Disaster Management Southern Africa is published by Delinds Publications cc and is the official publication of the Disaster Management Institute of Southern Africa (DMISA) October 2009 Vol 5 CONTENTS

2... Comment from the Editor 8...The role and responsibility of Disaster Risk Management in planning for the 2010 FIFA World CupTM South Africa Event

4... Message from the President 12... Internally Displaced Persons (IDP) - A Provincial Disaster Management Perspective

Disaster Risk Reduction begins ...News from the National Disaster 18... 6 at school: Basic Education Kit Management Centre (NDMC) 23... Change or no change? - Findings of Western Cape Disaster Management Cover Picture: Umoya - supplier of reliable communications for disaster 26... The International Organisation management related for Standards (ISO) requirements. and Disaster Management The Moses Mabhina 2010 Standards soccer stadium in KZN. (Societal Security (ISO/TC 223) Photographed by Marc Forrest - http://www.marcforrest.com/ 28... The Role of DMISA in Disaster Management - DMISA Western Cape facilitates training on managing displaced person’s camps

28... Disaster Management Indaba

Disaster Management Southern Africa October 2009 1 Comment from the Editor

Since the Disaster Management Act in South Africa became operational in 2004, there has been a progressive shift toward the implementation of Publisher: Debbie Myer Editor: Schalk Carstens disaster management legislation. I Assistant Editor: Lavenia Nicholson therefore take great pleasure in Production Editor: Lindsay Myer highlighting some of the PUBLISHERS Delinds Publications cc achievements thus far. 12 Delta Road, Blairgowrie, Randburg, There is a new breed of PO Box 72366 Parkview 2122 Tel: (011) 886-5985 Fax: (011) 886-1332 disaster management practitioner E-mail: delinds@mweb.co.za coming though the ranks of the Cell: 083-266-6662 spheres of government. These Disaster Management Institute of Southern new kids on the block are mostly Africa Tel: (011) 822-1634 Fax: (011) 822-3563 educated through graduate Email: [email protected] studies provided by the University PO Box 7130 Primrose Hill 1417 Suite 5, 123 Rietfontein Rd Primrose Germiston EDITOR of the Free State, the North West www.disaster.co.za SCHALK CARSTENS as well as the University of Cape Administrator: Karin Muller Town. The appointment of these competent disaster management Copyright: Material appearing in this issue may not be reproduced without the permission of the editor practitioners could in future make or publishers in any form whatsoever. a difference, especially in terms of The Publishers and Editors are not liable for any damages or loss incurred as a result of any the appointment of the Heads of statement contained in this magazine. Whilst every effort is made to ensure accuracy in this publication, Disaster Management Centres. In neither the Publishers nor Editors accept any these executive positions, we responsibility for errors or omissions in the content and reserve the right to edit all contributions. need these post-graduates with The views expressed in this publication are not necessarily those of the Publishers or Editors. the necessary theoretical back- ground and practical experience. DMISA EXCO To complement the enhancement of disaster President of DMISA: Pat Adams management research, the Deputy President of DMISA (Journal Production Portfolio): Schalk Carstens Chairperson of EXCO (Finance and Administration): Andre van Rensburg National Disaster Management EXCO Member (Recruitment, Public Relations and Media Liaison): Mal Reddy Centre (NDMC) embarked on a EXCO Member (Training, Skills Development and Tours): Pat Reid programme investigating the EXCO Member (Protocol, Legislation and Policy Writing): Anthony Kesten education, training and research EXCO Member (Marketing and Website Management): Johan Minnie needs for disaster management Co-opted EXCO Member (Special Projects): Nareema Solomons in South Africa. The results of this Co-opted EXCO Member (Regional Matters): Casper Keulder needs analyses would lead to a

2 Disaster Management Southern Africa October 2009 comprehensive strategy for the between who is actually in national capacity in this regard. implementation of the disaster charge, what legislation is applied Mr. Colin Deiner, the Head of the management frameworks' and most important of all, who is Gauteng Disaster Management Enabler 2, namely "Education, the appropriate account holder Centre is providing valuable Training, Public Awareness and that would be responsible to pay inputs in support of the Research". The senior manager for the disaster recovery process. establishment of this very leading this programme is Mr. A clear cut answer for this is still sophisticated and specialised Mmaphaka Tau. Well done to be obtained as this is a subject disaster response capacity. Mmaphaka! for debate. Some DMISA members, The successful management of The ‘Disaster Management councilors and executive the Internally Displaced Persons Master Plan for the 2010 FIFA committee members contributed (IDPs) or so called “Xenophobia World Cup™’ as mandated by toward the successes of the disaster” as declared in the Mr. George Kilian, the Acting above-mentioned activities and Gauteng and Western Cape Head of the National Disaster processes. This could only be provinces in 2008, brought a new Management Centre, on 13 achieved through strong dimension to cooperative March 2009, is now the official leadership. Here I want to use this governance and how to deal with guideline for the disaster opportunity to thank Mr. Pat humanitarian crises. The management fraternity to prepare Adams, the President of DMISA, classification of disasters in the for the 2010 FIFA World Cup™. for his diligence and commitment two most affected provinces The implementation plan is based towards DMISA and the disaster stretched the disaster on the four KPAs of the National management profession at large. management capacity to its limits Disaster Management Pat agreed in October 2008, to in these areas. The provision of Framework.The purpose of the lead the institute for a second humanitarian-aid over the disaster management plan for the term of office. Pat, your hard work extended period of six months, 2010 FIFA World Cup™ is mainly is really appreciated and you the activation of the Provincial to focus on aspects that could dedication admired. Disaster Management Centres, increase disaster risks during the Again, a word of thanks to all the prolonged deployment of the event such as the transport persons involved with this special disaster management systems, essential services, and 'Conference 2009' edition. Without practitioners, the challenges with the possibility of natural and your input, this publication would the integration and inclusion of human induced disasters. not be possible. Also a special multiple stakeholders under the Most of our practitioners are thanks to Debbie Myer auspices of the Disaster currently hard at work to ensure (publisher), Lavenia Nicholson Management Act, have together that we have a disaster free 2010 (assistant director) and Carin ultimately provided an opportunity FIFA World Cup™ event. The only Joyce (DiMTEC intern) for their to measure the effectiveness of aspect that has to be highlighted hard work and support in making the implementation of the Disaster at this stage is the enhancement this publication possible. Management Act to date. and alignment of our Urban To all DMISA members and In hind site, it is however Search and Rescue (USAR) and delegates attending the recognised that there needs to be Chemical, Biological and conference, may you have two a clearer differentiation between Radiological (CBR) resources. enjoyable days and please start the roles and functions of the The NDMC (Fire Brigade working on your articles for the security forces and that of Services), under the auspices of next publication! disaster management. There is Mr. Jurgens Deyssel, is currently sometimes a very thin line proposing the formalisation of

Disaster Management Southern Africa October 2009 3 Message from the President

that these comments were A word of appreciation to all the comprehensive and proposed several Councillors and Regional Committee amendments to the Bill. members who attended the above, To Mr Greg Pillay, a big, big thank with sincere special thanks to Ms you, who on behalf of our Institute on Patricia Reid who facilitated all these the 24th of August 2009, made a planned activities. verbal submission to the Parliamentary We remember and express our Portfolio Committee for Sport and condolences and sympathy to all Recreation which was well received. communities locally, nationally and In line with the objectives of DMISA's internationally who have been Equity Policy, the Institute diligently negatively impacted on by disasters pursues matters of transformation and and major incidents which have equity. I am pleased to report that the caused death, injury and destruction. current equity distribution at National We should continue our efforts to Council level augurs well as 9 of the 24 provide reduction in disaster risk and PATRICK ADAMS members are females. reduction in the vulnerability of people PRESIDENT and infrastructure. History has shown Also, at Executive Committee level, I that the world has experienced huge Honoured members and delegates. am similarly thrilled to confirm that 4 of losses and that these occurrences the 10 members are females. seem to be the order of the day. Please accept my warm and hearty The Gauteng Provincial Disaster I wish to express our utmost welcome to our DMISA Conference Management Centre, in collaboration gratitude to all the speakers who will 2009. with DMISA held a Integrated be presenting papers at this development planning workshop at The Annual Conference of the conference. Their willingness to share the PDMC in Midrand on 03 and 04 Disaster Management Institute of their know-how and expertise with us September 2009, the theme being Southern Africa is being held at the is as always, valued and does not go "how to integrate your Disaster Southern Sun Elangeni Hotel, in the unnoticed. Management Plans into the IDP". beautiful city of Durban. To the delegates, thank you for Functionaries from Province, Our appreciation is conveyed to the attending our Conferences year after Metros, Districts and Local Authorities National Disaster Management Centre year without fail. were invited. and the Development Bank of A special word of appreciation to all Southern Africa for their financial DMISA wishes to compliment and three spheres of Government and rele- support which contributes towards the record our sincere thanks and vant organisations for supporting success of DMISA's conference. gratitude to Mr Colin Deiner, who is DMISA by the attendance of their offi- the Chief Director for Disaster DMISA wishes to convey our cials, politicians and representatives. Management and Fire Brigade sincere thanks to Mr George Kilian, Services as well as the Head of the To everyone who contributed to the Acting Head of the National Disaster Provincial Disaster Management success of this conference, my sincere Management Centre and his Centre, for once again taking the gratitude. competent staff for their continued initiative and being instrumental in the Last but not least, to the Deputy support and excellent working empowerment of the Disaster President, Chairperson of EXCO, relationship and co-operation with the Management officials in Gauteng. EXCO members, National Councillors Institute. Two induction workshops were held and Administrator, thank you very With the FIFA 2010 World Cup for National Councillors in Cape Town much for your undivided support and literally around the corner, we on the 27th November 2008 and in confidence displayed in me, by previously urged Government to Bedfordview on 12 February 2009 unanimously electing me to serve a finalise the Safety at Sports and respectively This was followed by a second two-year term as President of Recreational Events Bill and more Strategic Session for our National DMISA. Your hard work, commitment clearly indicate the role of the Council held on the 19th March 2009, and dedication to the cause are Municipal Disaster Management in Durban. In addition, Orientation exemplary. Centre and officials in order to ensure Workshops were held in June 2009, in To my wife, Elaine, and family who that all events classified under this the following regions: have unselfishly supported me legislation are undertaken within a safe • Algoa throughout my DMISA involvement framework. To this end, the Institute and activities, I salute you. submitted comments to the • Magaliesberg Chairperson of the Parliamentary • Northern Cape Finally, I trust you will all have an Portfolio Committee for Sport and • Southern Gauteng enriching Conference 2009, enjoy what Recreation, South African Parliament • Tshwane Durban offers and travel home safely on 17 August 2009. Suffice it to say • Western Cape. to your loved ones.

4 Disaster Management Southern Africa October 2009 The Metropolitan City of Cape Town’s Disaster Risk Management Centre

Management Advisory Forum, needs for additional resources formulation of the Municipal required for preparation for the Disaster Risk Management Plan as 2010 FIFA World CupTM Event. The well as the preparation of disaster Management Team comprises the management plans by the City's Head of the Disaster Risk municipal entities and the Management Centre and 12 establishment of an active Disaster Portfolio Heads who report directly Risk Management Volunteer Corps. to him, that includes 4x Area/District In addition, a Comprehensive Heads and other specialist Disaster Risk Assessment portfolios. The Disaster Risk comprising a city-wide scientific Management Volunteer Corps hazard analysis and a comprises of 360 members spread community-based risk assessment over 11 established volunteer corps was undertaken by specialist units. consultants in a project that The Service maintains a modern spanned 16 months of intensive fleet of 60 vehicles and 30 investigation and study. specialist trailers. This includes 2x The Metropolitan City of Cape mobile onsite Joint Operation Town has a population of 3, 5 Centre (JOC) vehicles, one of million people residing in its area of which has a 4x4 off-road capability, 2500 square kilometres. In order to a 22 seater midi-bus, minibuses, effectively service such a large sedans, LDVs, cargo vehicles and area, the Disaster Risk SUVs, lighting plants, emergency Management Centre, which is generators, mobile kitchen trailer, located at Goodwood, and is close bilge pump, water trailer, and a to the epicentre of the unicity, has variety of specialist equipment in addition established 4 trailers. decentralised Area/District Disaster The generous expansion and Risk Management Centres by Pat Adams, Director: provision of resources for the respectively at Brackenfell (North), City Emergency Services / disaster risk management function President DMISA Eersterivier (East), Ottery (Central) by the Metropolitan City of Cape and Cape Town CBD (West). A Town indicates that the The Metropolitan City of Cape training centre facility for administrative and political Town has since the appointment of Commerce, Industry, Community leadership of the City takes the its HEAD of the Disaster Risk and Disaster Risk Management implementation of the requirements Management Centre, Mr Greg Volunteers is located at the Hillstar of the Disaster Management Act 57 Pillay, in July 2005, grown from complex, Ottery. The 24/7 Disaster of 2002 seriously, and endeavours strength to strength. Over the past Operations Centre is located at the to reduce disaster risk for its 4 years this service has met key Goodwood complex and makes inhabitants accordingly by this prerequisites as required by the use of a modern Tetra Digital Radio investment. This enables the City Disaster Management Act 57 of Trunking system as part of its to deal with the challenges of the 2002. So says Mr Pat Adams: communications network with all primary hazards of fires and floods Director: Emergency Services of other city emergency and essential in informal settlements that is an the City and the current President services. urbanization phenomenon. of the Disaster Management The Service has a total staffing Institute of Southern Africa Lastly, the good working strength of 80 personnel which is (DMISA). relationship that exists between the attributed to two recent favourable City's Disaster Risk Management These key statutory prerequisites occurrences. This includes the Centre and respectively the include the appointment of the acquisition of 22 staff members that Provincial Disaster Management Head of the Disaster Risk transferred from the City's Centre of the Western Cape and Management Centre, the Ambulance Service in May 2007 the National Disaster Management establishment of the Disaster Risk following its provincialization, and Centre, is also to be commended, Management Centre, the recruitment of 21 Assistant as adding to this progress and implementation of a Municipal Disaster Management Officers at development, says Pat Adams. Disaster Risk Management the beginning of 2009 as part of the Framework and a Disaster expansion programme to meet the

Disaster Management Southern Africa October 2009 5 News from the National Disaster Management Centre (NDMC) The Disaster Management Act, 2002 also in disaster management, as a priority. (Act No. 57 of 2002) provides for an Almost as a direct result of this, an integrated, coordinated and uniform expanded structure for the NDMC is approach to disaster management by all enjoying the attention of the new spheres of government. In order to department and hopefully this will come to achieve this, the Act focuses on "disaster fruition early in 2010. management" as a continuous and Good progress has been made in integrated multi-sectoral, multi-disciplinary finalising the ten identified disaster process of planning an implementation of management guidelines and completion measures, aimed at: thereof is expected at the end of • Preventing and reducing the risk of September 2009. The Volunteer disasters; Regulations have been submitted to the • Mitigating the severity or consequences newly constituted NCOP and will most of disasters; probably serve before that forum during GEORGE KILIAN October 2009. The National Education • Emergency preparedness and a state Training and Research Needs and of readiness to deal with impending or Resources Analysis project has been current disasters or effects of disasters; introduced and is well under way, and involving a large number of stakeholders • A rapid and effective response to throughout the country. disasters aimed at restoring normality in The NDMC has also been supportive to conditions caused by disasters. several provinces and municipalities in obtaining the necessary relief funding from With the 2010 FIFA World CupTM just government after some devastating floods around the corner, everybody in South and other disasters have impacted Africa is experiencing an involuntary tingle negatively on some areas in the Western down the spine. The provision for an Cape, Eastern Cape, Limpopo and integrated, coordinated and uniform KwaZulu-Natal. The NDMC were also approach in terms of the Disaster closely involved with the Department of Management Act suddenly has become Health in monitoring the cholera situation even more significant and demanding in Limpopo, Mpumalanga and the rest of than before. the country and is currently also attending From a disaster management regular meetings on the H1N1 virus. perspective, the NDMC has experienced As far as the 2010 FIFA World CupTM is an interesting, though somewhat concerned, the NDMC has established the challenging period since the latter half of 2010 National Disaster Management 2008. The new political administration has Steering Committee and a 2010 National brought along its own new challenges and Task Team flowing from it. It has, with officials had to adjust to these quite assistance of all other disaster rapidly. Also for the NDMC there had been management stakeholders, compiled a some adaption to be done. As far as 2010 National Disaster Management capacity within the NDMC is concerned, Master Plan and has attempted to secure we had to dig deep as a team to still try some funding with a view to supporting and proceed at the same pace as before. provinces and host cities. There were however also positives that The NDMC has also made some strides came to the fore. The new department, the in developing some national early warning Department of Cooperative Governance systems such as the Fire Danger Index to and Traditional Affairs, which replaced the monitor major fires occurring in South Department of Provincial and Local Africa. It is also in the process of Government, under the new Minister, developing a Flash Flood Guidance Minister Sicelo Siceka, has set high system. standards and new objectives, with a More news on progress at the DMISA hands-on approach as a basis, Conference. highlighting service delivery to the public,

6 Disaster Management Southern Africa October 2009

The role and responsibility of Disaster Risk Management in planning for the 2010 FIFA World CupTM South Africa Event

1. Introduction proactive and reactive phases of the event. South Africa is the first country on the Key roles and responsibilities of the African continent to be awarded the DRMC during the proactive phase include privilege of hosting the 2010 FIFA World the following six (6) actions : CupTM event. This prestigious, • Determining levels of disaster risk and international, mega event will be held at vulnerability. ten (10) venues across nine (9) South • Proposing measures to all roleplayers African cities over a six (6) week period, and stakeholders to minimise disaster commencing 11 June 2O10. The South risk. African Government is investing GREG PILLAY R13,7 billion on the building and • Monitoring the state of preparedness to renovation of stadia and the upgrading of incidents / disasters that may occur. infrastructure (Government Digest,2007 : • Overseeing appropriate disaster risk 18). prevention and mitigation strategies are General Stadium Structural and implemented. Technical Design Requirements in terms of • Monitoring, measuring performance current FIFA Safety Guidelines, the Safety and evaluating contingency plans. & Security Provisions of the 2010 FIFA • Engaging in any lawful activity to further World CupTM Organising Association disaster risk reduction. Agreement, Specific Stadium Risk Management (Safety & Security) Design Key roles and responsibilities of DRMC Agreements and Host Stadium during the reactive phase include the Agreements, the Disaster Management following 6 (six) actions : Act, 57 of 2002 the Safety at Sports and Recreational Events Bill, 2007 " South • Co-ordinating and managing of local African National Standard (SANS) 10366. disasters. etc. are some of the myriad of • Notifying and activating emergency and requirements that will be used to regulate essential services that are required. compliance with stringent safety and • Initiating contingency and emergency security standards for this event (Ronan, procedures that may be applicable. 2006 :5). The responsibility for organising • Assessing the magnitude and severity the event resorts with the 2010 FIFA World of the incident. CupTM Local Organizing Committee (LOC), whose daunting task it is to ensure inter • Notifying Provincial and National alia, the overall safety and security of the Disaster Management Centres in the event in collaboration with multiple role- event of a major incident. players, of which the Disaster Risk • Recommending the declaration of a Management Centre (DRMC) plays an local state of disaster if the situation important, pivotal role. warrants it (Leader and Pluke,2004: 6). Despite the myriad of compliance The outline of these twelve (12) key standards, and against this background of functions with respective proactive and complexity, it is necessary for the Disaster reactive phases, will provide a sound basis Risk Management Centre (DRMC) to to define the role and responsibility of the clearly identify its role and responsibility DRMC during the 2010 FIFA World CupTM before and during the event. In this regard, South Africa. this paper focuses on key roles and responsibilities of the DRMC during the

8 Disaster Management Southern Africa October 2009 2. Proactive Actions 2.2 Proposing measures to all role resources and equipment, and The proactive phase, also known as players and stakeholders to minimise deployment thereof to the event, and the pre-disaster risk reduction phase, disaster risk to determine sufficiency levels, e.g. includes all disaster risk reduction Section 47 (l)(a)(iii) of the Disaster number of law enforcement, measures or actions that can be Management Act,57 of 2002 provides emergency medical personnel and implemented to minimise the disaster. further that a municipal disaster accompanying equipment. Monitoring This includes the actions of management centre must give of state of preparedness can also be preparedness, mitigation and guidance to assess and prevent or demonstrated by ensuring the prevention (Republic of South Africa, reduce the risk of disasters, including deployment of fire and life safety 2004: 60). ways and means of proposing officers before and during the event to measures to all roleplayers and enforce compliance with fire safety by laws, e.g. ensuring emergency gates 2.1 Determining levels of disaster risk stakeholders to minimise disaster risk (Republic of South Africa, 2002: 48). at stadia are unlocked during matches, and vulnerability etc. (Pluke,2007). Section 47(1)(a)(i) and (ii) of the In all the major nine (9) cities TM Monitoring of a state of Disaster Management Act, 57 0f 2002 hosting the 2010 FIFA World Cup , there are various workstreams created preparedness will also include provides that a municipal disaster rehearsal of the evacuation plan of the management centre must give to oversee specialised projects such as for stadium construction, transport, facility / stadium, to ensure that these guidance to assess and prevent or measures are fully functional should reduce the risk of disasters, including training venues, fan parks and public viewing areas, accommodation, the need for such action be warranted. ways and means of determining levels lt will also include verifying that the of disaster risk and assessing the tourism, emergency medical services and environmental health Venue Operations Centre (VOC) degree of vulnerability (Republic of facilities are fully functional and meet South Africa, 2002: 46 - 48). management, safety and security, disaster risk management, etc. These the FIFA Safety Guidelines, e.g. that A scientific risk and vulnerability workstreams are part of the institutional the PA system is operational and has assessment of the proposed event and organisational arrangements of an emergency override broadcast should be undertaken in order to the host cities, and in some instances facility, etc. (FIFA Safety Guidelines, determine an appropriate disaster risk number as many as twenty four (Cape 2004 : 9). preparedness strategy that will assist in Town and the Western Cape Business the formulation of a consolidated Plan, 2007 : 3 ). 2.4 Overseeing appropriate disaster disaster risk management plan. A It is envisaged that the DRMC will risk prevention and mitigation strategies disaster risk management plan cannot are implemented be formulated without undertaking a provide input and proposals at these detailed risk and vulnerability various workstream meetings and Section 47 (1)(b) of the Disaster assessment (Pillay, 2005 : 113). workshops regarding minimising Management Act, 57 of 2002 provides Disaster risk assessment is a process disaster risk in specialised functional that a municipal DRMC can further that determines the level of risk by : areas. All event roleplayers are to prevent or reduce the risk of disasters initiate disaster risk prevention and by overseeing that appropriate risk • Analysing potential hazards and / or disaster risk reduction strategies, into prevention and mitigation strategies threats. stadium, fan parks, mass are implemented (Republic of South • Assessing the conditions of entertainment and accommodation Africa, 2002:48). vulnerability that increase the facilities, airport and transport This is best demonstrated when chance of loss for particular interchange design, as well as for DRMC field staff do inspections and elements at risk. transport planning, safety and security physical audits at venues to ensure • Determining the level of disaster risk and General service delivery aspects. that the agreed to safety measures are for different situations and Adequate staffing, equipment and in place, e.g. monitoring the ticket conditions (Republic of South Africa, infrastructure must therefore be sales strategy and ensuring no tickets 2004: 42). procured for this to become a reality are sold at the stadium on match day, It follows therefore that the local (Konings : 2007). overseeing line function safety DRMC should conduct a detailed risk measures such as ensuring that an and vulnerability assessment of all 2.3 Monitoring the state of emergency power supply (generator) activities related to the 2010 FIFA preparedness to incidents / disasters is in place and operational in the event World CupTM event within its area of that may occur of electricity failure, that environmental jurisdiction. This can be achieved by Section 47 (1)(a)(iv) of the Disaster health inspectors accredit food making use of instruments such as a Management Act, 57 of 2002 provides vendors and carry out food security pre-event disaster risk assessment that a municipal DRMC can further measures (Pluke :2007). matrix that provides for a risk rating prevent or reduce the risk of disasters scale that can be categorised into by monitoring the likelihood of and the 2.5 Monitoring, measuring performance high, medium and low disaster risk, as state of alertness (preparedness) to, and evaluating contingency plans well the South African National disasters that may occur (Republic of Section 48 of the Disaster Standard (SANS) 10366 : Health and South Africa 2002:48). Management Act, 57 of 2002 provides Safety at Live Events - General The DRMC can demonstrate this that a municipal disaster management Requirements (Leader,2007). monitoring of state of preparedness by centre must monitor, measure assessing the available human performance and evaluate contingency

Disaster Management Southern Africa October 2009 9 plans (Republic of South Africa 2002: Disaster Coordinating Team (DCT), municipality, the disaster management 48). lead by the head of the centre in centre of the municipality must Monitoring will entail scrutinising collaboration with senior officials of the immediately initiate the implementation contingency plans of line function municipality representing the various of contingency plans and emergency departments as well as the venue line function departments. The Disaster procedures that are applicable specific emergency plan, and then Co-ordinating Team (DCT) also (Republic of South Africa, 2002: 48). identify gaps and deficiencies that includes important external roleplayer - All the nine (9) major South African exist. Measuring performance will such as SAPS SANDF, EMS and cities hosting the 2010 FIFA World entail ascertaining whether the plan functionaries as the circumstances CupTM South Africa event will be addresses contingency arrangements warrant. required to formulate contingencies for various scenarios that could occur, such as a Safety & Security Plan; High and in the event of an incident, 3.2 Notifying and activating emergency Level Transport Operations Plan; checking whether the plan performed and essential services that are required Emergency Medical Service Plan; as was intended. For example, no Section 49 (1)(c) of the Disaster Stadium Facility Plan that will spectators are permitted to enter the Management Act, 57 of 2002 provides incorporate evacuation procedures, field or play following the end of a that when a disastrous event occurs or etc. lt will further be required that the match. Evaluation will entail identifying is threatening to occur in the area of municipal disaster management centre areas of deficiency in the plan where the municipality, the disaster will have copies of the aforesaid further risk reduction initiatives can be management centre of the municipality contingency plans and standard introduced with the review process must immediately notify and activate operating procedures (SOPs). and be (Leader and Pluke :2004 :7). the emergency and essential services au fait with such implementation that are required (Republic of South should the need arise (Host City 2.6 Engaging in any lawful activity to Africa, 2002 : 48). Agreement, 2006 : 16). further risk reduction During the 2010 FIFA World CupTM Section 44 (2) of the Disaster South Africa event, the organisational 3.4 Assessing the magnitude and Management Act, 57 of 2002 provides and institutional arrangements for severity of the incident that a municipal disaster management emergency planning will allow for Section 49 (1)(a) of the Disaster centre may engage in any lawful operational, tactical and strategic Management Act, 57 of 2002 provides activity aimed at further reducing incident response management in an that when a disastrous event occurs or disaster risk (Republic of South Africa integrated manner. The municipal is threatening to occur in the area of a 2002: 46). disaster management centre will as a municipality, the disaster management This is interpreted to mean that the strategic centre be linked to the venue centre of the municipality must DRMC can engage with any stake- operation centres (VOCs) at the immediately assess the magnitude and holder or roleplayer about concerns in various mass gathering facilities such severity of the incident (Republic of their areas of specialisation, where as the stadia, fan parks, etc. that will South Africa, 2002:48). safety and security appears to be serve as tactical centres. In order to ensure quick assessment compromised. These VOCs in turn will be linked to of the magnitude and severity of an operational service and command incident, it is imperative that a good 3. Reactive actions control centres of the various services communications network as alluded to such as Emergency Medical Service in 3.2 of this paper, be in place. The The reactive phase, also known as (EMS), Fire Service, SAPS, etc. as well organisational and institutional the post disaster recovery phase, as the linkage to the operational arrangements between the municipal includes all reactive measures or personnel of these services (Konings, disaster management centre as a actions in response to the occurrence 2007). strategic facility in conjunction with of a disaster. lt encompasses the other important emergency and actions of response, relief, recovery It follows then that with this essential services (tactical and (UNDP, 1992:12). integrated communication network in place via two-way trunking radios, operational facilities), will ensure that telephone, fax and electronic means, it information gathered between these 3.1 Co-ordinating and managing of will be possible for the municipal various services lead to an accurate local disasters disaster management service to notify assessment of the magnitude and Section 54 (1) of the Disaster and activate the emergency and severity of the incident. Management Act, 57 of 2002 provides essential services immediately, in the Similarly, information such as that irrespective whether a local state event of a large scale emergency expected and actual crowd sizes at the of disaster has been declared, the occurring during the 2010 FIFA World various mass crowd gathering facilities council of a municipality is primarily CupTM South Africa event. during the staging of the 2010 FIFA responsible for the coordination and World CupTM South Africa event, will management of local disasters that 3.3 Initiating contingency and assist disaster management occur in its area (Republic of South emergency procedures that are practitioners to plan for the potential Africa, 2002:54). applicable magnitude and severity of a disaster, The coordination and management Section 49(1)(d) of the Disaster by ensuring that ample resources and of disasters is undertaken under the Management Act, 57 of 2002 provides equipment are in place to deal with auspices of the Disaster Risk that when a disastrous event occurs or any impending disaster or emergency. Management Centre, through a is threatening to occur in the area of a

10 Disaster Management Southern Africa October 2009 3.5 Notifying provincial and national disaster management centres in the event of a major incident Section 49 (1) (b) of the Disaster Management Act, 57 of 2002 provides that when a disastrous event occurs or is threatening to occur in the area of a municipality, the Disaster Management Centre of the municipality must immediately inform the National Centre and the relevant provincial Disaster Management Centre of the disaster, and its initial assessment of the magnitude and severity or potential magnitude and severity of the disaster (Republic of South Africa, 2002:48). The organisational and institutional arrangements linking municipal Soccer City stadium construction in progress disaster management centres with the National Centre and the relevant drastic action at the 2010 FIFA World Management Southern Africa: Volume 2, provincial disaster management TM Number 2, July\December. Official Journal of Cup South Africa event, then the DMISA. Delinds Publications cc. centre, coupled with the requirement Municipal Disaster Management to notify these two centres Centre will be responsible for Pillay, G. J. 2005. Mass Lobster Stranding simultaneously of an assessment of implementing the aforesaid provisions. Disaster on the Cape West Coast. Thesis for the magnitude and severity of a MTECH. Public Management Degree: Cape disaster, signifies the important Peninsula University of Technology, Cape Town. monitoring role of National and 4. Concluding Remarks Pluke, M. 2007. Portfolio Head : Disaster Risk Provincial Government and their In this paper, the author has Management Service Delivery Area West, City Of attempted to discuss the twelve (12) Cape Town. Interview - 12 September, Cape readiness to provide additional Town. resources to the management of a primary functions of the Disaster Risk disaster, should circumstances warrant Management Centre at municipal level, Ronan, P. 2006. The Planning and Development in terms of the provisions of the of the Safety and Security Risk Management such action. Such an arrangement is Strategy for the new Greenpoint Stadium and its ideal when dealing with a mega event Disaster Management Act, 57 of 2002, lmmediate Precinct, 2010 FIFA World CupTM like the 2010 FIFA World CupTM South seen in the context of its role and South Africa. Africa event. One needs to recognise responsibility before and during the Republic of South Africa. 2001. Final Report : that mega events where large crowds staging of the 2010 FIFA World CupTM Commission of Enquiry into the Ellis Park gather, are "potential disasters in the South Africa event. lt was deemed Stadium Soccer Disaster of 11 April 2001. making", if not well planned and necessary amidst all the myriad of Chairperson the Hon. Mr. Justice B.M. Ngoepe. managed. requirements that this mega event Pretoria : Government Printer. prescribes, to identify clearly what Republic of South Africa. 2002. Disaster exactly the role and responsibility of Management Act 57 of 2002. Pretoria: 3.6 Recommending the declaration of Government Printer. a local state of disaster and the Disaster Risk Management Centre implementation of the provisions of the entails, regarding the planning and Republic of South Africa. 2004. Guiding TM Framework for Disaster Management in South municipal disaster management plan hosting of the 2010 FIFA World Cup South Africa event. Africa. [Proposed draft version]. Government Section 55 (1) and (2) of the Gazette 26390, 28 May. Pretoria: Government Disaster Management Act. 57 of 2002 Printer. respectively provides that in the event References Republic of South Africa. 2007. Safety at Sports of a local disaster, the council of a Cape Town and the Western Cape Business and Recreational Events Bill. Pretoria : municipality having primary Plan for 2010 FIFA World CupTM South Africa Government Printer. .2007. responsibility for the coordination and Tassiopoulos, D. (Editor). 2000. Event management of the disaster may, by FlFA Safety Guidelines. 2004.Zurich. Management: A Professional and Developmental notice in the provincial gazette, declare Government Digest. August 2007. Volume 27. Approach. Cape Town : Juta. a local state of disaster. Further, the No.1. South African National Standard (SANS 10366). municipal council may issue directions Host City Agreement. 2006. 2006 (Edition 2). Health and Safety at Live Events - General Requirements. Pretoria: SANS. or authorise the issuing of directions Konings. C. 2007. Portfolio Head: Corporate concerning the release of municipal Planning and lDP. Disaster Risk Management United Nations Development Programme resources and personnel, as well as Centre, City Of Cape Town. Personal Interview - (UNDP) 1992. Option 1 - Module 1 : Overview of 23 August, Cape Town. Disaster Management : Disaster Management the implementation of any of the Training Programme. Johannesburg. Technikon provisions of the Municipal Disaster Leader, A. 2007. Disaster Management Official: S.A. Management Plan that are applicable Disaster Risk Management Centre, City Of Cape Town. Personal Interview - 7 September, Cape 2010 FIFA World CupTM South Africa Organising in the circumstances (Republic of Town. Committee. S.A. document 2007. Provided at South Africa, 2002:54). Leader, A and Pluke, M. 2004 Disaster First Host City Security Forum Meeting, SAFA Should circumstances warrant such Management and Event Safety. Disaster House, Johannesburg on 5 July.

Disaster Management Southern Africa October 2009 11 Internally Displaced Persons (IDP) A Provincial Disaster Management Perspective

assistance could be offered during the RONELLE C PIETERS Background During May 2008, South Africans were immediate response phase of the disaster. confronted by images of South Africans Daily meetings were convened that attacking fellow Africans. The initial attacks continuously assessed the situation to started on 12 May 2008 in Gauteng and ensure that provincial and local spread to the Western Cape Province on government support was provided to the 22 May 2008, resulting in the displaced foreign nationals. The meetings displacement of approximately 20 000 were eventually scaled down to two people. Attacks were reported in the City meetings per week as from 25 July 2008. of Cape Town, Knysna (Eden District), During these meetings, the provincial Saldanha Bay (West Coast District), strategy included that a three-pronged Hermanus (Overberg District) and strategic approach be maintained to Drakenstein and Stellenbosch (Cape expedite re-integration, repatriation and Winelands District). resettlement of the displaced persons. The The Provincial Disaster Management PDMC together with the Department of Centre (PDMC) was activated on 22 May Social Development compiled an 2009 as a means to monitor the unfolding intervention plan that addressed the situation by the establishment of a joint strategy, also taking into account operational centre (JOC). The district accommodation, relief as well as safety disaster management centres in the and security. The relocation of the foreign affected areas were also activated and nationals to the safety sites was seen as established (JOCs) in managing the secondary displacement, as primary situation. A multi-disciplinary, multi-sectoral displacement occurred when the refugees approach was initiated to coordinate the or asylum seekers initially settled in South situation efficiently and effectively. Africa. Initially the foreign nationals were It was evident that to ensure the accommodated in community halls, successful integration, repatriation and church halls, mosques and tents across resettlement of IDPs, a stringent the Province, resulting in the establishment registration process was followed. A task of approximately 87 different temporary team was established to fast track the shelters and several unofficial registration process. The PDMC lead the shelters/sites. Relief was provided by the process in collaboration with the Department of Social Development with Department of Home Affairs, the City of the provision of food, blankets and Cape Town and the United Nations High temporary accommodation. The safety Commision for Refugees (UNHCR). This and security of the foreign nationals process was two-fold as it served as a received high priority. This was provided mechanism to document (their status, by the department of community safety in nationality, etc.) foreign nationals to issue conjunction with the South African Police them with exemption cards that were valid Services ensuring the safety of vulnerable until 31 December 2008. It also served as individuals such as women, children, the a measure that identified the communities disabled and elderly people. from which they were displaced. The registration process commenced on 04 July 2008 and was concluded in October. International strategies At the beginning of the xenophobic The PDMC scheduled a preliminary attacks, uncoordinated repatriation took meeting on 28 May 2008 that provided an place where people assisted to "relocate" opportunity for provincial departments and some Moçambicans and Zimbabweans. municipalities to discuss the status and to According to UNHCR, 22 people from allow stakeholders to communicate what Youngsfield were repatriated to their

12 Disaster Management Southern Africa October 2009 countries on 24 November 2008. Financial implications R1 000 000.00 to the Department of The National Immigration of the The PDMC and the Provincial Community Safety for the provision of Department of Home Affairs went to Treasury was tasked to verify the cost safety and security to the foreign the Netherlands and United Kingdom related to the declared provincial nationals, and R 500 000.00 to the to research practices that these disaster as submitted by provincial Department of the Premier for the countries utilised when dealing with departments and municipalities. The provision of mediators/ facilitators, displaced persons and established: initial costs as reflected by provincial communication and awareness programmes. • Employment of foreign nationals departments and municipalities was must be protected; approximately R100 916 035. 69 with On 7 October 2008, the National a total projected cost of Treasury Committee approved an • Majority of the IDPs were economic R390 802 193.99. Provincial amount of R12 690 000.00 for the migrants and not really displaced departments and municipalities were provincial departments for costs persons; again requested to re-calculate and incurred and an amount of • Employment opportunities must be resubmit their detailed verified (actual R17 317 000.00 to the City of Cape protected; and projected) costs. Town. It is evident that the cost • Protect the integrity of documents - The financial costs incurred by incurred by departments and munici- create the capacity of fraud; and provincial departments exceeded R80 palities was way beyond amounts approved by National Treasury. The • Increased focus on border control. million and the amount for the City of Cape Town exceeded R108 million. implication of this is that the The recalculated cost submitted by municipalities and departments will Disaster declaration provincial departments and have to foot their own bills as a result municipalities reflected an amount of of the financial implications of As a result of the displacement of managing the situation. almost 20 000 foreign nationals, the R206 361 650.16, a figure considerably lower than the initial amount. Premier of the Western Cape declared Debriefing/ impact assessments a provincial state of disaster in terms of The Development Board of South the Disaster Management Act, Act 57 Africa (DBSA) offered financial The PDMC in conjunction with the of 2002. The National Disaster assistance to the Western Cape United Nations facilitated an Internally Management Centre (NDMC) classified Province by donating an amount of Displaced Person debriefing on 24 and the disaster accordingly on 3 June R4 500 000.00 to the Western Cape 25 November 2008 with Government 2008, which allowed the Province to Provincial Government that supported and civil society on the respective request financial assistance from the Province in its work with the plight dates. The aim of the debriefing was to national government enabling affected of the displaced foreign nationals. An assess the lessons learnt, municipalities and provincial amount of R3 000 000.00 was donated shortcomings and recommendations departments to expedite emergency to the Department of Social in the event of future incidents. procurement procedures. Development for the provision of food, The challenges identified on 24

Blue Waters IDP Camp, Cape Town

Disaster Management Southern Africa October 2009 13 November 2008 (day one) with Challenges The social conflict contingency plan Government were the following: Numerous challenges were evident attempts to address some of these • Communication with IDPs in the and experienced throughout the whole challenges. sites; exercise: • How to reduce the displacement Current situation time; • The management of the facilitation At the moment there is 462 people process by senior management; • The appropriation of early warning still displaced at the three sites, i.e systems for future social conflict and • The funding issue; Youngsfield, 64, Bluewaters B, 76 and 322 at Bluewaters C. The living pre-emptive response strategy; • Lack of emergency procurement condition of the IDPs has not improved procedures; • Camp management - in-house and according to social workers, they versus outsourcing; • Problems encountered by the refuse to move from the camp until • Planning for services at sites and Department of Home Affairs with the they are relocated to a third country. integration; issuing of documentation; The UNHCR in collaboration with • Who should staff the JOC (Joint • The determination of the status of the Department of Home Affairs (DHA) Operation Centre); the foreign nationals; will be giving the IDPs (Blue Waters B • How should line-function decision- • The lack of communication with & C and Youngsfield) the option of making work in future; personnel manning the frontline re-integration, permanent refugee status or asylum, but only those that • How will prolonged displacement information desk on decisions have the necessary documentation. be funded; made in meetings; The DHA is assisting asylum seekers • Defining a better relationship with • Coordination between Government with the processing of their and role for civil society; and and civil society to be nurtured; documents. IDPs who decided to • Define role and relationship with the • The coordination of the strategic re-integrate, will receive an amount of UN. management of the camps was R2 000.00 for a single person and a lacking creating a fragmented family will receive R4 000.00. This Key discussions on 25 November 2008 approach towards the effective money will be paid directly into a bank (day two) with civil society were the fol- management of the situation. account which will be opened for them lowing: • Inter-sectoral executive decision- by First National Bank (FNB) consultants. The process of • The current situation; making problematic; paying them through the bank will • Coordination; and • Lack of integration plan lead to serve as a record of payment to a • Preparedness and early warning/ ineffectiveness; and certain individual and prevent more definition of xenophobia. • Language barrier. people returning to the camps.

Blue Waters IDP Camp, Cape Town

14 Disaster Management Southern Africa October 2009

Disaster Risk Reduction begins at school: Basic Education Kit The Provincial Disaster Management The Kit was developed to be utilised as Centre (PDMC) together with the resource material linked to the current provincial Department of Education, who school curriculum for social science, is voluntary assisting with the project as emergency medical services and life line Department, launched the Basic orientation sessions. The Development Education Kit in four pilot schools (i.e. Fund of the Development Bank of Masiphumelele, Kayamandi, Phola Park Southern Africa (DBSA) funded this and Khayelitsha primary schools). The project. objective of the project is to pilot the Seven task team meetings (i.e. 16 and improvement of school safety by 29 November 2007, 18 January, 27 March, encouraging the application of resilient 24 July and 18 September 2008 and 30 DR ELMIEN STEYN behaviour that can withstand any kind of PROVINCIAL DISASTER April 2009) were held with all relevant natural hazard, which could lead to stakeholders (i.e. Provincial Disaster MANAGEMENT CENTRE: disasters. The North West University, more WESTERN CAPE Management Centre, Provincial specifically the Centre for Public Sector Department of Education, City of Cape Management, has initially developed this Town (DRMC), Stellenbosch Municipality Kit to be implemented in the Tshwane and the South African Weather Service) municipal area, which consists of the since November 2007. After the following: compilation of a project plan and role • Educators study guide; clarification document the committee • Learner's workbook [grades 5 (fire), decided to embark on a capacity building 6 (floods) and 7 (compilation of an workshop for educators. This workshop evacuation plan)]; took place on Saturday, 16 February 2008, at the PDMC and were attended by both • Song; the task team members, as well as the • A2 poster; educators for grades five, six and seven in • Riskland board game; the following identified primary schools: • Riskland activity book; and • Ukhanyo (Masiphumelele); • Capacity building workshop for • Ikhaya (Kayamandi); educators. • Bongolethu (Phola Park); and • Masiphumelele (Khayelitsha).

The launch took place on Monday, 19 May 2008, at the Masiphumelele Primary School in Khayelitsha and were attended by the MEC for Local Government, the Mayco member of Safety and Security for the City of Cape Town, the Head of the Provincial Disaster Management Centre, representatives from the PDMC, Department of Education, City of Cape Town (DRMC), Stellenbosch Municipality and the South African Weather Service, the task team members, the educators for grades five, six and seven in the identi- fied primary schools, as well as learn- ers. Activities included a puppet show Training material for learners and educators and rap song, as well as school items

18 Disaster Management Southern Africa October 2009 Capacity building workshop for educators and task team members held on 16 February 2008 at the PDM delivered by the learners. It is envisaged that approximately 2 069 learners and 53 educators will be involved in this initiative. The task team also included Montague Drive Primary School in Mitchell's Plain as a fifth school, as the City of Cape Town also procured the learning material for this school and a successful launch was held on Wednesday, 11 March 2009. The MEC for Local Government, Environmental Affairs and Development Planning's fire and flood awareness campaign was subsequently linked to the Basic Education Kit. This campaign as well as the pilot art competition commenced on 4 December 2008 at the Kalkfontein Primary School in Kuilsrivier. Together with the Department of Education (the Safer

Below, right and above right: The launch of the Basic Education Kit held on 19 May 2008 in Khayelitsha

Disaster Management Southern Africa October 2009 19 Above and below:The art competition award ceremony held on 26 March 2009 in Kayamandi and on 6 May 2009 in Wallaceden

Schools Team), the art competition was rolled out in seven primary schools, in high risk areas identified by the Training, Education, Awareness and Marketing (TEAM) programme in the Western Cape. These schools included: • Protea Park Primary School (Witsand in Atlantis); • Imvumelwano Primary School (Wallacedene); • Rabie Primary School (De Doorns); • Kathlyn Primary School (Grabouw); • Ikhaya Primary School (Kayamandi in Stellenbosch); • Ukhanyo Primary (Masiphumele in Above: The annual fire and flood awareness campaign held on 4 December 2008 Fish Hoek); and in Kuils River • Lwandle Primary (Khayelitsha). Grade four to seven learners were encouraged to enter the art March, and 545 pieces of artwork were Disaster Management is competition to demonstrate an received. everybody's business and it will require understanding of fire and floods. The The award ceremony was held on everybody's efforts to effectively deal art competition commenced on 26 March 2009 at the Ikhaya Primary with disasters and more importantly, to Monday, 2 March 2009, where posters, School in Kayamandi, due to the fact also be proactive in preventing them pamphlets and entry forms were that both the first and second from occurring. With all departments distributed to the seven schools. The prizewinners were from this school. and municipalities supporting the ISDR competition closed on Wednesday, 18 The handing-over of the third prize (International Strategy for Disaster March, whilst the collection of artwork took place on 6 May 2009 at a school Reduction) initiatives, this will and competition entry forms took place in Wallacedene. It is envisaged that the contribute towards "Making the on Thursday and Friday, 19 and 20 art competition will be extended Western Cape a safe home and March. The adjudication process was throughout the province in the next resilient community for all". held at the PDMC on Monday, 23 annual campaign at the end of 2009.

20 Disaster Management Southern Africa October 2009

Change or no change? Findings of Western Cape Disaster Management

Introduction The source of discontent between The Western Cape Department of Local province and municipalities is not so much Government completed a disaster that the assignment is incorrect, as it is management function review in February widely agreed that there is an indisputable 2008 to provide clarity regarding the logic for the involvement of the local implications of the legislative assignment sphere in disaster management, but that of the function to local government and to the assignment is in contravention of identify interventions to improve the Section 10A of the Municipal Systems Act performance of disaster management by 32, of 2000. Section 10A states that: the municipalities. Disaster management is Cabinet member, MEC or other organ of considered a 'grey area' power and state initiating an assignment of a power or function to a municipality in terms of KAREN HARRISON function whereby municipalities argue that the assignment of the function does not section 9 or 10, must take appropriate comply with all legislative imperatives and steps to ensure sufficient funding, and that this is impacting negatively on their such capacity building initiatives as may ability to perform the function. Concerns be needed for the performance of the were also raised about the allocation of assigned function or power by the powers and duties within the local sphere municipality.' The national Disaster in terms of the Disaster Management Act Management Framework of 2005 included (DMA), No 52 of 2002. a financing framework based on earlier critiques of the draft legislation by the Finance and Fiscal Commission. This Legislative background and debates framework addresses financing The DMA assigned disaster arrangements for start-up arrangements, management to the local sphere through operations, risk reduction, response, the allocation of certain powers and recovery and rehabilitation, and education duties. In terms of the Constitution, and capacity building. it is recognised that disaster management is a Schedule 44 municipal budgets may need to be function, which is a functional area of augmented through additional funding, in concurrent national and provincial particular for low capacity municipalities. It legislative competence. The legislative is strongly argued in the Western Cape assignment was in terms of Section 99 of review that implementing the financing the Constitution which enables legislative framework and identifying critical capacity assignments by Cabinet members to building initiatives would go a significant either a member of a provincial executive way in addressing the uneven council or a municipal council. Chapter 6 performance of the function across the of the DMA addressed the funding of province. disaster management with a sole focus on The assignment of 'disaster recovery and rehabilitation. S 56(2) of the management' to the local level allocated Act states that organs of state 'may significant new responsibilities to a sphere financially contribute to response efforts that had historically focused on the more and post-disaster recovery and narrow and reactive 'civil protection' and rehabilitation'. S 56(4) assigns the 'fire services' functions. In terms of the responsibility for repairing or replacing DMA, 'disaster management' means a infrastructure to the organ of state continuous and integrated multi-sectoral, responsible for the maintenance of such multi-disciplinary process of planning and infrastructure. S 57 provides some leeway implementation of measures aimed at for a municipality or provincial government prevention, mitigation, preparedness, to request financial assistance for recovery response, recovery and rehabilitation. and rehabilitation from national Particular attention is given to careful risk government. identification and planning. The national

22 Disaster Management Southern Africa October 2009 Table 'l: Roles and Responsibilities of the Local and Provincial Spheres in Management

Disaster B Municipality C Municipality National and Provincial Management Responsibility Responsibility Government Responsibilities Strategy

Planning IDPs, SDFs, lDP, SDF, Humon Settlement NSDP infrastructure master Strategy PSDF plans, human Breaking new ground settlement strategies lsidima Word committees

Prevention Basic service delivery Human settlements Agriculture Public participation processes Land Human settlements Roads

Response Fire services Fire services Health All basic services Municipal health Social services Traffic Roads Roads

Monitoring Joint operations centre Municipal health services Weather services Engineering services Disaster management centre National disaster management centre

Housing departments Joint operations centre Provincial disaster management centre

Housing departments Provincial emergency management centre

Co-ordination Joint operations centre Disaster management centre Provincial disaster advisory structure Ward committees Joint operations centre Provincial emergency Advisory forum management centre and provincial Disaster Management plans of district and local levels, and that addresses roles and Frameworks identify four key local level response with the district responsibilities in greater detail. For performance areas, namely: integrated municipality being primarily example, it must be recognised that institutional capacity, disaster risk responsible for the co-ordination and local municipalities control the majority assessment, disaster risk reduction management of local disasters. of instruments that can be used for the and response and recovery, and three prevention and mitigation of disasters, enablers: (1) comprehensive Roles and responsibilities within the such as basic service delivery and information management and local sphere human settlements. Local disaster communication; (2) education, training management plans must reflect the and public awareness; and (3) financial It is argued in the review that given integration of disaster management arrangements, that need to be in place the broad definition of disaster into the operations of the entire for the delivery of the function. In each management, the allocation of municipality. The district municipalities of these areas local government is responsibilities within the local sphere should take responsibility for liaising assigned particular responsibilities. in the DMA is inappropriate and needs with other organs of state responsible Specific requirements include the to be reviewed in line with the division for mitigation and prevention strategies establishment of a Municipal Disaster of other related powers and functions related to their powers and functions Management Centre of district level, within the local sphere. The table within local areas. Increasingly, that can be run in partnership with the above illustrates the allocation of prevention and mitigation have to local municipalities, the establishment relevant functions amongst local, become the core focus of disaster of co-ordinating and advisory provincial and national government in management. Local municipalities also structures of district and local level, terms of disaster management. have critical functions that should be the undertaking of disaster risk In terms of these divisions it is mobilised during response such as assessments of district and local level, argued in the review that the DMA traffic and fire services. Indeed, it is the establishment and implementation allocation of responsibilities to the local argued that legislation should place of disaster management frameworks of sphere should be reviewed through a primary responsibility for the response district level, disaster management legislative or regulatory amendment to local disasters with local

Disaster Management Southern Africa October 2009 23 municipalities given these instruments and district Integrated Development sphere and that the role of local and their geographical proximity to the Plans and Spatial Development municipalities has been understated event. Monitoring and co-ordination Frameworks; and, have insufficient within the DMA has contributed instruments lie both within the ambit of staffing of the correct levels. towards capacity constraints of all local and district municipalities. What • Local municipalities are unsure of levels that are impacting negatively on emerged from the Western Cape their role in disaster management, the quality and performance of the review was that the failure of the DMA with twelve of the fifteen surveyed function. Generally, the bias is still on to adequately recognise the structure municipalities indicating that the response and recovery and legislative of the local sphere and its implications district is responsible for the function. compliance. The key for the function has contributed to Seven municipalities indicated that recommendations that emerged from weaknesses in performance. Local local municipalities also have a role. the review are that: municipalities have focused on In the majority of instances there is a a) Provincial government should lobby legislative compliance through the strong overlap between the fire national government to preparation of disaster management services and disaster management implement the proposed financing plans that are skewed towards function with the traffic chief, fire chief mechanisms contained within the response and recovery. and disaster manager being the Disaster Management Framework of same individual. Only seven of the 2005; Current performance of the disaster fifteen municipalities recognised a b) Provincial government may lobby management function in the Western role for local municipalities in national government to amend the Cape prevention and mitigation and the Act, or develop provincial legislation Some of the key findings regarding promotion of risk avoidance. The or regulations, to address the the current performance levels of the disjunction between legislation and weaknesses regarding the roles and disaster management function in the reality is leading to confusion and a responsibilities within the local province are: failure to tackle local level capacity sphere; • The Western Cape Provincial constraints. c) Province should address the Disaster Management Centre • The total operating spend on the capacitation of locals through the (PDMC) is one of the more disaster management function by immediate financing of appropriately capacitated centres nationally and municipalities in 2007/08 was qualified and placed B-level disaster has spearheaded an integrated R 32 428 130, with 50.4% of that management co-ordinators within emergency and disaster allocated by the metro. The B medium and low capacity management approach. The PDMC's municipal contribution of municipalities. These co-ordinators primary role is in co-ordinating R 10 484 872 largely reflects their fire must be incorporated in the response and recovery for provincial services’ budgets. Operational organograms and staff of the B disasters. Line function departments budgets are financed completely municipalities and would have the are meant to be responsible for from own revenue sources" following functions: sector disaster management plans • Investments in capital spend only • Co-ordinating internal and external but capacity is seriously lacking. The reflect establishment costs of stakeholders and liaison with the largest performance gaps of disaster management centres. They MDMC; provincial level are in prevention, exclude any spend on prevention or • Ensure the undertaking of a information dissemination, risk mitigation instruments. disaster risk assessment; avoidance and in ensuring the • There is a reliance on assets from • Develop, implement and monitor a preparation of sector base planning. fire services for the performance of local disaster management plan and There are plans in place to address the disaster management function. inform council of any failures in this these gaps. Provincial support to This is cause for concern as the regard; local government thus far has PDMC estimates a R 526 million • Assess the need for Joint Operating focused on district municipalities and backlog in this function in the Centres (JOCs) and establish where the establishment and equipment of Western Cape. required; MDMCs of district level. • The nature of the disaster • Co-ordinate local disaster • The performance of the disaster management function as a responses; management function by district co-ordinating as opposed to a line • Ensure effective public awareness municipalities is constrained by the function needs to be further programmes; and fact that they are: legislatively the addressed as provincial, metro and • Co-ordinate sector volunteers in the primary institution responsible for district managers battle to secure the local disasters, but in reality they are event of a disaster; necessary authority and skills levels • Information management and by- not necessarily the first respondent and scope required for the function. nor have the necessary instruments law development. of their disposal; have very few d) Additional capacity should be prevention and mitigation Summary and recommendations created within the PDMC to ensure instruments under their control; The Western Cape Review found that the disaster management often experience a lack of that because a legislative assignment functions of prevention, mitigation, co-operation from the local has taken place without the requisite co-ordination and awareness can municipalities; battle to align local funding and support to the local be adequately performed;

24 Disaster Management Southern Africa October 2009 e) Capacity must be created within to fund additional capacity within the taken to implement the sector departments to ensure that local municipalities; make the recommendations of the review they are able to perform their necessary legislative or regulatory through providing funds to local responsibilities with regard to the amendments, or support capacity municipalities, making the necessary disaster management function; and development within the provincial and legislative and regulatory amendments f) The co-ordination function of local spheres. The status quo will be and strengthening and refocusing the disaster management within maintained with local municipalities roles of the PDMC and MDMCs. This provincial, district and local assuming minimal responsibility for implies that capacity will be created government must be disaster management focusing simply that will enable local municipalities to acknowledged. This requires the on legislative compliance, a lack of perform a more proactive role through correct positioning of the function integration of disaster management risk assessment and planning. The and the required authority to be across government, and a strong integration of disaster management attributed to the function. focus on response and recovery. It is into sector plans, programmes and argued that in the event of a disaster, strategies, and an increasing focus on Two scenarios are presented in the the likelihood of the disaster having a prevention and mitigation. In the event review. The first assumes that the major impact associated with high of a disaster, it is argued, that the recommendations from the report will costs will be greater. impact will have been mitigated and not be implemented and that there will The second scenario paints a the costs associated with the disaster be no change. The decision will be not picture of change, where a decision is reduced.

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Disaster Management Southern Africa October 2009 25 The International Organisation for Standards (ISO) and Disaster Management Standards (Societal Security (ISO/TC 223) The International Organisation for standards that can be referred to for Standards (ISO) has published many guidance. This framework describes the standards that are widely used throughout scope, vision and roadmap for developing the world. Most people are familiar with ISO standards and other ISO deliverables the following international standards: for improving societal security. • ISO 9 001: 2000 - Quality Management The tools and standards required to • ISO 14 001: 2004 - Environmental enhance security to protect critical assets; Management human physical and information, should reflect the needs of societal security. • Information security (ISO / IEC Societal security addresses the 27001:2005) interdependent and borderless aspects of • Food safety (ISO 22000:2005) and operability and resiliency of the core ANTHONY R KESTEN • Supply chain security (ISO/PAS functions of society’s public, private and 28000:2005). not for profit sectors. ISO (the International Organization for Standardisation provides methods and Standardization) is a worldwide federation tools of essential and general applicability of national standards bodies (ISO member so that stakeholders with responsibility to bodies). The work of preparing prepare for and respond to an incident, as International Standards is normally carried well as those impacted by a disruptive out through ISO technical committees. incident, can maintain societal functions. It Each member body interested in a subject increases stakeholders’ capability to for which a technical committee has been address the challenges posed by a established has the right to be disruption to societal functions. represented on that committee. Management system standards International organisations, governmental produced by ISO show that a number of and non-governmental, in liaison with ISO, common elements exist. These common also take part in the work. ISO elements can be arranged under the collaborates closely with the International following main subjects: Electrotechnical Commission (IEC) on all • policy; matters of electrotechnical standardisation. • planning; International Standards are drafted in accordance with the rules given in the • implementation and operation; ISO/IEC Directives, Part 2. • performance assessment; The main task of technical committees • improvement; is to prepare international standards. Draft • management review. international standards adopted by the A preliminary definition of societal technical committees are circulated to the security is: “protection of society from and member bodies for voting. response to crises caused by intentional The primary objective of this standard is and unintentional human acts, natural to describe the framework for developing hazards and technical failures.” standards, guidelines, handbooks, It is evident from the above definition technical reports and other documents on that Disaster Management and Disaster societal security. It aims to establish the Risk Reduction falls within the scope of the basic common concepts and framework definition. for societal security that will provide both a reference for ongoing standard The Disaster Management Institute of development and to harmonise existing Southern Africa, DMISA, supports work in related documents. This framework the field of the development of standards includes a bibliography of related in disaster management and for this

26 Disaster Management Southern Africa October 2009 reason the Executive Committee Portfolio: Training, Skills Development Towards better Disaster Management and Tours, has the responsibility of standards. The South African Bureau of SANS 10264 Standards has, in line with the ISO/TC 223 established a Mirror Committee for The latest edition of SANS 10264, Technical Committee 223 "National National Disaster Management Disaster management has been Disaster Management". (Societal Security) and this Committee published. The standard has three "It is also important that South resolved that we track the international parts, namely: African national standards on Disaster developments in the field of • Part 1: Terminology and Management are discussed with the standardisation in disaster risk implementation, rest of the world, and that they are reduction and management but fine • Part 2: All-risk emergency operation informed that South Africa, although tune these to meet our country specific planning, and regarded as a developing nation, is not requirements. The SABS is a behind in developing new standards • Part 3: Hazard-specific response permanent member of ISO and is for disaster management. Already a planning. represented on the ISO Technical proposal is being prepared for the Committee on Societal Security development of a new standard on (ISO/TC 223) by Messrs Anthony Anthony Kesten, Chairperson of the Organisational resilience, business Kesten, Moshema Mosia and Mike national technical committee continuity and disaster management Store. responsible for the standard, answers as these areas, although separate, are Recently, during July to November the following questions about the closely interlinked", Kesten concluded. 2007, the ISO members voted on and revised standard. approved a Publicly Available To purchase the standard: Specification called: “Societal security: Why was the standard revised? Standards Sales at the SABS Guideline for incident preparedness "The Standard was revised Telephone 012 428-6883 and operational continuity because of the changing environment Fax 012 428-6928 management.” in Disaster Management. Nationally The Publicly Available Specification and internationally, this area is growing Email [email protected] ISO/PAS 22399:2007, Societal security and developing as new standards and The standard can also be downloaded - Guideline for incident preparedness processes are being developed. directly from our secure standards and operational continuity webstore management, is based on best What are the key changes that are now (http://www.sabs.co.za/Business_Units/ practice from five national standards present in the latest edition? Standards_SA/WebStore/WebStoreHo from Australia, Israel, Japan, the United me.aspx) on entry of a credit card "Although the standard did not Kingdom and the United States. number. make many key changes, one change Natural disasters, acts of terror, of note is the requirement of the Head technology-related accidents and of a Disaster Management Centre to Information on the standard: environmental incidents have clearly have a formal qualification in Disaster Anthony Kesten demonstrated that neither public nor Management. Historical evidence has private sectors are immune from shown that such a person can better Chairperson for TC 223 crises, either intentionally or perform their legislative responsibilities National disaster response unintentionally provoked. This has if they have a formal Disaster Telephone 011 874-5019 lead to a global awareness that Management qualification. Also the Fax 011 874-5159 organisations in the public and private new improved standards provide sectors must know how to prepare for better guidance for dealing with such Email [email protected] and respond to unexpected and matters of disaster response and potentially devastating incidents. incident handling. ISO/PAS 22399 is the first deliverable from ISO technical committee ISO/TC 223, Societal Security, which is Other points?" charged with developing standards in The importance of standards in the area of crisis and continuity disaster management cannot be over management. emphasised. The Disaster MORE: http://www.iso.org/iso/ Management Act, Act 57 of 2002 pressrelease.htm?refid=Ref1094 clearly states in section 7(2)(c)(iii) that the establishment of joint standards of Reference: practice should be facilitated. For for this reason that the Acting Head of the International Organisation for National Disaster Management Centre Standardization (ISO) is also an active member of the http://www.iso.org

Disaster Management Southern Africa October 2009 27 DMISA Western Cape facilitates training on managing displaced person’s camps

The United Nations and DMISA recently somewhat off-guard by this new and partnered to provide training to disaster unexpected problem which was management roleplayers on Refugee / significantly different from previous lnternally Displaced Persons Camp incidents where people were displaced Coordination and Camp Management. due to more frequently occurring natural Several years ago, at DMISA Western hazards. Cape regional meetings, the question was The response by local, provincial and asked whether South Africans were ready national government departments, civil to interact with international organisations society and the private sector differed from that could come to South Africa to render city to city. Although a massive outpouring assistance for a calamity affecting this of goodwill from South African society was evident, the problem facing Disaster JOHAN MINNIE country. lt was noted that UN and other relief agencies were regularly using South Management officials was unique and Africa as a base of operations from which complicated by questions of mandate, to launch relief efforts to other African jurisdiction, nationality, legal status and countries, and that South Africans were political agendas. also always very keen to go assist in Camps and safe zones to crises in other countries. There was accommodate the displaced foreign general agreement that no real experience individuals were created with mixed existed regarding foreign disaster results, and although the scale of the response and humanitarian assistance resultant humanitarian assistance effort within the country. lt was clear that a need was not unknown to Disaster existed for training on the standards, Management officials in the municipalities processes, systems and legal frameworks of the Western Cape Province, the of international disaster response and surrounding conditions and the fact that humanitarian relief - from the perspective individuals were not yet welcome to return of the affected country. to their communities was unusual. Many Disaster Management officials With a fully mobilised provincial across South Africa became involved in disaster management centre, a responding to the humanitarian crisis that massive ongoing relief effort by NGOs, the was caused by the unfortunate and appointment of fulltime site coordinators embarrassing period of violence against for safe zones within the City of Cape foreign individuals that started in certain Town and the international profile of the urban areas in May 2008. situation, it became clear that unchartered Most roleplayers were caught waters were being entered. The question

Mr Chairperson, responds to an issue raised in the course. Mr Arvind Gupta (UNHCR) and Ms Perez Abeka (UNHCR) are the standing facilitators.

28 Disaster Management Southern Africa October 2009 (OCHA), and the World Food Programme (WFP). 25 Delegates from the Western Cape Provincial Government (Disaster Management, Social Development, Community Development Workers, Health), City of Cape Town (Disaster Management, Site Coordinators, Sport and Recreation Facilities) South African Police Service (SAPS), Treatment Action Campaign (TAC) and DMISA Western Cape attended. Some of the delegates and facilitators on the course. With years of experience in planned and unplanned camps for refugees posed so many years ago regarding internally displaced persons, protection and internally displaced persons in the readiness of South Africa to receive and camp management. many different countries, the UN and deal with foreign disaster assis- A two-day course on "Camp Co- facilitators brought a wealth of personal tance came to mind again. ordination and Camp Management" insight and practical knowledge to the In informal discussions between was subsequently arranged in course. All attendees were DMISA Western Cape, several United collaboration with the UN from 6 - 7 overwhelmingly positive about the Nations representatives, the Western August 2008. DMISA Western Cape course and the learning opportunity, Cape Government and the City of acted as host and organiser. Africon and it was agreed that there is room Cape Town it was decided that DMISA sponsored the venue and catering and for further capacity building in the field. Western Cape, as an unaffiliated the training material and facilitators DMISA Western Cape will pursue independent professional body, was came from the United Nations High such further possibilities in partnership well placed to facilitate capacity Commission for Refugees (UNHCR), with UNHCR and UN-OCHA and wish building among disaster management the United Nations Office for the to thank the UN representatives for roleplayers on the topics of refugees, Coordination of Humanitarian Affairs their valued contribution.

Risk Assessment - A Guide for Understanding the Basics Written by Leighton Bennet of Benrisk Consulting, this is a handy guide for those who have to produce Risk Assessments - a growing requirement by the OH&S legislators, the King II Medhold welcomes you to the report.

DMISA annual conference The Author says in his foreword: “The aim of this booklet is to facilitate the development of an Medhold invites you to visit their new understanding of the Risk Assessment basics and website the Risk Assessment Process, with the outcome of enabling you, a novice or a professional to perform a www.medhold.co.za basic risk assessment with confidence. A basic risk assessment worksheet is provided for this purpose”.

Tel: +27 11 975-0633 Contact: The Safety First Association Email: [email protected] Tel: 012-654-8349 or email [email protected]

Disaster Management Southern Africa October 2009 29 Disaster Management Indaba 09 - 10 July 2008, Gallagher Estate The Role of DMISA in Disaster Management

Risk Reduction To further strengthen this argument, MAL REDDY In recent years, disaster risk reduction attention is drawn to the Yokohama has increased in importance on the Strategy that set guidelines for action on international agenda. Natural hazards, prevention, preparedness and mitigation such as floods, earthquakes, tsunamis, of disaster risk. These guidelines were and epidemics, have had an increasing based on a set of principles that stressed impact on humans, due to population the importance of risk assessment, growth, urbanisation, rising poverty and disaster prevention and preparedness, the the onset of global environmental capacity to prevent, reduce and mitigate changes, such as climate change, land disasters, as well as early warning. More degradation and deforestation. importantly, these principles stemmed from the recognition that preventive The First Session of the Global Platform measures are most effective when for Disaster Risk Reduction, held in stakeholders at all levels are involved. Geneva (Switzerland- 5-7 June 2007), aimed to raise awareness on reducing As aptly encapsulated in its vision and disaster risk, share experiences, and guide mission statement, DMISA strives to the International Strategy for a Disaster promote training, development and Reduction system. In the same vein, The capacity building, targeting respective Disaster Management Institute of Southern stakeholders across the various spheres Africa (DMISA), aims to advance and of government, the private sector, non- create learning and networking governmental organisations, community opportunities. Annually, DMISA hosts the based organisations and community at National Conference in Disaster large. These initiatives manifest Management, with the over-arching theme themselves through regional workshops, being Disaster Risk Reduction. These seminar presentations and varied projects. conferences provide the platform for For this reason, DMISA emphasises the constructive Disaster Risk Management role of its regional structures to enhance dialogue; the sharing of learning the issues of convenience and experiences and best practices, and the accessibility, relevance and regional interrogation of disaster risk reduction appropriateness, and effectiveness and strategies for consideration and efficiency in all disaster management and implementation. disaster risk reduction interventions that may be undertaken. Disaster management practitioners and researchers widely recognise that poor In highlighting and prioritising the need planning, poverty, and a range of other for effective and strategic disaster risk underlying factors create conditions of reduction, it is imperative that concepts, vulnerability that result in insufficient approaches and methods of disaster risk capacity or measures to reduce hazards' reduction are incorporated into decision- potentially negative consequences. Thus, making processes. vulnerability contributes as much to the According to the United Nations magnitude of the disaster risk as do the Development Programme (http : natural hazards themselves. Therefore, www.undp.org/bcpr/disred), disaster risk action to reduce risk is now essential and reduction could be mainstreamed as crucial to safeguard sustainable follows: development efforts and for achieving the • Firstly, disaster risk reduction is one of Millennium Development Goals (MDGs). the several streams of activities to be

30 Disaster Management Southern Africa October 2009 planned and supported as part of across different sectors, raising of the development; awareness and advocacy through • Secondly, considerations of media. Disaster management disaster risk reduction are structures have a pivotal role to play in consciously built into the this respect. Hence, DMISA, in partner- implementation of development ship and close collaboration with the programmes such as the National Disaster Management Centre construction of dams, major (NDMC), together with all other highways, or urban settlements; relevant stakeholders meet regularly as the National Disaster Managernent • Thirdly, social and poverty Advisory Forum. eradication programmes are supported to improve coping Strategic and policy matters are strengths and resilience of people, tabled for discussion, deliberation, which directly contributes to information dissemination, and reducing disaster risks. implementation. It is necessary that these In closing, it is important to state that approaches and methods and their risk reduction solutions, achieved appropriateness for different situations through democratic processes, will be adequately recognised at decision- most certainly reflect the shared vision making levels in both government and and enjoy collective support. In non-governmental sectors. This essence, a political will and social Below: Poverty in the squatter camps certainly requires a continuous process consciousness makes the agenda of where the spread of diseases such as HIV of engagement with the stakeholders risk reduction more sustainable. poses an enormous problem Photo: Leigh Gower

Disaster Management Southern Africa October 2009 31