Transcript The DRR Process: Expanding Partnerships Vertically and

The DRR Process:
Expanding Partnerships
Vertically and Horizontally
.
“Much has been learnt from the creative
disaster prevention efforts of poor
communities in developing countries.
Prevention policy is too important to be
left to governments and international
agencies alone. To succeed, it must
also engage civil society, the private
sector and the media”
Kofi Annan 1999
The Societal Safety Chain
DRR: Who be engaged?
Earth
quake
Land
slides
Flood
Storm
Surge
Groups
Design
Plan
Res.
Design
Plan
Res.
Design
Plan
Res.
Design
Plan
Res.
Engineers
Yes
Yes
Yes
Yes
Yes*
Yes
Yes
Yes
Yes
Yes
Yes
Yes
Earth
Scientists
No
Yes
Yes
Yes?
Yes
Yes
No
Yes
Yes
No
Yes
Yes
Physical
Planner
No
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
Developers
No
Yes*
No
Yes*
-
No
Yes*
No
Yes*
-
Environme
ntal
Groups
No
Yes*
No
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
Community
Persons
No
Yes*
No
Yes*
No
No
Yes*
?
No
Yes*
-
Insurance
Officers
No
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
No
Emergency
* With training
Managers
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
No
Yes*
Yes
Yes
Giddy House, Port Royal
Portland Landslide- 1998
Tangle River, St. James
Hazard Maps in Building Codes
and Planning Regulations
National Building Code:
Hazard mitigation to be included in soon-to-be
released International Building Code.
Town and Country Planning Act (1957):
Development Orders now include hazard
mitigation in the planning of developments. Only
cover 5 of 13 parishes and major towns and
cities.
Hazard maps in Building Codes
and Planning Regulations
Local Improvements Act (1914)
Regulates subdivision of Land. It encourages
hazard mitigation, but probably constrained by
inadequate information
The Parish Councils Building Act (1908)
Mainly concerned with structural integrity of
buildings for construction purposes, but not on
site location. Hazard mitigation considerations –
negligible.
Sustainability Issues
• .
Squatting
Pollution
Hill Slope
Degradation
Sustainability Issues
Flooding- House at Treasure
Beach
• .
Flooding of
housing dev. After
hurricane Lilli
Flooding- NWC Pumping
station at Bigwoods
Earthquake Map, Shepherd
and Aspinall (1980)
Caribbean Hazards are not confined to Hurricanes
List of some Natural & Human induced threats
Geophysical: Earthquakes, Landslides,
Volcanic Events, etc
Climatic: Hurricanes, Floods, Drought,
Windstorm, Northers etc
Biological: Human, Animal and Plant
Diseases
Technological: Fires, Air / Marine Transport
Accidents, Releases of Toxics and
Biological Agencies
Other: Civil Disorder, Terrorism, Conflict,
War, Displaced persons
Planning Processes must …
• Cover credible events and incidents, their mitigation
and their potential consequence(s)
– Large, medium and small scale
– Natural / Man induced / High / Low Probability
– Effects on Human, Natural, Social and Economic
Capital Assets and systems
• Ensure that Command, Control, and Communication
functions are carried out
• Include External Communication and Information
Management
• Protect people, property, natural resources, physical
assets
• Be based on systematic planning and a phased
response
• Cover all phases including return to ‘normalcy’
• Be part of MAINSTREAM / CORE Functions of
government and its Private / Civil Society Partners in
Small Island States
Traditional ‘PHASES’
• PREPAREDNESS
– Analysis, Training, Planning, Scenario Building
(incl Wild Card / Worst Case, Simulations/Drills)
– Environmental Monitoring, Risk Analysis
• WARNING AND MOBILISATION
– Enhanced readiness, Alert Status, Deployment
• RESPONSE
– EMERGENCY OPERATIONS
• Life and Asset Protection / Incident Management,
• Search and Rescue, Security of Assets
– RECOVERY
• RECONSTRUCTION &
• REHABILITATION
– MUST INCORPORATE IMPROVEMENTS
DISASTER ADAPTATIONS
• Pre Independence
– Transfers of ‘Home Country’ modes
– Focus on Relief and Response
– Food Security
• Diversification of Foods / Crops
• Deliberate introductions
– Structural / Location Adaptation
• REACTIVE
• CONSTRAINED BY STATE OF
KNOWLEDGE
Public Administration of Disasters
• Governors “Rule by Decree” using ‘Emergency’
Powers / Riot Act
• Evolution 50’s – 70’s to “Central Hurricane /
Emergency Relief Ctee” Model based on modification
of Governors ‘council’ to fit Cabinet
• Permanent Secretariat sometimes added
– Eg “CERO” Barbados / NERO Trinidad
• Typically Located in -:
– Cabinet Office / Electoral Office
– Ministry seen to be related Internal Affairs / Social Security /
Housing
•
•
•
•
Generally ‘Reactive’ and Hurricane focussed
Not comprehensive or integrated
No organic link to Oil Spill / Airport CFR
Growing concerns in late 70’s at regions lack of
capacity and underutilisation of ‘modern’ approaches
based on ‘Science’
RECENT DISASTER MNG
TRENDS IN CARIBBEAN
• PCDPPP 1980’s built National, Sectoral and Regional Capacity
• Succeeded by CDERA 1992 and ongoing programmes in Health
(PAHO) and other Sectors (eg CDMP)
• Linkages to AGENDA 21, Barbados SIDS Issues, Sustainable
Development, Poverty Reduction, Environmental and Physical
Planning Agendas,
• Linkages to CLIMATE CHANGE issues
• Emergence of Tourism / Financial / Insurance Sectors
• NEW LINKS TO MILLENIUM GOALS, Barbados POA
• WCDR
Trends / Emerging Issues
• Climate Instability possibly related to GLOBAL
CLIMATE CHANGE
• “Environmental” Emergencies
– Marine Accidents / Spills ; Atmospheric Pollution
• Consequence Management
– Effects of ‘Offshore’ / Transboundary events
– 9/11 ; Airport Closures; Oil Spill elsewhere in
region
• Complex Emergencies
• Humanitarian / Refugee Events
• Linkages to Development Targets
– SUSTAINABILITY
– National Goals & Priority Setting
– Global / Regional / National / Subnational /
Sectoral Capacity Building
• Security / Terrorism
Some Traditional Caribbean
Coping Mechanisms (1)
• Avoidance of High Risk Areas
– Exposed Coastal Areas
– Unstable Slopes / Landslides
– Ground Failure / Liquefaction
• Building Practice and Materials
– Wood / Brick / Block and Steel
• MARINE ASSET PROTECTION
– Secure Anchorages
Traditional Coping (2)
• Vernacular Style and Settlement Layout
• Local Monitoring of Natural Phenomena
• Dissemination of ‘Warnings’
– Runners
– Conch Shells / Church Bells / Flags
– Radio / Electronic Media
• Building Laws, Codes and Zoning
Traditional Coping (3)
• Livelihood Protection
– Crop / Tools of Trade
• Food Security and Crop Diversification
– Securing / Preserving Vital Supplies
– Deliberate Introductions (Cassava, Breadfruit etc)
• Migration Patterns
– Export of Labour / Remittances
• Central Am / Cuba / etc
• SWEAT EQUITY on Tasks (Community Pooling)
– Work Days (Cleaning Sinkholes, Drains etc)
• Traditional Knowledge
– Oral Transmission of Events / Extremes
• Past Extremes
• Marking High Water Levels
Coping (4)
• Large Public Works
• Communal Sinkhole / Suckwell / Drain / Road
Maintenance
• (Re) Location of Infrastructure
• Formal Buildings / Spacing
• Water, Sanitation, and Drainage
• Regulations regarding Food Staple Production
• “DISASTER CULTURE”
• Knowledge / Science and Technology
New Challenges
• TOURISM
• FINANCIAL SECTOR
• MARINE SERVICES
• GLOBALISED WORLD
“Process” Points to consider
Past Events may not be a reliable guide to future events -:
• Where we are dealing with NEW ECONOMIC SECTORS
– TOURISM
– SERVICES
– New Land Use Patterns
• If Climate Change Models are correct Physical Vulnerability Issues
may require review and analysis
– Critical Facilities
– Lifelines
– Continuity
•
•
•
•
Knowledge dependent issues such as Standards, Building Codes and
Zoning may require continuous review and tweaking
Tourism / Financial Services Sector
– Communication and Confidence Issues
Private, Public Civil Society Partnerships
– Knowledge and Information Sharing
CAPACITY BUILDING & SUSTAINABILITY
– Are VERY LONG Term
– Process Oriented and Require broad SOCIETAL Consensus
Address Causes
as well as
Symptoms
Addressing the
“Cause” as well as the “Effect”
How can mitigation strategies expand, so
that the major political, economic and
social pressures are addressed…
as well as the technical factors?
Addressing the
“Causes” as well as the “Effects”
Unenforced, and inadequate building codes
are a symptom of vulnerability that
require ‘direct’ mitigation measures:
• Reforming the Building Industry
• Developing Codes
• Developing the Legislative Framework
Addressing the
“Causes” as well as the “Effects”
“It is vital that those involved in disaster work
accept that the reduction of disasters is
about reducing vulnerability, and that
involves changing the processes that put
people at risk in addition to modifying the
impact of the hazards themselves”
Piers Blaikie, Terry Cannon, Ian Davis and Ben Wisner 1994
“Much has been learnt from the creative
disaster prevention efforts of poor
communities in developing countries.
Prevention policy is too important to be
left to governments and international
agencies alone. To succeed, it must
also engage civil society, the private
sector and the media”
Kofi Annan 1999
Risk Transfer via Insurance
• How to expand the use of the
incentives of reduced insurance
payments for safer building
practice and rapid recovery?
Public/ Private Partnerships
• How to build partnerships between
governments, the private sector and
insurance companies to promote the
training of staff in risk avoidance, risk
reduction, mitigation, emergency /
disaster preparedness in return for
reduced premium payments?
• Creative partnerships are needed
where entire communities collaborate
with the private sector, voluntary
groups and government to reduce and
manage their risks.
Planning for
Risk Reduction
“Capacity Development”
Enabling Strategies
Supportive Policy,
Legal & Institutional
Frameworks
National/Societal
Organization
Programmes &
Projects to
Improve Systems
Structures,
Mechanisms &
Procedures
Educate, Increase
Capacity to access,
create, use skills, &
KNOWLEDGE
Individual/Local
Time
The Stages in Developing
a Disaster Culture
Stage 2:
Stage 1:
Inception
(Public outcry
following disaster)
Rhetoric
Stage 3:
Logic
Stage 4:
Stage 5:
Laws
Culture
Three contexts where resilience needs
to be built into risk reduction activities
1. Risk reduction measures introduced as
normal practice
[pre-disaster]
2. Risk reduction measures through effective
disaster management [post-disaster]
3. Risk reduction measures introduced during
reconstruction
[post-disaster]
A Time-line of National Development
‘at risk’ from Disaster Impact
Quality
Pre-Disaster Vulnerability
100%
0%
Time
Disaster Event
Recovery Aim
Dialogue in a 1982 workshop….
“The aim of disaster recovery is to restore normality…”
Senior Red Cross Official
“I am afraid you are wrong, in my country we have
people who live in cardboard boxes, that is their
normality, so are you suggesting that in the recovery
plan we put them back in these boxes? No our
‘normality’ is the same as ’vulnerability’ and in recovery
planning you must surely aim to reach a higher
standard than the pre- disaster norm”
Wynante Patterson, Jamaican Nutritionist
Implication of the Safe Recovery
and Resilience Graph
Recognise that within a reconstruction
programme there is a double challenge to
recover rapidly and safely:
First, to reconstruct rapidly, to capitalise
on political concerns and the
availability of funds
Second, to reconstruct in a manner that
is above pre-disaster standards of
“normality” , that equalled
“vulnerability”
Four Dimensions of Resilience
1. Robustness:
(strength of elements to withstand stress
without losing their function)
2. Redundancy:
(the extent to which elements continue to
function in the event of disruption)
Four Dimensions of Resilience
3. Resourcefulness:
(capacity to identify problems and mobilise
resources)
4. Rapidity:
(capacity to meet priorities and achieve
goals in order to contain losses and
avoid future disruption)
Technical
Performance Measures
Building Resilience: (Hospital example)
Robustness
Damage avoidance/ continued service
Redundancy
Backup systems in place
Resourcefulness Plans and resources to cope
with damage and disruption,
hospital emergency plans
Rapidity
Buildings/ equipment functional after
disaster shock
Economic
Performance Measures
Economic Resilience:
Robustness
Avoidance of direct and indirect
economic losses
Redundancy
Alternative suppliers and relocated
venues for work operations
Resourcefulness
Rapidity
Plans and stabilising measures
Optimising time to return to
pre- disaster functional levels
Social Performance Measures
Community Resilience:
Robustness
Avoidance of casualties and
disruption in the community
Redundancy
Alternative means of providing for
community needs
Resourcefulness
Plans and resources to meet
community needs
Rapidity
Optimising time to return to
pre-disaster community functions
Summary
Resilience comprises:
• Risk Reduction Measures that absorb
hazard forces
(absorb shocks)
• Emergency Management to minimise the
impact of hazards (absorb shocks)
• Recovery Plans and Implementation
Strategies that reduce recovery time
(bounce back)