4. CURRENT SITUATION IN MANAGING DISASTERS

4.1. Part One: How disasters are dealt with currently by government PART ONE provides an insight into the range of disasters that the country has to deal with. There is a recognition that disasters are more effectively tackled through pro-active strategies. For each of the types of disaster, the main areas of prevention, preparation, response and relief are covered broadly to give an idea of the kinds of activities and resources that are involved in dealing with each of the areas. Part One also describes the national departments that are expected to lead in these areas. 4.1.1. Drought 4.1.2. Floods and dam failures 4.1.3. Fire hazards 4.1.4. Bomb explosions and civil unrest 4.1.5. Refugees and displaced people 4.1.6. Epidemics and other health disasters 4.1.7. Earthquakes, dolomite land, nuclear radiation 4.1.8. Aircraft, maritime, road and railway disasters 4.1.9. Hazardous material, pollution, tropical cyclones and tornadoes 4.1.4 Bomb Explosions and Civil Unrest According to the new Police Act and the Constitution, it is the responsibility of the South Africa Police Service to deal with civil unrest, bomb explosions and the hijacking of aeroplanes. Prevention and preparedness There are a number of preventative areas that the SAPS and SANDF are involved in to ensure that civil unrest and terrorism are minimised or detected early on. These include: Developing national contingency plans, policies and guidelines to deal with cases of emergency involving provincial and local governments and other role players. Co-ordinating intelligence gathering efforts with relevant government departments, NGOs and other institutions. Currently, the National Intelligence Co-ordinating Committee is providing a vehicle for this. Co-ordinating activities and establishing security mechanisms with neighbouring countries to improve the security environment and intelligence gathering. The SAPS has contact with international organisations such as Interpol, the Southern Africa Regional Police Chiefs Co-operation Organisation and Bomb Data Centres, all of which have early warning facilities. The SANDF participates in the Inter State Defence and Security Committee of the Southern African Development Community (SADC). Ensuring that emergency communication systems are available and that the current NOCOC structure does provide a useful framework for consolidating and improving on early warning systems and communication to the public, relevant bodies and institutions. The SAPS is developing plans for the continual education of institutions and the public as a whole on how to act during bomb explosions and unrest situations. In the case of bombings or unrest the SAPS is able to take the following actions: The co-ordination of activities relating to command and control in the disaster area with role-players like the SANDF, and other security agencies. This can involve cordoning off areas and maintaining security patrols. The SAPS, using it's own emergency network (see section on the roles and resources of the SAPS), can call for emergency assistance from rescue agencies, and the support of specialised police units such as rescue dogs, bomb disposal experts, hostage negotiators, and forensic experts. The SAPS will inform relatives in the case of a loss of life and will support other agencies in assisting victims. Points of debate and key questions Which other agencies are critical in supporting the role of the SAPS? Does South Africa have sufficient resources and trained personal to deal with these kinds of disasters? Especially as regards terrorism involving biological, nuclear and chemical weapons? What are the key preventative measures that can be developed and used to combat these kinds of events? Green Paper on Disater Management Index | Section-4 Index | Top of page 4.1.5 Refugees and displaced people The Department of Home Affairs deals with disasters that arise from war, civil conflict or famine that may result in the influx of refugees from neighbouring States and which may have security and resource implications for South Africa. When there are major conflicts within or outside our country, these often cause people to flee the area of crisis, and seek places of security. For example, refugees came to South Africa from Mozambique during the Mozambican civil war. Famine and other natural disasters can also give rise to refugees. The Department then takes appropriate measures to control the movement of people, and if necessary, begins the process of seeking national and international support through the United Nations to ensure that the needs of refugees are adequately met. In terms of the UN General Assembly resolution 46/182 of 1997, the UN provides for a co-ordinated humanitarian response. There are well-established international protocols for dealing with refugees. In 1996 South Africa acceded to the UN Convention Relating to the Status of Refugees (1951), the Protocol to the 1951 Convention (1967) and the OAU Convention on Refugee problems in Africa (1969). The refugee issue is dealt with comprehensively in a Green Paper on Migration. It will also be covered in a proposed Green Paper on Refugees. Prevention and preparedness It is almost impossible to prevent the in-flow of refugees in times of crisis and, for humanitarian reasons, the country is obligated to assist. However, there are certain actions that can be or are being taken to deal with refugee problems in a more effective way: The Department of Home Affairs has to develop a clearer policy on distinguishing between refugees and 'illegal aliens' in order to improve the speed at which humanitarian assistance can be granted to refugees. Effective mechanisms can be developed in neighbouring states to monitor the potential for political conflict or the likely impact of natural and other disasters. There are monitoring mechanisms in place with neighbouring States that help to identify potential areas of political conflict or the likely impacts of natural and other disasters. There are also inter-governmental mechanisms for humanitarian assistance and resource mobilisation, which particularly involve the Department of Home Affairs, Foreign Affairs, and the SANDF. Responding to a refugee situation The normal actions that are taken by the responsible departments are: First, to establish the number and needs of the refugees, and to engage the support of appropriate departments such as the SANDF, SAPS, Department of Water Affairs and Forestry, the Health and Welfare Departments. Through Foreign Affairs, international UN humanitarian assistance can be engaged. The Department of Home Affairs has responsibility for the mobility and status of the refugees while they stay in the country. Points of debate and key questions Who should be the lead agency and which other department(s) should be involved? Has humanitarian assistance in South Africa been effective? What can the role of civic organisations and the private sector be in dealing with refugee crises? Are there any preventative measures that can be taken? Green Paper on Disater Management Index | Section-4 Index | Top of page 4.1.6 Epidemics and other health disasters Health indicators, notably the levels of malnutrition and disease, provide some of the easiest indicators of poverty and vulnerability. They also provide a targeting mechanism for other departments' responses. An example is the targeting of public works relief programmes during drought to areas where child malnutrition has risen. This increases incomes to poor households, which is an essential back-up to the medical treatment of the malnourished child. Nutrition and health surveillance will therefore be a critical aspect of the wider early warning system, especially for slow-onset disasters. In the event of rapid onset disasters, the Department of Health will be called upon to play a major role in the management of casualties, in the case of both natural and human-made disasters that cause injury, the contraction of diseases or the outbreak of epidemics. Prevention and preparedness Disease and the outbreak of epidemics is related to the level of health planning and support that is provided by the health system of the country. Poverty, informal settlements and the lack of infrastructural development, such as inadequate water and sanitation facilities, can exacerbate or trigger epidemics. At the National level the Department of Health has established a sub-Directorate, National Disaster Services, and as yet no formal system has been put in place. The directorate will establish management systems in conjunction with provincial and local government. The department will review existing disaster management plans and reformulate these to take into consideration the district health system and community involvement. There are other actions that the Department of Health can take, in association with provincial and local government health departments, such as the development of early warning systems in both rural and urban areas. The Department has already embarked on a process of appointing a Communicable Disease Control Officer in each province and Provincial Epidemic Outbreak Response Committees have been established. At present the Department's main strategy is to focus on the most vulnerable parts of the country such as the rural and deep rural areas. Support to communities needs to be provided in the form of capacity building for self support, especially during the early stages of a disaster, and providing training in first aid, contingency planning and crisis management. Emergency Medical services play a major role in disaster situations, and the majority of services have developed contingency plans and protocols for the mass mobilisation of services. In a disaster, Provincial Emergency Medical Services assume responsibility for the treatment of patients on site, the management of large numbers of shocked but uninjured patients, the removal of patients to health facilities and the inter-health facility referral of patients. Current deficiencies mainly exist in rural areas. Early Warning Systems are being established with other role players and the monitoring of disease patterns and trends in neighbouring countries will form part of this. Plans are being developed in consultation with other State departments and role players, including the Private Sector and NGOs. These would include the involvement of district health centres and clinics forming the local focal points in terms of control and co-ordination, especially in rural areas. Specific emphasis must be placed on the SANDF in providing logistical support at short notice. In addition to the provision of communication systems for health facilities, attention must be given to the establishment of Province-wide radio communication systems for the control and co-ordination of emergency medical services in times of disaster. These communications systems should link with relevant authorities. Contingency plans need to be formulated for acquiring large amounts of medical supplies, surgical supplies, food, and water. Special agreements need to be formalised with the Department of Defence / SANDF, laboratories, medical and pharmaceutical suppliers and major food outlets. These are all matters currently being considered by the Department of Health. The Health Department is also giving consideration to the training of groups of health care reservists who can be called upon to assist in the event of disasters. A weakness in the present Health Act is a total lack of regulations governing emergency medical services, both public and private. Responding to epidemic outbreaks In the case of an epidemic outbreak, local health centres are required to take the first actions. This includes dealing with patients and identifying the source of the epidemic. The provincial and national governments can assist when there is a request by the local authority to do so. Often, health centres - especially in urban areas - have well trained staff to deal with emergency situations. In dealing with epidemics, especially if quarantine needs to be enforced, health departments often require the support of other departments, and agencies like the SANDF, SAPS, and possibly the DEAT and Department of Water Affairs and Forestry when dealing with pollution and hazardous waste. The local or national departments of health can also mobilise support from the NGO, CBO and private sectors which often have their own contingency plans and management systems in place. Points of debate and key questions What needs to be done to ensure that nutrition and health surveillance is rapidly integrated into the early warning systems at all levels of government? Who should be the lead agency for dealing with health related disasters? What should the role of a national agency be? Are there overlaps with other departments, in particular with regard to epidemics that are waterborne? What role can the private sector and NGOs play in dealing with health disasters, and how? What kind of early warning systems can be put in place to monitor health trends and the spread of diseases, and which are the key institutions that should be involved? Is there more need for public awareness campaigns, and in which areas? Should HIV/AIDS be considered a creeping 'health' disaster? What social and other measures can be used to provide early warnings on the possible occurrence of a health disaster? Do such systems already exist? Green Paper on Disater Management Index | Section-4 Index | Top of page 4.1.7 Earthquakes/dolomite land/nuclear radiation South Africa has a wide variety of geological formations and these are subject to various development pressures and use by human beings. These geological formations pose various kinds of structural risks and if development is not managed well, can lead to disasters. Typical of these are dolomitic land subsidence or sinkholes. Mining activity can also lead to earthquakes and the contamination of water and other natural resources. Mining waste is stored in large slimes dams, that can lead to disasters like we had with the Merriespruit slimes dam bursting its walls. Mining dumps often contain material that emits radiation. For instance some dumps contain high concentrations of uranium and thorium. South Africa is also a producer of nuclear fuels and has an atomic energy plant at Koeberg. Radioactive materials can pose special problems for disaster management, and cannot be dealt with in the conventional ways of dealing with disasters. It is expected that in the case of these disasters, the lead agency will be the Department of Minerals and Energy Affairs (DMEA), receiving support from the Department of Environmental Affairs and Tourism. Preventing geological and mine related disasters The department regulates the large number of mining activities that take place in the country through the issuing of permits. Before a permit is granted a mining company must conduct an Environmental Management Project Report (EMPR). The EMPR provides for the assessment of risk and the specification of mitigation measures. The DMEA works closely with the Department of Water Affairs in managing potential forms of hazards such as the possible contamination of ground and surface water systems as a result of mining activity or the release of hazardous material. In addition to natural earthquakes, South Africa does have a large number of regularly-occurring mine-related earthquakes. South Africa has on-line a national seismological network which conducts seismic surveillance on a 24 hour basis. This network is linked directly to the main seismological centre in Pretoria and the latter is linked to similar centres in the US and in Europe. The network is administered by the Council of Geoscience. The Council of Geoscience also provides regular advice to City and Town councils on a range of issues related to the building of infrastructure on sensitive geological formations that can pose potential hazards. It also advises on ways to avert possible risks associated with mining activities. In addition, mining companies have their own sets of rules and plans to deal with disaster situations. Certain types of hazards associated with mining, like contamination from waste dumps, is regarded as an incipient (potential) hazard. The DMEA and Department of Water Affairs and Forestry have a legislative framework to deal with these issues. The DMEA and other parastatal institutions in South Africa have over the years developed information systems and data bases on the hazards and risks of various geological formations. These data bases can be used by provincial and local governments to assist with more effective urban and rural planning. In the case of nuclear accidents, the Council for Nuclear Safety plays an important advisory role in the prevention and mitigation of such disasters. Responding to a disaster In the case of a mining disaster, or any other geologically related disaster, the local authority concerned may be called upon to play a role, and the emergency services and other units will assist in dealing with victims. In relation to structural issues, the engineering departments of a local authority will also assist in ensuring that measures are put in place to make areas stable. Only in the case of a large-scale disaster affecting a large population and and/or infrastructure is there a need for a combined force involving provincial and national government departments. In the event of a nuclear radiological emergency, both at a national or international level, the Weather Bureau will be able to assist local and international emergency organisations. The Weather Bureau has special meteorological instruments that can monitor and forecast the movement and concentration of radioactive gases in the atmosphere. The Weather Bureau is undertaking further research to enhance this capability. It is anticipated that this technology can also be applied in other areas such as large-scale industrial pollution, and large-scale chemical releases. Points of debate and key questions Who should be the lead agency dealing with mine related and geological disasters? Can all of these be dealt with adequately by the lead agency, and who else should be involved? Does South Africa have adequate trained personnel and capabilities to deal with nuclear related accidents or disasters? What kinds of support need to be developed to deal with these kinds of disasters? What are the areas of weakness in each of the above areas, where are they, and how can they be dealt with? What are the main risk reduction measures that can be taken to deal with these kinds of disasters? What early warning systems exist to deal with these disasters or what kind of early warning systems should be established? Green Paper on Disater Management Index | Section-4 Index | Top of page 4.1.8 Aircraft/Maritime/Road/and Railway Disasters South Africa has numerous road, rail, air and shipping networks that are used to transport people and goods across towns, cities, provinces and countries. In all of these, accidents resulting from collisions or the carrying of hazardous goods are not uncommon. Over the years the Department of Transport (DoT) - which takes primary responsibility for national safety on all our transport routes - has developed a number of procedures, guidelines and regulations to ensure that all transport networks are as safe as possible. However, accidents do occur and for these, various emergency procedures are in place as well as response mechanisms and role players. Prevention and preparedness The DoT - in conjunction with relevant agencies like the Civil Aviation Authorities, Transnet, Spoornet, DEAT, Traffic Departments, provincial and local authorities - is responsible for ensuring that regulations are updated, and appropriate legislation is in place to ensure safe traffic flow on various transport linkages and hubs. The DoT - together with relevant agencies - develops appropriate contingency plans for the various kinds of disasters that can occur in the different media of transport. Certain areas, which can only be dealt with by national government, may require the setting up of interdepartmental co-ordination and communication mechanisms. This would apply particularly to areas such as oil spills, the transport of hazardous waste, and other materials that require more specialised treatment and clearance mechanisms. The expansion and improvement of the incident management system is a role that the DoT has to fulfil, again with the support of other agencies at the provincial and local levels. The DoT also relies on the services of the Weather Bureau to provide forecasts to the maritime community for safety at sea, and to aviation operators for flight planning and flight safety. These forecasts help to minimise the risk of collisions. In the cases of Aviation and Maritime transport, the DoT is the agency responsible for ensuring that South Africa fulfils and commits itself to international obligations and conventions. In cases of response and emergency services, the following actions can and are taken in each of the areas of transport: Road: In the case of road accidents these are normally dealt with by the appropriate local authority's traffic department, the SAPS and emergency services. Only in cases of major road accidents is special support required from national government (the DoT, the SANDF and the Department of Constitutional Development). Air: In the case of aviation accidents, an incident is reported directly to the Commissioner of Civil Aviation where the emergencies service units at airports or from local authorities should be called in to attend to the disaster. If it is within the airport it is dealt with by the Airport Company and if it is outside, by the local authority. The Commissioner of Civil Aviation an also call upon the support of the SAPS and the South African Search and Rescue (SASAR). Rail: In the case of rail accidents involving passenger or goods train, emergency warnings are communicated through the rail company or through the Joint Operating Office of Spoornet which then alert the necessary parties for support. The local authority and relevant national departments and private contractors can be called in to assist in cases where collisions involve hazardous chemicals or substances. Shipping: Collisions of ships can result in fires, oil spills and loss of life. People may need support. If ships are within the exclusive economic zone of South Africa, or close by, requiring assistance, the DoT - with the support of the DEAT, SANDF and other marine emergency service providers - will be called in to deal with the disaster. It would also be the responsibility of the DoT, in cases involving foreign vessels, to inform the 'flag state' of the vessel about the occurrence of the accident. In all transport-related accidents the DoT requires that the responsible authorities conduct an enquiry into the cause of the accident and produce a report. Points of debate and key questions Who should be the lead agency dealing with disasters associated with transport and which are the relevant institutions at the national, provincial and local levels that should be involved? What are current weaknesses and strengths in dealing with transport-related disasters? What are the relevant institutions that should be involved in each of the areas of transport? What other innovative methods can be used to prevent transport-related disasters that are not covered by conventional methods? Green Paper on Disater Management Index | Section-4 Index | Top of page 4.1.9 Hazardous material/pollution/tropical cyclones and tornadoes In disasters dealing with hazardous waste and dramatic climatic events, the DEAT is expected to be the lead agency. However, in most of the above cases, local authorities and NGOs, the private sector and other bodies will also play a critical role. Virtually every industrial area in South Africa generates a variety of hazardous waste and pollution. If this is not managed or contained, human life can be at risk and there can be damage to the environment and critical resources like water. Presently, South Africa has far too few hazardous waste disposal sites, and illegal dumping is rife as a result of poor enforcement and monitoring. Prevention and preparedness Hazardous waste and pollution The main areas of disaster here are accidental and unauthorised release of hazardous material and other pollutants. The areas of vulnerability are: environmental media such as air, water, and soil industrial areas and all major transport routes the marine environment including coastline, and human life. The DEAT and other responsible agencies like Department of Water Affairs and Forestry and the DoT are developing policies to deal with the generation, transport and disposal of waste and pollution and to clarify who has responsibility over particular areas. The DEAT has already formulated a national policy on integrated pollution control and waste management which must be given effect. Independently of this, Department of Water Affairs and Forestry has begun the development of a national waste management strategy mainly to ensure that the national water resources are protected. The DEAT and Department of Water Affairs and Forestry are also establishing formal management systems to monitor and enforce waste management and pollution control measures, in particular along the main transport routes and in areas where hazardous material and waste are likely to be located. The systems seek to ensure that provincial and local authorities in these areas have sufficient resources to deal with these disasters. DEAT and other relevant departments have recognised the need to establish a national monitoring system for the current waste sites. Such a system must be able to evaluate the potential risk at these sites and - where the risk is high - have contingency plans in place. Currently, the exact number of waste sites is not known, or the dangers they pose. The National Emergency Service Data System being implemented by the Fire Brigade Board includes a data capture structure for hazardous materials incidents. In the case of marine pollution both DoT and DEAT can call on international assistance to support relief efforts. The DEAT has just promulgated regulations that require all new developments that are likely to have considerable impact on the environment and people, to undertake Environmental Impact Assessments (EIAs). These EIAs will be administered directly by the provinces, and will help prevent and mitigate against disasters. Tornadoes and Tropical Cyclones The DEAT is regarded as the lead agency to deal with these weather phenomena. The Weather Bureau has developed early warning systems using sophisticated satellite and computer modelling systems that are able to monitor and predict changes in weather patterns. The main weakness at present lies in communicating this information through a central communication system and early warning system to the relevant institutions for them to take the appropriate action. The local authorities in areas that are vulnerable to tropical cyclones and tornadoes need to take special measures, like regulating building and other infrastructure and taking more risk reduction approaches to development initiatives. Dealing with these disasters In the case of an accident involving hazardous waste that is being transported, the local authorities will deal directly with the matter, or ask for assistance through the DoT. Private waste handling contractors are often also used to do clean-up operations and conduct rehabilitation work in the damaged area. With regards to air and soil pollution, the DEAT is likely to be the more responsible agent at the national level, responding to requests from local authorities for assistance. And in the case of water-related pollution, and the dumping of hazardous waste, it will be Department of Water Affairs and Forestry. In the case of tornadoes and tropical cyclones, the Weather Bureau has the task of communicating an early warning of imminent danger to the responsible authority at the local level. This allows the local authority to mobilise resources in time to deal with the effects of the cyclone. Points of debate and key questions What needs to be done to ensure that warnings, forecasts, information and advice are quickly channelled into the early warning systems at each level of government? Who should be the responsible agencies for the various areas of disasters outlined above? Should they be dealt with separately, or in joint responsibility? How should NGOs, and the private sector be involved? What other kinds of preventative and mitigation measures can or should be put in place? Is the current legislative framework adequate to deal with these problems? Green Paper on Disater Management Index | Section-4 Index | Top of page General | 1. Introduction | 2. Key principles for a Disaster Management policy | 3. Different approaches to Disaster Management | 4. Current situation in managing diasaters | 5. Ensuring that a system for Disaster Management is in place | 6. Intergovernmental and civil society co-operation and co-ordination | 7. Glossary | Contents