Need for Disaster Preparedness
By Thabile Sokupa
The recent earthquake that devastated Haiti resulted in an estimated 200 000 deaths with many more people left injured and displaced. The tragic situation has raised key issues on the preparedness of South Africa’s disaster management units in dealing with these unforeseen phenomena, particularly at the local municipality level. Municipalities should constantly be alert and prepared for incidences of natural disasters, especially as a result of global warming. Just how prepared are we as a country for these natural disasters?
Since the former South African President Thabo Mbeki signed the Disaster Management Act (Act 57 of 2002), a host of disaster management officials have been involved in the development of new policies and discussions hosted by the Disaster Management Institute of Southern Africa (Yodmani, 2001). The Disaster Management Bill of 2002, as compared to the previous Civil Defence Act (Act 67 of 1977) and as amended by the Civil Protection Act (Act 82 of 1980), places emphasis on the importance of measures “to avoid and minimise human and economic losses and establishes prevention and mitigation as the core principle of a future disaster management policy,” (Disaster Management Bill, 2002: 66).
The Disaster Management Act (2002) provides disaster management officials with a new focus on disaster management. It presents new challenges in not only negotiating and writing up disaster management plans, but also in developing disaster management plans for general public scrutiny. Public scrutiny and acceptance of disaster management plans, prior to implementation, has become a legislative requirement (Municipal Systems Act: 2000). In section 25 of the Municipal Systems Act (Act 32 of 2000), it is indicated that each municipality should adopt a “single, inclusive and strategic plan for the development of a municipality.” The plan referred to is the Integrated Development Plan. The same Act, in section 26(g), dictates that “applicable disaster management plans” are a core component of the integrated development plan of a municipality.
Therefore, the challenge is to develop a disaster management plan that all stakeholders—community, commercial and industrial—in a municipal area are able to comprehend and implement within their own setting and which indicates the procedures and processes required to minimise the threat of disaster using a developmental approach. Another challenge includes community and other stakeholder participation in not only the activation of disaster response procedures, but also in mitigation and development initiatives, which would enhance development. However, the problem with the Disaster Management Act (Act 57 of 2002) is that it does not provide detailed guidance for the preparation of disaster management plans, which can be included in an integrated development plan. The lack of guidance, for the preparation of disaster management plans, leaves municipal disaster management units in a quandary.
Some of the information in a disaster management plan concerns operational procedures, which are not for general stakeholder consumption (Kent, 1992:5 and 9). The challenge exists in deciding which of the multiplicity of disaster plan components should be included in the integrated development plan. The provision of section 26(g) of the Municipal Systems Act (Act 32 of 2000) is clear: “applicable disaster management plans” are required in an integrated development plan document as it is legislated as a core component of an integrated development plan.
For example, the business community uses models of strategic planning as an integral part of planning for the future in an effort to ensure that profits are maximised. A similar model could be used by local officials in planning for an effective and efficient disaster management strategy.
Municipalities are required to develop strategic plans in order for their stakeholder needs to be satisfied. These needs include, but are not limited to, sustainable growth, equity and the empowerment of disadvantaged persons. Section 26(g) of the Municipal Systems Act (Act 32 of 2000) includes “applicable disaster management plans” as a core component of the integrated development plan. Each municipal entity is therefore required by law to develop an integrated development plan, which has to include a consultative process with all stakeholders prior to its final publication. (Municipal Systems Act, 32 of 2000: Section 25).
The global review of disaster risk initiatives indicates that disaster reduction strategies demand political “statesmanship” in order to link sustainable development and local development to disaster risk reduction. “Statesmanship” in this context refers to political will to recognise and act on “issues of risk” (United Nations, 2002:8), this “statesmanship” is still unfortunately lacking within our local authorities to deal decisively with issues of disaster management.
However, it should be noted that the Disaster Management Act (Act 57 of 2002) in its various sections supports the United Nations Inter-Agency Task Force’s objectives to “increase public awareness [so as] to understand risk, vulnerability and disaster reduction,” (Living with risk, 2002:20). Chapter 5 of the Disaster Management Act (Act 57 of 2002) indicates that public awareness of disaster risks and public participation in disaster reduction are key factors of disaster management. Moreover, Section 26(g) of the Municipal Systems Act (Act 32 of 2000) states that disaster management plans are required to be included in a municipal integrated development plan. Currently, no legislation in South Africa provides detailed guidance of which components of a municipal disaster management plan should be included in the integrated development plan. This presents the question: Which of the disaster management plan components, as identified by Kent (1992: 12), should be included in the Integrated Development Plan, as a Disaster Management Plan could be, and very often is, a lengthy document, which includes technical information together with sensitive information not for general consumption by stakeholders.
An Integrated Development Plan should encompass the full spectrum of disaster risk management components, and the disaster management plans and activities should be flexible (Mitchell, 2003). These must include response, rehabilitation, reconstruction, mitigation and preparedness, but with an emphasis on ensuring that sustainable development does not only consider the development standards related to financial aspects, but also to the sustainability of development for enjoyment and use by future generations. Future risk must be assessed now in order to ensure that neither risk nor vulnerability is increased.
References
• Kent, R. 1992. UNDMTP. Disaster Preparedness. 1st Edition. UNDRO
• Mitchell. T. 2003. An Operational Framework for Mainstreaming Disaster Risk Reduction. [Online] http://www.benfieldhrc.org/SiteRoot/disaster_studies/working_papers/workingpaper8.pdf
• South Africa. 1995. Development Facilitation Act, Act 67 of 1995. Pretoria: Government Printer.
• South Africa. 2000. Local Government Municipal Systems Act 32 of 2000. Pretoria: Government Printer.
• South Africa. 2002. Disaster Management Act 57 of 2002. Pretoria: Government Printer.
• South Africa. Department of Provincial and Local Government. 1999. White Paper on Disaster Management. Pretoria. Government Printer.
• South Africa. Department of Provincial and Local Government. 2001. Publication for Public Comment: Draft Municipal Integrated Development Planning Regulations, 2001. [Online] http://www.local.gov.za/DCD/news/draft.html.
• South Africa. Ministry for Provincial Affairs and Constitutional Development. 1998. Green Paper on Disaster Management. Pretoria. Government Printer.
• UNDMTP, 1992. Overview of Disaster Management. 2nd Edition. [Online] http://www.undmtp.org/english/Overview/overview.pdf Accessed: 17 March 2004.
• United Nations. 2002. Living with Risk. A global review of disaster reduction initiatives. Geneva, Switzerland.
• http://www.undp.org/bcpr/
• Yodmani, S. 2001. Disaster Risk Management and Vulnerability Reduction: Protecting the Poor. Paper presented at the Asia and Pacific Forum on Poverty Organized by the Asian Development Bank.
The recent earthquake that devastated Haiti resulted in an estimated 200 000 deaths with many more people left injured and displaced. The tragic situation has raised key issues on the preparedness of South Africa’s disaster management units in dealing with these unforeseen phenomena, particularly at the local municipality level. Municipalities should constantly be alert and prepared for incidences of natural disasters, especially as a result of global warming. Just how prepared are we as a country for these natural disasters?
Since the former South African President Thabo Mbeki signed the Disaster Management Act (Act 57 of 2002), a host of disaster management officials have been involved in the development of new policies and discussions hosted by the Disaster Management Institute of Southern Africa (Yodmani, 2001). The Disaster Management Bill of 2002, as compared to the previous Civil Defence Act (Act 67 of 1977) and as amended by the Civil Protection Act (Act 82 of 1980), places emphasis on the importance of measures “to avoid and minimise human and economic losses and establishes prevention and mitigation as the core principle of a future disaster management policy,” (Disaster Management Bill, 2002: 66).
The Disaster Management Act (2002) provides disaster management officials with a new focus on disaster management. It presents new challenges in not only negotiating and writing up disaster management plans, but also in developing disaster management plans for general public scrutiny. Public scrutiny and acceptance of disaster management plans, prior to implementation, has become a legislative requirement (Municipal Systems Act: 2000). In section 25 of the Municipal Systems Act (Act 32 of 2000), it is indicated that each municipality should adopt a “single, inclusive and strategic plan for the development of a municipality.” The plan referred to is the Integrated Development Plan. The same Act, in section 26(g), dictates that “applicable disaster management plans” are a core component of the integrated development plan of a municipality.
Therefore, the challenge is to develop a disaster management plan that all stakeholders—community, commercial and industrial—in a municipal area are able to comprehend and implement within their own setting and which indicates the procedures and processes required to minimise the threat of disaster using a developmental approach. Another challenge includes community and other stakeholder participation in not only the activation of disaster response procedures, but also in mitigation and development initiatives, which would enhance development. However, the problem with the Disaster Management Act (Act 57 of 2002) is that it does not provide detailed guidance for the preparation of disaster management plans, which can be included in an integrated development plan. The lack of guidance, for the preparation of disaster management plans, leaves municipal disaster management units in a quandary.
Some of the information in a disaster management plan concerns operational procedures, which are not for general stakeholder consumption (Kent, 1992:5 and 9). The challenge exists in deciding which of the multiplicity of disaster plan components should be included in the integrated development plan. The provision of section 26(g) of the Municipal Systems Act (Act 32 of 2000) is clear: “applicable disaster management plans” are required in an integrated development plan document as it is legislated as a core component of an integrated development plan.
For example, the business community uses models of strategic planning as an integral part of planning for the future in an effort to ensure that profits are maximised. A similar model could be used by local officials in planning for an effective and efficient disaster management strategy.
Municipalities are required to develop strategic plans in order for their stakeholder needs to be satisfied. These needs include, but are not limited to, sustainable growth, equity and the empowerment of disadvantaged persons. Section 26(g) of the Municipal Systems Act (Act 32 of 2000) includes “applicable disaster management plans” as a core component of the integrated development plan. Each municipal entity is therefore required by law to develop an integrated development plan, which has to include a consultative process with all stakeholders prior to its final publication. (Municipal Systems Act, 32 of 2000: Section 25).
The global review of disaster risk initiatives indicates that disaster reduction strategies demand political “statesmanship” in order to link sustainable development and local development to disaster risk reduction. “Statesmanship” in this context refers to political will to recognise and act on “issues of risk” (United Nations, 2002:8), this “statesmanship” is still unfortunately lacking within our local authorities to deal decisively with issues of disaster management.
However, it should be noted that the Disaster Management Act (Act 57 of 2002) in its various sections supports the United Nations Inter-Agency Task Force’s objectives to “increase public awareness [so as] to understand risk, vulnerability and disaster reduction,” (Living with risk, 2002:20). Chapter 5 of the Disaster Management Act (Act 57 of 2002) indicates that public awareness of disaster risks and public participation in disaster reduction are key factors of disaster management. Moreover, Section 26(g) of the Municipal Systems Act (Act 32 of 2000) states that disaster management plans are required to be included in a municipal integrated development plan. Currently, no legislation in South Africa provides detailed guidance of which components of a municipal disaster management plan should be included in the integrated development plan. This presents the question: Which of the disaster management plan components, as identified by Kent (1992: 12), should be included in the Integrated Development Plan, as a Disaster Management Plan could be, and very often is, a lengthy document, which includes technical information together with sensitive information not for general consumption by stakeholders.
An Integrated Development Plan should encompass the full spectrum of disaster risk management components, and the disaster management plans and activities should be flexible (Mitchell, 2003). These must include response, rehabilitation, reconstruction, mitigation and preparedness, but with an emphasis on ensuring that sustainable development does not only consider the development standards related to financial aspects, but also to the sustainability of development for enjoyment and use by future generations. Future risk must be assessed now in order to ensure that neither risk nor vulnerability is increased.
References
• Kent, R. 1992. UNDMTP. Disaster Preparedness. 1st Edition. UNDRO
• Mitchell. T. 2003. An Operational Framework for Mainstreaming Disaster Risk Reduction. [Online] http://www.benfieldhrc.org/SiteRoot/disaster_studies/working_papers/workingpaper8.pdf
• South Africa. 1995. Development Facilitation Act, Act 67 of 1995. Pretoria: Government Printer.
• South Africa. 2000. Local Government Municipal Systems Act 32 of 2000. Pretoria: Government Printer.
• South Africa. 2002. Disaster Management Act 57 of 2002. Pretoria: Government Printer.
• South Africa. Department of Provincial and Local Government. 1999. White Paper on Disaster Management. Pretoria. Government Printer.
• South Africa. Department of Provincial and Local Government. 2001. Publication for Public Comment: Draft Municipal Integrated Development Planning Regulations, 2001. [Online] http://www.local.gov.za/DCD/news/draft.html.
• South Africa. Ministry for Provincial Affairs and Constitutional Development. 1998. Green Paper on Disaster Management. Pretoria. Government Printer.
• UNDMTP, 1992. Overview of Disaster Management. 2nd Edition. [Online] http://www.undmtp.org/english/Overview/overview.pdf Accessed: 17 March 2004.
• United Nations. 2002. Living with Risk. A global review of disaster reduction initiatives. Geneva, Switzerland.
• http://www.undp.org/bcpr/
• Yodmani, S. 2001. Disaster Risk Management and Vulnerability Reduction: Protecting the Poor. Paper presented at the Asia and Pacific Forum on Poverty Organized by the Asian Development Bank.