'; SOUTH AFRICAN CIVIL DEFENCE ORGANISATION AND ADMINISTRATION WITH PARTICULAR REFERENCE TO THE CAPE PENINSULA by Town Andre de Villiers Smit Cape of Thesis submitted in fulfilment of the requirements of the Degree of Master Universityof Public Administration Department of Public Administration University of Cape Town 1981 ,,, The copyright of this thesis vests in the author. No quotation from it or information derived from it is to be published without full acknowledgementTown of the source. The thesis is to be used for private study or non- commercial research purposes only. Cape Published by the University ofof Cape Town (UCT) in terms of the non-exclusive license granted to UCT by the author. University If it be now, 'tis not to come; if it be not to come, it· will be now; if it be not now, yet it will come: the readiness is all ••• [Shakespeare: Hamlet V.ii.] j DEDICATION . This thesis is affectionately dedicated to my parents PREFACE Apart from the threats that face South Africa, the devastating flood disaster which struck Laingsburg on January 25, 1981 has added to the importance and timeliness of this study. The Laingsburg disaster serves to remind man of nature's threat to man's existence. It also serves as a reminder that disasters do occur, and that :the accompanying destruction and trage~y are so profound that man cannot express it with his limited system of reference • . The flood added another page to the evergrowing chronicle of disaster, death and destruction. While events such as the Laingsburg disaster may be catalogued and then forgotten, to some the deep experience of pain remains indelibly inscribed on the parchment of human memory - a script that fades less easily. In the wake of disasters it would follow that man, in an endeavour to avoid death and destruction, would develop means for his protection. In some instances yes, in most no. The greatest tragedy for civil defence is that when people die and suffer we are alert - but we don't always remain so. J ACKNOWLEDGEMENTS This research undertaking would not have been possible if it were not for the \ .. very many who generously assisted me. Professor J. Beekman, my promoter, needs to be singled out for a very special word. of appreciation, not only for his constant guidance and asssitance but also for his unending patience and support. Many people were closeted with me for hours, in some cases days, as we dealt with masses of material. These were the stalwarts and qualify for my very sincere appreciation. They are Mr C. Crous, Department of Local Government · (CPA); Mr D. Craythorne and Dr T. du Toit, Divisional Council of the Cape; Major R. Douglas, City Council of Cape Town; Dr M. Jooste and Mr P. Ford, Department of Hospital Services (CPA); Commandant I. Logie, Western Province Command; Brigadier C. Muller, Directorate of Civil Defence; Dr A. Mac Mahon and Mr A. Wiid, Emergency Services Centre; and Dr. J. Raubenheimer, Department of Health, Welfare and Pensions. My appreciation is expressed to the many others who assisted me. They are Mr P. du Preez, Municipality of Milnerton; Ms J. Durapdt, Camps Bay High School; Mr ·c. du Toit, Divisional Council of Ceres; Dr B. Fitzpatrick and Mr J. Brooks, Electricity Supply Commission; Mr J. Huegerich, Chapel Hill Police Department (USA); Mr F. Knoetze, Department of Education (CPA); Mr A. le Roux, Municipality of Ceres; Mr J. McMullin, Sandton Fire Department; Ms D. Radloff, South African Nursing As?ociation; Colonel J. Slabber, formerly Western Province Command; Ms Van der Merwe and Mr Van der Westhuizen, City Council of Pretoria; and Ms E. Wilson, Disaster Research Centre (USA). I am grateful to Mr F. Theron, University of Cape Town, for reading the thesis and assisting me with the academic style and presentation. For the onerous task of typing and retyping the various manuscripts I owe a tremendous debt of gratitude to Ms T. Butler, Old Mutual. The generous financial assistance of the Human Sciences Research Council is gratefully acknowledged. Andre de Villiers Smit Cape Town, April 1981 CONTENTS PAGE LIST OF MAPS LIST OF FIGURES ii LIST OF ABBREVIATIONS iii 1. INTRODUCTION 1 1.1 The civil defence perspective 1.2 Intent 1.3 Definitions 1.4 Research methodology 1.5 Introduction to the South African civil defence structure 1.6 Notes 2. DEVELOPMENT OF CIVIL DEFENCE IN SOUTH AFRICA 11 2.1 Introduction 2.2 Second World War Period 1939 - 1949 2.3 Post-Second World War Period 1947 - 1977 2.4 Comments 2.5 Notes 3. DISASTER CLASSIFICATION, INCIDENTS AND PROBABILITY 24 3.1 Introduction 3.2 Classification of disaster-types and incidents 3.3 Probability of disasters 3.4 Comments· 3.5 Notes 4. LEGISLATION 48 4.1 Introduction 4.2 Civil Defence Act, 1977 (Act. 67 of 1977) 4.3 Regulations as amended under the Civil Defence Act, 1977 4.4 Civil Defence Ordinance, 1977 (Ordinance No. 8 of 1977) as amended 4.5 Regulations under the Civil Defence Ordinance, 1977 4.6 Fund-raising Act, 1978 (Act 107 of 1978) as amended 4.7 Regulations under the Fund-raising Act, 1978 4.8 Comments 4.9 Notes PAGE 5. SOUTH AFRICAN DEFENCE FORCE 66 5.1 Introduction 5.2 Past civil defence activities 5.3 Structure 5.4 Civil defence and related function 5.5 Cape Town based operations 5.6 Comments 5.7 Notes 6. DEPARTMENT OF HEALTH, WELFARE AND PENSIONS 82 6.1 Introduction 6.2 Past civil defence activities 6.3 Structure 6.4 Function 6.5 Civil defence function 6.6 Civil defence activity - Cape Town 6.7 Comments 6.8 Notes 7. PROVINCIAL ADMINISTRATION OF THE CAPE OF GOOD HOPE 96 7.1 Introduction 7.2 Structure 7.3 Department of Education 7.4 Department of Local Government 7.5 Department of Hospital Services 7.6 Emergency Services Centre (WP) 7.7 Cape Peninsula Local Authorities Ambulance Service (CPLAAS) 7.8 Comments 7.9 Notes 8. CITY COUNCIL OF CAPE TOWN 121 8.1 Introduction 8.2 Structure and jurisdiction 8.3 Services 8.4 Civil defence organisational, command and control structure 8.5 Civil defence plan 8.6 Civil Defence activities 8.7 Comments 8.8 Notes 9. DIVISIONAL COUNCIL OF THE CAPE 144 9.1 Introduction 9.2 Structure and jurisdiction 9.3 Services 9.4 Civil defence organisational, command and control structure 9.5 Civil defence plan · 9.6 Civil defence activities 9.7 Comments 9.8 Notes PAGE 10. CASE STUDY - BOLAND EARTHQUAKE DISASTER (1969) 167 10.1 Introduction 10.2 Earthquake and locality 10.3 Damage and reaction 10.4 Action and restoration 10.5 Present organisation (as at 1977) 10.6 Comments 10.7 Notes 11. EVALUATION 186 11.1 Introduction 11.2 Discussion 11.3 Comments 11.4 Notes 12. CONCLUSION 215 BIBLIOGRAPHY 217 ADDENDA 231 APPENDICES 251 LIST OF MAPS MAP PAGE 1 Medical Zones of Metropolitan Area 109 2 Area of Jurisdiction: City of Cape Town 125 3 Civil Defence and Medical Zone 129 Headquarters: City of Cape Town 4 Area of Jurisdiction: Cape Divisional Council 148 5 Civil Defence and Medical Zones, 153 Headquarters and Units: Cape Divisional Council LIST OF FIGURES FIGURE PAGE 1 Civil Defence Structure in South Africa 9 2 Command and Staff Structure of the South African Defence Force 70 3 Command and Staff Structure of the South African Army 72 4 Command and Staff Structure of the Western Prdvince Command 72 5 Line and Liaison Structure 74 of the South African Defence Force 6 Line and Staff Structure of the Directorate of Welfare and Pensions 86 7 Line Structure of the Directorate 87 of Welfare and Pensions Regional Office: Cape Town 8 Line Structure of the Provincial Administration 100 of the Cape of Good Hope as it pertains to Civil Defence 9 Line Structure of the City Council of Cape Town' 124 10 Structure and Organisation 131 of a City of Cape Town Civil Defence Zone 11 Line Structure of the Divisional Council of the Cape 147 ' 12 Line Structure of the Divisional Council of the .Cape Civil Defence 155 13 Command and Control Flow 157 of Divisional Council of the Cape Civil Defence Corps ii LIST OF ABB RE VIA TIONS CPA Cape Provincial Administration CPLAAS Cape Peninsula Local Authorities Ambulance Service CPS Civilian Protective Services ESCOM Electricity Supply Commission FAP(s) First Aid Post(s) Hamnet Radio Amateur Emergency Co.mmunication System HF High Frequency kWh Kilo Watt hour MAP(s) Medical Aid Post(s) MCV Mobile Control Vehicle MEC Member of the Executive Committee Metro Metropolitan. Rescue Organisation Metro c.d. Metropolitan Local Authorities civil defence service Metro Control Emergency Services Centre MMAP(s) Mobile Medical Aid Post(s) NSRI National Sea Rescue Institute PECSAR Permanent Committee on Search and Rescue SADF South African Defence Force SAP South African Police SARP South African Railway Police VHF Very High Frequency SATEPSA South African Telecommunication and Electricity Power Supply Authority WO Welfare Organisation 4WD Four-wheel drive iii INTRODUCTION CONTENTS 1. THE CIVIL DEFENCE PERSPECTIVE 2. INTENT 3. DEFINITIONS 4. RESEARCH METHODOLOGY 5. INTRODUCTION TO THE SOUTH AFRICAN CIVIL DEFENCE STRUCTURE 6. NOTES - 1 - 1 1. THE CIVIL DEFENCE PERSPECTIVE 1.1 The greatest disaster ever recorded is contained in Genesis 6 verses 19 and 22: And the waters prevailed exceedingly upon the earth; and all the high hills, that were under the whole heaven, were covered. All in whose nostrils was breath of life, of all that was in the dry land, died. 1.2 Since then the catalogue of death and destruction has been added to at an increasing tempo.