planned and
designed by involving the principles that all institutions imparting education,
healthcare, shopping, leisure etc., connected with community, are placed in the
core of the unit, surrounded by the residential units in the periphery. The core
and periphery of the neighborhood shall remain connected perpetually, with
footpaths, streets, roads for uninterrupted and universal pedestrian and
vehicular access on 24x7x365 basis. Link between them shall remain
undisturbed and accessible, even when the area is hit by disasters.
The core shall be designed with sufficient green/open spaces, in and around, so
that even when earthquake/cyclone/flood hit the area, it remains safe and
excludes all possibilities of damage/destruction due to
falling/destruction/damage of the surrounding buildings. The core shall be
positioned in the safest zone/highest level of the neighborhood, to avoid any
damage and destruction. The core shall have adequate provision of
accommodating the community in the buildings in the case of pre/post disaster
period. All the public buildings in the core shall be designed based on highest
norms of structural safety and shall include space for providing shelter. These
buildings shall be planned, designed and constructed considering the highest
order of flexibility to accommodate the entire impacted population in the
neighborhoods. It shall also include a disaster control centers , communicating
with/across the local/other communities and coordinating the work of protecting,
providing relief and rehabilitation. Buildings in the neighborhoods shall be
planned and designed with appropriate setbacks, so that even in the event of
destruction and damage they don’t block the roads/access to the core of the
neighborhood and avoid making use of the facilities located in the core. Buildings
created in the core, will have to be designed for multiple uses so that they can
cater to all unforeseen requirements of space. Terraced housing is known for its
distinct advantages of being more secure against earthquakes when compared
with detached/semi-detached buildings. Building typologies will accordingly be
selected, to ensure safety of buildings and community.
Open spaces in the projects shall be provided and distributed, based on equity
and population housed, so that they can be used for community in the case of

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any disaster. All residential houses shall invariably be planned, zoned and
provided with front/rear setbacks for securing safety of the people. Early warning
system shall be installed covering the entire neighborhood for preparedness and
safety. Neighborhood shall be planned in such a manner that it is appropriately
divided into well-defined clusters for promoting community living. These
communities shall be made partner and should be actively involved in facing any
disasters. Core shall also house uninterrupted supply of essential services like
water supply, power, telecommunication, which shall operate without any
encumbrances, even in the hour of disasters. Road pattern and hierarchy of
roads will have to be carefully defined, planned and designed to promote safe
and secure driving/mobility/accessibility based on the principle of 24x7x365.
Thus, cities can be planned and designed by including and making safety
against disasters, as integral an essential part of city planning, development and
management process. However, each city will have to evolve its own agenda of
planning and development to make them safe and secure. Numerous options,
possibilities and opportunities are available for planners and architect to redefine
the agenda for safer cities.
Making Cities Spongy
Cities globally are suffering from the unending disasters caused by flooding. Few
of the large cities like Chennai, Mumbai, Cochin etc. have been seen to suffer
from flooding on annual basis. This calls for looking at the entire context of city
planning, development and management to make cities safe against flooding.
Cities are becoming victim of flooding for two prime reasons which include lack
of land suitability analysis in the planning of such cities and secondly metaling of
all available spaces in the city, both public/private. Cities can effectively respond
to the challenges of flood-ability and ward off their repeated occurrence, provided
they make the city spongy, by creating options of absorbing the major portion of
the storm water by the open land created and minimizing the creation of hard
surfaces in the city. It is seen that flow of storm water takes place five times

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faster when compared with water discharge through the open/green land. Since
the capacity of the storm water network provided in the city remains limited ,in
the event of concentrated rainfall, metaled spaces invariably leads to draining the
rain water with high speed and high intensity on to the roads, leading to the
flooding of urban spaces. This challenge can be effectively met by making the
city spongy so as to enable them to take away major portion of rain water into the
ground. In addition, slowing the flow, of the rainwater by the open spaces
created, can also help cities meet the challenge of the flooding.
To check the disaster created by flooding of the area, carrying out land suitability
analysis would remain valuable for identifying low-lying area and taking out low
lying spaces, out of the development agenda for creating water bodies/green
spaces, because these are the areas which bear the immediate onslaught of
flooding. Slums located in such places invariably face large-scale flooding, loss
of life and property on repeated basis. Eliminating urbanization and making them
green/creating water bodies in such areas helps, not only in avoid flooding but
also help in creating a reservoir where excess rain water can be stored, to save
the city from getting flooded. In addition, all public spaces should be kept green
to the extent possible.
Areas along the rods should not be metaled completely but provided with porous
tiles for absorption of rain water into the ground. Making provision of green
spaces@9 sqm/person, will not only help in minimizing the quantity of outflow of
rain water and would also help in slowing the flow of water. Trees hold large
capacity to absorb water, accordingly planting large number of trees and creating
city forests in small area, spread across the city can help minimizing the threat of
flooding. All institutions, group housing societies, housing complexes, townships
existing in the city, should be mandated to keep minimum 25% of their land areas
to be made as green and planted with trees, for absorbing the rain water.
Planting more trees can help cities to have adequate supply of fresh oxygen,
which was so much sought after, in the ongoing pandemic Covid I9.
Attempt needs to be made to reduce hard surfaces in the city to the extent
possible and substituted by porous surfaces. In the case of residential plotted
development, setbacks provided in front/rear shall be mandated to be kept green
upto 50% of the area of such setbacks. In case of concreting the surfaces, like
the parking spaces created in the city, they shall all be mandated to use porous
concrete for surfacing, so as to minimize the outflow of water by making the
water percolate in the soil below. Maintaining the existing water channels in the
city and prohibiting urbanization on such spaces can help drainage of the storm
water effectively and efficiently. Creating a network, connecting all existing water
bodies can help avoid flooding in the cities.
Promoting green roofs and green walls are known for their efficacy and
efficiency in effectively managing the rain water. Promoting rain water harvesting
in all houses at individual /community levels, can reduce the adverse impact of

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the rain water, Creating large size storage under the traffic rotaries/round abouts
can help in minimizing flooding of the roads. The water stored, under rotaries,
can be used for watering the green spces created on the round abouts. Levying
a storm water charge on the individual households for discharging the storm
water on the roads on pro-rata basis of area of the open spaces in the plot, can
help in people opting for effective and efficient rain water management within the
plot area. Making cities zero water waste shall be possible only if the cities are
made spongy by adding more green spaces and adopting other
measures/options detailed above.
.Planning for Resilience
In addition to planning safe cities and making them spongy, it will be important to
make cities resilient too, for enabling them to absorb the shock , turbulence and
disturbance caused by the disasters. Resilient cities are known for the capacity
and ability to cope with disasters and bounce back to normal functioning after
disasters pass away. Resilience remains fundamental and vital to achieve the
sustainability of any human settlement, because any city without a rational and
realistic resilience strategy, to cope with disasters, will make city unsafe and
unsecure, putting its people, communities, critical infrastructure, valuable assets
and economy, at risk. Huge loss of lives, property, economy and society can be
minimized by making cities resilient to disasters and calamities. In the face of
rapidly changing environment, ecology, increasing urbanization and vulnerability,
sustainable development calls for embedding and making resilience integral part
of urban planning process, to bring safety into cities. Urban planning with
integrated disaster resilience also contributes to preventing secondary disasters
and avoiding undue delays in the rehabilitation and recovery process.
Promoting disaster resilience and management in urban areas has been a
challenge for town planners. Cities face disasters, primarily due to their location
in close proximity to the natural phenomenon, compelled largely by speculation
and rapid urbanization. Before planning a resilient city framework, contexts,
cause and effects of disasters including earthquakes, floods, volcanic eruptions,
avalanches, landslides etc. will have to be understood, evaluated and
quantified. Resilience in urban planning at local level, can be achieved through
undertaking risk responsive/sensitive planning, based on:

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 working with multiple stakeholders to identify known risks and
potential solutions;
 incorporating risk assessment and vulnerability in master plans
and development plans.
 Using safe land for human habitation and unsafe/disaster- prone
areas for non-habitable purposes;
 ensuring identification and protection of public spaces, streets,
infrastructure and parks
 upgrading access roads, flood-risk, infrastructure etc., for making
informal settlements safe.
 positioning critical infrastructure in safe areas,
 assessing how urban development impact lives of the poor in a city.
 developing good information, communication and awareness
system
 developing plans for post-disaster reconstruction and risk reduction.
 strengthening the legal planning frameworks related to disasters in
long term plans to support resilience.
Involving Technical Institutions
Vulnerability of most of the buildings designed by qualified professionals is the
outcome of the fact that these professionals are not adequately trained to
address the issue during their studies. In the absence of appropriate knowledge
imparted in structure, the built structures created become highly vulnerable
during the disasters. In order to avoid losses to human lives, infrastructures and
property, on account of damage and destruction of buildings due to natural and
manmade disasters, it is important that all the built structures should be made
disaster resistant to the extent possible. Since Architects and Engineers are the
prime movers and designers of the built environment, accordingly buildings have
to be designed, constructed and managed in such a manner that they
successfully withstand any natural or manmade disasters. Accordingly, Architects
and Engineers, have to be equipped with appropriate knowledge and

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understanding of the basic essentials of design and construction which are
essential and critical, for making the building structurally safe
For achieving the above objective, it is important that Architectural and
Engineering education have to be reviewed and reoriented, to ensure that
students studying architecture/engineering and the professionals working in the
design/construction sector are, adequately trained and equipped, to address the
issues and challenges posed by the disasters to the bult environment. The
course curriculum of the architecture/engineering courses accordingly, has to be
reviewed, revised and redefined, in a manner that they provide the best possible
knowledge, understanding and expertise to the students/professionals, in the
area of creating disaster resistant buildings.
Technical education, if reoriented, will not only help in providing adequate
knowledge and expertise but will also empower these professionals, in terms of
creating disaster resistant buildings. Such an approach will also help in using the
inherent capacity and potential of technical institutions for creating skilled
manpower in the area of building design, creating awareness about the role and
importance of safe built environment among the masses, carrying out research
and development in the area of building designs, building materials, technology
etc. Technical education in the art and science of construction, can also be
effectively leveraged to design model safe built structures, both for rural and
urban areas, which can be replicated, while undertaking the constructions in
these areas. Technical education also needs to be oriented to help in evolving
methodologies and evaluation mechanisms of improving the structural stability of
existing built environment, besides defining strategies for their retrofitting.
Appropriate education can also help in redefining the entire range of building
byelaws, zoning regulations and building controls, which can ensure creation of
structurally safe buildings. Evolving Risk Management Plans for human
settlements can also be included as one of the agenda of education. Thus,
professional education has a critical role in empowering the nations and
communities to create buildings which can withstand any intensity of disasters,
ensuring minimum loss of human lives and property. Strength and infrastructure
of the academic institutions can also be effectively leveraged to run periodic short
term courses for the in-service and practicing professional, so as to equip them
about the prevailing global good practices being used at the national/international
level, in the area of making buildings safe against all hazards and disasters.
Redefining Architectural Education
Architectural Institutions are known to largely focus more on aesthetics,
functionality and space utilization with structural safety given least priority. In
order to make buildings structurally safe, safety is required to be made integral
part of building design. In addition to teaching the principles of structural safety,
the Architectural Institutions should also essentially develop a specialization of
Seismic Structural Configuration alongside that of Architectural Configuration in
order to gel aesthetics with safety. Design vocabulary of Architectural students,
which should essentially and basically include and address the issue of structural

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safety of built environment and people living therein as an essential and integral
part of their study. In addition, educating the large number of Architects who are
currently in profession about the nuances of seismic design with specific
reference to Architecture will be essential.
Role of Architectural Institutions would be critical in making sure that all buildings
designed by Architects do take cognizance of the structural safety and are not
driven by the sole criteria of making building aesthetically pleasing. The need for
educating faculty involved in teaching-learning in the educational Institutions
about structural safety also requires focused attention with students and
professionals appropriately educated about the disaster implications of various
design elements used by the Architects while designing the buildings.
Educational Institutions on their part should also work closely with professional
Institutions like Institute of Architects, Council of Architecture, Institute of
Engineers, Indian Building Congress etc. to work out a comprehensive program
for educating the professionals about the manner and need of making the
structures safe in the face of disasters. In fact, it will be appropriate if all
educational institutions run short term specialized courses to address the issue of
structural safety of built environment involving both academicians and experts
drawn from the professional bodies and schools. Professional Institutions on their
part should ensure that all professionals enrolled as members are provided with
necessary knowledge and expertise in the field of structural safety.
Architectural Institutions should also undertake the preparation of a
comprehensive list of experts and create a database in the area of disaster
management and offer suitable courses to meet the needs of in-service
personnel, working at state and local level, involved in approval, enforcement of
building plans etc. and implementation of disaster related issues. It should offer
comprehensive programs for creating appropriate capacity and capability to
ensure preparedness of the state/local level agencies and the manpower
involved. At such levels.
In order to make education more productive and focused for addressing the
issues of disaster and safety, it is important that students are made to undertake
the live projects and case studies of the areas which are prone to major disasters
and where disasters have impacted the built environment. Large numbers of
case studies have already been conducted by various International and National
Agencies in the post-disaster period to study various facets and impacts of these
disasters. These studies have brought out number of conclusions leading to
emergence of valuable suggestions to mitigate and manage the adverse impact
of natural disasters. These studies must be made available to the students for
preparing assignments on the basis of lessons learnt from various disasters and
should be included as integral part of the study curricula of architectural
education. These case studies would help students in appreciating critical
aspects of disasters and possible strategies to mitigate them. Further, in order to
make the studies broad based, suitable mechanism for sharing the valuable
experiences at the global level should be evolved so that it can be used by

15
national, state and local level governmental, non-government agencies, NGO,
educational, research & technical institutions and public at large. The studies will
have to be backed by research and development on regular basis so as to
upgrade the knowledge on the subject. Architectural Education/Institutions can
help in promoting and undertaking these case studies and work as data bank.
Considering the impact of disasters on human life and built environment;
Ministry of Housing and Urban Affairs, Government of India( MoHUA) has
already launched an e-Course on Vulnerability Atlas of India in order to make
professionals aware about the vulnerability of different areas to the natural
disasters; create appropriate level of awareness and technical understanding
about natural hazards such as earthquakes, cyclones, landslides, floods; identify
regions with high vulnerability and specific district level damage risks to the
existing housing stock. The course is offered by School of Planning and
Architecture (SPA), New Delhi in collaboration with BMTPC. Such courses must
be run at regional level in the selected technical institutions like IITs and NITs
and institutions of technical excellence, in order to create appropriate level of
awareness and preparedness to empower local agencies/professional in the area
of disaster preparedness and mitigation.
Redefining Building Byelaws
Building byelaws and zoning regulations, governing the planning, designing,
services, materials, construction technologies and management of buildings etc.,
evolved and made applicable by local authorities, have critical role to play in
designing and construction of disaster resistant buildings. Building bye laws are
now being taught only as an academic exercise without understanding much of
their context in evolving design solutions which lead to creating safe built
environment. The contents taught are only in terms of covered area, zoning,
heights, FAR, basements, ground coverage, setbacks and the documents to be
attached with the building applications for sourcing approvals of the building
plans from the competent authorities. However, students are not taught the basic
intent of the byelaws, and their implications, role and importance in ensuring the
creation of safe and secure buildings. Accordingly, it is important that the
structural safety in the face of disasters should be made integral part of building
byelaws and should be communicated effectively to the students/professionals
engaged in designing and construction of buildings. In addition, inherent strength
of the academics and practice can be effectively leveraged for redefining the
building byelaws to make them more rational, effective and efficient tool of
creating structurally safe building.
Creating built environment in urban areas is stated to be made the exclusive
responsibility of professionals defined in the building byelaws and in majority of
cases, municipal byelaws allow non-qualified persons having diplomas in
civil/architecture to design, construct and supervise the buildings, Architectural
Institutions can take up the task of educating local bodies in understanding the

16
role and importance of qualified architects to design safe buildings and
accordingly amend their byelaws to include only qualified professionals allowed
to design buildings.
Building bye-laws must be made to include guidelines, norms, standards, rules
and regulations defined by the National and state level agencies engaged in
disaster mitigation and management. Such guidelines must be issued on priority
and periodically reviewed, revised and redefined, considering the local contexts
and best practices emerging within and outside the country in the domain of
disaster mitigation and management.
In order to aid, assist and advise the State/UTs, urban local bodies and
development authorities to rationalize/ modify their building byelaws, it will be
important that Government of India, must come out with Model Building bye-
laws, to meet effectively the challenges posed by disasters for safety against
natural hazards. In addition, dedicated training sessions and technical
workshops must be organized to sensitize and empower the officials of
state/local level authorities to amend their Town and Country Planning Act,
Zoning Regulation, Development & Control Regulation and Building Regulation
to incorporate provisions related to disaster mitigation and making all the
developments and buildings safe against natural hazards, integral part of such
legal framework.
Creating a dedicated Legal Framework
Considering the large proportion of land mass prone to natural disasters and
colossal damage caused to human lives and public/private property,
infrastructures and built environment, Government of India came out with an
exclusive and dedicated legal framework,’ ‘Disaster Management Act in the year
2005, which came into operation in January 2006. The stated objects and
purpose of the Act, have been defined as; effective management of disasters
including, preparation of mitigation strategies, capacity-building etc. Act also
includes setting up of National Disaster Management Authority; Creating and
appointment of appropriate manpower; Constitution of Committees including
National Advisory Committee besides Sub-committees; Preparing National Plan;
Preparing guidelines for minimum standards of relief etc.
Act empowers and authorizes the National Disaster Management Authority to
lay down policies on disaster management; approve the National Plan; approve
plans prepared by the Ministries or Departments of the Government of India in
accordance with the National Plan; lay down guidelines to be followed by the
State Authorities in drawing up the State Plan; lay down guidelines to be followed
by the different Ministries or Departments of the Government of India for the
purpose of integrating the measures for prevention of disaster or the mitigation of
its effects in their development plans and projects; coordinate the enforcement
and implementation of the policy and plan for disaster management; recommend

17
provision of funds for the purpose of mitigation; provide support to other
countries affected by major disasters, as may be determined by the Central
Government; take such other measures for the prevention of disaster, or the
mitigation, or preparedness and capacity building for dealing with the threatening
disaster situation or disaster as it may consider necessary; and lay down broad
policies and guidelines for the functioning of the National Institute of Disaster
Management.
Act needs to be made more effective and efficient and implemented in letter and
spirit, by making available appropriate level of manpower, financial resources
and creating enabling environment for its effective implementation. Authority
created under the act must be provided with appropriate level of connectivity
with all the technical institutions; development authorities; professional
institutions, organizations dealing with real estate and construction sector ; state
and local level authorities to disseminate the knowledge of safety among all the
stakeholders to make India safe against disasters.
Creating Awareness
Stakeholders engaged in the construction/real estate industry including, urban
local bodies, development authorities, developers, promoters, architects,
engineers, contractors and manpower engaged in the construction sector, would
have to be appropriately educated about the benefit and need for adopting
disaster resistance technologies while creating built environment. Such
technologies would have to be cost-effective, operationally-efficient, time-efficient
and simple to use, for ensuring their adoption, use and implementation. This
would require detailed research into the area of building techniques used in
construction, in order to simplify them. Also, it would require the training of
manpower involved in the construction sector for ensuring the use and adoption
of disaster resistance techniques. Professionals and end users would have to
be actively involved and brought on the same wavelength in ensuring the
creation of safe built environment. Academics could also include in the course
curriculum, mechanisms and strategies for creating awareness among the
professionals and masses about the role and importance of creating safe
buildings, in order to minimize loss and to promote sustainable development.
Creating Model Structures
Technical guidelines on earthquake resistant construction, repair and retro-fitting
and flood and cyclone resistant constructions have already been published by
Bureau of Indian Standards. In light of these guidelines, Architectural Institutions
in collaboration with Engineering Institutions/Building Industries should be
actively involved in preparing model structures and building designs, which are
not only cost-effective but are also earthquake and cyclone resistant, in order to
make them role model of construction in the disaster prone areas, so that the
adverse impacts of disasters are minimized. Technical guidelines regarding

18
earthquake and cyclone resistant buildings should be made integral part of
academics of India. The guidelines should be reviewed, renewed and redefined,
on continued basis, in order to make them more relevant, effective, efficient and
promoter of structural safety in the process. Considering the need of creating
structurally safe model structures in various risk zones, BMTPC has
demonstrated different disaster resistant technologies through Wind/Cyclone
and Flood (1997 & 2010) prone housing construction in various parts of the
country.
Mapping Risk
Mapping areas prone to risks, risk levels and typologies of risks to which various
areas are exposed, remain critical and valuable for any city, state and nation, for
preparing appropriate strategies and framework of action to make human
settlements and built environment safe against any possible disasters.
Accordingly, preparing vulnerability maps assume importance. Such maps help
various agencies responsible for promoting safety, to understand the risks which
need to be tackled and for which preparations are required to be made to
effectively counter their adverse impact on communities. India is credited with
bringing out first ever Vulnerability Atlas of India (2019, 1996 & 2006) along with
preparing Landslide Hazard Zonation Atlas of India, Guidelines for Improving
Earthquakes, The Vulnerability Atlas of India was recognized as a “Good
Practice” by the UN-Habitat under Dubai International Awards for Best Practices
for the year 2006. Preparing Vulnerability Atlas and Earthquake Hazard Maps
have now been extended to State/UT, covering 626 Districts of the country and
have contributed to creating awareness and evolving strategies to mitigate
impact of disasters. These maps now need to be taken to the local/ settlement
level for making human settlements secure and safe.
Creating Dedicated Specialized Institutions
In order to promote sustainability and to make human settlements and built
environment safe against imminent, unforeseen and unpredictable disasters, it is
important that dedicated institutions focusing on , promoting research and
development in the area of risk management; undertaking studies of the areas
prone to disasters; mapping the risk prone areas and imparting training in making
buildings safe; must be created at national, Regional and local levels.
Considering the need, role and importance of such institutions India has already
created a dedicated institution, Building Materials Technology Promotion Council
(BMTPC) at the national level to play a pro-active role in the area of disaster
mitigation and management; framing easy to understand detailed guidelines on
various important aspects of earthquake resistant construction; carrying out
region-specific disaster impact rapid assessment studies; undertaking work
related to retrofitting the existing buildings, located in the high risk zones, to
make then structurally safe; demonstrating seismic retrofitting and seismic
strengthening techniques; demonstrating the disaster resistant technologies
through construction of model houses and retrofitting of public buildings;

19
providing training to masons and field engineers; organizing technical
workshop at state/local level , to showcase the options for making urban
settlements and built environment safe against possible disasters. Such national
level institutions must be adequately and appropriately supported by well
equipped institutions created at state and regional level, to cover all the states
and existing human settlements , both urban and rural. Existing framework of
IITs and NITs could be explored to create such a network across states and UTs.
Involving Information Technology
Use of Information Technology would be critical in ensuring structural safety and
disaster management and creating awareness among the parastatal, community
based organizations, communities and individuals. Networking of Institutions
involved in providing education, research, materials, technologies and basic
material in the area of disasters would help in sharing the experience, both
locally and globally, in order to ensure the placement and adoption of best
practices of disaster mitigation and management in position. Use of Information
Technology can also be leveraged in making available appropriate knowledge
and methodologies at the doorstep of all educational institutions and
professionals. Evolving special packages and software can help in testing all
building designs with regard to their structural safety and guiding the Architects
and Engineers in taking appropriate precautions in designing the buildings and
making them safe before they are constructed on ground. Appropriate models of
structurally safe buildings and layout plans of housing area, townships, industrial
estates / parks can be worked out for the guidance of the professionals.
Institutions imparting education in planning, designing and construction, can play
pivotal role in using information technology as a medium for creating database
and model of structurally safe buildings. Technology can also be used in disaster
mitigation and management along with securing the monitoring of service
delivery during the times of disasters and creating an early warning system to
make people aware about the impending disasters and move to the safer places
besides acting as a potent tool to extend relief and aid at the time of disasters.
Technology can also be used to integrate the relief efforts through setting up and
connecting Disaster Command Centers created at city and local levels. Its
enormous potential, needs to be understood, appreciated and exploited on
priority by various agencies involved in promoting safety and security in the
cities and towns.
Considering the huge risk posed and losses caused across nations,
Mechanisms of prevention, preparedness, mitigation and early warning ,
leveraged by appropriate and state of art, soft and hard technologies, can be
effectively and appropriately used to reduce the risk and help protect both
human and economic assets in the case of disasters caused by predictable
events involving; cyclones, large storms, heavy precipitation events,
earthquakes, landslides, floods, and avalanches.

20
Sensors, known for their distinct advantages, can also be used for assessing,
evaluation, monitoring and detecting how far and how fast fire is spreading in
case of wildfire; monitoring water levels and flooding during hurricanes or
tsunamis; detecting the presence of harmful gases or chemicals emanating from
a storage tank, factory; linking physical assets including bridges, poles etc.;
monitoring risk in low-lying areas and alerting authorities; prioritizing and
managing the relief operations; sourcing clearer picture of situation prevailing in
disaster area and geo-targeting the neighborhoods at most risk. Drones could
also be used for managing disasters by using them for surveying the disaster
areas during the search-and-rescue phase and supporting the recovery effort.
Parastatal agencies should consider the option of leveraging the internet of
things (IoT) and other web-driven technologies to obtain timely and accurate data
for making informed decisions and taking time bound actions. For connecting
people and information during a disaster, government agencies and emergency
response teams need to establish communication systems between the mobile
devices of at-risk area’s residents and IoT sensors in the field. Using most
advanced technologies can help all public agencies, made responsible and
involved in disaster management and mitigation, to perform more effectively and
efficiently besides addressing the costly disasters ( Tremaine & Tuberson). .
Involving Nature and using Nature-based solutions
Genesis of majority of climate based disasters has their roots in the imbalance
created in nature, which remains the prime cause and platform of the origin of
such disasters. If nature remains the cause and origin of disaster, then solutions
to effectively deal and make cities and communities safe against these disasters,
also lies in the nature itself. The relationship between disasters and development
is known to be highly intense; while there is universal acceptance that disasters
can damage, erode and destroy development, there is a very limited recognition
of the role different approaches to development play in creating or increasing
vulnerability.
Increasingly nature-based solutions are considered as the best options for urban
climate change adaptation and disaster risk reduction. New York City has
adopted the strategy of promoting green rooftops and streets on large scale so
as to better manage storm water runoff and improve urban climate. China has
introduced and followed the concept of ‘sponge cities’,- cities with open spaces
that can soak up floodwater and prevent disaster in ecologically friendly ways. A
growing number of nature based tools, strategies and options are being invented
and experimented globally, for supporting cities and making them safe and
secure against possible disasters.
Involving Communities
Disasters are known to be the outcome of irrational human interaction with
prevailing environment, which invariably brings large number of distortions in
nature, because all human acts of development are known to be acts against
nature. Existing patterns and typologies of development adversely impact the
environment, ecology and destroy the bio-diversity of the area. This has resulted

21
in global warming ,climate change, destruction of flora and fauna, leading to
number of calamities faced by human beings. Since disasters are human
oriented, it will be important to involve and empower the human beings and
communities to mitigate the challenges posed by disasters. Accordingly,
formulation of all disaster mitigation and management policies evolved along
with their implementation, has to be based on active involvement of communities.
It has been observed globally that where communities are made aware and
empowered, they are appropriately positioned to effectively counter the forces of
disasters. Reaching out to common people, to help them know the risks,
vulnerabilities, mitigation and preparedness to minimize the loss to communities
in the case of hazards; public participation in plan preparation and hazard
zonation can reduce the risk of disaster very effectively. Where communities
remain ignorant and are marginalized, the area and communities have suffered
colossal damage of life and property. Input received from communities, having
history of facing disasters, when considered, evaluated and appropriately
implemented, have invariably paid dividends in terms of disaster preparedness
and undertaking relief efforts.
Making all stakeholders collaborate and co-operate
For making human settlements safer places to live, work and grow, sustainable
development has to be the agenda and the governing principle and strategy for
the rational growth and development of all the settlements. Sustainable
development needs prioritization not only at local level but also to be logically
extended beyond the urban boundaries. To achieve the objective, it will be
essential to make all stakeholders collaborate, co-operate and brought on the
same platform to synergize all their resources, expertise and experience to
promote safety. Such an approach needs to be extended beyond local border to
involve nations and communities to bring them together on international platform.
United nation has been making efforts and has brought both developed and
developing nations on the same platform to help and support each other to
effectively counter the impact of disasters. UN has also created a mechanism by
which developed nations help and support developing nations to create

22
appropriate level of understanding and expertise, so as to effectively counter the
disasters by adopting pre-disaster strategies, duly supported by post- disaster
relief and rehabilitation. While good ideas are getting implemented in different
cities around the world, it is close collaboration and co-operation between
nations, that can make a great difference globally.
Conclusion
In the face of ongoing scenario of; globalization, liberalization of economies;
rapid population growth; ever expanding urban footprints; rapid industrialization;
global warming, rising temperature, climate change; depleting ozone layers and
increasing carbon footprints, human settlements are fast becoming vulnerable
and victim to natural and manmade disasters. Cities are now facing increasing
threat posed by cyclones, storms, heavy precipitation, earthquakes, landslides,
floods, and avalanches., putting them in perpetual danger of damage and
destruction. Considering the wider and massive physical, social, economic,
infrastructural, developmental and environmental implications of natural hazards
and enormous losses caused to men, materials, economies and social fabric at
local, national and international level, United Nation General Assembly decided
to name the decade (1990-2000) as the, ‘International Decade for Natural
Disaster Reduction’, in order to focus the global efforts on evolving strategies,
solutions and making efforts to achieve the target of disaster mitigation for
minimizing damage caused, to planet earth and human settlements, on account
of disasters.
The Sendai Framework for Disaster Risk Reduction 2015-2030, evolved by
UNO, outlined targets to be achieved and defined priorities for action to prevent
new and reduce existing disaster risks. Targets defined in the framework to
promote safety, included; understanding disaster risk; strengthening disaster risk
governance to manage disaster ; investing in disaster reduction for resilience
and enhancing disaster preparedness for effective response, and to "Build Back
Better" in recovery, rehabilitation and reconstruction.
Looking at the entire gamut and complexities of the risks ,disaster mitigation and
management can’t be, and should not remain exclusive responsibility of the
state/local/ parastatal agencies. It has to be shared responsibility, shouldered
jointly by all stake holders by coming on the same platform, to synergize and
leverage their strength and expertise, to make cities, built environment and
infrastructure, safe and sustainable against possible disasters.
For making cities safe against natural and manmade risks, disasters
management and mitigation should be made integral part of urban planning and
development process. Urban planning defining the agenda for safety, based on
analysis of the land-use planning; zoning, environment , ecology, investment;
risk and vulnerability mapping; land suitability analysis defining worst-case
scenarios for emergency preparedness ; is known to help in making cities safe
and sustainable. Promoting planned development; achieving sustainability and

23
safety; making cities spongy and resilient; empowering and involving
communities , should accordingly remain the underlying and governing
principles to make cities safe.
A well-maintained database of disaster losses; a Geographic Information System
(GIS) to map hazards/vulnerabilities, carrying out risk analysis and assessments
and assessing capacity of local people, have been considered valuable tools
for preparing disaster sensitive plans; making informed decisions; prioritizing
projects; planning for risk reduction measures and identifying high, medium or
low-risk areas. For making built environment safe against disasters; it will be
critical to make structural safety and disaster mitigation as integral part of
professional teaching-learning of the art and science of planning, designing and
construction of built environment. Leveraging technologies; involving
communities; creating dedicated institutions; evolving model structurally safe
buildings; putting in place an effective and efficient legal framework; carrying out
a detailed land suitability analysis; looking at global good practices; empowering
professionals involved in planning, designing and construction of buildings;
working collectively; assessing realistically the hazards and creating awareness
among communities and all the stakeholders, will be pre-requite for achieving
safety and promoting sustainability in buildings and making cities safe against all
possible disasters.
Working holistically with and supporting nature; preserving, protecting and
promoting flora, fauna and bio-diversity; making optimum use of Pachbhutas
(Prithvi, Agni, Vayu, Jal, Akaash), and minimizing conflict between development
and nature, will remain most critical for planning, designing and construction of
safe and secure built environment. Nature based solutions offer the best options
for promoting sustainability and safety to human settlements against natural and
manmade disasters.
.Bibliography
 United Nations; International Strategy for Disaster Reduction;
Contribution to the 2014 United Nations Economic and Social Council
(ECOSOC) Integration Segment
 Arya A.S; Keynote address in the Seminar on Built Environment & Natural
Hazards
 Gupta J.K.; Built Environment in the face of Natural Hazards; Indian
Building Congress; Seminar Papers on Built Environment & Natural
Hazards
 Murthy CVR; Building Architects and Seismic Design through education
 United Nations University; Institute for environment and Human Security –
Five ways to make cities more sustainable and resilient
 Ayers Jamie; 5 Best Places to Live to Avoid Natural Disasters;
Updated October 20th, 2021
 Conversation--How to protect communities from natural disasters – what
research tells us; August 29, 2020

24
 Planning Tank; How urban planning can contribute to resilience and
disaster risk reduction; June 29,2017;
https://planningtank.com/urbanisation/urban-planning-can-contribute-
resilience-disaster-risk-reduction
 Kris T & Kyle T ; How the Internet of Things Can Prepare Cities for Natural
Disasters; December 01,2017
Author:
Ar. Jit Kumar Gupta
Director
College of Architecture, I.E.T, Bhaddal
#344, Sector 40-A, Chandigarh- 1600

25
Table showing frequency & impact of earthquakes of various magnitude
near the epicenter

26
Table showing the energy equivalent of various intensity of earthquake

Making Cities Safe and Resilient to disaster

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