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Report on the Systematization of Community-Based Disaster Risk Reduction Services at Three Levels

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Report on the Systematization of Community-Based Disaster Risk Reduction Services at Three Levels ICCR-DRR-Funded Project Research Report Report on the Systematization of Community-based Disaster Risk Reduction Services at Three Levels --- A Case Study on Shichahai sub-district of Xicheng District, Beijing, China Drafted by Wang Dongming, Cao Shen, and Wang Ying I． Background Community-based disaster risk reduction (CBDRR) refers to the combination of public goods and services for communities provided by local public administration and measures taken independently by communities to ensure the safety of local residents.[1] The concept of CBDDRR is derived from "safe community" originated in Sweden in 1990s which sticks to the emphasis on community-based risk reduction.[2] The IDNDR Program Forum 1999 in Geneva called for special attention to communities as a basic unit of disaster risk reduction, in order to build up the capacity of disaster risk reduction in cities. Internationally, there have been various campaigns in CBDRR, such as "safe community", "disaster prevention community", and "demonstration community for comprehensive disaster reduction", but in essence, the campaigns are intended to improve community resilience by putting in place community-based mechanisms for disaster preparedness and emergency response and integrating all kinds of resources for disaster risk reduction. In an international context, multiple community-based safety improvement programs launched by the US Federal Government have played a positive role in promoting the development of CBDRR. One of the earliest is the community safety demonstration project led by the Insurance Institute for Business & Home Safety (IBHS), which seeks to reduce disasters through the transformation of building structure and layout by applying new building standards.[3] In 1997, Federal Emergency Management Agency (FEMA) introduced the initiative of Project Impact (PI): Building Disaster-Resistant Communities, with an aim to "protect families, businesses, and communities by reducing the impact of natural disasters through collaborative work of communities". The initiative provided funding and full autonomy to communities, and gives full play to the bottom-up mobilization and participation mechanisms. Disaster-resistant communities are allowed to develop and implement strategies 1 Ding Shisun. Disaster Management and Safe Communities [M]. Beijing: Qunyan Press, 2006, p.257. 2 Song Yanqiong, Zhao Yong, Xu Fuhai. Comparison of Three Models of National Community-Based Disaster Reduction [J]. Disaster Reduction in China, 2010 (19): 8-9. 3 Dennis Mileti (author), Xu Tanming (translator). Disaster by Design [M]. Wuhan: Hubei People's House, 2008, pp. 170. 1 and actions for disaster reduction and capacity building according to their situations. Nearly 200 communities and over 1,000 companies joined the program within less than two years, injecting a strong impetus to community-based disaster risk reduction in the US.[4] To smooth the implementation of the program, FEMA took a three-step approach, which included: 1) setting up a pre-disaster mitigation fund to support community capacity building; 2) urging communities to develop plans and actions to reduce disaster risks and vulnerability of buildings and facilities; and 3) promoting the public-private partnerships that support and facilitate community-based disaster risk reduction. Generally, the US pattern of CBDRR combines projects and financial and technical support of the government with activities independently developed and implemented by communities within the mandate. This mechanism mobilizes the enthusiasm and initiative of communities and effectively builds up the community capacity in disaster risk reduction. Drawing on the experience of the United States and other developed countries, China put the concept of community-based disaster risk reduction into practice in the 2010s. The 11th Five-Year Plan for Comprehensive Disaster Reduction unveiled in 2007 marks the start of CBDRR in China. It proposed "Project of CBDRR Capacity Building" and "Program of Making Demonstration Communities for Comprehensive Disaster Risk Reduction". The plan proposed establishing urban and rural working mechanisms for CBDRR, perfecting emergency plans, organizing emergency drills, improving monitoring and early warning capacity, and fostering community-based teams of workers and volunteers. From the year of 2007 to the year of 2010, up to 1,562 national demonstration communities for comprehensive disaster risk reduction were made, of which the first 284 were named by the National Disaster Reduction Committee and Ministry of Civil Affairs in 2008. As of the end of 2016, there are totally 9,568 national demonstration communities nationwide. With the implementation of national CBDRR policy, more resources have been invested into the communities for reducing disaster risks, especially in urban areas. The contingency plans have been put in place in more than half of the all communities in China. In every year, various kinds of DRR activities, such as emergency drill, DRR knowledge dissemination, self-help rescue skill training and risk assessment, are well organized and conducted. More important, basic approaches and methods of carrying out CBDRR activities have been grasped and applied by community cadres. [5] However, community-based disaster risk reduction activities, embodied in the program of "making demonstrating communities", is unfolded in a top-down approach in China, which means the tasks are decomposed and assigned from higher to lower levels. Local governments apply for demonstration communities (depending on favorable basic conditions rather than enthusiasm) and bear all the expenses incurred.[6] Following the lead, local demonstration communities are also created. Beijing Municipal Government issued the Guidance on 4 Lv Fang. Community-Based Disaster Reduction: Theory and Practice [M]. Beijing: China Social Sciences Press, 2010, pp. 28, 31. 5 YIN Benjie. Some Thoughts on the Development of National Demonstrating Community for Comprehensive Disaster Reduction. China Disaster Reduction, 2017(5): 34-37. 6 Feng Xijin, Wang Dongming. Policy Analysis of Community-Based Disaster Reduction [M]. Beijing: Peking University Press, 2014, pp. 32-33. 2 Strengthening Disaster Risk Reduction in Urban and Rural Communities in Beijing (BJ (2012) No.24) in 2012, in which governments (government agencies) of districts and counties were identified as the most important bodies to complete tasks set out in the Guidance. Beijing is expected to build over 1,000 national and municipal demonstration communities for comprehensive disaster risk reduction during and after the 12th Five-Year Plan period. In the context of China, central government develops standards and decomposes tasks of making demonstration communities to local governments, without providing financial support. The community-based disaster risk reduction mechanism does not include effective measures to stimulate stakeholders’ participation at local and community levels. In this case, local governments, such as sub-districts, work rigidly or require communities to undertake specific work to fulfill the commitment of "making national demonstration communities for comprehensive disaster reduction". This would give rise to a paradox that while the top-down efforts are in full swing with increasing demonstration communities, the capacity of community-based disaster risk reduction improves little in practice due to the lack of attention to the needs of residents in government-dominated disaster risk reduction services. What’s described above is only a theoretical hypothesis. In practice, to what extent do community-based disaster risk reduction services align with the needs of community residents and what effects do the services exert? The report tries to answer the questions. The authors sort out residents’ needs on CBDRR and local government’s supply of disaster risk reduction services at the community level and evaluate the alignment through a case study on Sub-district Shichahai of Xicheng District in Beijing China, and puts forward policy suggestions to address the problems identified. II． Methods and Data Sub-district Shichahai is chosen mainly because of the solid work in community-based disaster risk reduction. It administers totally 25 communities including 4 national demonstration communities and 21 municipal ones, making it the only one of its kind in Beijing. The case study will, by summing up experience and analyzing problems, be implicative to disaster risk reduction in other communities and cities and conducive to identifying bottlenecks and obstacles. It will open up ideas for improving disaster risk reduction in the district, municipality and even country. Documentary review, focus group, and questionnaire survey are employed in the research. Second-hand data include annual working reports in Shichahai sub-district from 2010 to 2016 and relevant work information provided by the Residential Committee from the Shichahai Sub-district and the affiliated communities, primary data from site questionnaire survey and focus group discussions. The questionnaire survey covers 16 communities in the Shichahai Sub-district and 30 families are randomly selected for survey in each community. The questionnaires were filled in by the respondents and each respondent was from one family who was at home and voluntary to participate in the survey. Totally 480 questionnaires were handed out, of which 402 ones were recovered and valid. Please see Table 1 about the information on demographic structure
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