SECTION 1: INTRODUCTION

This section deals with the purpose of the White Paper on Disaster Management for South Africa. It includes the scope and purpose of the government's policy, key policy proposals and the process used to develop the policy.

 

1.1.  PURPOSE OF THE WHITE PAPER

This White Paper sets out the government's disaster management policy for South Africa. The policy applies to all government institutions and other role players, as well as all activities related to disaster management.

The purpose of the White Paper is twofold:

  • To inform the public of the government's objectives and how the government intends to achieve these objectives.
  • To inform government agencies and state organs of these objectives and what needs to be done to achieve these objectives.

1.2.   SCOPE AND PURPOSE OF GOVERNMENT POLICY

The primary responsibility for disaster management in South Africa rests with the government.

In terms of section 41(1)(b) of the Constitution of the Republic of South Africa, all spheres of government are required to "secure the well-being of the people of the Republic".

Part A of Schedule 4 of the Constitution identifies disaster management and related issues as areas of concurrent national and provincial legislative competencies. This means that both national and provincial government have powers and responsibilities in relation to disaster management.

Local government is also empowered to deal with a number of functions that are closely related to disaster management under Part B of Schedules 4 and 5 of the Constitution. In addition, section 152(1)(d) of the Constitution requires local government to promote a safe and healthy environment.

The proposed disaster management policy pursues the above-mentioned constitutional obligations. It also aims to give effect to various rights contained in the Bill of Rights of the Constitution. This includes the right to life, equality, human dignity, environment, property, health care, food, water and social security.

A further fundamental purpose of the policy is to advocate an approach to disaster management that focuses on reducing risks - the risk of loss of life, economic loss, and damage to property, especially to those sections of the population who are most vulnerable due to poverty and a general lack of resources. It also aims to protect the environment.

This approach involves a shift away from a perception that disasters are rare occurrences managed by emergency rescue and support services. A shared awareness and responsibility need to be created to reduce risk in our homes, communities, places of work and in society generally.

This requires a significantly improved capacity to track, monitor and disseminate information on phenomena and activities that trigger disaster events. It needs the support of institutional emergency preparedness and response capacity at local, provincial and national levels. It also implies an increased commitment to strategies to prevent disasters and mitigate their severity.

The policy also seeks to integrate this risk reduction strategy into existing and future policies, plans and projects of national, provincial and local government, as well as policies and practices of the private sector.

In short, the policy aims to:

  • Provide an enabling environment for disaster management.
  • Promote proactive disaster management through risk reduction programmes.
  • Improve South Africa's ability to manage emergencies or disasters and their consequences in a coordinated, efficient and effective manner.
  • Promote integrated and coordinated disaster management through partnerships between different stakeholders and through cooperative relations between all spheres of government.
  • Ensure that adequate financial arrangements are in place.
  • Promote disaster management training and community awareness.

1.3.  KEY POLICY PROPOSALS

There are seven key policy proposals set out in the White Paper. These are:

  • The urgent integration of risk reduction strategies into development initiatives.
  • The development of a strategy to reduce the vulnerability of South Africans - especially poor and disadvantaged communities - to disasters.
  • The establishment of a National Disaster Management Centre to:
    • Ensure that an effective disaster management strategy is established and implemented.
    • Coordinate disaster management at various levels of government.
    • Promote and assist the implementation of disaster management activities in all sectors of society
  • The introduction of a new disaster management funding system which:
    • Ensures that risk reduction measures are taken.
    • Builds sufficient capacity to respond to disasters.
    • Provides for adequate post-disaster recovery.
  • The introduction and implementation of a new Disaster Management Act which:
    • Brings about a uniform approach to disaster management.
    • Seeks to eliminate the confusion created by current legislation regarding declarations of disasters.
    • Addresses legislative shortcomings by implementing key policy objectives outlined in this White Paper.
  • The establishment of a framework to enable communities to be informed, alert and self-reliant and capable of supporting and cooperating with government in disaster prevention and mitigation
  • The establishment of a framework for coordinating and strengthening the current fragmented training and community awareness initiatives.

1.4.  POLICY PROCESS

After the floods on the Cape Flats in June 1994, Cabinet resolved to assess South Africa's disaster management capacity. This resulted in a review of disaster management structures and approaches to disaster management.

During 1995, Cabinet recommended that a formal structure for disaster management be established and that the Department of Constitutional Development coordinate disaster management in South Africa in the interim.

In February 1996, the National Disaster Management Committee was established to act as a coordinating and managing body. This Committee has since become redundant.

On 19 March 1997, Cabinet - as a way of strengthening the government's commitment to the development of a national policy and strategy for disaster management - approved the formation of an Inter-Ministerial Committee for Disaster Management (IMC). It included ministers holding the following portfolios:

  • Water Affairs and Forestry.
  • Agriculture and Land Affairs.
  • Finance.
  • Defence.
  • Safety and Security.
  • Public Works.
  • Health.
  • Environmental Affairs and Tourism.
  • Housing.
  • Provincial Affairs and Constitutional Development.
  • Welfare and Population Development.

The IMC will be expanded to include the Minister of Home Affairs.

The IMC is convened and chaired by the Minister for Provincial Affairs and Constitutional Development. The IMC will continue to provide leadership for the development and implementation of national policy on disaster management.

Under the leadership of the IMC, the Department of Constitutional Development published the Green Paper on Disaster Management for South Africa for comment in February 1998. After consultation with key role players and comments from both the private and public sectors around the Green Paper, this White Paper evolved.

The policy development process has also been greatly assisted by officials and experts from South Africa and other countries.

 

How to read the White Paper | Foreword by the Minister of Provincial Affairs and Constitutional Development | Section 1: Introduction | Section 2: Setting the context  | Section 3: The National Disaster Management Centre | Section 4: Funding disaster management | Section 5: A national Disaster Management Act  | Section 6: Training and community awareness | Section 7: Conclusion | Appendices | The drafting team and acknowledgements 

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