Urban Planning for Disaster Risk Reduction: A Systematic Review of Essential Requirements

doi:10.21203/rs.3.rs-5328043/v1

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Systematic Review

Urban Planning for Disaster Risk Reduction: A Systematic Review of Essential Requirements

https://doi.org/10.21203/rs.3.rs-5328043/v1

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Urban planning is critical in mitigating the impacts of disasters, enhancing community resilience and promoting sustainable development. This review study systematically analyzes the role of urban planning in disaster risk reduction (DRR) through a Preferred Reporting Items for Systematic Reviews and Meta-Analyses (PRISMA) approach. By reviewing scholarly articles and case studies, this paper examines various urban planning strategies that contribute to DRR, including land use planning, infrastructure development, risk mapping, and community engagement. The findings highlight the effectiveness of integrating risk assessments into urban planning processes, the importance of adaptive infrastructure design, and the need for inclusive planning practices that involve local communities in decision-making. The review also identifies challenges such as inadequate policy implementation, lack of resources, and the need for interdisciplinary collaboration, analyzing participation and academic importance, and correlating the publication of papers with the number of reported disasters. Through a comprehensive analysis of existing literature, this review underscores the potential of urban planning to reduce disaster risks and enhance urban resilience. The paper concludes with recommendations for policymakers, urban planners, and researchers to strengthen DRR initiatives via strategic urban planning practices. This review contributes to the growing body of knowledge in DRR and emphasizes the critical role of urban planning in creating safer, more resilient cities.

disaster risk reduction

urban planning

urban resilience

land use planning

infrastructure development

community engagement

Over the years, cities worldwide have transformed to meet regional urban needs, expanding or decreasing their urban space, mobility routes, economic-commercial activity, and other services, such as basic sanitation and electricity supply[1]. The modernization of resources and the increase in population are two factors that strongly demand transformations and integrated adaptations of the urban space. These transformations require the creation and implementation of scalable urban planning and the assurance of expansion or contraction of urban territory[2].

To meet territorial demands sustainably, urban planning takes place beyond the territorial dimension, considering socioeconomic and environmental factors to ensure sustainable regional development[3]. The growth of cities, many of them century-old, when it occurs without adequate planning, tends to burden various factors, increasing inequalities and exposing the population to the physical dangers of unplanned territorial expansion[4].

The lack of adequate urban planning for the expansion of cities and the increase in the frequency and intensity of extreme weather events due to the global average temperature place the world population in a state of climate emergency[5]. Unplanned changes in land use and urban infrastructure cause soil waterproofing, a process that makes it difficult and, in some cases, impossible for natural climatic events, such as rain, to flow, thereby exacerbating the impact of these events and resulting in increased hydrological disasters caused by the lack of urban planning[6].

In addition to hydrological risks, urban planning must consider other regional risks based on geographical specificities, geophysical, climatological, meteorological, and biological risks, and implement preparation actions for each disaster category[7]. Along with preparation, cities need emergency actions to respond to the disaster, reducing the impacts of the event and ensuring that there are also strategies for the recovery and rehabilitation of essential urban services, which underscores the city's resilience in the face of disaster[8].

Urban planning is responsible for creating and implementing urban resilience strategies, as well as for disasters caused by the absence or ineffectiveness of actions to reduce disaster risks. Thus, the consensus emerges that climate events are natural physical phenomena. However, all the social, environmental, and economic damage caused by a disaster result from inadequate planning, making disasters an unnatural phenomenon[9].

The increased intensity and frequency of extreme weather events and insufficient climate adaptation have led to a rise in disasters in several cities worldwide[10, 11]. Nonetheless, the diverse climate and geography, the degree of preparation, and the significant role of local urban growth result in impacts that vary between regions. In addition to physical characteristics, social inequalities and the marginalization of communities lead to an increased exposure to disaster risks by these groups. The multifaceted nature of this problem underscores the need for comprehensive urban resilience strategies[11].

Meeting cities' resource and infrastructure demands is a complex task in urban planning, which requires analyzing and monitoring various environmental and social factors[12]. Adopted by 193 United Nations Members, the Sustainable Development Goals (SDGs) established 17 goals and 169 targets to be achieved by cities by 2030 as a way of directing and ensuring the sustainability of urban development and intending to reduce disparities[13]. In addition to the SDGs, urban planning includes the Sendai Framework, with seven objectives and 38 indicators for disaster risk reduction that must be considered to create urban resilience strategies[8].

The number of factors related to disaster risk makes risk reduction complex, requiring a multifactorial and multidisciplinary approach that considers each city's unique regional characteristics[14, 15]. Academic research is crucial in understanding these factors and developing methods to mitigate risks. Universities and research centers worldwide create and disseminate scientific methods that assist urban planning in creating public policies for disaster risk reduction. Understanding the role of scientific research in reducing disaster risks explains the importance of science in facing urban challenges, accentuating the significance of this relationship and the motivations that drive it. Academic participation in urban planning is an instrument for disseminating technology in cities, contributing to the construction of smart and sustainable cities[16–18].

This study aims to explore how academic research in urban planning can effectively contribute to disaster risk reduction. It seeks to identify key research focal points and their impacts, recognize shifts in research trends over time, and correlate the volume of research by category with reported disasters. This will be achieved through systematic literature review and bibliometric analysis techniques. The main contributions of this study include:

A systematic review of academic literature focusing on disaster risk reduction through urban planning;
Identification of state-of-the-art knowledge and analysis of metadata to recognize trends;
Correlational analysis of how disasters arise as a scientific motivation;
Impacts of social vulnerabilities on increasing disaster risks;
How urbanization and urban density impact disaster risks;
Community participation and knowledge mapping as risk reduction tools;
Mapping and creating public policies for disaster risk reduction.

Following this introduction, Section 3 details the paper's methodological approach. Next, Section 4 reveals the results and offers a discussion. Section 5 presents the key findings. contributions of the study. Lastly, Section 6 concludes the paper.

2.1. Climate Emergency and Disaster Risk Reduction

The composition of the Earth's atmosphere directly impacts the planetary capacity to retain and dissipate heat, a key player in altering the global average temperature. This sensitive system, when modified, can lead to Earth heating or cooling, such as the occurrence of natural phenomena that were responsible for the end of the last ice age, dated more than 23,000 years ago, and have played a significant role in shaping the planet's history, causing the global average temperature to drop from 7.8ºC to 14ºC at the beginning of the 20th century[19, 20].

The gradual change in the global average temperature is a natural phenomenon. Nevertheless, the significant emissions of greenhouse gases from human activity accelerate the global average temperature, making it an unnatural phenomenon of global warming. When analyzing the average temperature of the last 200 years, it is possible to see that the increase in this temperature from 1850 to 2020 exceeded 1ºC, demonstrating a rapid warming at a rate never seen before[21, 22].

The accumulation in the global average temperature has resulted in changes in the climatic characteristics of several cities worldwide. This phenomenon is also directly responsible for the significant increase in the quantity and intensity of extreme weather events such as storms and drought[11, 23]. The rise in greenhouse gas emissions and in the global average temperature results from human activities, making this phenomenon anthropogenic[24].

In 2023, the increase in the global average temperature surpassed recorded highs, making it the hottest year on record. With an increase of 1.45ºC compared to the pre-industrial era, the expansion exceeded projections [23, 25]. That year, 399 disasters were reported, 8% more than the average number of disasters reported from 2003 to 2022[26]. While a weather event may only last a few minutes or hours, the damage from these events can take years to repair, and, in many cases, it may be irreparable[27]. During 2023, 93.1 million people were affected by disasters, of which 86.4 thousand were fatalities. That same year, the sum of the global economic losses caused by disasters was US$202.7 billion[26].

In addition to directly increasing the number and intensity of extreme weather events, this phenomenon impacts the atmosphere, biosphere, and oceans, and its speed has brought the Earth to the so-called “point of no return”[28, 29]. Projections from the Sixth Assessment Report of the IPCC (Intergovernmental Panel on Climate Change) indicate that if the current rate of warming is maintained, a significant rise in extreme weather events and related disasters will occur[11].

Climate change is already having consequences in different regions of the world. Between 2000 and 2019, 6,681 disasters impacted 3.9 billion people[26, 30]. The review of post-disaster impacts indicates that disaster risk is formed by exposure to hazards and aggravated by social vulnerabilities. This factor requires multifactorial actions to identify and reduce risk[31]. Weather and geophysical events are considered natural phenomena resulting from physical atmospheric circumstances[32]. However, the damage caused by these events cannot be considered natural, as it results from a failure or lack of planning for disaster risk reduction and climate resilience[33].

Accelerated global warming and the increase in the amount and intensity of extreme weather events place the planet in a climate emergency. Reducing warming and the risks of disasters related to weather events requires decreasing and neutralizing greenhouse gas emissions[34]. This task requires the collective engagement and participation of all nations, especially those with the highest levels of greenhouse gas emissions into the atmosphere[35].

The Paris Agreement, signed in 2015, established goals for reducing greenhouse gas emissions, joining global efforts to neutralize them. The agreement's main goal was to reduce greenhouse gas emissions to limit the warming of the average global temperature by 2030 by 1.5ºC, compared to the period of the pre-industrial revolution[36]. Far from achieving this goal, the world's population is already experiencing the catastrophic impacts of climate change in their daily lives[26].

Mathematical projections indicate a constant increase in the global average temperature, making cities demand efficient approaches to building resilience and adapting to the consequences of climate change. These approaches need to reduce the impacts of catastrophes and ensure the sustainable growth of cities[10]. Urban planning is responsible for developing these approaches to mitigate disaster risks in the context of cities[33].

Historical records narrate disasters even before the planet went into a state of climate emergency, which shows that urban resilience is an ancient demand[37]. The increase in intensity and quantity of extreme weather events emerges as a factor that requires creating and implementing plans and actions to reduce the risks of disasters in the urban environment, making cities more resilient. Everyone’s role is crucial, as researchers worldwide have reached a scientific consensus on the urgency of adapting cities to climate change[11].

2.2. Urban Planning and Disaster Risk Reduction

Urban planning is a multidisciplinary study area concentrated on designing urban spaces in an integrated mode, considering urban mobility, work and income generation, habitation spaces, and recreation. It creates and applies policies for land use and exploration of natural resources to support the expansion of cities and ensure economic, social, and environmental sustainability, and supplies essential services, such as electricity. In this way, guaranteeing the sustainable development of cities demands adequate urban planning[38, 39].

Urban planning, a pressing need, not only ensures the sustainable construction of new cities but also accompanies the expansion and administration of existing ones. It involves creating and implementing strategies to achieve the 169 goals established in the SDGs[3, 40]. These strategies affirm the necessity of meeting these goals sustainably, ensuring the reduction or neutralization of emissions and promoting the use of natural resources to guide sustainable development. This approach has an urgent role in mitigating global warming and, consequently, the risks of related disasters[10, 35].

Most greenhouse gas emissions come from human activity, leaving urban planning responsible for mitigating those emissions or adopting nature-based solutions to neutralize environmental consequences[11]. At the same time, confronted with the climate emergency induced by the increased risk of disasters associated with extreme weather events, urban planning must develop and execute actions that ensure climate adaptation and increase the resilience of cities to minimize the risks and impacts of disasters[33].

While many cities share common characteristics, each one has individual geographical, social, and environmental characteristics, which demand the creation of region-specific disaster risk reduction policies. The Sendai Framework for Disaster Risk Reduction is a comprehensive guide to drive the development of policies for creating resilient cities[8]. This guide establishes that the starting point to create an efficient policy must be identifying risk areas. This identification must go beyond the mapping of physical risk, also considering socio-environmental, socioeconomic, and sociocultural vulnerabilities that may increase the damage to a vulnerable community in the event of disasters, causing delays or making it impossible for vulnerable groups to recover after disasters[41].

Another major challenge for urban planning is guiding the rapid population increase in cities. The global population duplicated in less than 50 years, from 4.01 billion people in 1975 to more than 8 billion in 2023. This number is projected to grow in the coming years, reaching more than 9 billion inhabitants by 2050, with most of that population living in urban areas[42]. Handling this population growth demands urban planning to create policies to expand urban areas without increasing risks and inequalities[43].

This urban growth occurs along with the migratory process of people from rural to urban areas, concentrated in large metropolises, called urbanization. In 2024, 55% of the world’s population was concentrated in urban areas, and this percentage is estimated to reach 68% by 2050[42]. This population expansion in cities demands planning to ensure there is no urban overload, meeting the needs of mobility, housing, food, electricity, health, education, and other essential services while ensuring urban security and resilience[44].

This population increase also requires changes in land use to develop new urban areas and extend existing ones. In 2022, these changes were responsible for the emission of 4.31 billion tons of CO_2[45]. In addition to guiding changes in land use in a sustainable mode and reducing or neutralizing emissions, urban planning must guarantee that houses are not built in risk areas, such as slopes and floodplains of rivers, and that land use does not aggravate soil waterproofing, making rainwater drainage difficult or impossible. These are fundamental actions to reduce disaster risks in urban planning[46].

Like cities, urban planning is a complex system with interconnected variables. Understanding the urban planning of a city requires a multidisciplinary methodological approach, which allows, within this context, to comprehend the expansion of cities, land use impacts, emission mitigation, and climate resilience and adaptation[14, 15]. Universities and research institutions are vital stakeholders in urban planning, acting in the creation and application of scientific approaches for mapping risk areas, developing technologies to reduce global warming through the reduction and neutralization of greenhouse gas emissions[18].

Although urban planning has frameworks to guide disaster risk reduction, the high number of disasters reported in 2023 indicates that climate adaptation is different from the reality of many cities[26]. This demonstrates that urban planning still faces major challenges in creating and implementing these strategies. Exploring the contributions and motivations of the academy for disaster risk reduction provides insight into the potential of urban planning to minimize risks, which is the main objective of this work.

The research question of "How can urban planning positively contribute to the disaster risk reduction efforts?" was addressed using the systematic literature review methodology, chosen for its ability to provide evidence-based answers[47]. This methodology followed predetermined inclusion and exclusion criteria to minimize research bias. The study utilized a three-phase approach: (a) identifying the research aim, question, and search criteria; (b) conducting the review; and (c) reporting and dissemination stage[48, 49]. This framework follows recommendations by experts in the field. The study followed the PRISMA (Preferred Reporting Items for Systematic Reviews and Meta-Analyses) procedure to ensure transparency, documenting outcomes at each phase[50].

Stage (a) of identifying research aim, question, and search criteria begins with defining general objectives related to understanding how urban planning can reduce disaster risks through current scientific research. The analysis focused on journal articles about ’urban planning’ that mentioned words such as "disaster", "catastrophes", or "calamities". The metadata used was obtained from the Web of Science scholarly repository, which lists a large number of periodicals related to this investigation subject[51]. The data was retrieved on May 27, 2024, using the search expression TS=(("urban planning" OR "city planning" OR "metropolitan planning" OR "town planning" OR "planning theory") AND (“disaster” or “catastrophe” or “calamity")), resulting in a database with 898 documents.

Following exclusion criteria, only journal papers were chosen, while other types, like textbooks or book chapters, conference proceedings, and other works written in languages other than English, were removed. This resulted in a database with 594 academic papers. These documents were examined utilizing the R programming language and Bibliometrix 4.0, a framework for automated bibliometric analysis that allows the identification of topics present in the sample through metadata analysis[52].

During the initial phase, criteria for inclusion and exclusion were established. These criteria will guide the systematic examination of literature and tailored to the characteristics of the population under study[53], as outlined in Table 1.

Table 1

Inclusion and exclusion criteria.
I/E	Criteria	Explanation
Exclusion	SER – Search Engine Reason	Paper with only title, abstract, and keyword in English.
	WF – Without Full-text	In English but not in full text.
	NR – Not Related	The definitions of vulnerability, catastrophe, disasters, and calamities are unrelated to urban planning or other kinds of disasters, such as terrorism and social disasters.
	LR – Loosely Related	Urban planning, disasters, catastrophes, or calamities are only used in keywords and/or references or as a cited expression.
Inclusion	CR – Closely Related	Disaster, catastrophe, or calamity is one of several objects to be reviewed, surveyed, or discussed in urban planning.
In the second stage, the systematic literature review was conducted, and the sample with 507 was classified according to the established inclusion and exclusion criteria. To avoid biased classification, the following criteria were established:

The article must explicitly discuss urban planning, considering possible synonyms such as “town planning”, “city planning”, “metropolitan planning”, “planning practice” and “urban design”[1].
Disasters can occur due to extreme weather events or geographical characteristics. Articles that mentioned disasters caused by climate change or a disaster from the “Disaster Category Classification and Peril Terminology for Operational Purposes” were considered[54].

After selecting the studies, a final sample was generated with the articles classified as “Closely Related”. These works were categorized according to the type of disaster studied, methodological approach, urbanization, motivation, and urban planning approach. The table with the list of analyzed articles and their classification is available in Appendix A; the conduction of the systematic literature review is summarized in Fig. 1.

Throughout the systematic literature review, tabulated information about the articles analyzed, such as the location studied and the category of disaster portrayed in the study, followed the categorization of disasters established in the Disaster Category Classification Guide and Peril Terminology for Operational Purposes of the Center for Research on the Epidemiology of Disasters (CRED)[54].

This categorization made it possible to quantify publications according to the disaster category and region studied. The indicators obtained while conducting the systematic literature review were compared to establish a correlation between the reported number of disasters and the damage caused by these events. This is a way to identify whether there is a correlation between the nature and region of the disasters reported and the publication of scientific articles. The analysis was conducted using the Pearson correlation coefficient calculation method, commonly used for numerical variables, enabling the determination of the strength and direction of the relationship between two variables by calculating a single quantitative measure [4] with this equation:

$$\:r=\frac{n\left(\sum\:xy\right)-\left(\sum\:x\right)\left(\sum\:y\right)}{\sqrt{\left[n\sum\:{x}^{2}-{\left(\sum\:x\right)}^{2}\right]\left[n\sum\:{y}^{2}-{\left(\sum\:y\right)}^{2}\right]}}$$

• r is the Pearson correlation coefficient.
• n is the number of data points.
• x and y are the respective data points.
• ∑xy is the sum of the products of corresponding values of x and y.
• ∑x and ∑y are the sums of x and y, respectively.
• ∑x2 and ∑y2 are the sums of the squares of x and y, respectively.

4.1. General Observations

Mitigating the impacts of extreme weather events and disasters has become one of the main challenges for public managers worldwide. The topic was on the agenda at major meetings of global leaders, such as the World Economic Forum and G20[55]. The systematic literature review pointed out that the topic is also widely discussed in the academic environment, with a strong commitment of researchers seeking solutions to reduce disaster risks through urban planning policies.

The analysis of the final sample made it possible to identify that there has been a polynomial growth in the number of articles published on the topic over the years. Of the 284 studies analyzed, 74% were published in the last six years (2018–2024), showing that the discussion about disasters in the context of urban planning is recent and it is growing, as illustrated in Fig. 2.

Finding efficient solutions for creating public policies to reduce disaster risks requires multidisciplinary support[56]. The bibliometric analysis of the sample showed a great interdisciplinary engagement that includes publications from various areas, such as Geosciences, Computational Sciences, Social Sciences, and others. This engagement favors the combination of empirical methods to create more comprehensive solutions, as illustrated in Fig. 3.

In addition to being multidisciplinary, the agenda of disaster risk reduction through urban planning appeared in 163 different journals, reflecting Bradford’s law, which explains the tendency of a few journals to have many publications on a specific topic. In contrast, many have few publications, according to their thematic niches[57]. One-third of the publications in the sample were concentrated in only seven journals, representing 5% of the journals listed, as illustrated in Fig. 4.

4.2. Disasters and their Impacts as a Scientific Motivation

The increase in the number and intensity of extreme weather events and disasters highlights the importance of creating public policies to reduce disaster risks[58]. This rise also motivated scientific research in climate mitigation and adaptation. Overall, 76.41% of the analyzed articles were prompted by prior occurrences of a disaster or climate event, while the remaining 23.59% addressed imminent risk or did not report previous disasters.

When analyzing the final sample of papers by country, it is possible to identify that previous climatic events motivate academic studies on affected regions differently. China was the most frequently mentioned country in articles, appearing in 56 papers. China also ranks first as being most affected by disasters. Between 2000 and 2023, China reported 717 disasters[30]. The second most affected country was the United States, with 590 reported disasters during this period. Despite this high number, the United States appeared in only 12 papers in this review.

Table 2: Indicators of the countries mentioned in 5 articles or more.

Locations	Papers	Reported Disasters (2000-2023)	Total Deaths (2000-2023)
China	57	717	117.042
Japan	17	170	23.066
Turkey	13	93	52.587
Chile	12	63	1.041
United States	12	590	9.451
Brazil	12	149	4.345
India	11	401	90.168
Italy	11	98	39.155
Korea	7	65	1.067
Iran	6	114	29.902
Indonesia	5	379	189.245
Australia	5	125	906
Spain	3	61	55.782

The correlation analysis revealed a moderate relationship (r = 0,6658843192) between the number of publications per country and the reported disasters in the region. This suggests that there is often a connection between the volume of studies on a region and the occurrence of disasters. Still, it also implies that disaster occurrences do not necessarily drive scientific production in that area. On another note, an analysis of the Total Deaths and Publications variables indicated a worthless correlation (r = 0,2812650249).

The systematic literature review identified the disaster categories most frequently discussed in urban planning. Articles were categorized according to the Disaster Category Classification and Peril Terminology for Operational Purposes, with studies discussing a specific disaster or more than three being classified as “General/Unspecified” [39]. Table 3 shows the number of papers divided by disaster category, also revealing the impacts caused by disasters in the presented category.

Table 3

Indicators of the disaster categories mentioned in the sample articles.
Disaster Category Classification	Number of Studies	Reported Disasters (2000–2023)	Total Deaths (2000–2023)
Flood	105	4.005	130.616
Earthquake	86	628	788.129
Landslide	34	358	19.993
Tsunami	27	30	252.730
Meteorological	24	1.285	455.554
Epidemic	9	893	118.080
Volcanic	6	9	516
Heat Wave	5	191	220.787
Drought	4	402	24.160
Wildfire	2	298	2.064
General / Unspecified	51	-	-

The correlational analysis revealed a strong correlation between the number of studies and reported disaster indicators (r = 0,7312806687). In contrast, the correlation between total deaths and number of studies is moderate (r = 0,5032046512). This suggests that the reported number of disasters by category influences the volume of studies on the topic. In contrast, the number of affected people does not have a similar impact.

4.3. Disaster Risk Reduction, Academic Participation

Mitigating the risks of disasters necessitates the involvement of a diverse team that can analyze different facets connected to an area’s geographical, societal, and governmental circumstances. This entails working alongside urban planners, civil engineers, architects, historians, sociologists, geologists, and other experts with expertise in urban planning and disaster risk management[59]. To achieve multidisciplinarity, it is necessary to comprehend disaster risks, including professionals from different areas with interdisciplinary urban planning knowledge, and improve urban planning as an essential topic in undergraduate courses[60].

Establishing a multidisciplinary team requires providing comprehensive training for professionals from diverse fields. Addressing the impacts of climate change on cities is crucial at all levels of education and academic research. Developing mitigation and resilience strategies emerges as an essential focus area in disseminating knowledge about climate resilience through urban planning[60, 61]. Adding practice and scientific knowledge to disaster risk reduction is one of the practices proposed by the Sendai Framework[8].

A systematic literature review has highlighted that involving academia as stakeholders in the urban planning process is vital for creating effective disaster risk reduction policies. Multidisciplinary academic participation ensures the use of evidence-based scientific methods to better comprehend disaster risks and develop suitable approaches to mitigate them[59]. In addition to promoting involvement from universities and research centers in finding solutions to reduce disaster risks, urban planning should also advocate for climate education at all educational stages as part of broader climate awareness efforts[62].

The study indicated a moderate correlation between the number of reported disasters and the number of scientific publications in the disaster category, with synergy between cities' demand to reduce disaster risks and academic purposes. This mutual relationship promotes the development of new solutions for urban areas and improves student education, encouraging the emergence of living labs. In the early stages of primary education, involving children and adolescents in discussions about disaster risk reduction is a way to disseminate risk management and environmental awareness, which can be shared with their families or communities. This approach also promotes the involvement of young students in developing practical solutions, increasing their sense of belonging[59, 63].

4.4. Social Vulnerabilities

A rising global average temperature places the world population in a state of climate emergency, and disasters tend to affect the population unevenly[23]. The lack of resources and opportunities experienced by vulnerable populations, such as people in poverty, food insecurity, migrant communities, and other minority groups, makes these people more vulnerable to disasters. They are the population with the most significant exposure to risks and with the highest difficulty accessing resources for post-disaster recovery[64, 65].

An extreme weather event can be measured in a few minutes or hours, but the damage caused by these events may take years to repair or be irreparable. In vulnerable communities, the post-disaster recovery period is even longer, and the marginalization of this population, often inhabiting areas with very low or no urban planning, makes them less resilient and adapted to extreme weather events[66].

In addition to being more exposed to disaster risks, vulnerable communities suffer from increased inequalities after a disaster. These factors highlight the importance of vulnerable communities in the creation of policies for disaster risk reduction, as established in SDG-11 (target 11.5): “The construction of smart cities requires disaster reduction actions focused on protecting the poor and vulnerable people”[13, 40].

To understand how urban planning can and should consider vulnerabilities as part of the disaster risk reduction plan while conducting the systematic literature review, the papers that discussed social vulnerabilities were analyzed and categorized, where the following vulnerabilities were identified:

Race: Black people, indigenous peoples, and migrants of other ethnicities tend to inhabit regions with greater exposure to disaster risks and are the group that has the most significant difficulty recovering after the occurrence of a disaster[67, 68]. Hurricane Katrina, a climate event that occurred in 2005 on part of the West Coast of the United States, caused disasters in several cities. Post-disaster analysis showed that the black population is among the group of people who took the longest time to recover, a fact that further increased social inequalities in the region[69, 70];
Poverty: Social classes and the inequalities of access and opportunities caused by them increase the risk of disaster. In cities, affluent areas have more adequate infrastructure, while deprived populations occupy risk areas. The lack of financial resources delays and often makes it impossible for these communities to recover after disasters[56, 58, 71, 72];
Gender: Inequalities in access and opportunities for women are a factor that places families whose women are responsible for the family's financial provision in a situation of high vulnerability, either because they tend to inhabit marginalized areas or because of the difficulty of accessing resources for post-disaster recovery[70, 73];
Age: The age of the population changes the exposure index to disaster risks. Children and the elderly with reduced mobility need access to resilience tools before and after a disaster[74];
Education: The population's level of access to education may result in increased exposure to disaster risks. Environmental education makes the population conscious of the best practices for using natural resources and disposing of waste[75, 76]. Integrating disaster education into basic education is essential to reduce post-disaster impacts, making the population aware of the proper management and storage of water and food, and preventing the onset of diseases such as dengue and leptospirosis[77]. Education also emerges as a tool to create climate adaptation and resilience through simulations for action in case of emergency and environmental awareness campaigns[78].

Effectively reducing disaster risks requires mapping and monitoring social vulnerabilities, which must occur individually in each region, considering local specificities[79, 80]. In addition to the social vulnerabilities mentioned above, while conducting the systematic literature review, some studies indicated other vulnerabilities that must be considered, such as the number of homeless people, identification of comorbidities, and areas with difficult access[81, 82].

4.5. Urbanization and Population Density

Population growth, especially in urban areas, requires expanding housing areas and infrastructure. Currently, 56% of the world’s population resides in large urban centers. However, this rate is estimated to reach 68% by 2050[42]. Population migration to urban centers is known as urbanization; when it occurs disorderly and without adequate planning, this process can cause housing increases in risk areas, such as slopes or regions prone to flooding[83].

Adapting to urbanization often requires the replacement of forests and green areas with buildings and roads. These changes in land use cause waterproofing of urban regions, hindering river drainage, enhancing the risk of flooding. In addition to increasing flood risks, housing in unsuitable or unprepared areas intensify exposure to other disasters, such as earthquakes, landslides, and tsunamis[84].

Apart from identifying and monitoring areas with disaster risks, urban planning must monitor regional population growth and guide land use, ensuring that new risk areas are not occupied and applying mechanisms to reduce the risks of areas already occupied[85]. To be effective, the mapping of urbanization must consider urban dynamics that may temporarily alter regional demographic density, such as the movement of people in a given region during an event, tourism, and displacement[86].

The availability of remote sensing technologies allows urban planning to use tools to identify population distribution, generating georeferenced indicators of urban density that can be correlated with other social indices, ensuring that possible social vulnerabilities be considered[85]. Other technologies, such as monitoring devices connected by antenna and region, make it possible to monitor demographic density in real time and identify dynamic patterns[84].

The systematic literature review pointed out that urbanization and land use are recurrent concerns of researchers in the search for solutions to reduce disaster risks. 68% of the articles analyzed identify urbanization and land misuse as factors that increase disaster risks and should be considered in creating public urban planning policies[87].

4.6. Community-Based Approach and Knowledge Mapping

Creating public policies capable of meeting regional, social and geographical specificities requires the mapping of local knowledge and the community’s participation in planning and implementing public policies to reduce disaster risks, in addition to ensuring the reduction of biases[87, 88]. It also legitimizes the process and promotes knowledge[72].

Although many public policies are created or approved by elected regional representatives, the reduction of vulnerabilities is achieved only when there is broad community-based participation in this process, which occurs through public consultations[89], participation of Non-Governmental Organizations (NGOs)[90], community organizations [91] and activist groups[92].

In active participation, community representatives play a fundamental role in the collaborative process of vulnerability mapping and urban planning co-design[93], bringing practical knowledge about specific local conditions and, in some cases, experience in disasters and previous extreme weather events[94]. This participation also happens through political pressure exerted by the community to bring about changes that guarantee the reduction of risks[80].

One of the efficient ways for urban planning to map and aggregate regional knowledge when creating policies is using surveys and interviews with stakeholders, considering not only the population but also the risk management team[38, 60]. Surveys and interviews are traditional ways of aggregating the community as part of the process; however, the availability of technological resources for geoprocessing and data analysis allows urban planning to use techniques for collecting social and geographical information in a passive way[93, 95].

Community participation guarantees the collection of local knowledge, allowing better categorization for regional risks[96], which must consider the effective participation of different social groups, including women, the elderly, people with disabilities, and marginalized communities[14]. This practice also improves social engagement through environmental awareness and education, where local schools must be part of the community-based methodology[95].

4.7. Urban Planning Based on Geographic Information System

The development of public policies to manage or reduce disaster risks relies on accurately mapping the region’s vulnerabilities and potential hazards[97, 98]. The availability of historical data coupled with advancements in remote sensing technologies has made it feasible to generate maps and risk indicators, providing vital information for policymakers and public administrators[99]. The combination of remote sensing techniques with data analysis allows the creation of maps and indicators associating geographical conditions with census data, enabling the identification of geographical risks correlated to regional socioeconomic vulnerabilities[100, 101].

In addition to identifying risk areas, remote sensing techniques allow urban planning to identify and monitor urban dynamics and land use, essential information for creating policies that can guide the urbanization process sustainably[102]. Another advantage of using georeferenced data and remote sensing as a tool for urban planning is mapping post-disaster damage and environmental changes, thus enabling the creation of policies focused on environmental repair[103].

Meteorological mapping makes it possible to predict and monitor weather phenomena such as rains, air currents, and heat waves, which are essential information to guide climate adaptation policies and reduce the impacts of disasters[104, 105]. These indicators are also relevant for issuing alerts and creating escape routes[106, 107]. Combining remote sensing techniques with mathematical and statistical methods allows the creation of probabilistic models to measure the impacts of a possible disaster. These models also make it possible to measure urban density based on monitoring urban dynamics and urbanization[99, 108].

A systematic literature review confirmed that analyzing georeferenced information is essential for mitigating disaster risks through urban planning, as evidenced in 122 articles included in the studies analyzed. The processing of georeferenced information can be performed with different tools, the most used being QGIS, Google Earth Engine, Python, ArcGIS[109, 110].

4.8. Creation and Implementation of Public Policies to Reduce Disaster Risks

Reducing greenhouse gas emissions to mitigate climate change is an urgent measure, and projections published by the IPCC indicate that exceeding the 1.5ºC of global warming proposed in the Paris Agreement will cause irreversible damage to all terrestrial ecosystems, increasing, even more, the intensity and quantity of extreme weather events and, consequently, the number of disasters[10].

Accelerated global warming is the result of anthropogenic action; progressing to decelerate or decline this warming requires changes in human actions responsible for large-scale emissions, reducing or neutralizing emissions from sectors such as energy production, transportation, and industrial processes, sectors that in 2020 were responsible for the emissions of 65% of all Carbon Equivalent (MtCO2e) released into the atmosphere[35].

The key to mitigating climate change lies in the creation and implementation of effective public policies. These policies should facilitate the transition from polluting production processes to sustainable ones[111]. They should also promote the use of renewable resources, advocate for environmental restoration to neutralize emissions or environmental damage, support circular economy practices, and encourage environmental education[112].

Mitigating warming to reduce disaster risks is an essential key to disaster risk reduction. On the other hand, the current level of warming has already expanded disaster risks worldwide, highlighting the need to create public policies for mitigation, resilience, and climate adaptation to ensure that cities can resist increasingly intense and frequent weather events[10].

Creating disaster risk reduction policies must start with identifying risk areas and their social vulnerabilities and considering and classifying local geographical and socioeconomic characteristics. This mapping must be conducted locally. Risk identification must be an instrument that guides the creation of public policies and awareness-raising actions[113].

Policies to mitigate warming through the reduction of greenhouse gas emissions and resilience and climate adaptation policies require the engagement of a multidisciplinary team capable of conducting a local diagnosis and creating public policies that consider regional characteristics and socio-economic, environmental, and cultural aspects[61, 114].

Creating policies without risk mapping and categorization can result in vulnerabilities in the event of disasters[113]. Another critical factor that must be considered is the creation of policies for response during the disaster and after it, ensuring that the affected population has access to emergency resources that guarantee the preservation of their physical integrity during a disaster and provide for repair or reconstruction after the occurrence of a disaster[115].

One of the instruments adopted to reduce disaster risks is the Sendai Framework for Disaster Risk Reduction, a framework launched in 2015 that provides guidelines for the creation and implementation of policies for disaster risk reduction, dividing into four pillars: (i) Understanding disaster risk; (ii) Strengthening disaster risk governance to manage disaster risk; (iii) Investing in disaster reduction for resilience; a (iv) Enhancing disaster preparedness for effective response, and to recovery[8].

The COVID-19 pandemic placed the population of several countries under quarantine, demanding individuals and businesses to reinvent and adapt their work, social interaction, and leisure models to the restrictions imposed. This reinvention of routine created the “new normal” culture, referencing that the adopted quarantine model would be the new concept of normality. The immunological interventions developed by the scientific community and the quarantine and lockdown regimes caused by COVID-19 have ended[116].

Just as COVID-19 changed the routine of a large part of the world’s population, climate change and its related disasters have already become part of the daily lives of several people in different countries, so the “new normal” concept also emerged in the context of discussions about climate change[117, 118]. Although this term suggests that there is an immutable normality that must be accepted, increases in the number and intensity of extreme weather events highlight the state of climate emergency, so mitigation and resilience actions must follow this emergency rigor[11].

As complex systems, cities demonstrate the characteristic adaptation and self-organization. However, it's important to note that adaptation occurs differently in each region. The basis for developing effective strategies for disaster risk reduction is risk and city mapping, considering the multi-factorization inherent in both systems[14]. This perspective shows the relevance of viewing disaster risks not just as physical hazards, but as events with wide-ranging environmental, social, and cultural impacts. The IPCC's ongoing discussion on vulnerability analysis, initiated in 1997 with the publication of the special report “The Regional Impacts of Climate Change: An Assessment of Vulnerability,” is a key part of this understanding[119].

Creating urban resilience is a complex task that involves multiple disciplines. The mapping of practices to reduce disaster risks requires a comprehensive methodology that can encompass these diverse areas of knowledge[120]. In this work, a systematic literature review was conducted to provide an extensive summary of the practices adopted by urban planning to reduce disaster risks. The review, which considered academic works from 37 categories, highlighted the instrumental role of scientific research in this comprehensive approach.

Scientific research, particularly papers published by universities and research centers, is a key player in preparing cities to face disaster risks. In a systematic literature review, 77.5% of the papers analyzed pointed to an imminent risk and discussed the possibility of a future disaster. The remaining 22.5% analyzed previous disasters, discussing how they impacted a particular region. Notably, universities play a significant role in publishing studies of the most affected areas. Table 2 shows that the countries with the most reported disasters have at least five publications discussing regional disasters. These publications underscore the importance of scientific research and academia in regional analyses for disaster risk reduction and provide indicators and notes capable of guiding the creation of public policies.

Constructing local strategies for climate adaptation and resilience requires investment, and the lack of access to financial resources in emerging countries and regions leaves marginalized populations more exposed to disaster risks[79, 121]. In addition to financial resources, building climate adaptation and resilience strategies demands political awareness of the importance of mitigating disaster risks. This awareness must go beyond the government, with monitoring and pressure from the population, so that risk areas are mapped and strategies are created to manage risks[92].

This systematic literature review identified strategies adopted by urban planning on two-time fronts (pre-disaster and post-disaster). Furthermore, the actions were classified according to their nature, divided into actions to solve regional physical issues and actions focused on reducing social issues, as illustrated in Fig. 5.

The research also surveyed and compared scientific production regarding the areas most affected by disasters, pointing out a moderate correlation. However, a significant disparity exists in analyzing the countries with the highest contributions to greenhouse gas emissions. While local actions are necessary to address the climate emergency, analyzing those countries indicates that only a few nations are responsible for most emissions. In 2020, China and the United States accounted for 37% of greenhouse gases released into the atmosphere[122]. This significant emission rate raised discussions about climate justice and underscored the crucial role of international cooperation. Countries with high levels of pollution should cooperate to improve climate resilience and adaptation in developing countries[123].

The climate emergency exposes all countries to some risk. Yet, some countries are more affected by climate adaptation mechanisms or need more resources to create and implement them [118]. This research pointed out that academic interest in disaster risk reduction in urban planning is a growing topic. Research on the regions that report more disasters is conducted comprehensively, with content on different categories of disasters, showing the relevance of urban planning to include universities as stakeholders in the creation of policies for mapping and risk reduction. The participation of universities ensures the integration of multidisciplinary discussions and the creation and application of effective methods.

Urban planning is crucial for mitigating the impacts of disasters, enhancing community resilience, and promoting sustainable development. This systematic review highlights the importance of integrating risk assessments into urban planning processes, emphasizing adaptive infrastructure design and inclusive planning practices that involve local communities in decision-making. Key challenges identified include inadequate policy implementation, resource constraints, and the need for interdisciplinary collaboration. Effective disaster risk reduction (DRR) requires a multifactorial and multidisciplinary approach that considers each city's unique regional characteristics. This review underscores the potential of urban planning to reduce disaster risks and enhance urban resilience. The findings suggest that incorporating scientific research into urban planning can significantly contribute to DRR by providing evidence-based strategies and technologies. For policymakers, urban planners, and researchers, the review recommends prioritizing the integration of risk assessments into urban planning, fostering community engagement, and promoting interdisciplinary collaboration. Addressing these challenges can strengthen DRR initiatives and contribute to the development of safer, more resilient cities. By advancing the understanding of how urban planning can mitigate disaster risks, this review contributes to the growing body of knowledge in DRR, emphasizing the critical role of strategic urban planning practices in creating resilient urban environments.

Author Contribution

J.F.S.A.F. and T.T.P.C. developed the conceptualization and design of the study.J.F.S.A.F. and T.T.P.C. performed the literature review.J.F.S.A.F. conducted the data analysis.T.T.P.C. and T.Y. validated the analysis.J.F.S.A.F. prepared the figures and tables.J.F.S.A.F. and T.T.P.C. and T.Y. wrote the manuscript.All authors reviewed and approved the final version of the manuscript.

Acknowledgement

J.F.S.A.F. acknowledges the scholarship received from Universidade Nove de Julho.T.T.P.C. acknowledges the productivity grant from the National Council for Scientific and Technological Development (CNPq).

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Urban Planning for Disaster Risk Reduction: A Systematic Review of Essential Requirements

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Abstract

Figures

1. Introduction

2. Literature Background

2.1. Climate Emergency and Disaster Risk Reduction

2.2. Urban Planning and Disaster Risk Reduction

3. Research Design

4. Analysis and Results

4.1. General Observations

4.2. Disasters and their Impacts as a Scientific Motivation

4.3. Disaster Risk Reduction, Academic Participation

4.4. Social Vulnerabilities

4.5. Urbanization and Population Density

4.6. Community-Based Approach and Knowledge Mapping

4.7. Urban Planning Based on Geographic Information System

4.8. Creation and Implementation of Public Policies to Reduce Disaster Risks

5. Findings and Discussion

6. Conclusion

Declarations

Author Contribution

Acknowledgement

References

Additional Declarations

Supplementary Files

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