Earthquake Risk Preparedness Plan for Arg-e Bam in Iran

Transcription

1 Earthquake Risk Preparedness Plan for Arg-e Bam in Iran Mohammad Ravankhah Reconstruction Research Department, School of Architecture and Urban Planning, Shahid Beheshti University, Iran Abstract One of the main challenges in disaster prone countries is planning to reduce the impacts of natural and human-induced hazards. In this regard, the World Heritage Properties are exposed to such disasters, and the loss of these outstanding properties would negatively affect their cultural importance as sources of information about the past and as symbols of identity, as well as their socio-economic value at local, national, and international levels. There are numerous historic properties which have been extremely affected in natural disasters, such as Arg-e Bam in Iran. Bam citadel is an outstanding example of an earthen constructed fortified town, and was unique in its continuous occupation and development over at least 2000 years until The devastating earthquake of 26 December 2003 in the historic desert city of Bam caused the tragic loss of many lives and the extreme destruction of Arg-e Bam. Afterwards, the Bam and its cultural landscape was adopted on the World Heritage List in The Bam disaster created new opportunities for Arg-e Bam in disaster mitigation and risk preparedness through the sustainable socioeconomic and cultural development of the earthquake Figure 1: Arg-e Bam before and after region. After the earthquake, during the recovery stage, Arg-e Bam had an important role in attracting investors and tourists, and also as a source of employment for local people. Despite this, many World Heritage properties like Bam Citadel do not have any established policy, plan or process for managing disaster risk. This paper attempts to present a process of risk preparedness plan for Arg-e Bam. Such plan includes assessing community support, assets identification, hazard identification, risk assessment, and developing preparedness and mitigation measures. As a result, the plan will reduce consequences of potential hazards at Arg-

2 e Bam and associated community, and so city of Bam can become more sustainable and disaster-resistant. Keywords: Arg-e Bam, Earthquake, Risk Preparedness, Heritage Properties 1. Introduction The Bam and its cultural landscape is located in Kerman province, Islamic Republic of Iran. It is suitable approximately 1000 km southeast of the capital city of Tehran. The property is part of a vast landscape area on the southern fringe of the Lut Desert. The Arg-e Bam (Bam Citadel) is the principal visible monument of the region and is one of the key focuses of the World Heritage Property. It is the largest monument of its type in the entire region and is particularly notable for the longevity of its use. The date of its foundation is not yet clear. However, discoveries made since the Neolithic- Chlcolithic period. Occupation continued in the town until the nineteenth century AD, with the seat of the district governor remaining in the Arg until The military garrison remained within the Arg until The area of the Arg-e Bam is a somewhat irregular oblong rectangle (approximately 430 meters by 540 meters), from which the north-east section has been cut. Arg-e Bam represents a trading settlement in a desert environment of the central Asian region; based on the use of mud layer technique (Chineh) combined with mud bricks (Khesht). Figure 2: The image of Arg-e Bam and its location in Kerman province and Iran (source: Google earth) 2. Literature Review The literature review was conducted to obtain information on the process of risk management for cultural heritage, and also the history of the case study and previous earthquakes at site. The sources from which this information was obtained included the official records, published academic papers, and the international guidelines about World Heritage at risk. In this regard, there are the limited resources concerning about disaster risk management for Cultural Heritage that present a comprehensive plan for risk reduction at heritage properties. In 1998, a management manual as Risk-Preparedness: A Management Manual for World Cultural Heritage was published by ICOMOS-ICCROM-UNESCO. Herb Stovel, author of this Manual Developed a

3 sound approach to risk-preparedness for cultural heritage about the planning framework for examining particular aspects of risk-preparedness. The essential phases of this planning framework are mentioned below: 1. Preparedness Phase: The first step includes reducing risks at source, reinforcing the ability of a property to resist the consequences of disaster, providing adequate warning of impending disaster, developing emergency-response plans, and ensuring availability of the response plan. 2. Response Phase: The second step contains mobilizing the conservation team and efforts to mitigate the negative consequences of the disaster. 3. Recovery Phase: The final stage includes efforts to rebuild the physical components of the property and the social structure of those using the property and its community and efforts to reinstate and enhance preparedness measures. The Federal Emergency Management Agency (FEMA) developed a series of mitigation planning how-to guides in The Integrating Historic Property and Cultural Resource Considerations into Hazard Mitigation Planning is the process of determining how to reduce or eliminate the loss of life and property damage resulting from natural and manmade hazards. The process of this plan is described below: 1. Organize Resources: The first step is consists of assess community support, build the planning team and engage the public. 2. Assess Risks: The second stage includes identify hazards, profile hazard events, inventory assets and estimate losses. 3. Develop A Mitigation Plan: This step contains develop mitigation goals and objective, identify and priorities mitigation actions, prepare and implementation strategy, document the mitigation planning process. 4. Implement The Plan And Monitor Progress: The final step includes sensitivity of information, required regulatory review, interagency coordination and agreements, evaluating and updating plan, and updating inventory data. In 2010, The World Heritage Committee published a management manual concerned with planning for Disaster Risk Management at cultural heritage properties. The manual focuses on one approach to the principles, methodology and process for managing disaster risks at cultural and natural World Heritage properties. The process of this plan is described below: 1. Specify Objectives, Responsible Agencies, And Resources: The first step includes develop members of the core team, identify partners and stakeholders, and identify human, technical and financial resources. 2. Risk Identification and Assessment: The second step contains list hazards, identify vulnerability factors, writing disaster scenarios, evaluate and prioritize risk reduction measures. 3. Prevention and Mitigation: This step includes develop measures to prevent or mitigate risks, and evaluate and prioritize prevent or mitigate measures.

4 4. Emergency Preparedness Plan and Response: This step is consists of identify risks during the first 72 hours after, emergency response team, and improve emergency preparedness. 5. Recovery Plan: This step contains identify new risks after a disaster, assessing damage, and long-term and sustainable recovery. 6. Implement and Monitor the Plan: The final stage includes implement and monitor the plan, and train and build local capacity to implement. 3. Field Survey In this step, the relative agencies and stakeholders in local, national, and international levels were identified, and their responsibilities and available resources were specified. In addition, this step includes evaluation of community awareness and support for the protection of heritage assets. In this regard, interviews and questionnaires with, professors, experts, responsible organizations, and local people conducted to collect data. Eventually, the results of data analysis were presented in the form of SWOT matrix. (Table 1) Table 1: SWOT matrix (Source: Author) Strengths Weaknesses Opportunities Threats The Important role of Decrease safety and The Sense of residents The Bam and its cultural Arg-e Bam in tourism security in Arg-e Bam belonging to Arg-e Bam landscape inscribed on sustainable development due to earthquake and strong social the World Heritage in in city of Bam impacts networks among Bam Danger List. residents The significant role of Weaknesses of mud brick The Bam and its cultural Non-indigenous Arg-e Bam in socio- materials and earthen landscape was adopted migration to the city, cultural sustainable structures against on the World Heritage and its impacts on the development in city of earthquake List. As a result, the economic and cultural Bam (religious and Financial, technical and relationship between traditional ceremonies in scientific international residents and Arg-e Bam the Citadel) resources are available; tourism industrial and its relative issues are developed. Arg-e Bam is a valuable The lack of risk Intangible cultural The lack of risk monument in cultural preparedness plan in heritage such as preparedness plan in landscape of Bam management plan of traditional and religious management plan of Arg-e Bam ceremonies at the Citadel Arg-e Bam Arg-e Bam represents a The unsuitable The potential of The lack of suitable

5 trading settlement in a conditions in Arg-e Bam Traditional knowledge facilities in the city and desert environment of the in order to traditional and techniques, and Arg-e Bam for tourists central Asian region ceremonies of residents Local experts Arg-e Bam is an Loss of integrity of The potential of heritage, Non-indigenous outstanding example of property due to prior conservation and migration to the city, an earthen constructed inappropriate repairs disaster professionals in and the risk of assets fortified town and restorations local and international theft in Citadel conference in city of Bam Arg-e Bam is an The unsuitable access in Intending of local and The risk of hazards and outstanding example of site, for relief and rescue national investors to environmental factors architecture, urbanism actions in emergency invest in city of Bam and such as wind and archeological site phase Arg-e Bam 4. Risk Assessment In this step, the vulnerability of site was assessed. Assessing of vulnerabilities included physical vulnerability, access vulnerability, environmental vulnerability, management vulnerability, socioeconomic vulnerability, Functional vulnerability, and Infrastructure Vulnerability. In addition, in this section, the needed maps in order to risk assessment and Prioritize assets of Arg-e Bam for protection and retrofitting actions were provided. (Figure 3 and 4) Figure 3: The map of value of assets in Arg-e Bam (source: author) The value of assets in Arg-e Bam Very High High Medium Low

6 Figure 4: map of damage percentage in Arg after earthquake (source: Annual report of Arg-e Bam, 2008) The value of assets in Arg-e Bam Very High High Medium Low Percentage of damage in Arg-e Bam 0 25 % % % % Figure 5: The composite map of assets value and damage rate in Arg-e Bam (source: author)

7 5. Prioritize assets of Arg-e Bam in order to protection and retrofitting actions: The historic site Arg-e Bam has plenty of valuable assets that need to protect against potential earthquake and climate changes. Furthermore, we should prioritize these assets according to the composite map that is overlaying the map of value of assets in Arg-e Bam and the map of percentage of damage in Arg-e Bam (Figure 5). In fact, each asset that is more valuable and the rate of its damage is less, is located in Higher Priority for protection and retrofitting measures. (Table 2) Table 2: Prioritize assets of Arg-e Bam in order to protection and retrofitting actions (Source: Author) Very High High Medium Low Bazaar Main Gate Mir House Public Space Tekieh Payambar Mosque Zur Khane Mahaleh yahoodiha Jaame Mosque Sistani House Second Gate Konari Mahaleh Surround Fortification Carevansara Governor s Bath Trench Stable Commander s House West House of Saabaat Asiyab Badi Tower Collected of Mirza Naeem Barracks Chahar Fasl Palace Governor s house Trunk 6. Risk Preparedness Measures In this step, after field survey and assessing risk, the goals and objectives of plan should be identified, and According to the objectives, measures and responsible agencies are specified (Table 3, 4). In this regard, the master plan of Bam and management plan of Bam and its cultural landscape were reviewed. In addition, the important role of residents and their participation in plan process should not be ignored.

8 Table 3: Develop goals and objectives of Earthquake risk preparedness plan (Source: Author) Objectives Row Goal Strengthen Support in global, national and local levels for disaster risk reduction in Arg-e Bam Use knowledge, education and training to promote disaster prevention in cultural heritage 1 The protection of Arg-e Bam and its tangible and intangible values against earthquake through the sustainable development of city of Bam 2 Identify, assess, and monitor disaster risk in Arg-e Bam 3 Reduce vulnerability in Arg-e Bam, in order to strengthen earthquake resistance, while maintaining the integrity of property 4 Strengthen disaster preparedness plan in Arg-e Bam for effective response at all levels 5 Developing a response plan 6 Developing a recovery plan 7 Table 4: Develop actions for Earthquake risk preparedness plan (Source: Author) Objective 1: Strengthen Support in global, national and local levels for disaster risk reduction in Arg-e Bam Alternative Actions Agencies Prepare Financial resources for disaster risk reduction activities: 1 World Heritage Convention; UNESCO Encourage investment among stakeholders and residents; Public Media Insurance cover. 1 Iranian Cultural Heritage, Handicrafts and Tourism Organization

9 Introduce the important role of Arg-e Bam in community resistance against the disaster impacts and sustainable economic and cultural development of city: Introduction, periodic monitoring and reporting programs in Arg-e Bam; Review approaches to increase role of Arg-e Bam in development of the city. Public Media Establish workshops in local, national and international levels. UNESCO Objective 2: Use knowledge, education and training to promote disaster prevention in cultural heritage Alternative Actions Agencies Develop up-dated teaching/learning and awareness raising resources on disaster prevention and reduction, for managers, staffs, and people: Establish workshops in local, national and international levels; Use special relationship of indigenous and traditional knowledge in Bam; schools Planning for public participation in protecting of property and its cultural values. Install simple plaques and text panels, and monuments that provide a creative visual interpretation of property in squares and routs in city of Bam; Establish memorial and symbolic ceremonies and celebrations in Arg-e Bam. Public Media Objective 3: Identify, assess, and monitor disaster risk in Arg-e Bam Alternative Actions Agencies Establishment permanent center in Arg-e Bam, in order to introduction, research, and protection activities: Providing a comprehensive list of all cultural resources and important assets; Earthquake Institute Understanding of earthquake hazard in the city of Bam and its features: Geological, hydrological, and meteorological information on the nature of the climate, soil, fault lines, water table, surface water such as a river, etc;

10 Identify historical earthquakes in Arg-e Bam (location, magnitude, and period); Identify vulnerability factors in the property and assess them: (soil, previous restoration, materials, foundation, structure, environment); Provide risk maps; Provide data and results in the form of maps and digital format (GIS database). Review accesses in the site and its surrounding to emergency evacuation injured and assets. DMMO 2 Protect documents in a safe and secure place against earthquake, fire and theft. Objective 4: Reduce vulnerability in Arg-e Bam, in order to strengthen earthquake resistance, while maintaining the integrity of property Alternative Actions Agencies Literature review on strategies for protection and retrofitting: Review experience in similar areas and similar disasters in other countries; Earthquake Institute Establish laboratories to identify and assess earthen materials and structures against earthquake forces; Universities Use universities and scientific research institutions; Use traditional knowledge and local methods, and train local experts in Bam. Regular inspections to ensure appropriate measures in Arg-e Bam by experienced experts. Earthquake early warning and detection systems (earthquake warning system, smoke and fire alarm systems) in different parts of Arg-e Bam. Earthquake Institute Objective 5: Strengthen disaster preparedness plan in Arg- Bam for effective response at all levels 2 Disaster Mitigation and Management Organization

11 Alternative Actions Agencies Ensure coordination of risk preparedness plan for Arg-e Bam with master plan and cultural landscape management plan of Bam. Explain the hierarchy of command and coordination of agencies during the emergency phase; Organise response team in three groups: residents of Bam, emergency team and experts of heritage, and disaster during the emergency response. DMMO Educational and training programs to ensure efficiency of preparedness and response measures (for relief and rescue team, emergency repair team, and assessment team); Earthquake simulations exercises in Arg-e Bam should be followed by information recording, maps, and detailed inspections. DMMO Provide resources and equipments for emergency phase; ensure that the plan is understandable and available for every one; DMMO Prepare an information system (manual for emergency teams, team members and their telephone numbers consist of managers, local authorities, police and fire service, heritage and disaster experts, and delivery services); Prepare guide booklets for emergency phases in Arg-e Bam; these booklets should be regularly reviewed and updated. Emergency plans should be constantly evaluated and updated based on present conditions, and then approved by experts. DMMO Objective 6: Developing a response plan Alternative Actions Agencies Request aid from local, national and international agencies for financial, technical, and human assistance; Aware response team (residents of Bam, emergency team and experts of heritage and disaster) and organize them. DMMO

12 UNESCO Emergency measures to provide safety and security in site: Rescue and relief injured (visitors and experts); DMMO Provide security equipment to protect assets against theft; Move valuable assets to safe place, and appropriate measures. Police Develop educational and social training programs for residents in the neighborhood of site and to emphasize the role of Arg-e Bam in physical and psychological recovery of affected people. Emergency measures to reduce risk, in order to preserve Outstanding Universal Values including the authenticity and integrity: Use international financial and technical assistance; Prepare temporary and emergency access in site; UNESCO ICOMOS Emergency measures to protect property against secondary disasters and climate changes; Preliminary assessment on damaged parts of Arg-e Bam and identify short-term and long term measures and priorities actions. Objective 7: Developing a recovery plan Alternative Actions Agencies Preliminary steps before the assessment and restoration measures: Clean debris in site, while concerned about its own values and valuable damaged parts; debris must be carefully moved for use in restoration; Create safe and security access for conservation experts, tourists and Bam residents to continue traditional and religious ceremonies; Police

13 Prepare repair permits. Identify and assess damaged parts of Arg-e Bam: Assess damages, structural components and foundations, professionals and local experts ability, and expert ability to monitor appropriate measures; Identify new information and prepare maps after the earthquake; UNESCO ICOMOS Recording regularly all of steps and actions including identification, assessment, moving debris. Plan to repair, restore and retrofit damaged parts of Arg-e Bam: Prioritize the protection and retrofitting measures according to value of each property in site; Use traditional knowledge and local methods, and train local experts in Bam to restore and retrofit property. UNESCO ICOMOS Identify financial, technical, and human resources for long-term measures. Develop educational programs for residents of Bam, visitors and local officials (conferences, exhibitions, and manuals) UNESCO ICOMOS Review performance of risk preparedness plan in Arg-e Bam after earthquake, update plan, and develop guidelines to improve process of plan. DMMO 7. Conclusion Risk preparedness plan for heritage properties can bridge the gap between heritage conservation and disaster management that focus on prevent and mitigation measures to reduce disaster risk. No less important, without undertaking an integral approach in terms of physical, social and cultural aspects, there will be slim chance to reach a suitable and sustainable solution.

14 The study indicates that risk preparedness plan can improve the protection of heritage properties by retrofitting measures, strengthening the efficiency of emergency response personnel and heritage conservation experts, coordinating among responsible organizations, and specifying the responsibilities of the various actors before, during and after disasters strike historic sites. In addition, because of the significant role of Heritage Properties in sustainable socio-cultural and economic development, such plan can help the associated communities to become more disaster-resistant and more sustainable. Acknowledgement The author gratefully acknowledges Dr A. Fallahi (The head of the Reconstruction Research Department, Shahid Beheshti University), Dr E. Mokhtari (The previous Head of the Arg-e Bam Rescue Project), and Dr F. Fardanesh (The previous UNESCO senior consultant in Iran) for supporting various aspects of project. Thanks also go to the local people of Bam who helped doing survey, answering questions and giving valuable information in this article. References Annual Report of Arg-e Bam Research Foundation, No.2, summer Bumbaru, Dinu Risks and World Heritage: some background. International Workshop on Disaster Risk Reduction at World Heritage Properties Olympia, Greece. 6th-7th November Comprehensive Management Plan for Bam and its Cultural Landscape World Heritage Property ( ), Government of the Islamic Republic of Iran, 2008 Fallahi, Alireza An Interdisciplinary Analytical Study On The Risk Preparedness Of Bam And Its Cultural Landscape, A World Heritage Property In Danger In Iran. The Australian Journal of Emergency Management, May Feilden, B Between Two Earthquakes; Cultural Property in Seismic Zones, Rome/Los Angeles, ICCROM/Getty Conservation Institute. FEMA Integrating Historic Property and Cultural Resource Considerations Into Hazard Mitigation Planning. FEMA ICOMOS. Guidance on Heritage Impact Assessments for Cultural World Heritage Properties. May Langenbach, Randolph Performance of the Earthen Arg-e-Bam (Bam Citadel) during the 2003, Bam, Iran, Earthquake.

15 Stovel, H Risk Preparedness: A Management Manual for World Cultural Heritage. Rome. ICCROM.UNESCO, ICOMOS, WHC. UNESCO World Heritage Centre Managing Disaster Risks for World Heritage. UNESCO, ICCROM, ICOMOS, IUCN. WHC. Strategy For Risk Reduction At World Heritage Properties. WHC-07/31.COM/7.2 Paris, 10 May 2007.