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International conference on Earthquake Engineering and Post Disaster Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal Conference Proceedings Part 1 ISSN 2505 – 0737 Publication: April 2016 Khwopa Engineering College Khwopa College of Engineering P.O.Box: 84 Libali, Bhaktapur Ph: 977-1-5122098 Ph: 977-1-5122094 Email:
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
First Analysis of the Post-Earthquake Reconstruction Plans Adopted after the 2009 L'Aquila Earthquake in Italy Antonio Mannella1, Alessio Marchetti2, Claudia Genitti3, Francesca Corsi4, Fabrizio Frezzini5 and Massimo Pannuti6
Abstract On 6th of April 2009 an earthquake struck the Abruzzo Region, Central Italy. It was of Richter magnitude (Ml) 5.8 and moment magnitude (Mw) 6.3. The most affected centre was L'Aquila, a historical city and capital of the region, but several small towns were also involved in the event. This earthquake has been one of the most aggressive registered in Italy in the last 100 years. The level of damage has been so high and diffuse in many residential areas that it has been necessary create some “closed zones”, where access of unauthorized persons was forbidden. Immediately after the earthquake legislature has realized the necessity of providing tools that would allow to carry out urgent interventions at urban level, because of the complexity and level of damage of the city centres affected by the seismic event. For this reason, the reference reconstruction law has required the provision of appropriate Reconstruction Plans for the old town centres of the Municipalities most affected by the earthquake of 2009. In this paper, the main features of the Reconstruction Plans are presented, reporting a brief outline of the damage and highlighting the standards adopted for the preservation of historical heritage and for supporting the implementation of interventions that are compatible with the preservation and restoration of buildings. Keywords: Earthquake; Seismic vulnerability; Buildings; Damage; Urban planning
1. Introduction Italy is a country frequently hit by medium intensity earthquakes. In April 2009, the Abruzzo region in Central Italy, was hit by one of the most violent earthquakes in last 100 years; the seismic crisis, lasted for several months, reached the magnitude peak of 6.3 Mw and did great harm by causing 309 victims, more than 1,600 injured persons and making unusable over 35,000 buildings in the "Seismic Crater", the so-called geographical and metropolitan area including the City of L'Aquila, chief town of the Abruzzo Region, and 56 other smaller municipalities. The Head of the Civil Protection Department managed the state of emergency until January 2010. After this period, then the management officially passed to the Deputy Commissioner for Reconstruction, the President of the Abruzzo Region, until 31 August 2012, when the state of emergency was closed. Since then, the reconstruction and every necessary action in facilitating and ensuring return to normal life conditions in the areas struck by the earthquake has been managed by 1
Construction Technologies Institute, Italian National Research Council, L’Aquila, Italy,
[email protected] 2 Construction Technologies Institute, Italian National Research Council, L’Aquila, Italy,
[email protected] 3 Reconstruction Plans Office, USRC - Special Office for Crater’s Municipalities Reconstruction, Fossa (AQ), Italy,
[email protected] 4 Reconstruction Plans Office, USRC - Special Office for Crater’s Municipalities Reconstruction, Fossa (AQ), Italy,
[email protected] 5 Reconstruction Plans Office, USRC - Special Office for Crater’s Municipalities Reconstruction, Fossa (AQ), Italy,
[email protected] 6 Reconstruction Plans Office, USRC - Special Office for Crater’s Municipalities Reconstruction, Fossa (AQ), Italy,
[email protected]
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
local and regional authorities in according to jurisdiction assigned by the Constitution in ordinary way. To ensure proper use of public resources aimed to the population affected by the 2009 earthquake, were established two special offices for reconstruction managing, the first one with authority on the city of L'Aquila (USRA) and the other one with authority on the remaining municipalities of the "Seismic Crater" (USRC). The two offices, both of them coordinated by the Presidency of the Council of Ministers, have been acting since April 2013. The categories of damaged buildings include private buildings, mainly intended for housing and for productive activities, and public buildings, for services and public facilities siting, as well as buildings for worship. More serious and extensive damage was observed in the historical center of the city of L'Aquila, and in the historical centers of the neighboring municipalities, where the quake hit the more ancient dating buildings, with higher historical and monumental value but also with a higher seismic vulnerability. The extension and the severity of the damage in the historical centers, as well as the high civil and cultural heritage that historical centers have always represented for Italian communities, have led legislator to adopt a strategy based on reconstruction management rules set to lead and to facilitate wider significance interventions, not only in building coding but also in urban planning. In 2009 the Law number 77, relevant legislation for the reconstruction, identified the Plan of Reconstruction as instrument for urban planning and for economic and financial management of resources needed to reconstruct the historical centers of the municipalities hit by the earthquake. Deputy Commissioner for Reconstruction ‘s decree, number 3 on 9 March 2010, defined uniform rules describing application scope, development, aims, contents and implementing methods of the Reconstruction Plan. A collection of actuator documents, at first by Commissioner’s office structure and afterwards by Special Office for Crater’s Municipalities Reconstruction (USRC), have fixed contents and purposes of this instrument. To draw up reconstruction plans, 38 municipalities have worked collaborating with universities and research institution for common interest purposes, the remaining giving charge to individuals outside designers or acting by their technical offices personnel.
2. Territory and damage 2.1.
Territory
The area most affected by the earthquake of 6 April 2009, the so-called "Seismic Crater", involves the City of L'Aquila, the chief town of the Abruzzo Region, and other 56 smaller municipalities, and typifies a mountain and high hilly area of Italian central Apennines which evolves along the natural axis of the Aterno river. It is a territory with remarkable value for environment and landscape, characterized by the presence of natural protected areas organized in National Parks (Gran Sasso, Monti della Laga), Regional Park (Sirente-Velino) and Natural Reserves, markedly diversified in terms of settlement dimension by encompassing areas characterized by light anthropic impact, such as mountains areas, and areas characterized by heavier anthropic impact such as river valleys, basins and highlands. The city of L'Aquila, located 100 km away from Rome, along the east-west infrastructural axis connecting the Adriatic Sea, enables the main access to a territorial polycentric system represented by the smaller towns located in the Crater area. Playing its roles as tertiary pole such as central node of the main services to the territory, L'Aquila polarizes the neighboring municipalities, generating significant daily activities flows along the internal infrastructural connection of the valley joining the local roads network, fragmented and conditioned by the orography of the territory. The heterogeneity of the territory, from hilly, with Mediterranean climate, to mountain-alpine, with continental climate, manifests itself in very small areas, by unique types characterizing the area itself. In these places the relationship between man and environment is still tight and slightly changed in thousands of years, influenced by the use of land resources, sheep breeding and agriculture. The great value in landscape and naturalistic contents given by ecosystems variety, by the geo-morphological, vegetation and zoological complexity is enriched by visible signs that a compatible interaction between man and environment has left over the centuries. The historical centers of the municipalities
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
interested by plans of reconstruction, improperly called "minor", can be minor only for physical and demographic dimensions but certainly not because lacking in historical and cultural values, whose identity characters are detectable in building, urban and landscape assets. Significant traditional artifacts are included in the historic urban fabric with pervasive elements of architectural significance, organically integrated with a great environmental and landscape habitat. (Fig.1).
Fig. 1. The skyline of Santo Stefano di Sessanio and the “Medicea” tower before and after the 2009 earthquake.
The seismic crater is a highly diversified geographical reality relative to economic vocation, accessibility to guidelines infrastructure, demographic and residential levels (permanent or temporary), conservation and quality levels of historical types in building fabric (abandonment opposed to a greater conservation), morphology and wideness of the urban centers, different damage levels by earthquake. Focusing on the complex spatial and morphological structure of the territory, the special set of rules for reconstruction has outlined a territorial arrangement for the Crater in coherence with socioeconomic types identifying the “Homogeneous Areas" (HA); these are groupings of municipalities based on proximity and affinity geographic criteria, similar economic vocation, to realize an integrated model, including all different realities, and enabled to promote the creation of networks of towns and to valorize local territorial systems, in a respectful combination of differences and local peculiarities. The Homogeneous Areas constitute the territorial reference not only for governance, but also in managing reconstruction processes; by law have been established eight regional offices, Territorial Unit for the Reconstruction (UTR), one for each HA, coordinated by the Special Office for Crater’s Municipalities Reconstruction (USRC), with the assignment of examining contributions requests to restore practicability of private properties located in the Crater historic centers.
2.1.
Damage description
The territory of L'Aquila has been hit over the centuries by various earthquakes. In parametric catalog CTI04 of National Institute of Geophysics and Volcanology are registered 68 events occurred in l’Aquila town region since 1315, 6 of these with effects superior to VII MCS, with the IX MCS tips during the earthquakes of 9 September 1349, 27 November 1461 and 2 February 1703. By reliable historical sources the first earthquake, reported to cause very serious damage to the municipalities also affected by the earthquake of 2009, was that of 1349 (Mw = 6.5 CPTI04) with its epicenter in the Peligna Basin, about 60 km away from L'Aquila. The following event, in 1461 (Mw = 6.46), heavily hit the same towns destroyed by 2009 earthquake and, like today, the highest damage level occurred in the village of Onna, in the towns of Poggio Picenze and Sant'Eusanio Forconese (estimated macroseismic X degree MCS) and l’Aquila (IX degree MCS). The same as in 2009 earthquake, the one of 1461 was characterized by a long seismic sequence, lasting months. L'Aquila area was again affected by two other earthquakes in 1703. The first, in January on the 14.th, with its epicenter between the High Lazio area and Umbria (Mw = 6.65) and intensity in L'Aquila of the IX degree MCS. Similarly, many of the countries hardest hit by 2009 earthquake suffered damages evaluated by intensity between the VIII and IX MCS, peak in Castelnuovo by estimated intensity around the X degree MCS. The second event in 1703 was the catastrophic earthquake on February the 2.d (M = 6.81), which probably is still the most significant seismic event in Central Apennines. Concerning 2009 earthquake, most severely damaged buildings are those with vertical masonry stonework structures, ruling in historical centers of Central Italy municipalities. These buildings are characterized by vertical non squared stonework structure and lime mortar, by vaulted or wooden
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
horizontal elements and by wooden roofs. As well as materials used, constructive methods remained almost identical in the course of many centuries. Only in the second half of the twentieth century, as a result of minor earthquakes, vaulted or wooden horizontal elements have been replaced by brickconcrete or steel elements, and some wooden roofs by brick-concrete roofing. The graph below shows the percentage of unusable buildings in each community (Fig.2).
Fig. 2. Percentage of unusable buildings in the affected area
3. Reference regulation for Reconstruction Plans. Taking into consideration historical, architectural and landscape values of towns centers, as well as dramatic reported damage degree and widespread unavailability of housing assets, special regulations for reconstruction has forecast that reconstruction of the crater municipalities happened by defining Reconstruction Plans to restore towns centers and to re-plan municipalities territories. Objective of Reconstruction Plans is in defining strategic guidelines to ensure territory socioeconomic recovery, to requalify towns, and to bring back populations in their homes damaged by the earthquake of 6 April 2009. The Reconstruction Plan is intended to give the historical center back to the community, by acknowledging its framework value, social, formal and architectural. By this way and by this plan, reconstruction funding is focused on "stone", on architectural heritage, not on person. It’s especially rigorous and vigilant about interventions to verify compliance in safety (risk reduction), to preserve and to protect formal and landscape identity values. The juridical nature of Plan of Reconstruction, as required by 77 / 2009 act, is suchlike an Urban Plan which, in according to its scopes, amends, supplements or replaces rules set of existing urban planning instrument. Recognizing leading urgency and strength types of the instrument, the law provides a special and extraordinary procedure in Plan approval processing, which provides significant exceptions if compared with ordinary urban planning processing, especially for shorter developing deadlines. The law, in order to give assurance in developing and in carrying out the plan - which must be able to turn out its effects in the shortest time – sets Mayor as person in charge to prepare and to adopt Reconstruction Plan. Process in developing and in approving the plan is intended to realize a common and shared reconstruction concept, both socially than institutionally:
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citizenships take part in development plan processing by proposals and observations about intervention; the plan is subject to public authorities consultation procedure ending in approval by signing an agreement with competent authorities for urban and technical-economic contents. Final agreement, as required by Law 77 of 2009, involves the Mayor, the Deputy Commissioner for Reconstruction (economic and financial planning compliance) and the President of the Province (urban and building compliance) and it’s prerequisite to complete Plan development procedure and to give it full enforceability. By closure of the emergency state, the law n. 134/2012 has assigned to Reconstruction Plan a strategic role and, on Municipality faculty, also an urban role. In its strategic significance, the Plan is designed to quantify financial needs for reconstruction, as well as to regulate time and implementation mode of historic center reconstruction operations. If Plan provides also for housing and urban planning regulations concerning uses and interventions, in changing of the current regulatory instrument, the plan itself acts its role as urban planning instrument. In this second case, Reconstruction Plan is designed to update the existing planning instruments, often dated, to regulate actions on an extensively damaged building heritage, and to preserve formal and architectural values of historical centers. In adding to this aspect, it’s opportunity in giving new functions to historical centers, deserted in many cases, by introducing, the plan itself, intended uses in according to new perspectives for socioeconomic restart. Reconstruction Plan therefore constitutes an instrument which proposes actions aware and updated to the new requirements. Although the geographic area is located in a high seismic risk zone, no existing planning instrument was ever designed to regulate heavy interventions on buildings and on territory planning following the post-earthquake damage In August 2012 the Deputy Commissioner for Reconstruction role was suppressed; by returning to ordinary jurisdiction the Plan finished its course by final authorization of the Special Office for Crater’s Municipalities Reconstruction (USRC), whose activity starting in April 2013, by ratifying its economic congruity and, in case of urban planning significance, by stipulating a program agreement with the President of the Province. In Table. 1 Number and status of reconstruction plans and their urban planning or strategical types are reported. From Figure 3 speed rate in adopting and approving the plans, weighted on the amounts required for the implementation of the same. Table 1. Current state of Reconstruction Planes Status Type
Approved Adopted Being drafted Total
Town-planning
40
6
1
47
Strategical
7
1
1
9
Plan approval is prerequisite to approve the executive project of each intervention, to commit resources and to implement the intervention. The implementation of the Reconstruction Plan, typed by a strong content of urgency, projected on a short-medium-term time horizon, is primarily finalized to the physical reconstruction by perspective to mitigate seismic risk and to recuperate, both materially than socially, historical center. In a long-term time horizon, law assigns to the municipalities responsibility in re-planning the territory, from historic center to entire municipality area, whose structure - especially in the most damaged contexts - has significantly changed, due to the settlement, in specifically identified areas, generally neighboring villages of temporary buildings. These constructions have been built both to provide housing to people who had to leave their home because of the damage suffered than to restart essential public services, such as schools or government and municipal offices.
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
Milion of €
€ 3 500.00
change of governance model
€ 3 000.00 € 2 500.00 € 2 000.00 € 1 500.00 € 1 000.00 € 500.00
Cumulate import of planes adopted
2015 Trim 4
2015 Trim 3
2015 Trim 2
2015 Trim 1
2014 Trim 4
2014 Trim 3
2014 Trim 2
2014 Trim 1
2013 Trim 4
2013 Trim 3
2013 Trim 2
2013 Trim 1
2012 Trim 4
2012 Trim 3
2012 Trim 2
2012 Trim 1
2011 Trim 4
€ 0.00
Cumulate import of planes approved
Fig. 3. Cumulate import of planes adopted for quarter - speed rate in adopting and approving the plans
Re-planning intends to outline possible strengthening, development and enhancement strategies, at municipal scale or, larger, at territorial area scale, in order to: promote socio-economic restart and increase the attractiveness of the villages, in a differentiated manner and according to specific feature and vocation of each local context; provide a high quality of living, by organically integrating historic center with the immediate context and by enhancing relations between them; outline, in the urban fabric, definitive integration scenarios for provisional artefacts immediately erected in post-earthquake time, by providing long-term intent of use for them, or, alternatively, by demolishing them; strengthen the primary services offer (schools, hospitals, mobility) by ensuring the best use and accessibility; revitalize public spaces, intended as meeting and social gathering places for community, basic for urban regeneration; purse and to promote environmental sustainability. The following figures (Fig.4) are representative of the Reconstruction Plan of Castelvecchio Calvisio Municipality
Fig. 4. Top view of Castelvecchio Calvisio with its peculiar oval shape.
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
4. Technical and economic regulation of private reconstruction in historic centers. In Italy insured properties are a very small proportion of the total asset, therefore the starting point for reconstruction management, as result of a large-scale earthquake such as occurred in 2009, has been the definition of a special law regulating public funds supplied to execute damage repair interventions. To restore L'Aquila’s suburbs and those of other Municipalities affected by the earthquake, the reconstruction legislation has established indemnity procedures based on directly financing executive projects for interventions, without providing priorities and executive modes rules for interventions. These interventions were indeed feasible in compliance with existing planning regulation, at earthquake date, and generally without requiring a coordination, being localized in a more recent urban development context, and as such without particular logistical difficulties. This has allowed to perform a considerable amount of interventions in a rather reduced time. From earthquake date, three years later, only in the town of L'Aquila, over 14,000 executive projects were funded, for a total of over 1 billion of Euros for damage restoring intervention works To ensure carrying the interventions out in L'Aquila’s historic center, such as in other towns, has been necessary to face several problems related both to historic building preservation requirements than to coordination requirements of interventions; times and areas sequences have to be well evaluated and identified to reduce difficulties deriving from in progress work sites and reduced accessibility and usability of spaces in neighboring sites. In smaller municipalities the strong demographic decline, begun in the early years of the last century, has had consequences by leaving remarkable building volume, today partially or totally uninhabited, lacking in maintenance, if not absent, and in a high vulnerability state. Last century emigration has also brought the territory to dereliction of traditional agricultural practices, territory maintenance is also decreased bringing changes also to landscape features. The depopulation of smaller historical centers, due to economic activities conversion occurred during the last century, has however allowed buildings traditional architecture to be left intact and not altered by inappropriate interventions, avoiding irretrievably of compromising historical values. From its history the territory has therefore inherited by minor historical centers a building heritage, featuring itself by traditional building techniques, by using local materials, by marked inherited traits, and perfectly integrated with landscape context. Although the earthquake has worsened the state of affairs by damaging, sometimes quite severely, most of the historical building construction, reconstruction is an opportunity to carefully restore and to promote this extraordinary value building heritage, by law considered an " irreproducible object " to be preserved. Given the increased complexity regarding urban fabric and ancient building techniques, the private buildings reconstruction in historical centers is managed by set of rules and by funding procedures more complex and significantly different than what done regarding peripheral areas. The main objective of the law is to make restore and reconstruction interventions in historical centers preceded by a preliminary evaluation about formal, architectural and historical values which have to be preserved. The Plan provides to recover and to conserve these values by restoration methods, applied to historical building construction worth to be preserved both for its own formal features than because of being a constituent part of the historic urban fabric and urban backdrop of places and public spaces. At the same time, the law has intended to encourage a quick return of the population slowing down the depopulation, already in act at the time of the earthquake. The first act in preparing reconstruction plans, is the definition of "Historic Center Boundaries” which includes that constructed part characterized by historical and architectural features, and, at the same time, by a widespread and severe state of damage Within the “Boundaries” the Municipalities have identified the "Ambits" of the Reconstruction Plan, with uniform morphology features and aimed to provide a set of integrated and coordinated interventions. About public funding regulation for private reconstruction, interventions in periphery have been subjected to constraint regarding to maximum funding that could be awarded to repair the damage, not exceeding the cost of construction of a new r.c. building. The introduction of this cost limit has determined prevailing demolition and rebuilding interventions of the most damaged buildings versus
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
repairing the same, by realizing, by the same cost, more functional and efficient buildings as well as seismically safe. In historical centers, base cost of repair intervention is comparable to periphery’s one, and it is parameterized on criteria of damage and vulnerability of the building. However, for the above reasons, the project choice between repairing or the buildings is not merely entrusted economic convenience criteria. Regulation about permitted intervention categories has been demanded to the reconstruction plans in order to limit use of demolishing-reconstructing project, by building replacement, only in case of buildings licking of, or without, architectural value, not part of the historical urban context. If damage has irreversibly compromised the building integrity, the Reconstruction Plan sets rules to have the building reconstructed, according to formal and volumetric features of the historic center’s parts survived the earthquake. To ensure that what expected by reconstruction plans could be implemented, in presence of architectural value, of structural complexity, of relevancy about elements featuring the urban fabric and deserving to be preserved, lawmaker has provided, economically, funding increases for contribution, based on parametric criteria and intended to sustain the higher costs required for intervention, final settlement is bound to real implementation of restoring or of conserving of the valuable feature. Always in historical centers, additional increase in contribution for buildings recovery interventions are planned in presence of risks and difficulties in building site area, whose principal types are presence of underground cavities, seismic local amplification, removal of those making-safe works undertaken in first emergency time.
5. Technical and economic regulation of private reconstruction in historic centers. Jointly to interventions concerning private buildings, Plan rules also interventions for refurbishing of public buildings and for repairing damages occurred in services networks and in public spaces. The Table 2 and the Fig. 5 shows the cost of Reconstruction plans approved at 30th January 2016, grouped by category of intervention. Table 2. Cost assessment of reconstruction plans approved at 30th January 2016 in € million Private buildings restoration
Public buildings restoration
€ 2734,748
€ 137,386
Sub-service networks and public spaces € 161,699
Securing and disposal of debris € 8,062
Other € 5,819
The Deputy Commissioner, by guidelines for Reconstruction, asked Municipalities in to identify, where possible, within the Boundaries of the historic center, one or more important areas including, at least, a public work, and placed in major urban spaces where a priority in implementing public interventions had also "strategic" value for returning towns to normal life; this is a priority both for social than construction, acting itself by rebuilding the town by parts and allowing people to take gradually back the old town areas, subtracted by the earthquake, in a defined time. In this perspective, the Chief Commissioner has funded a public work for each Municipality, as priority and anticipatory for approving the Reconstruction Plan itself. From costs point of view, benchmarks for repairing earthquake damage or for reconstructing public buildings are similar to those adopted for private reconstruction. Public buildings included in the historical center, objects of funding, mainly consist of municipal houses, collective use spaces, services and equipment spaces. In many historical centers has been detected a presence of reduced consistency public properties, diffusely distributed in the historic center, well serviceable for widespread museum spaces or widespread receptivity.
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
The rethinking of intended use of public property within the Reconstruction Plan is preparatory to define credible scenarios of development to be proposed at homogeneous area scale, increasing in values by diversifying. Services networks were subjected to highly diversified damage on crater territory, so complete replacement of services network and public paving, due to damage by the earthquake, is required only for that municipalities closest to the epicenter. However, to facilitate in requalifying towns and in revitalizing historic centers, expecting also damages to public paving by vehicle passage and by construction site activities, all municipalities have quantified also the financial needs to pursue requalification objectives for public spaces and for services networks in a complementary outlook to simply repair earthquake damage.
0.3%
0.2%
5% 5%
Private buildings restoration Public buildings restoration Sub-service networks and public spaces Securing and disposal of debris Other
90%
Fig. 5. Percentage of costs assessment grouped by category of intervention.
6. Intervention methodology Reconstruction Plans are intended as an instrument of reconstruction government of historic centers combining the two aspects of economic and urban planning program. Plans identify and regulate interventions related to both private than public buildings and to subservices networks, as well as carefully performing a study on possibilities and on ways for achieving a sustainable economic recovery of the whole area. Under the analysis profile, Reconstruction Plan is a reconnaissance and identification instrument about the state of the Old Town building fabric in the immediate post-earthquake, in terms of damage, consistency state, assets system, usage destination, features and values constraint, deterioration markings previous to the earthquake. The plan also describes the state of damage reported by the subservices networks and by public spaces, in order to identify cheaper-cost interventions, as well as formally and technically fitting, to restore full accessibility for building assets and for old town historical spaces. About interventions on building fabric, both public than private, Plan distinguishes two entity types, "Single Buildings" and "Building Aggregates", the second one understood as a set of nonhomogeneous building units, connected together by more or less structurally efficient connections, in line with fabric evolutionary history, which can interact among them under seismic or dynamic action in general. In the most general of all the cases, when there aren’t joints or other separator elements (disconnections) among different buildings, Aggregate coincides with the block, whose solution of continuity, from urban fabric rest, is realised by streets and squares. Single Buildings and Building Aggregates are the basic elements for estimating intervention costs as for definining priorities and building site setting mode.
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
In its more properly project contents, Reconstruction Plan proceeds in identifying and in regulating interventions regarding both urban planning than punctual parametic evaluation of the economic requirements for implementing the planned actions; these are appropriately divided in two intervention types one as “Reconstruction Intervention" - to repair the damage for which there is a cause link with the earthquake - and "Redevelopment / Development Interventions" – focused to valorize villages. Special Office for Crater’s Municipalities Reconstruction (USRC), in Reconstruction Plan implementation, has authority on economic planning of the plan implementation, a necessary role to guarantee Municipalietes in having equal access to common resources, by making evaluations contained in the plans comparing among them; evaluations can fully represent the detail levels of a single Aggregate. By combining more data, as praticability outcome, usage destination, consistency, features and values constraint, as economical evaluation about lacking income by building, costs, by parametric form, can be established, obtaining a technical-economic framework for single intervention. By having estimated realization costs for each intervention, the Plan, to realize these interventions, provides also a time schedule, assessessing the feasibility of public and private reconstruction, by coordinating them also under the spatial and temporal profile. This time schedule represents a management instrument in monitoring progression in reconstruction activities and in prompt resolution of criticalities. The USRC, in compliance with its regulatory role, has established reference criteria which Municipalities are called to respect in defining priority criteria for the private reconstruction implementation in the historic centers. Each municipality has the burden to decline priority criteria, by reaching a detail level fitting social and building complexities and ensuring best reconstruction activities management. Purpose is in ensuring maximum efficacy for public spending, by accomplishment in having a more rapid people’s return to the main houses, compatibly with accessibility and construction site requirements dictated by urban morphology of historical centers, as well as in coordinating private interventions and public interventions on networks and services. Plan time-schedule phases definition has seen, by its results, two main approaches, both of which requiring a high coordination capacity for public administration machine: in heavily damaged and morphologically more complex contexts, with accessibility difficulties, or in presence of particularly complex elements - first of all underground cavities – it’s prevalent a spatial approach, by programming interventions and by proceeding in historic center reconstruction by space sectors, all by strongly coordinating public and private interventions; in less damaged contexts, without particular complexity in terms of accessibility and construction site, in which sub-services networks have preserved functionality, priority is in repairing and in bringing people back to their main houses, deriving, by this approach, a patchy distribution of interventions.
7. Conclusions Reconstruction Plans have been the circumstance allowing public administrations in comparing themselves by managing complexity of a reconstruction and by defining strategies necessary to economically and socially restart the territories affected by the earthquake of 6 April 2009. By this meaning Reconstruction Plan becomes an innovative instrument for analysis and planning and structured on different scales, from territorial to urban construction scale, it can provide the necessary detail to develop an economical and technical framework as reference in managing over time public funding flows and in defining action contexts to implement interventions. The experience is especially interesting if understanding that the knowledge level of building heritage, obtained by realizing an accurate knowledge framework as base for the Reconstruction Plan itself, is unusual for ordinary planning instruments, being also the starting point in implementing the proposed strategies as well as control and monitoring instrument. In evaluating and in defining strategic development scenarios, which frequently provide for reusing and for requalifying abandoned and unused buildings, or for improving urban quality of the historic
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International Conference on Earthquake Engineering and Post Disastor Reconstruction Planning 24 – 26 April, 2016, Bhaktapur, Nepal
centers, there are many advantages carrying out by having available so detailed knowledge frameworks. As part in upgrading and in economically developing territories, Reconstruction Plan is also configured as framework instrument to harmonize resources addressed to repair earthquake damages and national and European Union resources addressed to relaunch territorial attractions.
References Bettiol G., Munari M., da Porto F., Valluzzi M.R., Modena C. Development of Reconstruction Plans for towns damaged by the April 6th 2009 Abruzzo earthquake. In: Proceedings of the International Conference on Rehabilitation and Restoration of Structures. Ravindra Gettu, Manu Santhanam, Arun Menon and Radhakrishna G. Pillai (Eds). 12-16 February 2013, Indian Institute of Technology, Madras, Chennai, India, p. 340-350, ISBN: 978-93-80689-10-4. Cialone G., Cifani G., Mannella A., Petracca A., Modena C., Bettiol G., Munari M., da Porto F. Reconstruction plans of the municipalities of the barony of Carapelle in the province of L’Aquila (Italy), In: P. B. Lourenço, B. A. Haseltine, G. Vasconcelos (Eds.), Proceedings of the 9th International Masonry Conference, 7-9 Luglio 2014, Guimarães, Portogallo, ISBN: 978-972-8692-87-2 (digital), 978-972-8692-85-8 (book); Genitti C., The homogeneous areas in the seismic crater of L’Aquila, Urbanistica Informazioni n.252, November - December 2013, INU editions; Genitti C., USRC – Special Office for Crater’s Municipalities Reconstruction, The Plan as an instrument of government for the reconstruction of old town centres, in The preservation of the landscape, from cultural battle to development model, conference proceedings, Santo Stefano di Sessanio, 30th November 2013, curated by Municipality of Santo Stefano di Sessanio; Mannella A., Martinelli A. April 2009 Earthquake in Central Italy: initial considerations about reconstruction costs e procedure, In: S. Kajewski, K. Manley & K.Hampson (Eds.), Proceedings of the 19th International CIB World Building Congress (Track TG63, n. 273), May 5-9, 2013, Brisbane, Queensland, Australia, ISBN: 978-0-9875542-0-8; Mannella A., Martinelli A., Mancini C., Di Pasquale G., Corina A. Italy's Abruzzo region earthquake: building damage assessment activities. In: Proc. of the 14th European Conference on earthquake engineering, August 30 – September 3 2010, Scopje - Ohrid, Republic of Macedonia; Technical Mission Structure of the Commissioner for the Reconstruction - President of the Abruzzo Region, Considerations about purpose, targets and economic profiles of the reconstruction plans, art.14, par.5-bis, law 77/2009, 27th December 2010; Technical Mission Structure of the Commissioner for the Reconstruction - President of the Abruzzo Region, Lines of strategic replanning of the territory, 1st March 2011; USRC – Special Office for Crater’s Municipalities Reconstruction, Post-earthquake reconstruction in the crater municipalities, in Restoration / reconstruction: small old town centre. Preserving in the mutation, workshop proceedings, Castelvecchio Calvisio, 29th October 2013, curated by European Association for Architectural Education (EAAE) and University “La Sapienza” in Rome; USRC – Special Office for Crater’s Municipalities Reconstruction, http://www.usrc.it/attivita/piani-diricostruzione/i-pdr, 2016
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