1. Award for Creative Developments in Healthy Cities Category 4 … · The severe disaster caused by Typhoon Nari in 2001 made the government start to treat Keelung River. ... were

AFHC Awards for Healthy Cities 2018

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AFHC AWARDS FOR HEALTHY CITIES 2018 SUBMISSION FORM 1-4

1. Award for Creative Developments in Healthy Cities

Category 4 – Planning for Resilience and Emergency Preparedness

Deadline of submission: August 31, 2018

Title of the report:

Xizhi - How A City Once Famous for Floods Gets Rid of Floods

Name of applicant AFHC member:

Health Promotion Association of Xizhi District, New Taipei City (Taiwan)

Name of person(s) or subgroup(s) responsible for the submission:

Wu Tzyy Cheng

Do you wish to cite the above names on an award certificate, if your report receives

an award?

Yes ( ✓ ) No ( )

Has your work already been published elsewhere?

Yes ( ) Please give details of the earlier publication :

No ( ✓ )

Contact details (for administrative purposes):

Name of contact person: Wu Tzyy Cheng

Address: 3F, 124, Shui Yuan Road Sec 2, Xizhi District, New Taipei City, Taiwan

Phone:(886)0917030877 Fax:

E-mail:[email protected]

Date of submission (month/ day/ year):08/31/2018


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Documents to submit (Please ✓)

( ✓ ) Submission Form 1-4

( ) Report

( ) Others Please specify:

Short abstract and key message (50 to 100 words)

Xizhi is a city used to be famous for floods in Taiwan. As the effort has been put by the

government and non-governmental organization, Xizhi has gradually gets rid of the threat

of floods in this decade. We hereby present the city’s countermeasures of “preparedness

for disasters”, “response to disasters” and “recovery after disasters”.

Suggestion for the structure of the contents of the report (1000 – 4000 words) 1. Introduction and analysis of the situation

Xizhi district of New Taipei City (Xizhi) is in northern Taiwan. It locates between

Taipei and Keelung city. Xizhi is approximately 72 square kilometers in area with 200

thousands population. Northern and Southern Xizhi is hillside with altitude around 600

to 700 meters high and area around 70% of it. Northern and Southern parts of Xizhi are

higher than the central. Keelung River runs through the central part of Xizhi which forms a

valley plain with the lowest point only 9m above sea level.

Xizhi is at the midstream of Keelung River. There are 11 creeks originates in the

area and flow north or south to Keelung River. Though Xizhi is not a coastal district,

rivers in Xizhi still are influenced by the tide. The name of Xizhi means the place where

tidal ends. The average annual rainy days are 180 and mean annual rainfall is 3600mm in

Xizhi. Xizhi is real a rainy city. Not only days but also the amount of rains is

considerable. Flood period is from May to November. The most precaution needed to

be taken is the heavy rain during typhoon period.

In the history of disaster, Xizhi was suffered from floods and landslides.

Lincolnshire buildings in Xizhi fell down when Typhoon Winnie hit in 1997. Total of

540 buildings were damaged and 28 residents were dead. It is the severest urban area

landslide disaster ever in Taiwan. When Typhoon Xangsane hit in 2000, the whole

district was flooded. There were 8,232 households in urban area flooded. When

Typhoon Nari hit in 2001, the whole district was flooded again. There were 9,015

households in urban area flooded. It is the severest urban area flood in the history of

Taiwan. Floods of Typhoon Xangsane and Nari resulted in severe disasters such as


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cutting out of water, power and telephone line and interruption of railway and highway

transportation. The best area of whole district was in the water and residents suffered

from great lost and indescribable misery.

Figure 1 Recovery after Typhoon Xangsane (2000)

Figure 2 Typhoon Nari Flood (2001)

The severe disaster caused by Typhoon Nari in 2001 made the government start to

treat Keelung River. First, a flood diversion tunnel was set up at the upstream to intersect

the flood and direct it into the sea. It has reduced the water flow of downstream.

Keelung River and its branch were dredged, new embankments and 23 pumping station


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were built to secure the safety of citizens. The railroads were also elevated to prevent

floods. Bridges cross Keelung River were rebuilt to prevent their piers from obstructing

water flows. All E/M facilities were moved to the roof floor of buildings to avoid floods

from affecting the operation of these facilities. The anti-flood gates were installed at the

entrances of the basement parking lots to prevent floods from entering into the basement.

With the efforts from government and non-governmental organization, hopefully, the flood

problem of Xizhi can be resolved.

It does not mean that Xizhi will be free from floods after Keelung River been treated.

Especially, the global climate has changed and extreme weather becomes more and more

apparent. Plum rains between spring and summer, afternoon thunderstorms in the

summer and heavy rains of typhoons which come with northeast monsoon in the autumn

have made disaster possible again. That’s why actively promoting the management and

preparation works for disaster prevention including the preventions, managements and

preparations before disasters happen, the emergency responses during disasters and the

recovery mechanism after disasters, building healthy and safe city and reducing the loss of

lives and properties have become most important and critical works of Xizhi.

2. Expected emergencies

To understand the severity of disasters caused by the historical typhoon rainfalls in

Xizhi, the Xizhi City Government has acquired the data of historical typhoon rainfalls

from Central Weather Bureau first. After analysis, we know that the rainfall of typhoon is

the primary cause of the flood in Xizhi. The secondary cause is the plum rain. Before

Keelung River been treated, extremely heavy rain (more than 200mm/24hr) was enough to

cause flood in the district. Torrential rains or extremely torrential rains have resulted in

severe disasters in Xizhi. After Keelung River been treated, there was no serious disaster

after several extremely heavy rains or above have hit Xizhi. If it was torrential rains or

above, the water level of Keelung River may be close to or exceed the level 2 alert. If it

exceeded extremely torrential rains, the district might be flooded and there might be

mudslide in the mountain.

(1) Flood in the District

Based on the characteristics of the climate and topography of the Xizhi, the potential

areas to be flooded were simulated, the households to be affected were investigated and

flood preservation plan was made for 450mm/24hr of the rainfall intensity in the district.

To strengthen the advocacy disaster prevention at normal time and once the water level of

Keelung River reaches the yellow alert level (5 meters from the top of the embankment, it


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is expected to start flooding in 5 hours), the residents will be persuaded to evacuate first.

Once the water level of Keelung River reaches the red alert level (2 meters from the top of

the embankment, it is expected to start flooding in 2 hours), the residents will be forced to

evacuate.

Figure 3 Map for Potential Flood Area

(2)Potential Mudslide Creeks/Rivers

According to the data of Potential Mudslide streams released by Soil and Water

Conservation Bureau, the residents in the affected areas were investigated and Mudslide

Preservation Plan was made. To strengthen the advocacy disaster prevention at normal

time and once the predicted rainfall intensity by Central Weather Bureau reaches

500mm/24hr (Yellow Alert), the preservation households were persuaded to evacuate first.

When the actual rainfall intensity reaches 500mm/24hr (Red Alert), the residents will be

forced to evacuate.


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Figure 4 The Distribution of Potential Mudslide Streams

(3)Landslide and Rock Fall Areas in the Mountain

According to the topography and geology information, the potential landslide and

rock fall areas for mountain roads were investigated and warning signs were installed in

advance to alert the road users.


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Figure 5 Landslide and Rock Fall Areas in the Mountain

(4)Road Blocks of Bridges

When Keelung River was treated, both side of the river have installed embankments

to protect the district. However, there are 5 bridges built in the early stage in Xizhi which

is lower than the embankment height. During a heavy rain, if the water level is higher

than the bridge decks, water will flow into the city along the bridge decks. Therefore,

there are road blocks for these bridges. Signs will be set up at the both sides of the

bridges to alert the road users。

(5)Underground Pass Ways for Vehicles

The National Highway No. 1 passes through Xizhi and there are 5 crossover

intersections with urban roads. The passage space under the bridges is low. It is easy to

be flooded when raining. In addition to the installation of water pumps, the side ditches

and catch basins were dredged. The water level sensors, 10 CCTVs, buzzer warning

devices and etc. were installed.


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Figure 6 Underground Pass Ways for Vehicles

3. Details of the plans and activities

3.1 Complete rescue organization and disaster response equipment, make disaster

prevention and rescue procedures

(1) Establish the Rescue System which Xizhi District Government is its core. Call two

disaster prevention meetings twice annually. Review disaster prevention and rescue

related matters.

(2) Set up communication equipment such as video equipment, satellite phones, radio etc.

to report and disaster condition and call for back up instantly. Also, set up emergency

power generator for power failure incidents.

(3) Make all kinds of disaster prevention, rescue standard procedure to serve as an

operation principle of rescue units.

3.2 Build and maintain streams, rain water sewers and road side ditches in accordance with

the regional disaster characteristics. Prepare improvement strategies for potential

disaster areas

(1) Investigate potential flood, mudslide, landslide and rock fall places or affected areas to

inform citizens to safeguard themselves in advance. If there are possibilities of disaster,

citizens will be evacuated in advance.

(2) Before flood season, streams and rain water sewers are cleaned and dredged every year

to avoid disaster caused by the water flow being blocked. Road side ditches in the

District are inspected and cleaned once a year.


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(3) Road block drills for bridges are performed every year. When the rain fall intensity

reaches 350mm/24hr or the water level of Keelung River reaches yellow alert level,

bridges will be blocked to avoid accidents.

(4) Response drills for underground pass ways are performed every year. When the rain

intensity measurement reaches 30mm/hr at nearby (Sehou Bridge) rain gauge station,

officers will be sent to patrol and stay guard in shifts. When the rain intensity

measurement reaches 80mm/hr at nearby rain gauge station, additional officers will be sent

to site for observation. When ponding level reaches 20cm or Led warning lights is on,

officers will report to the center and inform police unit to the site for traffic control.

3.3 Control resource for rescue and maintain usable at all times. Carry out lectures and

trainings to familiarize the operation technique

(1) Establish the rescuer name list of police units, firefighting units, engineering units,

cleaning units, hygiene units, hospital, army, school, power units, telecom units, utility

units, gas units and charity organizations. Rescuers will be contacted periodically and the

name list will be updated monthly.

(2) List the amount of rescue vehicles and equipment for police units, firefighting units,

engineering units, cleaning units and etc.

(3) Establish the data for school shelters including their space and numbers of people they

can accommodate.

(4) Establish a storage place for livelihood resource in the response center to store daily

supplies and an emergency procurement supplier list.

3.4 Reinforce the lateral communication, contact, coordination and cooperation between

rescue units. Carry out drills unitedly to strengthen hardship.

(1) Carry out trainings for shift personnel of Disaster Response Center such as the

operation of video equipment, satellite phones and radios, the drills of the response center

and setting up of advance commend post.

(2) Carry out drills of flood and mudslide evacuation for residents.

(3) Carry out drills of accommodating refugees for school shelters.

(4) Carry out drills of road block for bridges, close road for emergency repairs and water

pumping for floods.


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Figure 7 Drills of Water Pumping for Floods

3.5 Call for the participation of citizens, fight for the recognition of citizens and note

especially the needs of minority groups

(1) Carry out disaster prevention propaganda and lectures for contagious disease

prevention for community residents.

(2) Organize prevention volunteer team, carry out lectures of disaster prevention for

volunteers and join disaster prevention drills

(3) Investigate the population of potential flood areas and potential mudslide areas. Take

prior care of minority groups in disaster prevention such as elderly, young children, women

and people with disabilities.

Figure 8 Accommodation Drills for Shelters


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4. Monitoring progress

(1) Complete below items before end of February each year

A. Contracts for heavy machinery which needs in disaster rescue.

B. Engineering design contractors for post-disaster recovery

C. Rental buses for emergency transportation

D. Dredge contractors for streams and rain water sewer

E. Contractors to patrol, exam and clean sludge in road side ditches

F. Update the list of residents in the potential flood areas

G. Update the list of residents in the potential mudslide areas

(2) Complete below items before end of April each year

A. Visit 23 pumping stations in the District and bring gift and greetings to the staff.

Maintain the normal function of pumps in the stations.

B. Dredge 11 streams in the District

Figure 9 Dredge of Streams

C. Dredge of rain water sewers which are 33.63 kilometers in length

D. Carry out floods and mudslide evacuation drills for residents

E. Disaster Response Center mobilization drills and setting up advance command post

drills

F. Drills for flood water pumping, road block for landslide, rock falls and emergency road

repairs. Road block drills for bridges when the river water level rises up.

G. Inspection vessels, vehicles and rescue equipment

H. Inspection shelters and storage places of livelihood resources


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Figure 10 Dredge of Rain Water Sewers

(3)After sea typhoon warning is issued

A. Second level Disaster Response Center starts to operate and disaster prevention team

will enter and station in to prepare for responses.


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B. Patrol rivers and streams and exam if there is any object obstructing streams and

damages of embankment.

C. Inspection construction site and flows of ditches

D. Inform rescue and repair machinery to standby

E. Notify each village head to reinforce the prevention measures for typhoon potential

disasters.

(4) After sea and land typhoon warnings are issued

A. First level Disaster Response Center starts to operate and all rescue personnel will enter,

station in and standby.

B. Rescue and repair machinery enter and station in the Disaster Response Center to

standby.

C. Forbid citizens from entering rivers or streams (to swim, fish, play in the water and

etc.).

D. Inform village heads, residents in the lowland areas and potential mudslide areas to

watch out and prevent possible disaster of typhoon.

(5) After rainfall intensity reaches 350mm/24hr or water level of Keelung River reaches

yellow alert level

A. Alert to all city citizens through internet, broadcast system of each village, scrolling text

in cable TV and speakers on vehicles.

B. Notify residents in lowland and potential mudslide areas to prepare for evacuation.

Elderly, women, young children and people with disabilities will be evacuated

preferentially.

Figure 11 Evacuation of Minority Groups

(6) After rainfall intensity reaches 500mm/24hr or water level of Keelung River reaches

red alert level

A. Alert to all city citizens through internet, broadcast system of each village, scrolling text


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in cable TV and speakers on vehicles to prepare for evacuation.

B. Dispatch the evacuation team to force residents in lowland areas and potential mudslide

areas to evacuate.

(7)Post-disaster recovery

A. Dispatch engineering teams and machinery rental contractors to carry out disaster

rescue immediately

B. Dispatch engineering design contractors to precede construction design immediately.

Handover the design to contractors for construction after design was completed.

C. Mobilize the cleaning squadrons, national army, enthusiasts and community volunteers

to clean the streets, recover the cityscape and carry out environmental disinfection together.

5. Highlight the learning points

(1) Evacuate earlier

Assign specific person to monitor rainfall and water level of rivers. (through internet)

When rainfall or water level of rivers reach alert level, residents shall be evacuate earlier to

reduce risks. If evacuation is in fact necessary, it is better to carry out during the day

time.

(2) Drills for every possible disasters

Carry out evacuation drills, pumping drills, road block and repair drills during landslide

and rock fall for residents in potential flood and mudslide areas.

Figure 12 Road blocked for Emergency Repair Drill

(3) Non-governmental organization’s participation and assistance

Xizhi District Government founded volunteer team and encourages each community to

organize patrol teams and volunteer teams to positively support Disaster Prevention


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Community, International Safe Community, and International Healthy City. Let’s work

together and make efforts on disaster prevention, reduction, disaster response and

post-disaster recovery.

(4) Test of Typhoons

Since Keelung River has been treated, there are 3 to 5 typhoons per year in this decade.

There were three occasions that rainfall intensities were higher than 350mm/24hr. In fact,

the bridges were blocked 4 times to avoid possible floods.

(A) Typhoon Soudelor

Moderate intensity typhoon Soudelor hit Taiwan in August 2015. The maximum gust

wind speed has reached level 11. 30 thousands households suffered power cut. Road

trees, advertisement signs and utility poles fell down and traffic signs were damaged. 3

thousands of wires fell down. The accumulated rainfall for 24 hours has reached 425mm

which led the water level of Keelung River closed to level 2 warning level. There were

scattered puddles and floods. There were small scale landslides and rock falls which

were 300 occasions in total.

Typhoon Soudelor hit Xizhi with strongest wind in this decade. It is also the highest

accumulated rainfall typhoon. Under the cooperate works of engineering teams, cleaning

squadrons, contractors national army, enthusiasts and community volunteers, the main road

were recovered one day after the disaster. Cityscapes were recovered 3 days after the

disaster. Remote mountain areas were recovered in one week.

Figure 13 Water Level of Keelung River during Typhoon Soudelor

(B) Typhoon Dujuan


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Typhoon Dujuan hit Taiwan in Sept. 2015. The accumulated rainfall for 24 hours has

reached 297mm. Due to the rainfalls have exceeded extremely torrential rains at the

upstream of Keelung River and also it was the spring tide during full moon, the water level

of Keelung River has exceeded the red waring level in the midnight which broke the water

level high record after Keelung River was treated. Disaster Response Center has alerted

people through TV, internet, broadcast system. Fortunately, after midnight when spring

tide passed, the water level went down. Xizhi was safe once again.

Figure 14 Volunteers Help to Clean and Recover