Chapter 2 Land Use Management and Risk Communication

Transcription

1 Chapter 2 Land Use Management and Risk Communication Michiko Banba Abstract Land use represents a relationship between natural and urban environment. Land use management is the way of managing land use through regulation and control of developments. Land use management tools are used supplementing hard infrastructure developments. In implementation of land use management, risk communication between public, citizens, and private sectors is important to facilitate the understanding of disaster risks and policies. Keywords Land use management Development regulation Risk communication 2.1 Introduction Natural phenomenon is not a disaster as long as human beings do not interfere natural environment. In ancient times, human beings had limited interference toward natural environment. However, as the civilization progressed, activities of human beings had become vigorous, and the interference had increased with the increase of developments. Thus interactions between natural and urban environments are not avoidable, and it can cause a disaster. From the disaster risk reduction point of view, interactions between natural and urban environments, which harm each other, have to be avoided or mitigated. Land use pattern shows a relationship between natural and urban environment. Land use plan is a platform to coordinate and balance natural environment and urban environment (Catlin 1997 ). Appropriate land use pattern can be realized through planning to reduce disaster risks. It is important to develop urban plans considering the consequences. New Zealand developed the planning framework based on the concept that consequences of developments have to be considered in M. Banba (*) Education and Research Center for Disaster Reduction, University of Hyogo, Kobe, Japan banba@hq.u-hyogo.ac.jp Springer Japan 2017 M. Banba, R. Shaw (eds.), Land Use Management in Disaster Risk Reduction, Disaster Risk Reduction, DOI / _2 13

2 14 M. Banba the planning land use (Banba et al ). Risk-based land use planning plays an important role in disaster risk reduction. Land use management is the way of managing land use to match certain purpose. It includes land use planning and other countermeasures and systems which are related to land use. In the context of disaster risk reduction, land use management is used supplementing hard infrastructure developments. How to use land then are determined by policies considering technologies, skills, or social and economic systems of the countries. 2.2 Land Use Management for Disaster Risk Reduction As mentioned, land use management is an effective method supplementing hard infrastructure which prevents or reduces forces from natural hazards. In this section, land use management tools and related social systems for disaster risk reduction are discussed Land Use Management Tools Land use management tools have to be developed for the appropriate management of land use. Olshansky listed building standards, development regulations, policies for location of critical and public facilities policies, land and property acquisition, taxation and fiscal policies, and information dissemination as land use management tools (Olshansky and Kartez 1998 ). Building standards regulate designs and structure in constructing buildings. It is necessary to require particular designs and structure resistant to specific natural hazards in constructing buildings in the area which is under specific natural disaster risks. For example, the area under the earthquake disaster risks needs earthquakeresistant building codes. Development regulations usually come with zoning to regulate and control developments and construction of buildings. In each zoning, land use policies are determined considering natural and urban environments and social and economic situations. In some cases, influences of natural hazard are taken into consideration in developing zoning policies. There are other cases to overlay special purpose zone such as disaster risk zone on ordinary zoning to regulate developments. Policies in planning location of critical and public facilities have to be considered in disaster risks as continuity of functions of those facilities is crucial in not only ordinary times but more in emergency times. Acquisition of land and property which are exposed to disaster risks is another land use management tool, as it requires public sectors large amount of budget to purchase lands and properties. Although the acquisition is implemented more in the

3 2 Land Use Management and Risk Communication 15 recovery process because of that reason, there are some small-scale acquisitions due to the avoidance of disaster risks in flooding area or areas under landslide risks. As mentioned, land use plan can be a platform to develop land use management policies utilizing those tools. In city planning, it is designed as zoning to determine how to use land taking disaster risks into consideration. Taxation and fiscal policies are measures to lessen burden of public sectors for disaster reduction by requiring private sectors to pay for developments in hazardous area (Olshansky and Kartez 1998 ). It can be used as incentives to restrain such developments by discounting tax. Dissemination of information related to disaster risks is fundamental in promoting disaster risk reduction measures. Raising risk awareness of citizens is first step. More countries have started to open disaster risk information to the public through hazard maps, brochures, or website Social System Related to Land Use Management Social and economic systems such as insurance and real estate transaction system are connected to land use management. The United States and England have systems to regulate land use and control developments indirectly through natural disaster insurance. Risk level is reflected in insurance premium, which means the higher the risk, the more expensive the premium. In Japan and New Zealand, hazard information needs to be explained in real estate transaction system. When people buy lands or properties, information about geotechnical aspects or disaster risk zoning have to be explained to buyers. It is determined by law. 2.3 Communication Risk Awareness and Hazard Information Risk awareness is the fundamental for risk-aversive behavior including the practice of land use for disaster risk reduction. It is important to understand disaster risk correctly. Risk awareness is affected by information of hazard which can cause disaster. The social system and legal framework for appropriate land use plan and development control is essential to make land use management effective to reduce disaster risks. However, the system and legal framework themselves are not good enough for the implementation of land use management. Governments or municipalities should motivate and lead citizens and developers to practice appropriate land use through laws or incentives.

4 16 M. Banba It is necessary for citizens and developers to understand that practice of appropriate land use considering disaster risks is right thing to do. It should show that taking safety measure is not foolish to do (Burby 1998). Developers should understand that avoiding the use of the land and choosing to use another land do not mean that they are paying costs and losing benefits. The essential point whether the land is used properly or not depends on decisions and behaviors of citizens and developers. Behaviors, that is, practice of land use considering disaster risks, are related to how citizens and developers perceive disaster risks. It is essential that they become aware of disaster risks and understand risks appropriately. Also, it is important to know that each specific site has indigenous disaster risks. Interpretation of information is related to interests of people. Moreover, how to use information is related to values and concepts of people. Decisions made on riskaversive behaviors deeply depend on the benefits or cost it brings (Miletti 1999). Thus, how to interpret and use hazard information and make decisions on land use and the location of developments depend on peoples values about cost and benefit Risk Communication for Land Use Management In order to raise risk awareness of citizens and developers to practice safety land use, hazard information of lands needs to be disseminated to reach them effectively. As hazard information is not the desirable information people are willing to share, it is necessary to develop the framework to deliver it automatically in social and economic system. New Zealand, France, England, or the United States has this kind of mechanism which is linked to social and economic system. For example, a review of hazard information is incorporated to insurance system, real estate trade, or application process for developments. Central and local governments have responsibilities to promote risk communication between citizens and governments for the successful land use management. The method for risk communication should differ by countries or regions due to the differences of culture, level of education, or technologies they have. 2.4 Conclusions Land use management is not easily understandable as a tool, such as seawall- or earthquake-resistant buildings for disaster risk reduction. Nonetheless, it is effective from the long-term perspective and sustainable measure. It is not a single measure but combination of various measures to reduce disaster risks through land use management. There is no single solution, but there are many different approaches which are applicable according to characteristics of countries or regions.

5 2 Land Use Management and Risk Communication 17 Managing land use properly leads to reduced disaster risks through development control. Understanding and acceptance of citizens toward policies and countermeasures are essential in implementing land use management policies. In order to facilitate understanding and acceptance, citizens first need to be aware of disaster risks. Risk communication between public and private sectors plays an important role for the risk awareness. Risk communication between public sectors and citizens is important to implement land use management. The first step is to disseminate hazard information with land use map by providing paper map or opening data on website. Measures of land use management and risk communication are not the same and different by countries and regions. There is no single excellent practice, but they reflect their own backgrounds. References Banba M et al (2004) Land use management for disaster mitigation in New Zealand: analysis on relationship between decentralization of power and transformation from disaster management to resource management, City planning review. Special issue, Papers on city planning. 39: Burby RJ (ed) (1998) Cooperating with nature. Joseph Henry Press, Washington, DC Catlin RA (1997) Land use planning, environmental protection and growth management. Ann Arbor Press, Chelsea Miletti DS (1999) Disasters by design. Joseph Henry Press, Washington, DC Olshansky RB, Kartez JD (1998) Managing land use to build resilience. In: Burby RJ (ed) Cooperating with nature. Joseph Henry Press, Washington, DC, pp

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