the disaster risk management policy framework

Disaster Risk Management Policy Framework

April 2016

2

TITLE: uMgungundlovu District Municipality Disaster Risk Management Policy Framework

JOB NO: 01

DATE: March 2016

REPORT STATUS: Proposal

PREPARED BY: Disaster Management Unit Tel: + 27 33 897 6940 E’mail [email protected]

COMMISSIONED BY: uMgungundlovu District Municipality Tel: + 27 33 897 6700

AUTHOR(S): Lindiwe Serero

MUNICIPAL CONTACT PERSON(S): Mr. J Baloyi

SYNOPSIS: Disaster Risk Management Policy for uMgungundlovu DM

KEYWORDS: Policy Framework, Disaster Management

QUALITY VERIFICATION uMGUNGUNDLOVU District Disaster Management Task Team Joe Baloyi, Dumisani Vilakazi, Xolani Muthwa, Lindiwe Serero, Mthokozisi Mthembu, Mduduzi Nxumalo, Makhosi Gwala, Sihle Mtshali, Nhlanhla Mdadane

VERIFICATION

CAPACITY

NAME

SIGNATURES

DATE

Checked by: Head Emergency Services:

Mr X Muthwa

Authorized by: Director: Mr Joe Baloyi

3

“Reducing disaster vulnerability in developing countries may very well be the most critical

challenge facing development in the new millennium … it is an issue of doing development right,

and making sure that activities contribute to reducing disasters rather than exacerbating them.”

James Wolfensohn, former President of the World Bank Group, 2003

(Ref: Concern USA, www.concernusa.org)

4

Table of Contents 1 Introduction ..................................................................................................... 6

2 Legislation ....................................................................................................... 7 2.1 KPAs and Enablers according to the National Disaster Management Policy Framework 8

3 The context of DRM in the uMgungundlovu District Municipality .................. 10 4 KPA1: Integrated Institutional Capacity ......................................................... 11

4.1 Arrangements for the development, adoption, and implementation of policy .11

4.2 The Disaster Risk Management Centre ..................................................... 11 4.3 Arrangements for Co-ordination and Implementation of Policy with the Local Municipalities

................................................................................................................... 12 4.4 Arrangements for Stakeholder Participation ............................................... 12

4.5 Arrangements for co-operation with the National, Provincial and International spheres 13 4.6 Key Performance Indicators ....................................................................... 14

5 KPA 2: Disaster Risk Assessment (DRA) ..................................................... 15

5.1 Risk Assessment and Reduction Planning ................................................. 15 5.2 Disaster Risk Profile ................................................................................... 16

5.3 Monitoring, updating and disseminating risk information ............................ 16 5.4 Key Performance Indicators ....................................................................... 16

6 Key Performance Area 3: Disaster Risk Reduction ....................................... 18

6.1 Disaster Risk Management Plan ................................................................ 18

6.2 Risk Reduction ........................................................................................... 18 6.3 Inclusion of Disaster Risk Reduction in other structures and processes .... 19 6.4 Key Performance Indicators ....................................................................... 19

7 Key Performance Area 4: Disaster Response and Recovery ....................... 21 7.1 Dissemination of Early Warnings and Preparedness ................................. 21 7.2 Assessment, classification, declaration and review of a disaster ............... 21

7.3 Disaster Response and Recovery .............................................................. 22 7.4 Reconstruction and Rehabilitation .............................................................. 23 7.5 Key Performance Indicators ....................................................................... 23

8 Performance Enabler 1: Information Management and Communication ....... 25 8.1 Key Performance Indicators ....................................................................... 25

9 Performance Enabler 2: ................................................................................ 27

Education, Training, Public Awareness and Research ............................................ 27

9.1 Key Performance Indicators ....................................................................... 28 10 Performance Enabler 3: Funding Arrangements ........................................... 29

5

ACRONYMS CBO Community Based Organisation DARD Department of Agriculture and Rural Development DOS Department of Social Development DOT Department of Transport DDMC District Disaster Management Centre EMS Emergency Medical Services EDTEA Department of Economic Development, Tourism and Environmental Affairs FPA Fire Protection Association HVC Hazard, Vulnerability and Capability IDP Integrated Development Plan LED Local Economic Development NGO Non-Governmental Organization NDMC National Disaster Management Centre NDMF National Disaster Management Framework PDMC Provincial Disaster Management Centre NDMC Provincial Disaster Management Centre SANDF South African National Defence Force SAPS South African Police Service SAWS South African Weather Service uMDM uMgungundlovu District Municipality UNISDR United Nations Office for Disaster Risk Reduction WoF Working on Fire DRM Disaster Risk Management DRMC Disaster Risk Management Centre DRA Disaster Risk Assessment EWS Early Warning System ICMS Incident Command Management System IMC Information Management and Communication KPA Key Performance Areas KPI Key Performance Indicators PDMAF Provincial Disaster Management Advisory Forum DDMAF District Disaster Management Advisory Forum MFMA Municipal Finance Management Act MAA Mutual Assistance Agreement MOU Memorandum of Understanding DRP Disaster Risk Profile SOP Standard Operation Procedures FOG Field Operation Guides

6

uMgungundlovu District Municipality DISASTER RISK MANAGEMENT POLICY FRAMEWORK

Introduction

The Disaster Management Act of 2002 (Act no. 57 of 2002) requires the development of policy frameworks at a national level (Section 6), a provincial level (Section 7) and at a municipal level (Section 42). As a district uMgungundlovu are required to establish and implement a policy in the municipality as a management and co-ordination framework for disaster risk management (DRM) in the area. This disaster management framework is the integrating instrument for consolidating the disaster risk management plans of individual municipalities within the District. This policy has been prepared according to the requirements of the Disaster Management Act, the National Policy Framework and the KwaZulu-Natal Policy Framework, and has taken cognisance of other applicable municipal legislation. The purpose of this policy framework is to provide a written Disaster Risk Management mandate, detailing management responsibilities; stakeholder participation; resources and resource capacities; and operational skills required, for the development, implementation, maintenance, monitoring, and assessing of Disaster Risk Management in uMgungundlovu. The desired outcome is for a coherent, transparent and inclusive approach to Disaster Risk Management in a consistent manner across the multiple interest groups. As specified in the National Policy Framework, this Policy has the following objectives:

establish foundation institutional arrangements for disaster risk management, including formal consultative processes that provide for participative planning;

consultatively define an appropriate vision and approach to disaster risk management for the area concerned;

define processes for undertaking appropriate disaster risk assessments for the areas in which they will be implemented; specify arrangements for disaster risk reduction planning and contingency planning including response and recovery planning;

establish an integrated supportive disaster risk information system;

identify processes for building public awareness capabilities, as well as supporting relevant education, training and research initiatives; and

Define supportive funding arrangements for implementing disaster risk management.

7

The vision UMgungundlovu District Municipality will focus in reducing the adverse effects of disasters, with an aim of mitigating and reducing vulnerability to potential risks, at a rehabilitative and sustainable strategic point of view. The mission To establish integrated institutional capacity within the District Municipality to enable the effective implementation of disaster risk management policy and legislation. Corporate values

Driven by the aspirations of the people we strive to achieve our vision and mission through:

Providing services according to the principles of Batho Pele (people first)

Practicing Ubuntu

Accepted codes of practice and standards of professionalism

Teamwork and commitment

A high standard of work ethics

Constant engagement with stakeholders

Legislation

In terms of Section 42 of the Disaster Management Act (hereafter referred to as “The Act”), each Metropolitan and District Municipality must establish and implement a policy framework for Disaster Risk Management. There is consensus that for the effective implementation of integrated and coordinated disaster risk reduction (which includes emergency preparedness and disaster response and recovery activities) the administration of the Disaster Risk Management function must also be focused in the local government sphere. In giving effect to the fact that disaster risk management (DRM) is the responsibility of a wide and diverse range of role players and stakeholders, the Act emphasises the need for uniformity in approach and the application of the principles of cooperative governance. In this regard it calls for integrated and coordinated Disaster Risk Management policy which focuses on risk reduction as its core philosophy; and on the establishment of Disaster Risk Management Centres (DRMC’s) in the three spheres of government to pursue the direction and execution of the Disaster Risk Management legislation and policy in South Africa. It places particular emphasis on the engagement of communities and on the recruitment, training and participation of volunteers in Disaster Risk Management. The National Disaster Risk Management Policy Framework (29 April 2005) outlines four Key Performance Areas, supported by 3 performance enablers: Key Performance Area 1: Integrated Institutional Capacity for Disaster Risk Management Key Performance Area 2: Disaster Risk Assessment (DRA) Key Performance Area 3: Disaster Risk Reduction Key Performance Area 4: Disaster Response and Recovery

8

Enabler 1: Information Management and Communication Enabler 2: Knowledge management Enabler 3: Funding The three enablers facilitate and support the achievement of the objectives of each Key Performance Areas. A more detailed explanation for each Key Performance Areas and Performance Enabler as prescribed by the National Disaster Management Policy Framework can be found in the next section below. This overview forms the basis on which the Disaster Risk Management Policy Framework for the uMgungundlovu District Municipality has been structured.

The Four Key Performance Areas and Three Enablers Introduced

As the Disaster Risk Management Policy Framework for the uMgungundlovu District Municipality must align itself with the National Policy Framework, it is thus necessary to clarify each Key Performance Area and Enabler as an overview before it is detailed as individual chapters. The National Disaster Risk Management Policy comprises four key performance areas (KPA’s) and three supportive enablers required to achieve the objectives set out in the Key Performance Areas. The Key Performance Areas and enablers are informed by specified objectives and, as required by the Act, key performance indicators (KPI’s) to guide and monitor progress. Key performance area 1 focuses on establishing the necessary institutional arrangements for implementing disaster risk management within the national, provincial and municipal spheres of government. It specifically addresses the application of the principle of co-operative governance for the purpose of disaster risk management. It also emphasizes the involvement of all stakeholders in strengthening the capabilities of national, provincial and municipal organs of state to reduce the likelihood and severity of disasters. Key Performance Area 1 describes processes and mechanisms for establishing co-operative arrangements with international role players and countries within southern Africa. Key performance area 2 addresses the need for disaster risk assessment and monitoring to set priorities, guide risk reduction action and monitor the effectiveness of our efforts. Although South Africa faces many different types of risk, disaster risk specifically refers to the likelihood of harm or loss due to the action of hazards or other external threats on vulnerable structures, services, areas, communities and households. Key Performance Area (2) outlines the requirements for implementing disaster risk assessment and monitoring by organs of state within all spheres of government. Key performance area 3 introduces disaster risk management planning and implementation to inform developmentally-oriented approaches, plans, programs and projects that reduce disaster risks. Key Performance Area (3) addresses requirements for the alignment of disaster management frameworks and planning within all spheres of government. It also gives particular attention to the planning for and integration of the core risk reduction principles of prevention and mitigation into ongoing programs and initiatives. Key performance area 4 presents implementing priorities concerned with disaster response and recovery and rehabilitation. Key Performance Area (4) addresses requirements in the Act for an integrated and coordinated policy that focuses on rapid and effective response to disasters and post disaster recovery. When a significant event or disaster occurs or is threatening to occur, it is imperative that there must be no confusion as to roles and responsibilities and the necessary

9

procedures to be followed. Key Performance Area (4) describes measures to ensure effective disaster response, recovery and rehabilitation planning. Enabler 1 focuses on priorities related to the establishment of integrated and comprehensive information management and communication system for disaster risk management. More specifically, it addresses the information and communication requirements of each Key Performance Area and Enablers 2 and 3 and emphasizes the need to establish integrated communication links with all disaster risk management role players in national, provincial and municipal spheres of government. Enabler 2 addresses disaster risk management priorities in education, training, public awareness and research. This enabler describes mechanisms for the development of education and training programs for disaster risk management and associated professions and the incorporation of relevant aspects of disaster risk management in primary and secondary school curricula. It addresses requirements to promote and support a broad-based culture of risk avoidance through strengthened public awareness and responsibility. It also discusses priorities and mechanisms for supporting and developing a coherent and collaborative disaster risk research agenda. Enabler 3 sets out the mechanisms for the funding of disaster risk management in South Africa. Describes the funding arrangements required to establish the necessary institutional arrangements, including an information management and communication system for disaster risk management, for the effective implementation of the Act. Examines the funding requirements for disaster risk reduction planning and its integration with existing development planning processes. Delineates the funding arrangements for disaster response and recovery.

The context of Disaster Risk Management in the uMgungundlovu District Municipality

The uMgungundlovu District Municipality is located in the KwaZulu Natal Midlands. Collectively the district is made of seven local municipalities, namely Msunduzi, uMshwathi, uMngeni, Mpofana, Mkhambathini, Impendle and Richmond that account for approximately 9190km2 of land and an estimated population of 1 017 763.. The area of the uMgungundlovu District Municipality is regularly threatened by hazards of natural, technological and environmental origin. It is exposed to the devastating effects of a range of severe hydro meteorological events including severe storms; lightning strikes; floods; drought and forest/veld fires. Transportation accidents and hazardous material accidents continue to pose challenges as the District is bisected by South Africa’s busiest arterial road, the N3, linking the industrial hub of Gauteng with the largest port in the southern hemisphere. Despite on-going efforts to reduce the high levels of poverty and to accelerate the provision of infrastructure and access to services, large numbers of people have no alternative but to settle in unsafe environments in vulnerable conditions where they are repeatedly exposed to floods, water borne diseases and domestic fires. What else could we include here? It is in the context of the disaster risk profile of the District Municipality that this policy framework pursues the core philosophy of risk reduction through vulnerability reduction and resilience building by placing priority on developmental initiatives. The policy framework is structured to clearly stipulate the responsibilities of the various role-players in the district, per Key Performance Area and enabler. The Policy must be read in conjunction with the National Policy Framework where detailed information and specifications for each of the Key Performance Areas and Enablers can be found.

Key Performance Area1: Integrated Institutional Capacity

Objective: Establish integrated institutional capacity within the municipal sphere to enable the effective implementation of this disaster risk management policy. This Key Performance Area focuses on the mechanisms that need to be established to give effect to the principle of co-operative governance.

1.1. Arrangements for the development, adoption, and implementation of policy .

The uMgungundlovu Municipal Council must:

Establish institutional capacity for Disaster Risk management

Make all policy decisions in relation to Disaster Risk Management for its jurisdiction

Approve the Disaster Risk Management policy framework (hereafter referred to as “the Policy”)

Appoint a suitably qualified Head of Disaster Risk management

Establish a Disaster Risk management Centre. The Disaster Risk Management Centre is responsible for consultatively facilitating the development of the disaster management framework, and subsequently amending it in consultation with key stakeholders. The Head of the Disaster Risk management Centre is responsible for the implementation of the Policy and must ensure the regular review and updating thereof. The Head of the centre must also ensure that the procedures for the implementation of the Policy and any amendments to the Policy are submitted to:

The National Disaster Management Centre (NDMC)

The Provincial Disaster Management Centre (PDMC)

To the local municipalities within the municipality

The Disaster Risk Management Centres of the neighbouring municipalities

1.2. The Disaster Risk Management Centre

The Disaster Risk Management Centre (hereafter referred to as “the Centre”), must be placed as closely to the highest authority in the Municipality as possible. The Executive Mayor must designate the department within which the Disaster Risk Management Centre must function. The Head of the Disaster Risk Management centre is to perform the functions of office:

Within the National Disaster Management Framework and the key responsibilities prescribed within the National Disaster Management Framework

Within the Disaster Management Framework of the Province and of the District Municipality.

Subject to Council’s Integrated Development Plan and other directions of Council, and in accordance with the administrative functions of the Municipal Manager

Subject to the local Government Municipal Finance Management Act (2003).

12

The Centre must submit a report on its activities for the ensuing year, to the Council annually, at an agreed upon date. After consideration of the report, the Council will submit it to the Provincial Disaster Management Centre and National Disaster Management Centre. In order to give effect to the principles of cooperative governance and integration, the centre must establish an Interdepartmental Disaster Risk Management Committee for the Municipality. Their purpose is to provide a mechanism to ensure the integration of internal planning and the participation of all key departments who have responsibilities to Disaster Risk Management. Each Municipal Department

must determine its role and responsibilities in relation to Disaster Risk Management

must assess its capacity to fulfil those responsibilities

must develop and implement policy that is relevant for its functional area for the purpose of executing Disaster Risk Management responsibilities In this way, Disaster Risk Management responsibilities must be integrated into the routine of the various sectors and disciplines, as well as their sub structures within the Municipality. These responsibilities must be measured by Key Performance Indicators for the relevant personnel.

1.3. Arrangements for Co-ordination and Implementation of the Policy with the Local Municipalities

The local municipalities in the area of the District Municipality must ensure that adequate institutional arrangements are in place for the execution of the municipality’s responsibilities as required by the Act, particularly in terms of sections 50, 52, 53 and 54 of the Act and of section 1.3.1.3 and 1.3.2.2 of the National Disaster Management Framework. Each local municipality must establish and maintain a structure for the coordination of Disaster Risk Management in its municipality. The purpose is to ensure integrated, coordinated and uniform Disaster Risk Management planning and operations within the municipality. The Head of the Centre must, through a process of consultation with the 7 local municipalities in the District, facilitate the development, adoption and implementation of standards for:

the establishment of institutional arrangements and organisational mechanisms for the integrated execution of Disaster Risk Management policy in each of the 7 local. Such arrangements must include the establishment of Disaster Risk Management structures and mechanisms in municipal wards

the development of a Disaster Risk management Plan

the integration of Disaster Risk Management planning and operations into the Integrated Development Plans and other developmental programmes in each of the 7 local municipalities.

1.4. Arrangements for Stakeholder Participation

In terms of integrating and executing the Policy across the municipality, the uMgungundlovu Municipality Disaster Risk Management centre must establish and maintain a structure for the

13

coordination of Disaster Risk Management in its Municipality. A forum should be established which allows for stakeholder participation, indigenous knowledge and technical advice. The uMgungundlovu District Advisory Forum must be comprised of representatives of all key Disaster Risk Management stakeholders in the municipality, representatives of the Provincial Disaster Risk Management Centre, technical experts, institutes of higher Education and the private sector. The Head of the Disaster Risk Management Centre must develop the terms of reference for the forum. The Forum shall establish inter-departmental Disaster Risk Management task teams for the area that are responsible for: Hazard-specific contingency plans for known priority risks; for response and recovery operations; for vulnerability reduction; and for specific priority risk reduction programmes and projects for high risk groups, communities, areas and developments with multiple vulnerabilities; and for any other relevant Disaster Risk Management programmes and operations in the municipality. Technical task teams must develop their own terms of reference which define the minimum composition, the scope of operations, responsibilities, reporting, budgeting and time frames for each project. The Centre, in consultation with the Forum and the local municipalities, develop, adopt and implement a programme for the recruitment, training and participation of volunteers in Disaster Risk Management in the municipality. The Centre must enter into mutual assistance agreements with their neighbours, the private sector, other organs of state and communities to strengthen its capacity to deal with risk reduction, response and recovery.

1.5. Arrangements for co-operation with the Provincial and National spheres

The centre must establish mechanisms to ensure the application of the principles of cooperative governance and to establish links with all neighbouring district municipalities for the purposes of integrating and coordinating DRM initiatives, planning and operations; establishing joint standards of practice; as well as to foster cooperation with all role players in Disaster Risk Management. This can be achieved by:

The development of mechanisms to strengthen capacity by facilitating and fostering partnerships between existing structures, organisations and institutions and engaging existing skills and expertise within the municipality, across municipal boundaries, with institutions of higher learning, the private sector, Non-Governmental-Organisations and with communities;

Concluding mutual assistance agreements (MAAs) and memoranda of understanding (MOUs) with such alliance partners.

Developing and implementing mechanisms for:

information sharing

standards for information management systems and for strategic communication links

compiling directories of institutional role players and resource databases

14

submission of Disaster Risk Management plans, reports and reviews to other key organisations and to neighbouring centres

1.6. Key Performance Indicators The job description and key performance indicators for the position of the District Disaster Risk Management Centre has been developed;

1.6.1 The Heard of the Centre has been appointed; 1.6.2 The District Disaster Risk Management Centre has been established and is fully operational; 1.6.3 Disaster Risk Management focal/nodal points have been identified by District role players

and responsibilities have been assigned; 1.6.4 Roles and responsibilities of District role players for disaster risk management have been

identified, assigned, are included in the job descriptions of key personnel and are being applied effectively;

1.6.5 Municipal disaster risk management centres have been established and are operating optimally.

1.6.6 The District Disaster Risk Management Advisory Forum has been formally constituted and operates effectively.

1.6.7 Municipal Disaster Risk Management Forums or similar representative consultative forums have been established and are operating effectively.

1.6.8 Mechanisms have been identified and implemented to ensure the application of the principle of co-operative governance.

1.6.9 Guidelines have been developed and disseminated for entering into partnerships and concluding mutual assistance agreements and memoranda of understanding.

KPA 2: Disaster Risk Assessment (DRA)

Objective: Establish a uniform approach to assessing and monitoring disaster risks that will inform disaster risk management planning and disaster risk reduction undertaken by organs of state and other role players A disaster risk assessment is the first step in planning an effective Disaster Risk Management policy. It aims to examine the likelihood of expected disaster events. This includes investigating related hazards and conditions of vulnerability that increase the chance of loss. The National Disaster Risk Management Policy Framework details the following elements of risk assessment:

Situations requiring a risk assessment

Steps involved

How to undertake a risk assessment, including recommendations on methods available

Classification of hazards

Monitoring risks These guidelines are applicable to the district municipal context and are considered implicit in this Policy. Only uMgungundlovu-specific issues are therefore detailed hereunder.

1.7. Risk Assessment and Reduction Planning

The Centre must conduct a comprehensive risk assessment and must implement mechanisms for the ingoing monitoring of disaster risk in the District, as well as for risks prevailing in neighbouring areas. The purpose of the risk assessment is to inform planning across the area and to prioritise programmes that have a high risk priority. The Centre must develop a standard methodology and Terms of Reference for all risk assessments undertaken in the District. Risk assessments must be ground-trothed, with field consultations in areas and communities most at risk. Co-operative partnerships with communities need to be set up prior to field assessments. If an external service provider is commissioned to undertake a comprehensive risk assessment for the District, the Terms of Reference must specify: feedback, consultation, skills transfer, and capacity building. The Centre must ensure that risk assessments are undertaken by all other departments and other municipal entities; as well as municipal departments and other municipal entities in local municipalities in the District with Disaster Risk Management responsibilities:

prior to the implementation of any risk reduction programmes;

16

during the planning phase of all developments of municipal significance and of any significant initiatives that affect the natural environment in the District; and

When indicators suggest changing patterns of risk that could increase the risk of significant disaster impacts in the District.

All proposed disaster risk assessments planned in the District must be submitted to the Centre for further forwarding to the Provincial and National Disaster Management Centres for technical review by the relevant structures before being commissioned. Reports of all disaster risk assessments conducted in the District must be submitted to the Centre for further forwarding to the Provincial and National Disaster Management Centre for the technical validation of findings by the relevant structures before any plans; projects; programmes; initiatives; risk and hazard maps based on the findings of such assessments are initiated. All major risk assessments must be reviewed at a risk-specific interval and updates submitted to the Centre. The interval should be set by the Centre in negotiation with the responsible party.

1.8. Disaster Risk Profile

The Centre must establish the necessary capability to generate a District Indicative Disaster Risk Profile and to continuously monitor and update this profile. The GIS department of the District must develop maps that represent the spatial distribution of priority risks and the history of incidents/disasters in the area. The Head of the Centre must review the profile on an annual basis.

1.9. Monitoring, updating and disseminating risk information

The Centre needs to identify and link with organisations and stakeholders that undertake hazard tracking and vulnerability monitoring in various sectors, and keep a central cross-sectorial GIS database. Mechanisms and reporting procedures need to be set up and documented between the Centre and the relevant party. All Disaster Risk Management stakeholders and practitioners across the District Municipality need to report incidents through to the Centre and logged into a GIS disaster event tracking system. The Centre must have a clear, documented procedure for disseminating timely weather information.

1.10. Key Performance Indicators

1.10.1 A district standard for conducting comprehensive disaster risk assessments has been

generated by the (DDMC) District Disaster Management Centre.

17

1.10.2 District guidelines by the District Disaster Management Centre for application of a uniformed disaster risk assessment methodology have been generated by the District Disaster Management Centre.

1.10.3 A District standard for assessing priority disaster risks has been generated by the District Disaster Management Centre.

1.10.4 Provincial guidelines for assessing priority disaster risk in provincial and municipal spheres have been generated by the District Disaster Management Centre.

1.10.5 Relevant risk assessment regulations, policy and implementation guidelines by provincial organs of state and their local counterparts have been developed and applied.

1.10.6 Documented evidence of progressive integration of risk assessment into development planning of organs of state and other role players in Integrated Development Plans and annual report submitted to the District Disaster Management Centre.

1.10.7 Mechanisms to consolidate document and make information accessible on the district priority risks have been established by the District Disaster Management Centre.

1.10.8 Priority risks of district significance have been identified and documented by the District Disaster Management Centre.

1.10.9 Procedures to consolidate, map, update and make information accessible on the district

priority risk have been established and documented by District Disaster Management Centre. 1.10.10 Disaster risk assessments undertaken show documented evidence of: o Capacity building with respect to the commissioning authority o Ground-trothing (that is, based on the actual situation ‘’on the ground or verified by those being

assessed), through field consultations in the areas and with communities most at risk from the risk(s) being assessed

o Consultation with appropriate governmental and other stakeholders about the design and/or implementation of the assessment, as well as the interpretation of the findings.

1.10.11 There is documented evidence in disaster risk assessments undertaken of external validation prior to: o The publication or dissemination of hazard, vulnerability or risk maps and/or reports for planning

purposes. o The implementation of risk reduction or other initiatives based on the assessment results.

1.10.12 Disaster risk assessments undertaken show documented evidence of technical consultation

with the appropriate disaster management centre(s) prior to implementation.

18

Key Performance Area 3: Disaster Risk Reduction

Objective Ensure all disaster risk management stakeholders develop and implement integrated disaster risk management plans and risk reduction programs in accordance with approved frameworks. The National Policy Framework provides detail on the risk reduction principles, and operational planning, which are applicable and inherently incorporated into this Policy. Only district level and uMgungundlovu-specific issues are therefore detailed hereunder.

1.11. Disaster Risk Management Plan

The Centre must develop and implement standards for the District Disaster Management Plan, which are consistent with the national guideline to ensure the adoption of uniform methodology to achieve integrated, holistic and co-ordinated planning. The standard must define the minimum composition and scope of Disaster Risk Management plans. Every municipal department and local municipalities in the District with Disaster Risk Management responsibilities must develop and submit Disaster Risk management plans to the Centre within the time frame stipulated by the Centre. The Centre must identify primary and support agencies and must assign responsibilities to the identified agencies for the development and implementation of each priority Disaster Risk management plan, programme and project. All Disaster Risk management Plans must give explicit priority to risk reduction measures, including mitigation, preparedness and advocacy, and must also include elements of response, and recovery. Focussed initiatives to reduce priority risks must be identified in the Plan. The Plan must be reviewed annually.

1.12. Risk Reduction

The Centre must develop, implement and maintain Risk Reduction Plans which identify communities or infrastructure at risk from known disaster threats and contains recommendations on possible developmental projects that are in line with the Integrated Development Plan for the municipality and which could reduce the risk of the threat to a particular vulnerable community. The Centre’s Annual Report must document accounts of the disaster risk reduction projects, programs and initiatives planned and implemented. This includes reports documenting effectiveness of disaster risk reduction pilot projects and research initiatives, as well as initiatives that aim to reduce vulnerability and loss for defined priority disaster risks. The Centre must undertake an internal capacity building process to ensure that staff have a common understanding of risk reduction principles and responses, an understanding of the roles and

19

responsibilities of all other stakeholders when they undertake emergency responses, and their role in monitoring and other support functions such as coordination and communications. The Plans must be reviewed annually at least every 2 years. In addition the relevant plans must be reviewed following any significant disaster event. The Centre is responsible for developing and facilitating the implementation of mechanisms to monitor the effectiveness of risk reduction initiatives.

1.13. Inclusion of Disaster Risk Reduction in other structures and processes

The Centre must ensure that contingency plans and risk reduction plans, programmes and projects are incorporated into Integrated Development Plans, Spatial Development Frameworks, Environmental Management Plans and other strategic developmental plans and initiatives taking place in the municipality and in local municipalities. The Centre must assess the Disaster Risk Management component of existing policies, regulations and by-laws for applicable in the District and introduce measures that ensure alignment with the Act.


A district disaster management framework has been developed and municipal disaster management frameworks that are consistent with the national disaster management framework have been submitted to the District Disaster Management Centre. Disaster risk management planning guidelines have been developed and disseminated by the District Disaster Management Centre. Disaster risk management plans have been submitted to the District Disaster Management Centre by all relevant municipal entities and municipal disaster management frameworks and plans are revised at least two-yearly, as evidenced in annual reports submitted to the District Disaster Management Centre. 1.14.1 District priority risk have been identified and mapped by the District Disaster Management

Centre. 1.14.2 Specific District priority risk have been identified and mapped by District Disaster

Management Centres. 1.14.3 Specific municipal risk have been identified and mapped by Municipal Disaster Management

Centres. 1.14.4 Specific priority areas, communities’ households within district and municipal spheres have

been identified and mapped. 1.14.5 Focused initiatives to reduce priority risk have been identified by district organs of state.

20

1.14.6 Case studies/lessons learned in risk reduction measures and initiatives have been disseminated and documented by the District Disaster Management Centres.

1.14.7 Documentation, which is accessible to stakeholders, demonstrates the effectiveness of risk reduction measures for different risk scenarios.

1.14.8 Guidelines for incorporating disaster management programmes and initiatives into the activities of other district organ of state and key institutional role player’s haven developed and implemented. 1.14.9 Mechanisms to disseminate experience from pilot and research projects that explore the

vulnerability reduction potential, appropriateness, cost-effectiveness and sustainability of specific risk reduction initiatives have been established.

1.14.10 Risk-related information has been incorporated into spatial development framework. 1.14.11 Risk reduction-related project and initiatives have been included in Integrated Development

Plans. 1.14.12 Regulations, standards, by-laws and other legal instruments that encourage risk-avoidance

behaviour have been enforced by district and municipal organs of state and documented in annual reports to the District Disaster Management Centre.

1.14.13 Disaster risk reduction programmes, projects and initiatives have been implemented by district and municipal organs of state and other key role players.

1.14.14 Measurable reductions in small-medium-and large-scale disaster losses have been recorded. 1.14.15 A measurable reduction in social relief in disaster-prone economically vulnerable

communities has been recorded. 1.14.16 Case studies and best-practice guides in disaster risk reduction, facilitated by the District

Disaster Management Centre, have been generated and disseminated. 1.14.17 There is evidence of the progressive application of disaster risk reduction techniques and

measures by district and municipal organs of state as, reported in annual reports submitted to the District Disaster Management Centre.

21

Key Performance Area 4: Disaster Response and Recovery

Objective Ensure effective and appropriate disaster response and recovery by:

implementing a uniform approach to the dissemination of early warnings

averting or reducing the potential impact in respect of personal injury, health, loss of life, property, infrastructure, environments and government services

implementing immediate integrated and appropriate response and relief measures when significant events or disasters occur or are threatening to occur

implementing all rehabilitation and reconstruction strategies following a disaster in an integrated and developmental manner.

1.15. Dissemination of Early Warnings and Preparedness

The Centre must identify organizational resources, determine roles and responsibilities, develop policies and procedures and planning activities in order to reach a level of preparedness to be able to respond timely and effectively to a disaster should one occur. The Centre is responsible for the identification and monitoring of prevailing hazards and must prepare and issue hazard warnings of significance to the district The Centre must develop and implement a communication plan that details mechanisms and strategies to ensure that such warnings are disseminated quickly to reach at-risk communities, including isolated areas. The warnings must include information to enable those at risk to avoid/reduce loss.

1.16. Assessment, classification, declaration and review of a disaster

Uniform methods and guidelines for disaster impact assessments must be applied when significant events or disasters occur. It is the responsibility of national organs of state to develop these operational guidelines. The Centre must utilise the impact assessment to:

Ensure the provision of immediate and appropriate response and relief measures

Facilitate the classification of an event

Facilitate the prioritisation and implementation of appropriate rehabilitation measures by organs of state; and

Cost the disaster or significant events

22

The Centre is responsible to ensure the operational guidelines are applied in the District, disseminated to the relevant role players in areas at risk, and that training and capacity building on the application of the guidelines is included during dissemination. The Head of the Centre has primary responsibility for the co-ordination and management of significant events and local disasters, and must make recommendations to the uMgungundlovu Council as to whether the provisions of section 55 (1) of the Act apply and an event should be declared a local state of disaster by notice in the provincial gazette. The Centre must develop a standard mechanism for the classification and declaration of disasters. The Centre must ensure that a comprehensive review is conducted after all significant events and disasters. Reviews should include costing, to inform planning and budgeting. Such reviews are to submitted to the Centre, and in turn to the Provincial Disaster Management Centre and National Disaster Management Centre. Further the Centre must disseminate information to stakeholders. The Centre must update applicable plans following a review.

1.17. Disaster Response and Recovery

A response management system must be developed and implemented to ensure a systematic co-ordinated approach to significant events and disasters. The system must provide clear allocation of roles, responsibilities and mechanisms for the effective utilisation of facilities, personnel, equipment, resources, procedures and communication for operational command, on-scene operations, and technical task team level. The system must be aligned with the requirements stipulated in the National Policy Framework. The centre must identify and assign primary responsibility to relevant organs of state for contingency planning for each known priority hazard. Supporting stakeholders must also be identified and assigned responsibilities. Primary and support agencies so assigned for each priority hazard must be clustered into a technical task team and the organs of state assigned with primary responsibility must facilitate the development by the technical task team of a contingency plan for the relevant known priority hazards. The Centre must identify lead agencies to facilitate the development of Standard Operating Procedures (SOPs) for each operational activity and must identify and allocate responsibilities to support agencies, and outline mechanisms for the roles of volunteers. Primary and support agencies so assigned for each operational activity must be clustered into a technical task team and the agency assigned with primary responsibility must facilitate the development by the technical task team of the relevant Standard Operations Procedures. The centre must ensure that such Standard Operations Procedures are reviewed and updated simultaneously with that of contingency plans.

23

The Centre must ensure the development of regulations and directives, which are consistent with national regulations, and directives to standardize and regulate the practice and management of multi-agency response and recovery operations in the district. The Centre must monitor the implementation of and compliance with such regulations and directives by conducting multi agency response debriefings after each significant event or disaster. All the above elements must be included in the response management system.

1.18. Reconstruction and Rehabilitation

The centre must establish multidisciplinary technical task teams for post disaster rehabilitation and reconstruction projects and must identify a lead agency and assign primary responsibility to the lead agency for the management of each project using nationally adopted project management methodologies. Such methodologies must include mechanisms for the monitoring and submission of regular progress reports to the uMgungundlovu District Municipality’s Disaster Risk Management Head of Centre.


1.19.1 Effective and appropriate early warning strategies have been developed and implemented and the information communicated to stakeholders to enable appropriate responses.

1.19.2 Guidelines and uniform methods, including templates, for the assessment and costing of significant events or disasters have been developed.

1.19.3 Mechanisms for the rapid and effective classification of a disaster and the declaration of a state of disaster have been established.

1.19.4 Mechanisms for conducting disaster reviews and reporting, including mechanisms to enable assessments that will comply with and give effect to the provisions of sections 56 and 57 of the Act, have been developed and implemented.

1.19.5 Review and research reports on significant events and trends are routinely submitted to the District Disaster Management Centre and disseminated to stakeholders.

1.19.6 Review reports on actual disasters are routinely submitted. 1.19.7 The organs of state that must bear primary responsibility for contingency planning and the

coordination of known hazards have been identified and allocated such responsibility. 1.19.8 Stakeholders that must bear secondary responsibility for contingency planning and the

coordination of known hazards have been identified and allocated such responsibility. 1.19.9 Contingency plans for known hazards by national organs of state have been developed. 1.19.10 Response and recovery plans are reviewed and updated annually. 1.19.11 A Field operation guides (FOGs) for the various activities associated with disaster response

and recovery been developed and are reviewed and updated annually. 1.19.12 A district standard incident management system has been developed and is reviewed and updated annual. 1.19.13 Standard Operation Procedures and checklists have been developed and are understood by

all stakeholders in their respective fields of responsibilities. 1.19.14 Regulations and directives for the management of disaster response and recovery

operations have been developed and gazetted or published.

24

1.19.15 Regulations for the management of relief operations have been developed and gazetted. 1.19.16 Progressive monitoring and annual reviews of regulation for the management of relief

operations, based on lessons learned are conducted. 1.19.17 Post-disaster project teams for rehabilitation and reconstruction have been established and

operate effectively. 1.19.18 Mechanisms for the monitoring of rehabilitation and reconstruction projects have been

established and regular progress reports are submitted to the National Disaster Management Centre.

.

Performance Enabler 1: Information Management and Communication

Objective Guide the development of a comprehensive information management and communication system and establish integrated communication links with all disaster risk management role players. The Centre must develop and implement an effective information management and communication system to enable the receipt, storage, dissemination and exchange of information. The system must fulfill the requirements stipulated in the National Policy Framework and be fully integrated into the national system network. The system must have the following capabilities:

to support the requirements of disaster risk assessment, risk reduction plans and programmes, response and recovery operations, knowledge management, funding mechanisms and financial controls

to acquire, sort, store and analyze data for the purpose of targeting information for primary interest groups. In addition, it must include GIS (geographical information systems) mapping and information display applications, as well as standardized multimedia communication capabilities.

A document management system

Resource and capacity database

Modelling and simulations functionality,

Monitoring and evaluation system

Programme/project management

Quality management system The centre must define data requirements and data sources for the District. The centre must also develop and implement methodologies for the collection and capturing of data, which are consistent with national standards. The centre must define and assign responsibilities to the specific department or other municipal entity and to local municipalities for the custody of data relevant to their functional area and must identify and enter into agreements with other relevant custodians of data to ensure availability, quality, reliability and currency of data.


1.20.1 Data needs have been defined by the District Disaster Management Centre. 1.20.2 Data sources have been identified by the District Disaster Management Centre. 1.20.3 Data collection and capturing methodologies have been have been developed and

implemented. 1.20.4 The responsibilities of the respective data custodians have been defined and assigned. 1.20.5 Agreement with identified data custodians have been negotiated to ensure availability, quality

and reliability of data.

26

1.20.6 An integrated information management and communication system has been designed and implemented to support: o Integrated institutional capacity. o Disaster risk management. o Disaster risk reduction programmes and plans. o Response and recovery operations.

Education, training, public awareness and research. o Funding mechanisms and financial control.

1.20.7 A uniform document management system has been developed and implemented and is used by all role players.

1.20.8 A comprehensive, uniform and easily updateable resource and capacity database has been developed and implemented and is used be all role players.

1.20.9 A modelling and simulation application has been developed and is used by all role players. 1.20.10 An integrated monitoring and evaluation system has been developed and implemented and

is used by all role players. 1.20.11 A uniform programme and project management tool has been developed and used by all role

players involved in disaster risk management programmes and projects. 1.20.12 A quality management system has been developed and implemented, and designated

individuals in relevant national, district and municipal organ of state have been assigned responsibility to administer the system.

1.20.13 A disaster risk management information and communication system for all spheres of government have been established and implemented.

1.20.14 The disaster risk management information and communication system support the key performance areas and enablers in all spheres of government.

1.20.15 District and municipal information management and communication systems are fully compatible with the national system and are part of a single integrated network.

1.20.16 Information dissemination programmes and channels of communication between all spheres of government, organs of state, communities and the media have been established.

1.20.17 Disaster risk management information is easily accessible for all at no additional charge.

27

Performance Enabler 2:

Education, Training, Public Awareness and Research

Objective Promote a culture of risk avoidance among stakeholders by capacitating role players through integrated education, training and public awareness programs informed by scientific research. The Disaster Management Act encourages the promotion of education and training, and the promotion of research into all aspects of Disaster Risk Management. The primary responsibility lies with the National Disaster Management Centre, but the uMgungundlovu Disaster Risk Management Centre must identify and implement appropriate local level mechanisms for knowledge management supported by scientific research to promote a culture of risk avoidance amongst stakeholders and role players. The centre must conduct a scientific analysis of knowledge management needs and resources in the area to serve as the basis for the development of a District Disaster Risk management education and training framework and to inform the development and implementation of appropriate knowledge management programmes. It is the responsibility of the National Disaster Management Centre to undertake a national needs and resource analysis, but in order to achieve the Key Performance Indicator’s within the national framework, all provincial and municipal disaster management structures, including uMgungundlovu Municipality, will be required to participate and help inform this process. The centre must develop and implement a knowledge management framework for Disaster Risk management in the uMgungundlovu area based on the needs and resource analysis. Again this must help to inform the National Disaster Management Training and Education framework. It is the responsibility of the uMgungundlovu Municipality to create training programmes for the community that focus on disaster risk awareness, disaster risk reduction, volunteerism and preparedness. Indigenous knowledge must be harnessed and included in the training programme and its outcomes. The centre must promote, support and monitor the implementation of knowledge management programmes for Disaster Risk management in the District in accordance with national and provincial standards. Special training programmes must be developed for persons interested in volunteering their services. The Centre must maintain a record of all volunteers trained and submit records to the provincial Disaster Risk management Centre. The centre must establish a strategic research agenda and must promote the participation of research institutions in district research programmes. The centre must ensure the correlation between scientific research and District Disaster Risk management policy and that research contributes to the development of technology. Any research initiatives must be linked to the Integrated Development Plan process.

28

Establishing links with local schools is essential as part of the uMgungundlovu District's Disaster Risk Management awareness programme, as schools must be used as a mechanism to disseminate information on risk avoidance. School awareness programmes must be conducted, assessed and adapted on an annual basis. The Centre must establish and manage on-going relations with local media. Regular articles on Disaster Risk management should appear in the media, and the objectives, benefits and major activities of risk reduction programmes must be communicated to all role players. A specific functionary/office must be assigned responsibility for media relations. The Centre must formulate and implement appropriate public awareness programmes in consultation with communities, Non-Governmental-Organisations and the private sector.


1.21.1 The district participated in a scientific national education, training and research needs and resources analysis and has been completed within two years of the implementation of the national disaster management framework.

1.21.2 The district participated in the national education, training and research needs and resources analysis and serves as the foundation for the development of a district disaster risk management education and training framework.

1.21.3 The national education, training and research needs and resources analysis informs the development of appropriate disaster risk management education and training programmes that not only build on existing strengths but are responsive to the district changing disaster risk management needs.

1.21.4 A district disaster risk management education and training framework has been developed and directs the implementation of all disaster risk management education and training in the district.

1.21.5 All disaster risk management education and training standards and qualifications comply with the requirements of the South African Qualifications Authority Act, 1995 (Act No.58 of 1995) and the guidelines prescribed in the National Qualifications Framework.

1.21.6 A technical advisory body has been established and the district participates in it. 1.21.7 An accreditation and registration system has been established to ensure that all education

and training providers and facilitators are registered and accredited. 1.21.8 Curricula for various National Qualifications Framework levels within different disciplines

have been developed and applied in line with the national education, training and research and resources needs analysis.

1.21.9 Aspects of disaster risk management are included in the curricula of all relevant tertiary disciplines as well as relevant primary and secondary school programmes.

1.21.10 Various quality professional courses, workshops, seminars, and conferences, focusing on issues of disaster risk through a multidisciplinary approach, are held.

1.21.11 Approved service providers have been registered and are offering education and training services and products.

1.21.12 There is a widespread use of education and training materials. 1.21.13 Qualified facilitators, instructors and presenters have been accredited. 1.21.14 An education and training quality assuror has been appointed. 1.21.15 On-going training interventions, including short courses, workshops, seminars and

conferences, are available to stakeholders.

29

1.21.16 Training programmes have been developed and implemented. 1.21.17 Facilitators, instructors and presenters have become qualified and have been accredited. 1.21.18 Approved service providers have been registered and are offering training services and

products. 1.21.19 Widespread community-based disaster risk management training (in line with national

training standards) is taking place. 1.21.20 Disaster risk management learner ships have been developed and are operational. 1.21.21 An education and training quality assuror has been appointed. 1.21.22 A strategic disaster risk research agenda has been established. 1.21.23 Research institutions participate in the national research programme on an organised basis. 1.21.24 A link between scientific research and policy exists (evidence-based policy and policy-

oriented research). 1.21.25 Regional and international exchange, co-operation and networking occur on a regular basis. 1.21.26 Disaster risk management research contributes to technology development. 1.21.27 All stakeholders have access to a comprehensive research database. 1.21.28 All stakeholders have access to a comprehensive advisory service.

Performance Enabler 3: Funding Arrangements

Objective Establish mechanisms for the funding of disaster risk management in South Africa. The Centre must determine funding arrangements for Disaster Risk Management which must include:

the establishment of institutional arrangements for Disaster Risk management

conducting disaster risk assessments

planning and implementing disaster risk reduction

disaster response and recovery

knowledge management for Disaster Risk management stakeholders

The Council must take appropriate steps to ensure sufficient funding and capacity building initiatives are allocated for the municipality to perform the responsibilities outlined in this Policy. The Council should allocate 0.8% of its own total annual revenue to Disaster Risk Management. Once this threshold has been reached, the Council may request assistance from provincial government. The funding arrangements must be reviewed annually, approved and adopted by the Council and incorporated into the Integrated Development Plan. The Mayor may authorize unforeseeable, and unavoidable expenditure in an emergency. This must be ratified by the Council in an adjustments budget within 60 days of the expenditure having been incurred.

30

The Municipal Infrastructure Grant may be utilized for new and rehabilitated infrastructure for post-disaster rehabilitation or infrastructure to reduce potential future losses. The Council may request funding from the National Disaster Risk management Centre from the central contingency fund if it is to provide the minimum level of basic services.


1.22.1 The minimum requirements for district and municipal disaster management centers have been costed.

1.22.2 Conditional grants to fund the start-up costs of disaster management centers in district and municipalities have been established and allocated.

1.22.3 Conditions for access to grant funding are based guidelines issued by the National Disaster Management Centre on minimum infrastructure requirements for disaster management centers.

1.22.4 The responsibilities of the District Disaster Management Centre as set out in the Act have been costed and these cost estimates inform the budget for disaster risk management in the budget vote.

1.22.5 The District Disaster Management Centre budget makes provision for district priority risk reduction projects.

1.22.6 The District Disaster Management Centre has rapid access to emergency funds for assistance in municipal disasters. Monitoring processes are integrated with routine reporting cycles of organs of sate.

1.22.7 The costs of disaster risk assessments are included in the budgets of district organs of state.

1.22.8 The costs of initial disaster risk assessments are included in the local government conditional grant.

1.22.9 The costs of disaster risk assessments have been estimated and are included in the in the budgets of municipal disaster management centers.

1.22.10 Budgets in all spheres of government include the costs of routine disaster risk reduction measures and activities.

1.22.11 Feasibility studies for capital projects include information drawn from disaster risk assessments and appropriate risk reduction measures.

1.22.12 Capital budgets clearly reflect the costs of disaster risk reduction. 1.22.13 Preparedness actions are funded through the recurrent budgets of all relevant organs of

state. 1.22.14 The percentage of the budget of a district or municipal organ of state as a threshold for

accessing additional funding from national government for response and recovery effort has been established and implemented.

1.22.15 Response and recovery effort are funded through budgeted threshold allocations. 1.22.16 A mechanism has been developed to ensure rapid access to national funds for disaster

response. 1.22.17 Organs of state across all spheres of government have budgeted for threshold

allocations. 1.22.18 People, households and communities affected by a significant event or disaster have

immediate access to relief measures.

31

1.22.19 Financial households for rehabilitation and reconstruction funding in the different spheres of government have been set.

1.22.20 Rehabilitation and reconstruction effort are funded through a combination of own budget, reprioritization, budgeted threshold allocations and conditional grants.

1.22.23 There is documented evidence of an increase in expenditure on accredited education and training programs.

1.22.24 Organs of state recover their expenditure on accredited education and training from the relevant Sector Education and Training Authorities.

1.22.25 The conditions of the Municipal Systems Improvement Grant have been extended to cater for disaster risk management education and training programs. 1.22.26 All organs of state involved in public awareness budget for integrated public awareness programs. 1.22.27 Partnership between municipal organs of state and the private sector, nongovernmental

organizations and community-based organizations exist for the purpose of funding public awareness programs and projects.

1.22.28 Funds are available from government departments, international donor organization, private companies, research foundations and non-governmental organizations research programs.

11 References:

Republic of South Africa. A Policy Framework For Disaster Risk Management In South Africa Pretoria: Government Printer

Republic of South Africa. 2003. Disaster Management Act, 2002 (Act No.57 of 2002). Pretoria: Government Printer

The Disaster Risk Management Policy Framework for Cogta KZN PDMC

Concern USA. www.concernusa.org

Red Cross International. www.ifrc.org

African Centre for Disaster Studies. www.ACDS.co.za

Disaster Management Guidelines for Municipalities

Jeffers and Green Consultancy

the disaster risk management policy framework

Documents