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TESIS: Estrategias De Buen Gobierno Ante Peligros, Riesgos Y Desastres

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TESIS: Estrategias De Buen Gobierno Ante Peligros, Riesgos Y Desastres UNIVERSIDAD NACIONAL AUTÓNOMA DE MÉXICO PROGRAMA DE POSGRADO EN CIENCIAS POLÍTICAS Y SOCIALES FACULTAD DE CIENCIAS POLITICAS Y SOCIALES Estrategias de Buen Gobierno ante Peligros, Riesgos y Desastres, causados por Fenómenos Hidrometeorológicos en Playa del Carmen, Q. Roo, México en 2010 TESIS que para optar por el grado de : MAESTRÍA EN CIENCIA POLÍTICA PRESENTA: Lic. Javier Mora Sompa Tutor : Dra. Cecilia Ímaz Bayona. Programa de Posgrado en Ciencias Políticas y Sociales-UNAM México D. F. Diciembre, 2013 UNAM – Dirección General de Bibliotecas Tesis Digitales Restricciones de uso DERECHOS RESERVADOS © PROHIBIDA SU REPRODUCCIÓN TOTAL O PARCIAL Todo el material contenido en esta tesis esta protegido por la Ley Federal del Derecho de Autor (LFDA) de los Estados Unidos Mexicanos (México). El uso de imágenes, fragmentos de videos, y demás material que sea objeto de protección de los derechos de autor, será exclusivamente para fines educativos e informativos y deberá citar la fuente donde la obtuvo mencionando el autor o autores. Cualquier uso distinto como el lucro, reproducción, edición o modificación, será perseguido y sancionado por el respectivo titular de los Derechos de Autor. UNIVERSIDAD NACIONAL AUTÓNOMA DE MÉXICO FACULTAD DE CIENCIAS POLÍTICAS Y SOCIALES Estrategias de Buen Gobierno ante Peligros, Riesgos y Desastres, causados por Fenómenos Hidrometeorológicos en Playa del Carmen, Q. Roo, México en 2010 Fotografía aérea de la península de Yucatán: Playa del Carmen y Cozumel en el a) Infraestructura y población en riesgo ojo del huracán Gilberto en 1988 b) Comité municipal de huracanes, 2010 Estrategias de Buen Gobierno ante Peligros, Riesgos y Desastres, causados por Fenómenos Hidrometeorológicos en Playa del Carmen, Q. Roo, México en 2010 Í N D I C E INTRODUCCIÓN ....................................................................................................................................... 4 1. EL RIESGO COMO UNIDAD DE ANÁLISIS Y DE INTERVENCIÓN DEL ESTADO ............................. 11 1.1. Planteamiento analítico del riesgo ......................................................................................... 11 1.2. Antecedentes: peligros, riesgos y desastres en Playa Del Carmen ................................... 23 1.3. Obligación del Estado: Atender riesgos y prevenir desastres ............................................ 47 2. DELIMITACIÓN Y CARACTERÍSTICAS DEL ÁREA DE ESTUDIO........................................................ 49 2.2. Límites político administrativos ................................................................................................. 53 2.3. Características del medio natural ........................................................................................... 55 2.4. El espacio modificado .............................................................................................................. 61 2.5. Características de la población en riesgo ............................................................................ 64 3. SISTEMATIZACIÓN DE PELIGROS, RIESGOS Y VULNERABILIDAD EN PLAYA DEL CARMEN ....... 74 3.1. Peligro, Riesgo y Vulnerabilidad. Conceptos operativos .................................................... 74 3.2. Peligros y riesgos de origen natural ......................................................................................... 76 3.3. Zonas de riesgo según causas ................................................................................................. 84 3.4. Zonas de riesgo según características de las viviendas: vulnerabilidad física ................ 88 3.5. Zonas de riesgo y su manejo político y social: vulnerabilidad social ................................ 89 4. ESTRATEGIAS DE BUEN GOBIERNO ANTE RIESGOS Y DESASTRES ................................................. 93 4.1. Estrategias de sensibilización y prevención de riesgos ........................................................ 93 4.2. Participación ciudadana ante riesgos y desastres .............................................................. 94 4.3. Gestión del gobierno local ante fenómenos hidrometeorológicos .................................. 95 4.4. Acciones de Buen Gobierno.................................................................................................... 96 CONCLUSIONES ............................................................................................................................... 101 BIBLIOGRAFÍA ................................................................................................................................... 104 ANEXOS: GLOSARIO DE TÉRMINOS, ORGANIGRAMAS, GRÁFICAS, CARTOGRAFÍA ............. 108 2 Estrategias de Buen Gobierno ante Peligros, Riesgos y Desastres, causados por Fenómenos Hidrometeorológicos en Playa del Carmen, Q. Roo, México en 2010 RESUMEN La Constitución Política de los Estados Unidos Mexicanos, Artículo 89 Fracción I y la Ley General de Protección Civil Artículo 4. Fracción I, señalan que es una “Obligación del Estado en sus tres órdenes de gobierno, reducir los riesgos sobre los agentes afectables y llevar a cabo las acciones necesarias para la identificación y el reconocimiento de la vulnerabilidad de las zonas bajo su jurisdicción.” Una estrategia programática del Plan Nacional de Desarrollo 2007-2012 fue “hacer de la Prevención de desastres y la Gestión del Riesgo una política de desarrollo sustentable”; y el Plan Nacional de Desarrollo 2013-2018 afirma que “se requiere fortalecer las acciones de prevención para reducir los riesgos y mitigar las consecuencias adversas que ocasionan (…), privilegiará las acciones preventivas ante desastres, será incluyente y utilizará soluciones de innovación científica, eficacia tecnológica, organización y capacidad para enfrentar los retos presentes y futuros en este ámbito.” La peligrosidad y riesgos derivados de los fenómenos hidrometeorológicos y sobre todo los desastres experimentados en la Ciudad de Playa del Carmen, Municipio de Solidaridad, Quintana Roo, México, expuestos en este trabajo, son un imperativo mayor para proponer Estrategias de Buen Gobierno ante peligros, riesgos y desastres causados por fenómenos hidrometeorológicos. En este trabajo, se recupera la noción de Buen Gobierno en su sentido de orden y seguridad; como expresión de un tipo de coherencia, de regularidad, de las relaciones entre la sociedad, representada en la República y su (buen) gobierno, que debe garantizar orden, seguridad y estabilidad (Platón, 2003), en términos actuales, su capacidad gubernativa y directiva (Aguilar, 2010). Se concibe el riesgo como una problemática multidimensional referida a la realidad global, nacional y local, vinculada al medio físico, a los fenómenos de máxima manifestación de la naturaleza considerados como peligrosos y a las características sociales de vulnerabilidad; y propone la intervención política de un Buen Gobierno a través del diagnóstico, la prevención y su reacción eficaz junto con la sociedad. El trabajo de investigación muestra antecedentes de los eventos desastrosos causados por fenómenos hidrometeorológicos principalmente y los esfuerzos realizados en materia de prevención y mitigación de riesgos en Playa del Carmen. En él se describe el medio físico, el espacio modificado, las características de la población y vivienda del área de estudio y su ubicación en la región de alta actividad ciclónica, localiza las principales zonas de riesgo, vulnerabilidad y mitigación y finaliza con las estrategias de buen gobierno a seguir antes, durante y después de una contingencia.1 Los resultados del trabajo, se sintetizan en Estrategias de Buen Gobierno, cuyo eje de prevención y reacción es un sistema de información de riesgos, articulado a áreas de trabajo gubernamental vinculadas al riesgo para diagnosticar, prever y reaccionar en tiempo real ante peligros, riesgos y desastres causados por fenómenos hidrometeorológicos. Estos resultados se sustentan en información documental, visual y cartográfica, parte de la cual fue recopilada y generada en trabajo de campo, realizado principalmente en el periodo de huracanes de 2010- oficialmente comienza el 01 de junio y termina el 30 de noviembre-, donde tuve la oportunidad de vivir y analizar algunos peligros, riesgos, efectos y reacciones en la población y en el gobierno local, como el paso del huracán Paula por el área de estudio el 13 de octubre de 2010. En esta ocasión, dicho huracán no fue de gran magnitud ni causó destrozos mayores, pero enriqueció el análisis de este trabajo. 1 Contingencia es un concepto clave para entender la noción de riesgo en la sociedad, sobre todo en la posmodernidad, que en términos sencillos significa que lo que fue siempre y es hoy puede ser distinto mañana, no hay leyes que determinen lo personal y lo social, depende de la vulnerabilidad y la incertidumbre; aunque se busque reducir la contingencia a través de normas, organizaciones, creencias y demás, la realidad se impone y genera inseguridad, así los acontecimientos se convierten en riesgos y peligros: el riesgo es el posible daño consecuencia de la decisión; y el peligro es provocado externamente, al medio ambiente. No obstante, es posible disminuir los efectos destructivos (desastres) con estrategias de prevención y reacción. 3 Estrategias de Buen Gobierno ante Peligros, Riesgos y Desastres, causados por Fenómenos Hidrometeorológicos en Playa del Carmen, Q. Roo, México en 2010 INTRODUCCIÓN En México, en las tres últimas décadas, los desastres ocurridos por fenómenos naturales, principalmente sismos y fenómenos
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