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
mravan60@gmail.com
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
1932. 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
2004.
The Bam disaster created new opportunities for
Arg-e Bam in disaster mitigation and risk
preparedness through the sustainable socioFigure 1: Arg-e Bam before and after
economic and cultural development of the
earthquake
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-
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 1881. The military
garrison remained within the Arg until 1932. 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
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 2005. 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. 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
The unsuitable
The potential of
The lack of suitable
Arg-e Bam represents a
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)
The value of assets in Arg-e Bam
Very High
High
Medium
Low
Figure 3: The map of value of assets in Arg-e Bam (source: author)
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 %
25 – 50 %
50 – 75 %
75 – 100 %
Figure 5: The composite map of assets value and damage rate in Arg-e Bam (source: author)
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.
Table 3: Develop goals and objectives of Earthquake risk preparedness plan (Source: Author)
Objectives
Row
Strengthen Support in global, national and
1
Goal
The protection of Arg-e Bam and its tangible and
local levels for disaster risk reduction in
Arg-e Bam
intangible values against earthquake through the
sustainable development of city of Bam
Use knowledge, education and training to
2
promote disaster prevention in cultural
heritage
Identify, assess, and monitor disaster risk in
3
Arg-e Bam
Reduce vulnerability in Arg-e Bam, in order
4
to strengthen earthquake resistance, while
maintaining the integrity of property
Strengthen disaster preparedness plan in
5
Arg-e Bam for effective response at all
levels
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:
ICHHTO1
World Heritage Convention;
UNESCO
Encourage investment among stakeholders and residents;
Public Media
Insurance cover.
1
Iranian Cultural Heritage, Handicrafts and Tourism Organization
Introduce the important role of Arg-e Bam in community resistance against the
ICHHTO
disaster impacts and sustainable economic and cultural development of city:
Local Government
Introduction, periodic monitoring and reporting programs in Arg-e Bam;
Public Media
Review approaches to increase role of Arg-e Bam in development of the city.
Establish workshops in local, national and international levels.
ICHHTO
UNESCO
Objective 2: Use knowledge, education and training to promote disaster prevention in cultural heritage
Alternative Actions
Develop up-dated teaching/learning and awareness raising resources on disaster
Agencies
ICHHTO
prevention and reduction, for managers, staffs, and people:
Local Government
Establish workshops in local, national and international levels;
schools
Use special relationship of indigenous and traditional knowledge in Bam;
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
ICHHTO
interpretation of property in squares and routs in city of Bam;
Local Government
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
Establishment permanent center in Arg-e Bam, in order to introduction, research,
Agencies
ICHHTO
and protection activities:
Earthquake Institute
Providing a comprehensive list of all cultural resources and important assets;
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;
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
ICHHTO
assets.
DMMO2
Protect documents in a safe and secure place against earthquake, fire and theft.
ICHHTO
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:
ICHHTO
Review experience in similar areas and similar disasters in other countries;
Earthquake Institute
Establish laboratories to identify and assess earthen materials and structures against
Universities
earthquake forces;
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
ICHHTO
experts.
Earthquake early warning and detection systems (earthquake warning system, smoke
ICHHTO
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
Alternative Actions
Ensure coordination of risk preparedness plan for Arg-e Bam with master plan and
Agencies
ICHHTO
cultural landscape management plan of Bam.
Local Government
Explain the hierarchy of command and coordination of agencies during the
ICHHTO
emergency phase;
DMMO
Organise response team in three groups: residents of Bam, emergency team and
experts of heritage, and disaster during the emergency response.
Local Government
Educational and training programs to ensure efficiency of preparedness and response
ICHHTO
measures (for relief and rescue team, emergency repair team, and assessment team);
DMMO
Earthquake simulations exercises in Arg-e Bam should be followed by information
recording, maps, and detailed inspections.
Local Government
Provide resources and equipments for emergency phase;
ICHHTO
ensure that the plan is understandable and available for every one;
DMMO
Prepare an information system (manual for emergency teams, team members and
Local Government
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
ICHHTO
conditions, and then approved by experts.
DMMO
Objective 6: Developing a response plan
Alternative Actions
Request aid from local, national and international agencies for financial, technical,
Agencies
ICHHTO
and human assistance;
DMMO
Aware response team (residents of Bam, emergency team and experts of heritage and
disaster) and organize them.
Local Government
UNESCO
Emergency measures to provide safety and security in site:
ICHHTO
Rescue and relief injured (visitors and experts);
DMMO
Provide security equipment to protect assets against theft;
Local Government
Move valuable assets to safe place, and appropriate measures.
Police
Develop educational and social training programs for residents in the neighborhood
ICHHTO
of site and to emphasize the role of Arg-e Bam in physical and
Local Government
psychological recovery of affected people.
Emergency measures to reduce risk, in order to preserve Outstanding Universal
ICHHTO
Values including the authenticity and integrity:
UNESCO
Use international financial and technical assistance;
ICOMOS
Prepare temporary and emergency access in site;
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:
ICHHTO
Clean debris in site, while concerned about its own values and valuable damaged
Local Government
parts; debris must be carefully moved for use in restoration;
Police
Create safe and security access for conservation experts, tourists and Bam residents
to continue traditional and religious ceremonies;
Prepare repair permits.
Identify and assess damaged parts of Arg-e Bam:
ICHHTO
Assess damages, structural components and foundations, professionals and local
UNESCO
experts ability, and expert ability to monitor appropriate measures;
ICOMOS
Identify new information and prepare maps after the earthquake;
Recording regularly all of steps and actions including identification, assessment,
moving debris.
Plan to repair, restore and retrofit damaged parts of Arg-e Bam:
ICHHTO
Prioritize the protection and retrofitting measures according to value of each
UNESCO
property in site;
ICOMOS
Use traditional knowledge and local methods, and train local experts in Bam to
restore and retrofit property.
Identify financial, technical, and human resources for long-term measures.
Develop educational programs for residents of Bam, visitors and local officials
ICHHTO
(conferences, exhibitions, and manuals)
UNESCO
ICOMOS
Review performance of risk preparedness plan in Arg-e Bam after earthquake, update
ICHHTO
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.
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.
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