Disaster Management Plan

Transcription

1 CITY OF TSHWANE Disaster Management Plan Updated Level 1 Disaster Management Centre 2011 Updated by Disaster Management Officers OC Tshitannye KZ Khotlele KJ Matebane TJ Tshifaro SV Mnguni

2 ACCRONYMS CBO Community based organisation CoT City of Tshwane CoT DRMF City of Tshwane Disaster Risk Management Framework DMA Disaster Management Act No. 57 of DMIS Disaster Management Information System DOC Disaster Operations Centre DRA Disaster Risk Assessment DRR Disaster Risk Reduction DRMAF Disaster Risk Management Advisory Forum DRMP Disaster Risk Management Plan EIA Environmental Impact Assessment FOG Field Operations Guide FPA Fire Protection Association GIS Geographical Information Systems GM General Manager GP PDMC Gauteng Province Provincial Disaster Management Centre GPDMF Gauteng Province Provincial Disaster Management Framework GPS Geographical Positioning System IDP Integrated Development Plan IRCS International Red Cross Society JOC Joint Operations Centre KPA Key Performance Area MDG Millennium Development Goals MDMC Municipal Disaster Management Centre MFMA Municipal Financial Management Act No. 56 of 2003 MMC Member of the Mayoral Committee

3 NDMC National Disaster Management Centre NDMF National Disaster Management Framework NGO Non-governmental organisation PDMC Provincial Disaster Management Centre PDMF Provincial Disaster Risk Management Framework PFMA Public Financial Management Act No. 1 of 1999 SED Strategic Executive Director SOP Standard Operating Procedure VOC Venue Operations Centre DEFINITIONS Disaster is a progressive or sudden widespread or localized, natural or humancaused occurrence which causes or threatens to cause death or injury, damage to property, infrastructure or environment, disruption of life of a community and its magnitude exceeds the ability of those affected to cope using only their own resources. Disaster management is a continuous and integrated multisectoral and multidisciplinary process of planning and implementation of measures aimed at disaster prevention, mitigation, preparedness, response, recovery and rehabilitation. Risk is a probability of a hazard occurring or threatening to occur

4 Prevention means activities to provide outright avoidance of the adverse impact of hazards and means to minimize related environmental, technological and biological disasters. Mitigation means structural and non-structural measures undertaken to limit the adverse impact of natural hazards, environmental degradation and technological hazards. Preparedness means activities and measures taken in advance to ensure effective response to the impact of hazards, including the issuance of timely and effective early warnings and the temporary evacuation of people and property from threatened locations. Response means measures taken during or immediately after an incident or a disaster in order to bring relief to affected communities or individuals Recovery means efforts, including development aimed at creating a situation where- (a) Normality in conditions caused by a disaster is restored; (b) The effects of a disaster are mitigated; or (c) Circumstances are created that will reduce the risk of a similar disaster occurring Capacity is a combination of all the strengths and resources available within a community, society or organization that can reduce the level of risk, or the effects of a disaster.

5 Hazard is a potentially damaging physical event, phenomenon or human activity that may cause the loss of life or injury, property damage, social and economic disruption or environmental degradation. Disaster risk reduction is the conceptual framework of elements considered with the possibilities to minimize vulnerabilities and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) the adverse impacts of hazards, within the broad context of sustainable development. Environmental Impact Assessments are studies undertaken in order to assess the effect on a specified environment of the introduction of any new factor, which may upset the current ecological balance. Environmental degradation is the reduction of the capacity of the environment to meet social and ecological objectives, and needs. Geographic Information System is an analysis that combines relational databases with spatial interpretation and outputs often in form of maps. A more elaborate definition is that of computer programmes for capturing, storing, checking, integrating, analysing and displaying data about the earth that is spatially referenced.

6 CONTENTS Executive Summary Custodian Of The Plan Legislative Mandate Purpose City Of Tshwane Overview Disaster Management Planning Overview Foundational Institutional Arrangements Disaster Risk Management Policy Framework Emergency Services Department Top Management Committee Disaster Risk Management Advisory Forum Ngo Forum Other Sub-Fora Municipal Disaster Management Centre (Mdmc) Sub-Structures Of The Mdmc Divisional Disaster Risk Management Focal Points The Disaster Risk Management Planning Framework Risk Reduction Planning Contingency Planning Disaster Risk Assessment For The Cot Macro Vulnerability Assessment The Disaster Risk Profile Of The Cot Formal Consultative Mechanism For DRR Projects IDP Projects Contributing To Vulnerability And Hazard Reduction Disaster Risk Management Planning Priorities For The Cot Incentive System For The Promotion Of DRM In The Cot Disaster Risk Management Information System Emergency Communication System... 83

7 15. Areas For Focussed Disaster Risk Assessments Implementation Strategy For The DRM Plan... 86

8 EXECUTIVE SUMMARY Disaster risk management has become the major challenge the entire world is faced with currently owing to the ever growing population, climate change, and the ever changing environment in general. Natural and man-made disasters result in economic as well as environmental losses which places a need for systematic approach to management of risks. The Constitution of the Republic of South Africa (Act 108 of 1996) places a legal obligation on the Government of South Africa to ensure the health (personal and environment) and safety of its citizens. In terms of section 41(1)(b) of the Constitution, all spheres of Government are required to secure the well-being of the people of the Republic. Section 152(1)(d) also requires that local government ensure a safe and healthy environment. In the light of the above, and the established understanding of disaster management, the primary responsibility for disaster risk management in South Africa rests with Government. Section 26(g) of the Municipal Systems Act 32 of 2000 as well as sections 52 and 53 of the Disaster Management Act 57 of 2002 compels each municipal entity to develop a disaster risk management plan as part of and an integrated part of their Integrated Development Plans. This plan establishes the arrangements for disaster risk management within the City of Tshwane (CoT) and has been prepared in accordance with the requirements of the Disaster Management Act, 57 of 2002 (the Act) and section 26(g) of the Municipal Systems Act, A Level 1 Disaster Risk Management Plan applies to national or provincial organs of state or municipal entities that have not previously developed a coherent Disaster

9 Risk Management Plan. It focuses primarily on establishing foundation institutional arrangements for DRM, putting in place contingency plans for responding to known priority risks as identified in the initial stage of the DRA, identifying key governmental and other stakeholders, and developing the capability to generate a level 2 plan. The purpose of the CoT Disaster Risk Management Plan (DRMP) is to document the institutional arrangements for disaster risk management planning which includes the assignment of primary and secondary responsibilities for priority disaster risks posing a threat in the CoT. It further provides the broad framework within which the disaster risk management planning requirements of the Act will be implemented by the departments and other entities included in the organisational structure of the CoT. It establishes the operational procedures for disaster risk reduction planning as well as the emergency procedures to be implemented in the event of a disaster occurring or threatening to occur in council s area. It aims to facilitate an integrated and coordinated approach to disaster risk management in the municipality which will ensure that the CoT achieves its vision for disaster risk management which is to build a resilient people in the CoT who are alert, informed and self-reliant by establishing risk reduction and resilience building as core principles, and developing adequate capabilities for readiness; and effective and rapid, response and recovery. Lastly the plan established contingency measures in the form of specific and generic contingency plans in line with the indicative risk profile of the municipality and to ensure a coordinated approach to disaster response. This plan aims to familiarise key role-players in the CoT with the mainstream concepts of disaster risk reduction. It provides a brief background study of the CoT in line with its current Integrated Development Plan (IDP). The CoT disaster risk management plan contains a macro disaster risk assessment based on field

10 research, observation, primary- and secondary data sources. The CoT DRMP has as far as possible been imbedded in the current reality of the municipality. The macro disaster risk assessment provides the foundation towards risk reduction planning based on the identified and prioritised disaster risks and vulnerabilities of the CoT. This DRMP for the CoT furthermore provides the municipality with a guiding framework for future disaster risk management planning by the municipality as a whole as required by the Disaster Management Act 57 of 2002 (DMA), the National as well as CoT Disaster Management Framework, and the Municipal Systems Act 32 of This plan also gives guidance in relation to the declaration of a local state of disaster, disaster classification and the institutional arrangement necessary for the successful implementation of the Act. 1. CUSTODIAN OF THE PLAN The Head of the CoT Municipal Disaster Management Centre (CoT MDMC) is the custodian of the disaster risk management plan for the CoT and is responsible to ensure the regular review and updating of the plan. The Head of the Centre will ensure that copies of the completed plan as well as any amendments to the plan are submitted to: the Disaster Management Centre of the Gauteng Province; the National Disaster Management Centre (NDMC); the CoT ward disaster management structures; and each of the municipalities neighbouring the CoT.

11 In terms of section 52 of the Act each municipal organ of state and any other municipal entity operating within council s organisational structure is responsible for the development and maintenance of a disaster risk management plan for its functional area. Departmental plans and plans of other entities are an integral part of council s comprehensive disaster management plan and therefore the head of each department and of each entity must ensure that copies of the plan and any amendments to the plan are submitted to the CoT MDMC. 2. INTRODUCTION In terms of the Disaster Management Act, 57 of 2002, each organ of state must have the disaster management plan and review and update it regularly. Planning for disasters leads to organisational preparedness and readiness in anticipation of an emergency or disasters. The first version of Disaster Risk Management Plan for the CoT has been structured in such a way as to address the requirements of a Level 1 Disaster Management Plan as per the guidance of the National Disaster Management Framework (NDMF). This document aims to be a practical and implementable plan which will ensure an integrated approach to disaster risk management for the CoT. Throughout this document, reference has been made to the Disaster Management Act, NDMF, CoT DMF and localised incidents policy. It is therefore imperative to read this plan in conjunction with these documents. Each section of this plan addresses the multi-disciplinary, multi-sectoral and coordinated approach to disaster management as stipulated in the DMA.

12 The workable objective criteria have been used to prioritise and plan for CoT s ten identified risks, informed by the results of risk assessment conducted. 3. LEGISLATIVE MANDATE In terms of the constitution of the Republic of South Africa, Act 108 of 1996, section 41(1)(b), it is the responsibility of all spheres of government to secure safety and wellbeing of the people of the Republic. The constitution also places the responsibility of securing the safety and health of the environment on all spheres of government. It is therefore imperative to realise that disaster management is the primary responsibility of government as well, because the DMA puts emphasis on healthy and safe communities and environment. Section 26(g) of the Municipal Systems Act 32 of 2000 as well as sections 52 and 53 of the Disaster Management Act 57 of 2002 compels each municipal entity to develop a disaster risk management plan as part of and an integrated part of their Integrated Development Plans. This plan establishes the arrangements for disaster risk management within the City of Tshwane (CoT) and has been prepared in accordance with the requirements of the Disaster Management Act, 57 of 2002 (the Act) and section 26(g) of the Municipal Systems Act, Reference has also been made to the CoT Disaster Management Policy Framework and the Disaster Management Localised Incident Policy. 4. PURPOSE The purpose of this plan is to establish processes for a comprehensive disaster risk assessment. It further seeks to identify and clarify the roles and responsibilities of the internal and external stakeholders throughout the entire cycle of disaster

13 management, i.e.: pre-disaster, during disaster and post disaster phases. It again identifies and establishes consultative mechanisms for specific priority risk reduction projects aimed at promoting resilient communities within the city. 5. CITY OF TSHWANE OVERVIEW The City of Tshwane Metropolitan Municipality was established on 5 December 2000 after the amalgamation of the following local authorities: The Greater Pretoria Metropolitan Council The City Council of Pretoria The Town Council of Centurion The Northern Pretoria Metropolitan Substructure The Hammanskraal Local Area Committee The Eastern Gauteng Services Council The Pienaarsrivier Transitional Representative Council The Crocodile River Transitional Council The Western Gauteng Services Council The Winterveld Transitional Representative Council The Temba Transitional Representative Council The Mabopane Transitional Representative Council The Ga-Rankuwa Transitional Representative Council The Eastern District Council After the 2011 local elections, City of Tshwane officially merged with Metsweding District Municipality, incorporating the areas such as Bronkhorspruit, Cullinan and Reyton, making CoT the world s third biggest municipality with an area of km 2

14 The CoT's land area increased from 2,198 square kilometres (849 sq mi) in 2010 to 6,368 square kilometres (2,459 sq mi) after the incorporation of Metsweding and a population of just over 2.5 million. ##Still looking for more info## 6. DISASTER MANAGEMENT PLANNING OVERVIEW The National Disaster Management Policy Framework has simplified the disaster management planning process into three progressive phases, being level 1, 2 and 3. The table below summarises the levels of disaster management planning as well as the expected critical outcomes as per the national policy framework requirements. LEVEL OF PLAN I CRITICAL OUTCOMES 1 Establish foundation institutional arrangements for disaster risk management 2 Develop the capability to generate a Level Two Disaster Risk Management Plan 3 Develop and implement contingency plans for known priority risks 4 Establish processes for comprehensive risk assessments 5 Identify and establish consultative mechanisms for specific priority risk

15 II reduction projects 6 Develop a supportive information management system 7 Develop emergency communication capabilities III 8 Establish specific institutional arrangements for coordinating and aligning plans 9 Establish mechanisms to ensure informed and on-going risk assessments 10 Institute mechanisms to ensure on-going relevancy of disaster risk management policy frameworks and plans Source: Best Practice Handbook Series, NDMC (undated However, this document will only focus on the level 1 disaster management plan. The level 1 disaster management plan (this plan), according to the National Disaster Management Policy Framework, focuses primarily on establishing foundation institutional arrangements for disaster risk management, putting in place contingency plans for responding to known priority threats as identified in the initial stages of the disaster risk assessment. It further identifies key stakeholders and develops capabilities to generate a level two disaster management plan. 6.1 FOUNDATIONAL INSTITUTIONAL ARRANGEMENTS In terms of disaster management legislations (i.e. disaster management act 57 of 2002, national disaster management policy framework, Gauteng disaster management policy framework and municipal disaster management policy framework), the council of each metropolitan municipality must establish institutional capacity for disaster risk management in its area for implementing disaster risk management within the municipal sphere of government. Furthermore these

16 arrangements must be consistent with national and provincial arrangements and must provide the appropriate mechanisms to allow for the application of cooperative governance to facilitate both intergovernmental and municipal interdepartmental relations as well as community participation for the purpose of disaster risk management. This is in line with the requirements of a Level 1 Disaster Risk Management Plan as per section of the National Disaster Management Policy Framework Disaster Risk Management Policy Framework The Act requires the development of one national disaster management framework, a provincial disaster management framework for each province and disaster management frameworks for all district and metropolitan municipalities. The national disaster management framework is the legal instrument specified by the Act to address such needs for consistency across multiple interest groups, by providing a coherent, transparent and inclusive policy on disaster management appropriate for the Republic as a whole (section 7(1)). The national disaster management framework also informs the subsequent development of provincial and municipal disaster management frameworks and plans, which are required to guide action in all spheres of government. The CoT Disaster Risk Management Framework (DRMF) aims to provide CoT with a holistic and integrated policy framework which underpins the implementation of the Disaster Management Act 57 of 2002 at metropolitan level. This policy is in line with the requirements of the National Disaster Risk Management Framework of 2005 as well as the Gauteng Provincial Disaster Risk Management Framework. The CoT DRMF is still under review and will soon be circulated for comments. The national

17 disaster management framework comprises four key performance areas (KPAs) and three supportive enablers required to achieve the objectives set out in the KPAs. The KPAs and enablers are informed by specified objectives and, as required by the Act, key performance indicators (KPIs) to guide and monitor progress. In addition, each KPA and enabler concludes with a list of guidelines that will be disseminated by the NDMC to support the implementation of the framework in all three spheres of government. In all spheres of government, the disaster management framework is the guiding and coordinating policy instrument for ensuring an integrated and uniform approach to disaster risk management by all organs of state and other institutional role players. This includes, among others, NGOs, the private sector and institutions of higher learning. With specific reference to district municipalities, the disaster management framework is the integrating instrument for consolidating the disaster risk management plans of individual municipalities within the district. Each disaster management centre in the respective sphere of government is responsible for consultatively facilitating the development of the disaster management framework in its area of jurisdiction, and subsequently amending it in consultation with key stakeholders. Provincial and municipal disaster management frameworks must be consistent with the national disaster management framework and must establish foundation institutional arrangements for disaster risk management, including formal consultative processes that provide for participative planning. This Plan must be read in conjunction with the CoT DRMF.

18 6.1.2 EMERGENCY SERVICES DEPARTMENT TOP MANAGEMENT COMMITTEE Referral section in the CoT DRMF: The CoT DRMF indicates that the Management Committee of the CoT is used as the managerial coordinating body for inter-departmental liaison and coordination. In order for this plan to be implemented successfully it is imperative for the Management Committee to adopt disaster risk management as a standing agenda point of the meeting. This will ensure that disaster risk management is addressed on a regular and on-going basis. Though the Management Committee, high-level decision-making will inform the tasks of the different disaster risk management focal points in the respective divisions and municipal entities. Action Performance Time Budget Responsible indicator frame entity Include disaster risk management as a standing agenda point on the Top Management Committee agenda. The Management Committee accepts disaster risk management On-going None HoC

19 as a standing agenda point and discusses related issues on an on-going basis DISASTER RISK MANAGEMENT ADVISORY FORUM Referral sections in the DMA Referral section in the CoT DRMF: The Act calls for the active participation of all stakeholders, including the private sector, NGOs, technical experts, communities, traditional leaders and volunteers, in disaster risk management planning and operations. Specific arrangements must be implemented to ensure the integration of stakeholder participation, to harness technical advice and to adopt a holistic and organised approach to the implementation of policy and legislation. In order for all relevant role-players in disaster risk management in the municipal area to co-ordinate their actions on matters relating to disaster risk management as prescribed in Section of the

20 CoT DRMF, Section 44 of the Act, Council has established a Disaster Risk Management Advisory Forum in 2004 as provided for in Section 51 of the Disaster Management Act 57 of The Forum comprises of the relevant stakeholders and role-players including all CoT departments, NGOs and CBOs; individuals or groups with special technical expertise. This forum carries the following responsibilities: give advice and make recommendations on disaster-related issues and disaster risk management contribute to disaster risk management planning and co-ordination establish joint standards of practice implement response management systems gather critical information about the municipality s capacity to assist in disasters and to access resources Assist with public awareness, training and capacity building. Action Performance Time Budget Responsible indicator frame entity The MDMC to A meeting of the Quarterly Disaster arrange a meeting DRMAF is Management of the DRMAF and arranged. Centre invite all the relevant roleplayers as per the relevant sections of the DMA and CoT

21 DRMF. The DRMAF to establish permanent membership and establish a terms of reference. The DRMAF to consider the content of the CoT DRMF and DRMP and to provide input and advice in this regard. The DRMAF to consider the indicative disaster risk profile of the CoT and provide input to the MDMC. All relevant roleplayers who will enjoy permanent membership on the DMAF are recorded and a term of reference is developed and adopted. Advice and input from the DRMAF has been noted and incorporated into the relevant documents where needed. The indicative risk profile of the CoT is assessed by the DRMAF with written advice and comments to the MDMC. DMC On-going None DMC

22 The DRMAF to consider the different subcommittees to function under the DRMAF (in relation to the indicative disaster risk profile). The DRMAF to meet at least twice a year. Different permanent and ad hoc subcommittees for the DRMAF have been established. Two successful meetings of the DRMAF has been arranged and completed NGO FORUM Referral section in the CoT DRMF: Template MDMC_2 The NGO Forum as a sub-committee of the CoT DRMF is responsible for the development and alignment of their own terms of reference with this DRMP and the CoT DRMF, and for the development of a social disaster relief contingency plan.

23 Such a plan must be developed according to Contingency Plan template as contained in the CoT DRMF. According to the Terms of Reference of the NGO Forum it is responsible for: Relief resources mobilisation; Assist in relief distribution; Damage and needs assessment; Hazard identification; Assistance during response; Coordination of relief efforts from various NGOs and CBOs; Participate in DRM activities in the CoT such as awareness campaigns; and Provision of first aid services (especially during events in the community). The NGO Forum consists of the representation of all the regions of CoT: Action Performance Time Budget Responsible indicator frame entity The NGO sub- Bi-annual committee to meet meetings of in conjunction with the NGO the meetings of the sub- DRMAF. committee has been planned and completed.

24 The NGO subcommittee to align their terms of reference with the CRMP and CoT DRMF and for social disaster relief. The NGO subcommittee to develop a social disaster relief contingency plan. The NGO subcommittee to develop a contingency plan for social disaster relief in line with the guidelines in the An NGO subcommittee term of reference is developed and adopted by the DRMAF. A social disaster relief contingency plan is developed and aligned with the indicative disaster risk profile of the CoT. A social disaster relief contingency plan has been developed in line with the

25 CoT DRMF The NGO subcommittee to develop standardised and agreed relief requirements in terms of food provision, shelter and clothing. requirement of the CoT DRMF and adopted by the DRMAF. Relief requirements has been develop and adopted by the DRMAF OTHER SUB-FORA Due to the dynamic nature of disaster risk management, the DRMAF must from time to time consider the establishment of other sub-fora should the need arise. These sub-fora, as is the case of the NGO Forum will be responsible for the development of their own Term of Reference for the fulfilment of a specific disaster risk management task assigned to them by the Head of the CoT MDMC. Action Performance Time Budget Responsible indicator frame entity

26 The MDMC to identify the need for additional sub-fora linked to the DRMAF. Additional sub-fora are established to address a specific disaster risk management need DISASTER RISK MANAGEMENT COMMITTEES It is further recommended that all metropolitan and district municipalities establish interdepartmental disaster risk management committees for their areas and that all district municipalities establish disaster risk management committees in district management areas. In addition, local municipalities should establish their own disaster risk management committees and ensure the establishment of disaster risk management committees or forums in all municipal wards. Ward structures have been identified and tasked with responsibility for disaster risk management PARTICIPATION OF VOLUNTEERS IN DISASTER RISK MANAGEMENT Volunteers are citizens over the age of 18, who donate their time to assist the Disaster Management Centre in a variety of areas. These generous citizens are trained and enhance the Centre's ability to build safer and disaster resilient communities.

27 In order to maintain an inclusive approach to the participation of volunteers in disaster risk management, volunteers are classified into three categories. These categories are: Units of volunteers General volunteers Spontaneous volunteers MUNICIPAL DISASTER MANAGEMENT CENTRE (MDMC) Referral section in the DMA 43 & 43 Referral section in the NDMF Referral section in the GPDMF Referral section in the CoT DRMF: The CoT Disaster Management Centre is the primary functional unit for disaster risk management in the municipal area. It (DMC) provides direction for the implementation of disaster risk management policies and legislation and integration and coordination of municipal disaster risk management activities and priorities in order to ensure that national and provincial objectives are achieved. Furthermore, the DMC provides support to the NDMC and the GPDMC.

28 Action Performance Time Budget Responsible indicator frame entity Establish and The MDMC has maintain ensured the institutional establishment of arrangements institutional that will enable arrangements (as per the above sections 5.2, implementation of 5.3 and 5.5). the DMA; Communicate the The indicate risk indicate disaster profile of the CoT has risk profile of the been communicated CoT to all to all stakeholders. planning departments in the CoT in order to inform developmental planning. Provide disaster HOC is member of risk management IDP planning input to the IDP committee and process. provides disaster risk

29 Action Performance Time Budget Responsible indicator frame entity management input to development planning. Monitor the The MDMC monitors integration of the integration of disaster risk disaster risk reduction reduction initiatives into initiatives into development plans on development an ongoing basis and plans. provides planning departments with advice and input. Establish The MDMC has communication established links. communication links with all relevant disaster risk management focal points in the CoT. Facilitate the Contingency plans for development of prioritised risks have response and been developed by all recovery plans. divisions and

30 Action Performance Time Budget Responsible indicator frame entity municipal entities under the guidance of the MDMC and in line with the CoT DRMF. Maintain public The MDMC awareness implements regular mechanisms. public awareness strategies in line with its indicative disaster risk profile. Facilitate and The MDMC has promote disaster established risk management mechanisms to education, facilitate and promote training and disaster risk research in the management municipality education, training and research Implement and The MDMC has maintain dynamic developed disaster risk programmes for management monitoring, evaluating monitoring, and improve disaster

31 Action Performance Time Budget Responsible indicator frame entity evaluation and risk management in improvement the CoT. programmes; Regular reporting The MDMC submits of disaster risk an annual report on management its disaster risk activities. management activities to the NDMC, PDMC and neighbouring MDMCs as per the requirements of the DMA and NDMF. Make The HOC has made recommendations recommendations regarding the regarding disaster risk funding of management funding disaster risk in the CoT to the management in relevant the municipal departments/divisions. area and the initiation and facilitation of

32 Action Performance Time Budget Responsible indicator frame entity efforts to make such funding available SUB-STRUCTURES OF THE MDMC Referral section in the CoT DRMF: The approved organisational structures of the Disaster Management Division (referred to as the MDMC in this Plan) consist of the following sections: Office of the HoC Disaster Risk Management Planning. Community Disaster Risk Management. Multi-Sectoral coordination. Disaster Operations Centre The Section: Community Disaster Risk Management is the only section within the MDMC which functions on a regionalised basis.

33 Each of these sub-sections has full responsibility for community preparedness by ensuring community participation though the ward structures as well as the involvement of the public and private sector. Action Performance Time Budget Responsible indicator frame entity The MDMC sub- Community structures to disaster risk establish reduction appropriate programmes community and preparedness and strategies are participation developed in mechanisms. line with the indicative risk profile of specific wards DIVISIONAL DISASTER RISK MANAGEMENT FOCAL POINTS The CoT DRMF elaborates on the general and specific disaster risk management responsibilities of each division in the CoT. In order to comply with the requirements of a Level 1 Disaster Risk Management Plan each division/department/municipal entity must complete the following actions:

34 Action Performance indicator Tim e fram e KPA 1: Institutional capacity for disaster risk management Budg et Responsi ble entity Identify one person in the administration of the division/department/munic ipal entity to serve as the disaster risk management focal point. Assess the division/department/munic ipal entity institutional capacity for disaster risk management. A disaster risk management focal point for the division/department/munici pal entity has been identified and include disaster risk management responsibilities on the scorecard/performance agreement of the individual as well as SEDs and GMs. Each division/department/munici pal entity has undertaken an assessment of their own capacity to engage in disaster risk management and have submitted a report to the MDMC (such a report can contain training and capacity

35 Action Performance indicator Tim e fram e building requirements or infrastructure requirements). Budg et Responsi ble entity In consultation with the disaster risk management structures of the MDMC, take ownership (primary, secondary or tertiary responsibility) of an indicated risk in line with the core functions of the division/department/munic ipal entity. Conduct an annual resource analysis of critical resources and communicate such analysis with MDMC. The division/department/munici pal entity is actively planning towards the reduction of the disaster risk as per the agreement with the MDMC. Annual resource analysis is communicated with MDMC in written and agreed format (see Template MDMC_1 of the CoT DRMF). KPA 2: Disaster risk assessment

36 Action Performance indicator Tim e fram e Budg et Responsi ble entity Conduct a scientific risk assessment of agreed division/department/munic ipal entity risks. Determine acceptable levels of risk and possible thresholds for action. Identify division/department/munic ipal entity specific developmental projects with directly reduces the disaster risk in the CoT. Each division/department/munici pal entity with primary responsibility has conducted a scientific risk assessment as per MDMC guidelines Acceptable and measurable levels of risk are identified and thresholds for action have been allocated. An updated list of developmental projects which contributes to disaster risk reduction has been submitted to the MDMC. KPA 3: Disaster risk reduction Develop a disaster risk management plan for the A divisional/departmental/mu

37 Action Performance indicator Tim e fram e Budg et Responsi ble entity division/department/munic ipal entity. Integrate disaster risk reduction activities into the day-to-day planning and operations of the division/department/munic ipal entity. Identify and implement projects annually in line with departmental mandate which will reduce risk in vulnerable communities Develop contingency plans in line with primary, nicipal entity disaster risk management plan is developed, submitted to the MDMC and incorporated into the Level 3 Disaster Risk Management Plan of the CoT. Reduced risk in the CoT is evidence of the integration of disaster risk reduction activities into all divisions/departments/muni cipal entities. Developmental projects are identified, planned and executed with reduced disaster risk in the CoT. Contingency plans for all prioritised risks in the CoT.

38 Action Performance indicator Tim e fram e secondary or tertiary responsibility of the division/department/munic ipal entity and unacceptable thresholds. Budg et Responsi ble entity Submit an annual report on the risk reduction activities of the division/department/munic ipal entity to the MDMC for inclusion in the annual municipal disaster risk reduction report to be submitted to the NDMC as per the DMA Annual reports of all divisions/departments/muni cipal entities are timely submitted to the MDMC for inclusion in the CoT annual report on Disaster Risk Reduction. KPA 4: Response And Recovery Compile standard operating procedures (SOPs) and field operations guides (FOGs) in line with the Divisional/departmental/mu nicipal entity SOPs and FOGs has been developed.

39 Action Performance indicator Tim e fram e requirements of the division/department/munic ipal entity specific contingency plan and the guidelines of the CoT DRMF. Budg et Responsi ble entity Adhere to the standard for incident management of the CoT and ensure that all response personnel are trained in the standard (See Annexure 2 of the CoT DRMF). Ensure that rehabilitation and reconstruction plans relating to the primary activities of the specific division/department/munic ipal entity are developed in line with disaster risk management plans. The standard for incident management in the CoT is implemented. Rehabilitation and reconstruction plans are develop in line with division/department/munici pal entity disaster risk management plans.

40 Action Performance indicator Tim e fram e Budg et Responsi ble entity Ensure that rehabilitation and reconstruction plans are based on developmental challenges and are development oriented. Rehabilitation and reconstruction plans are based on developmental challenges. Enabler 1: Information management and communication Communicate disaster risk management data and information to all relevant divisions/departments/mu nicipal entities. Draft standard warning messages to be disseminated in the media for specific risks pertaining to the core function of the division/department/munic ipal entity. Divisions/departments/muni cipal entities are communicating disaster risk management data and information on an on-going basis with written evidence. Standard warning messages for specific primary, secondary or tertiary responsibility risks is drafted.

41 Action Performance indicator Tim e fram e Budg et Responsi ble entity Diligently record all incidents, hazardous impacts and disasters in order to establish a historical record for forward planning. Historical records of hazardous impacts and incidents pertaining to division/department/munici pal entity responsibility are maintained. Enabler 2: Education, training, public awareness and research Conduct a disaster risk management training needs analysis for the division/department/munic ipal entity Identify specific target groups for awareness campaigns and coordinate such campaigns with the MDMC (e.g. early warning communication). Encourage research in disaster risk management A disaster risk management training needs analysis is compiled and forwarded to the MDMC. Target groups are identified. Research relating to division/department/munici

42 Action Performance indicator Tim e fram e Budg et Responsi ble entity related to the department s main responsibility pal entity specific disaster risk focus is commissioned and/or undertaken. Enabler 3: Funding arrangements Budget adequately for departmental disaster risk management activities. Allocate a percentage of the annual budget to implement developmental projects focussing on disaster risk management (capital as well as operational). Co-finance disaster risk reduction projects with other divisions/departments/mu nicipal entities in line with Disaster risk management is budgeted for through the normal budgeting process of the CoT. A percentage of division/department/munici pal entity budget is allocated for developmental projects focussing specifically on reducing disaster risk. Disaster risk reduction projects are co-funded by CoT divisions/departments/muni cipal entities.

43 Action Performance indicator Tim e fram e the IDP of the CoT. Budg et Responsi ble entity Promote insurance and reinsurance of public assets. CoT public assets are insured and reinsured where necessary ROLES AND RESPONSIBILITIES OF THE DEPARTMENTS/SERVICES In order for this plan to be practical and executable, the internal departments have to carry out the following roles and responsibilities in accordance with the CoT DMF. i. Office of the Mayor and City Manager Action Performance indicator KPA 1: Institutional capacity for disaster risk management Appoint the Head of the MDMC. Ensuring all departmental involvement in disaster risk management matters by identifying senior officials to serve on the disaster risk management structures A head of the MDMC has been appointed. Senior officials to serve on the disaster risk management structures of the CoT have been identified.

44 Action Performance indicator of the CoT. Assign specific disaster risk management responsibilities to each CoT department and ensure the inclusion of measurable disaster risk management criteria in the scorecard of each focal point. Enforce the implementation of any national, provincial and CoT guidelines pertaining to disaster risk reduction. Specific DRM responsibilities have been assigned to each CoT department and measurable DRM criteria have been included in the scorecard of each focal point. The implementation of national, provincial and CoT guidelines pertaining to disaster risk reduction are enforced. KPA 3: Disaster risk reduction Ensure the effective integration of the disaster risk management plan within the municipal IDP. Implement sustainable livelihoods strategies as an integral part of the IDP process. Encourage gender sensitivity in risk reduction and development planning. Enforce an IDP focus on poverty reduction strategies. Ensure land reform takes place and that The disaster risk management plan has been integrated in the municipal IDP. Sustainable livelihoods strategies are implemented in the IDP process. Risk reduction and development planning processes are gender sensitive. The IDP focuses on poverty reduction strategies. Land reform takes place and the most

45 Action access to resources by the most vulnerable communities is enhanced. Performance indicator vulnerable communities access to resources improves. KPA 4: Response and recovery Ensure emergency funds and stocks (through MAAs with product providers). Emergency funds and stocks are available. ii. CORPORATE AND SHARED SERVICES DEPARTMENT Action Performance indicator KPA 1: Institutional capacity for disaster risk management Ensure that procedures are in place to appoint temporary staff on short notice if necessary to execute disaster risk responsibilities. Ensure that the Conditions of Service make provision for the utilisation of CoT staff to assist with the mitigation of a disaster. Procedures to appoint temporary staff on short notice are in place. Conditions of service includes a clause to the effect that staff may be used to assist with disaster mitigation. KPA 4: Response and recovery Coordinate operations in respect of Formal agreements exist regarding the

46 Action matters related to business continuity and human resource management in order to ensure limited duplication with disaster risk management. Performance indicator division of labour regarding DRM. Enabler 1: Information management and communication Ensure adequate continuity planning and structures are in place for information management. Develop, implement and update the IT Disaster Recovery plan for CoT information systems and data. Adequate continuity planning and structures are in place for information management. An IT Disaster Recovery plan for CoT information systems and data has been implemented and procedures are in place for updating. iii. Economic Development Department Action Performance indicator KPA 2: Disaster risk assessment Integrate the indicative disaster risk profile of the CoT with all economic development programmes and projects in order to ensure no or minimal The indicative disaster risk profile of the CoT has been integrated with all economic development programmes and projects.

47 Action Performance indicator disruption of natural and anthropogenic hazards on the economic development of the CoT; Identify areas of vulnerability related to different economic activities. Areas of vulnerability related to the most prevalent economic activities have been identified. KPA 3: Disaster risk reduction Ensure that economic growth contributes to vulnerability reduction and disaster risk avoidance within the CoT. Economic growth and development has a specific focus on vulnerability reduction. KPA 4: Response and recovery Making arrangements for providing transport for affected families. Plan for mass transport during emergencies and disasters. An emergency transportation contingency plan is developed. Contingency plans for mass transport during emergencies are in place. iv. FINANCE DEPARTMENT Action Performance indicator

48 Action Performance indicator KPA 1: Institutional capacity for disaster risk management Establish a disaster management task team for finances under the guidance of the Chief Financial Officer. A disaster management task team for finances under the guidance of the chief financial officer has been established. KPA 3: Disaster risk reduction Enforce disaster risk management measures as pre-requisites for project funding. Project funding is only allocated when DRM measures are in place. KPA 4: Response and recovery Implement disaster risk management spending guidelines and mechanisms for resource mobilisation. Resource mobilisation takes place in accordance with DRM spending guidelines and measures. Enabler 3: Funding arrangements Ensure adequate disaster risk management funding in line with the requirements of the Disaster Management Act 57 of 2002 and the NDRMF (see Table 71 and 7.2 of the NDRMF) and the Municipal Finance Management Act for: Disaster risk management on-going Disaster risk management is adequately funded for: Disaster risk management on-going activities; Disaster risk reduction; Mitigation and preparedness measures; Contingency reserve;

49 Action activities; Disaster risk reduction; Mitigation and preparedness measures; Contingency reserve; Performance indicator Disaster response, recovery and rehabilitation; and Education, training, capacity building programmes and research. Disaster response, recovery and rehabilitation; and Education, training, capacity building programmes and research. v. EMERGENCY SERVICES DEPARTMENT Action Performance indicator KPA 1: Institutional capacity for disaster risk management House and equip the MDMC as per legislation and national policy requirements. The MDMC is established and equipped as per national legislation and policy. KPA 4: Response and recovery The Fire and Rescue Division must attend to all fire fighting and rescue Contingency plans and operating procedures for fire fighting is developed.

50 Action Performance indicator functions (rescue of people and animals). The Emergency Medical and Ambulance Division must execute patient care and transport patients to hospitals and clinics. They must have a plan in place for handling mass casualties. Operational Support must coordinate emergency communication and have procedures in place to deal with same. They must provide adequate communication links with relevant stakeholders. Contingency plan for the handling mass casualties is developed. Operational Support has procedures in place for emergency communication. vi. CITY PLANNING, DEVELOPMENT AND REGIONAL SERVICES DEPARTMENT Action Performance indicator KPA 2: Disaster risk assessment Adequately plan for emergency housing. Contingency plans for emergency housing

51 Action Performance indicator are in place. Apply various forms of environmental protection and management (e.g. reforestation, river-basin planning, agricultural practices, soil conservation and natural hazard control techniques) and enforce the adherence to the above through the Management Meeting. The absence of environmental degradation. KPA 3: Disaster risk reduction Integrate risk management within all project management activities. Include DRM principles in spatial development frameworks. All management activities include an element of disaster risk management. Spatial and development frameworks include DRM principles. KPA 4: Response and recovery Compile a strategy and plan to provide for alternative housing, temporary shelter in case of emergencies. Compile a contingency plan to provide for alternative housing during localised events and disasters. This should include criteria of the circumstances when alternative housing will be A strategy and contingency plan to provide for alternative housing, temporary shelter in case of emergencies is in place. A contingency plan to provide for alternative housing during localised events and disasters, including criteria of the circumstances when alternative housing will be provided should be in place.

52 Action Performance indicator provided. Compile a response strategy to deal with informal settlements at various levels. (Including illegal squatting). Relocation procedures as prevention measure and during emergencies. Prepare a plan for mass burials (cemeteries, social development). Plan for and provide transport to move affected people to temporary shelter in cooperation with Local Economic Development. A response strategy to deal with informal settlements is in place. Relocation procedures are in place. A contingency plan for mass burials is in place. A contingency plan to move affected people to temporary shelter in cooperation with local economic development is in place. Enabler 1: Information management and communication Communicate development related information to the MDMC especially information on high risk developments. MDMC is always aware of high risk developments. vii. CORPORATE & SHARED SERVICES DEPARTMENT Action Performance indicator

53 Action Performance indicator KPA 4: Response and recovery Ensure a legal framework for response and recovery in terms of CoT liability to identified risks. A legal framework for response and recovery in terms of CoT liability to identified risks is in place. viii. COMMUNITY SAFETY DEPARTMENT Action Performance indicator KPA 4: Response and recovery Provide security in response to disasters and emergencies, if needed. Contingency plans for the provision of security in response to disasters and emergencies are in place. ix. ROADS AND TRANSPORT DEPARTMENT Action Performance indicator KPA 2: Disaster risk assessment Conduct regular flood assessment. Ensure a continuous of water supply to Up to date flood assessment is available. Maintenance records of water supply

54 Action Performance indicator the CoT. Monitor and maintain flow meters in rivers in the CoT infrastructure are available. Records of flow meter inspections are available. KPA 3: Disaster risk reduction Create adequate supportive infrastructure to enhance sustainable livelihoods. Develop and maintain storm water infrastructure. Maintain maximum water discharge capacity in storm water infrastructure. Compile a flood management plan. Strive to maintain a healthy balance between flood prevention and environmental conservation. Adequate supportive infrastructure to enhance sustainable livelihoods is created. Maintenance records of storm water infrastructure are available. Procedures/guidelines are in place for maintenance of storm water infrastructure and are enforced. A flood management plan is available. Proper guidelines to ensure a balance between flood prevention and environmental conservation are in available and enforced. KPA 4: Response and recovery Provide water tankers in emergency and disaster situations. Plans/procedures are In place for the deployment of water tankers in emergency and disaster situations.

55 Action Provide for the pumping of water from flooded houses and areas. Repair/reconstruct road damage caused by hazards. Performance indicator The necessary equipment for pumping water form flooded houses is available and working. Roads are always in good order. Enabler 2: Education, training, public awareness and research Initiatives to support awareness of flooding and being water wise in general. Water awareness projects are launched. Enabler 3: Funding arrangements Funding all activities related to flood management. Sufficient funding for all flood management has been sourced and is available when needed. x. PUBLIC WORKS AND INFRASTRUCTURE DEVELOPMENT DEPARTMENT Action Performance indicator KPA 2: Disaster risk assessment Identify areas of risk in terms of A list of areas at risk in terms of electricity

56 Action electricity provision. Identify critical facilities for priority electricity provision (e.g. hospitals, national key points, CoT systems). Performance indicator provision exists and is available. A list of critical facilities for priority electricity provision exists and is available. KPA 3: Disaster risk reduction Develop and implement an effective infrastructure maintenance programme. Conduct contingency planning for prolonged electricity failures. An infrastructure maintenance programme is implemented. Contingency plans for prolonged electricity failure exist and are available. KPA 4: Response and recovery Provide generators in the case of electricity crises during emergencies and disasters. Working generators are available. Enabler 1: Information management and communication Maintain a database of critical facilities in terms of electricity. Establish communication links with Disaster Operations Centre. A database exists of critical facilities in terms of electricity. Relevant lists of telephone/cell phone numbers and addresses are available.

57 xi. SOCIAL DEVELOPMENT DEPARTMENT Action Performance indicator KPA 2: Disaster risk assessment Identify socially vulnerable communities. Records of socially vulnerable communities and the reason(s) they are deemed vulnerable (vulnerability assessments) are available. KPA 3: Disaster risk reduction Ensure that communities at risk have access to basic services in line with the developmental focus and strategic objectives of the CoT in order to reduce vulnerabilities. Universal provision of basic series such as, water, sanitation and electivity. KPA 4: Response and recovery Compile an in-departmental response and relief plan for all eventualities with specific emphasis on the human element. Develop and implement procedures for provision of emergency food, blankets and shelter (in coordination with the Housing, City Planning and An in-departmental response and recovery plan for all eventualities is available. Procedures for the provision of emergency food are on record.

58 Action Performance indicator Environmental Management Department). Enabler 1: Information management and communication Maintain an indigent register which will contribute to vulnerability identification. Provide information on poverty pockets. Provide information on child headed families. An indigent register is available. A list of poverty pockets and the relevant details of each pocket (e.g. location and extent and nature of poverty) is on record. Information relating to the amount of and locations of child headed households are available INTEGRATED DEVELOPMENT PLAN In view of the inextricable relationship between disaster and development, it is imperative that the heads of MDMCs and those individuals assigned responsibility for disaster risk management in local municipalities serve on the relevant IDP structures. The Head of Disaster Management Centres has full participation in integrated development planning processes and structures for the City. As disaster risk reduction efforts are medium- to long-term multispectral efforts focused on vulnerability reduction, they must be incorporated into on-going IDP projects, processes, programmes and structures. Effective and adaptive disaster risk

59 reduction interventions in the municipal sphere are best planned and implemented as development initiatives through IDP mechanisms and phases MUTUAL ASSISTANCE AGREEMENTS In accordance with the Act, national departments, provinces and municipalities must establish their level of capacity to deal with disaster risk reduction, response and recovery. Where necessary, and to strengthen this capacity, they must enter into mutual assistance agreements with their neighbours, the private sector, other organs of state and communities. At provincial and municipal level, co-operation and coordination efforts must be supported by cross-boundary mutual assistance agreements (that is, between provinces, between provinces and municipalities and between municipalities), and by creating partnerships within each sphere with the private sector and NGOs through memoranda of understanding. Mutual assistance agreements and memoranda of understanding are legal documents. Their parameters must be clearly defined and they should include details of financial arrangements, reimbursements and liability. They must also be in compliance with the national standard guideline on mutual assistance agreements developed by the NDMC CROSS-BORDER RELATIONSHIPS It is of paramount importance that the CoT maintains cross-border relationships with other municipalities. The GPDMC is coordinating cross-border task team which comprises of all municipalities in the Gauteng Province and the team meets regularly to monitor the cross-border related disaster management issues. The team also gives feedback to the CoT DMAF.

60 7. THE DISASTER RISK MANAGEMENT PLANNING FRAMEWORK The diagram below (figure 1) provides an overview of the structure for disaster risk management planning for the CoT for compiling its disaster risk management plans and must be viewed in conjunction with the disaster risk management framework for the CoT. It is applicable to disaster risk management planning by the divisions and other municipal entities of the CoT. Two main components to the planning framework for disaster risk management is the integration of disaster risk assessment and developmental practices. This is evident in the emphasis this planning framework places on disaster risk assessment and the Integrated Development Plan. In essence the planning framework aims to introduce the need for mainstreaming disaster risk management actions into development planning. The rationale behind this is the fact that in the South African context, disaster risk is rooted in community vulnerability and poverty. Thus, a logical and most appropriate manner in which to address the above is through development planning. Furthermore, the planning framework is divided into two sections: risk reduction planning and contingency planning. In both instances the CoT MDMC as well as all municipal departments/divisions/entities has certain planning responsibilities. These planning responsibilities are directly related to the inherent function of the municipal departments/divisions/entities in question. Section 1.7 of the CoT DRMF provides information in the specific and general responsibilities of the different municipal departments/divisions/entities. 7.1 RISK REDUCTION PLANNING In terms of disaster risk reduction planning, each municipal departments/divisions/entities as well as the CoT MDMC must compile a disaster risk management plan.

61 Risk reduction planning consists of two components. Firstly, the disaster risk management plans of the MDMC as well as the different municipal departments/divisions/entities must engage in vulnerability reduction planning. Such planning involves addressing the root causes on social, economic, physical, ecological and political vulnerabilities. Each of these can already be addressed by the existing development projects in the CoT. Secondly, municipal departments/divisions/entities must make provision for disaster risk management planning in their respective developmental projects. Special emphasis should be placed on high risk developments as well as in communities in which multiple vulnerabilities has been identified. 7.2 CONTINGENCY PLANNING The Disaster Management Act mandates each municipal entity and organ of state to prepare a disaster risk management plan which must include contingency strategies and emergency procedures to be implemented in the event of a disaster. It mandates all municipalities within an applicable municipal disaster risk management framework to develop disaster risk management plans which must include contingency plans and emergency procedures to be applied in the event of a disaster. Contingency planning is referred to as a forward planning process in a state of uncertainty because although the findings of the disaster risk assessment for the CoT provides a risk profile from which the hazards which pose the greatest threat (priority risks) have been identified, there is no certainty of: when it will strike? where it will strike? what the magnitude and extent will be? what impact it will have?

62 Despite the fact that planning must focus on those hazards that pose the greatest threat, planning must also take into account other threats which are less likely to occur, or those which may not occur at all but cannot be ignored. Contingency planning is therefore a matter of creating scenarios and making assumptions, asking the question What if?, and then planning to deal with the possible consequences. Disaster risk-based planning means that although plans must address the specific hazards which have been identified as a priority for a given area they must also be flexible enough to cater for all eventualities (hazards). All of these factors will have a direct influence on how contingency plans are structured. Contingency planning therefore related to the mitigation, prevention and response plans for all prioritised hazards in the CoT. These contingency plans is risk specific and aims to ensure that in the event of a hazard exploiting vulnerability, a response and mitigation mechanism is in place. As is the case in disaster risk reduction planning, the MDMC and all other municipal departments/divisions/entities must be involved in the development of contingency plans (see section 11 below). The second aspect to contingency planning is the development of generic contingency plans. These generic plans aims to ensure contingency measures for the activities normally associated with any event. It therefore means that these generic plans can be applied in any given instance which will limit the amount of planning which will be repeated in the hazard specific contingency plans. Cognisance should be taken of the fact that a number of contingency plans already exist in the CoT. These plans must be incorporated into the planning process of the MDMC and aligned with this DRMP.

63 In the interim, the DMC has developed a template for both generic and hazard specific contingency plan, which must be filled in by relevant CoT departments in order to complete the Disaster Management Planning process. DISASTER RISK ASSESSMENT Economic Floods COT Municipal Divisions/ Departments/ Entities: Disaster Risk Management Plans Social Physical Ecological Fires HazMat Sinkholes Floods Municipal Divisions/ Departments/ Entities: Involvement in contingency planning CoT Political Vulnerability Severe weather etc. Hazard Specific Risk Reduction Contingency Contingency Reduction Specific Risk Reduction High Risk Developments Local areas/ Incident management Early Warnings Generic Contingency Plans Planning Projects Communities Assessment with multiple vulnerabilities Search and Rescue Public Health

64 Figure 1: Disaster Risk Management Planning Framework for the CoT

65 8. DISASTER RISK ASSESSMENT FOR THE COT Phase one of the projects included a literature and document study in order to ensure that all known and relevant information in the CoT is taken into consideration. Part of this phase was meetings with the staff of the MDMC in order to conduct a macro disaster risk assessment based on the experience and perceptions of the MDMC staff. Phase two of the project included data and information sourcing from various internal as well as external sources. The sources obtained enabled the consultant to ground truth the macro risk assessment of phase one and also to add to the existing knowledge base of disaster risk in the CoT. Through the geo-referencing of historical incidents an accurate profile of hazardous events could be recorded and probability analysis could be conducted. This allowed ensure a better and verified macro-risk assessment. By making use of the macrorisk assessment, a prioritised list of disaster risks in the CoT could be identified which in turn provided the impetus to phase three of the project. The third phase included the identification of disaster risk management planning priorities for the CoT. In this phase the current developmental (IDP) projects of the CoT was assessed in terms of their contribution to disaster risk reduction in the CoT and in doing so their disaster risk reduction factor in relation to the indicative disaster risk profile of the CoT could be determined. This allowed for the adaptation of the macro-risk profile of the CoT to take into consideration the developmental initiatives by various CoT divisions and departments to reduce disaster risk. In addition to the above, the fourth phase of the project identified special disaster risk reduction projects which different departments and divisions should consider which will lead to the further reduction of disaster risk.

66 The fifth phase of the project related to the requirements for the development of generic and specific contingency plans for the prioritised risks of the CoT. Institutional arrangement for the development of contingency plans was specified. The contingency plans must be developed in accordance with the specified template of the CoT DRMF The final phase in the project established (as an integrated component to the whole DRMP) action steps towards the development of a Level 2 Disaster Risk Management Plan. 8.1 Macro Hazard Assessment The following table contains a macro hazard assessment for the CoT in order to prioritise disaster risks. A three-point scale was used for the standardisation of the assessment. Scale used: High Medium Low

67 HAZARD GEOGRAPHICAL LOCATION 1. Fires (Shack) In formal Settlements e.g. 1) Itereleng 2) Kanana 3) Lusaka 4) Plastic view 5) Mooiplaas 6) Olievenhoutbosch 7) Brazzaville 8) Mamelodi 9) Atteridgeville 2. Fires (veld) 1) Fort Klapperkop 2) Gerhardville 3) Wahlamnsdal Area 4) Rietvlei 5) Moot 3. Floods 1) Greater hamanskraal area 2) Olievenhoutbo sch 3) Lotus gardens 4) Atteridgeville 5) Mamelodi 6) Apies rivier PROBABILITY FREQUENCY INTENSITY PREDICTABILITY / FOREWARNING EXPOSE IMPACT KNOCK-ON EFFECT High High High Low Properties and High Veld fires communities High but High High Medium Environment, Medium seasonal properties High but High High Low Properties, High seasonal livelihoods and infrastructure.

68 HAZARD GEOGRAPHICAL LOCATION 7) Hennops rivier 4. Sever weather All areas in conditions Tshwane 5. Hazardous Along the major materials routes, e.g. N1, R27, N12, N4 along the industrial such as Roslyn, Watloo, PTA West. 6. Sinkholes Greater Centurion area. All areas in centurion. 7. Special events All facilities (including 2010) handling events such as sports, large gathering. E.g. Loftus, 1) Super stadium, 2) Odi stadium, 3) union buildings, 4) HM Pietjie. 5) Waterkloof airport 6) Tshwabac PROBABILITY FREQUENCY INTENSITY PREDICTABILITY / FOREWARNING EXPOSE IMPACT KNOCK-ON EFFECT High but Medium Medium Low Properties, Medium Damaged seasonal livelihoods and infrastructure infrastructure. Medium Medium High Low Environment. High Pollution Communities High High Medium Low Communities and infrastructure Medium Medium Low Medium Low People High attending the gatherings.

69 HAZARD 8. Mission Critical Systems Failure (MCFS) 9.Transportation accidents 10. Building collapse GEOGRAPHICAL LOCATION PROBABILITY FREQUENCY INTENSITY PREDICTABILITY / FOREWARNING EXPOSE IMPACT KNOCK-ON EFFECT showgrounds All facilities. Medium Low Medium Low All High Rietvleidam infrastructure NECSA and facilities. PTA West power station All train stations, on Low Low Low Low Commuters High major routes and and along the airport. infrastructure. N1, N12, N4 All areas Medium Low Low Low Buildings and highh people

70 8.2 Macro Vulnerability Assessment The macro vulnerability assessment considered the elements which are vulnerable due to the possible impact of a hazard on the indicated geographical areas. The table below contains a breakdown of the social, physical, economic, environmental and political/institutional vulnerability factors which contributes to the increase in disaster risks. COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL 1. Fire (Shack) Lack of knowledge on Building methods Poverty Settlement in fire Faction fighting fire prevention Type of structures, Lack of awareness prone area. Inadequate Incorrect risk use of combustible and education Weather conditions, enforcement of perception materials Conflict between seasonal factors e.g. building codes Unemployment Incorrect use of fuels various classes in windy season, dry Inadequate Child headed for heating communities season etc. development households No access to fire Lack of safety nets Presence of high Land redistribution Domestic disputes protection/ equipment trees next to Political expectations Social behaviour e.g. Lack of electricity settlement especially Inadequate planning substance abuse services alien vegetation. Exclusivity Lack of natural Shacks build too close Unchecked conservation to each other urbanisation and Need for self Displacement urban sprawl preservation Unsafe/old Unchecked land

71 COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL equipment invasion Unsafe practices e.g. placement of cooking utensils Storage of bulk fuels used generally for heating close to shacks Incorrect farming techniques 2.Fires veld Lack of knowledge on Absence of fire breaks Uncontrolled might Overgrowth of alien Lack of information fire prevention Illegal dumping of lead to burning of vegetation Influencing people to Arson combustible material feedlots, loss of Maintenance of road settle in specific areas Environmental Unavailability of fire farming equipment, reserves for political gain ignorance protection equipment tools etc Negative impact on Insufficient resources Social behaviour e.g. Grazing fields ozone layers to combat veld fires. smoking, uncheck destroyed Air and land pollution Unchecked land open fires. Fire breaks getting out Wild animals attracted invasion Incorrect agricultural of control to suburbs in search practices of food / running from Lack of access to fires early warning Pest control problems messages through Damage to sensitive IT/media environmental species

72 COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL 3. Floods Settling in flood prone areas Improper household drainage systems Settling too close to Absence of storm riverbanks water drainage Settling in pathway of systems storm water Effective urban storm Illegal dumping in water drainage storm water drains systems might cause Dumping in rivers and spruits blocking water floods in receiving end areas and suburbs runways Soil type and structure Acts to deforest Unplanned immediate developments environment Plane areas 4. Severe weather Lack of awareness/ Soil type (drainage) conditions training Geographic location Non-compliance to Storage of hazardous building codes material Settling in illegal Insufficient lightning areas protection Types of housing Poor building structures and structures materials used Abuse of natural Dangerous social Lack of education Lack of safety nets Availability of budget for maintenance of storm water management Lack of access to Improper Poor development management and or planning development in Poor storm water wetlands planning Deforestation Poor maintenance of Seasonal factors dam wall structures Maintenance of storm early warning water systems messages through IT/media Lack of access to Abuse of natural Poor urban planning early warning resources Lack of integrated messages through Poor farming development planning IT/media practices Poor farming Research / advanced practices technological Urbanisation interference with Lack of development and implementation of early warning systems nature processes

73 COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL behaviour Ignorance of early warning signals 5. HAZMAT Social behaviour e.g. smoking in prohibited areas, drunk driving etc. Non-compliance to legal requirements Continuous training of HAZMAT workers 6. Sinkholes Settling on specific soil types prone to sinkholes Lack of information and education Unsafe practices e.g. lack of repair of water leakages Uncontrolled watering of gardens water resources Poor maintenance of farming and other equipment, storm water manholes Storage facilities Clean-up costs Spillages impact Building regulations compliant with Maintenance of roads Pollution Enforcement of regulations, location mainly used for Early warnings in etc HAZMAT transport place for extreme Transporting vehicles Protective clothing weather conditions compliant with provision and Environmental impact legislation maintenance assessment Building structures Lack of safety nets Soil type Maintenance of water Poverty Lack of drainage pipes and taps Delays in informal Geological surveys Control over mining settlement relocations prior to development activities Geological survey Environmental impact funding assessments Insurance coverage for dolomite areas legislation and regulations Keeping of HAZMAT registers Monitoring and planning of transport routes Building codes enforcement Aggressive awareness programs Strict development and settlement control mechanisms

74 COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL Ignorance Misinterpretation of Councils responsibility relating to repair of private property damage 7. Special events Risky social behaviour Specific location Public entry fees Extreme weather Sufficient security Large gatherings Venue capacity Emergency resources conditions Event planning Uninvited attendees Permanent / and costs for stand-by Environmental Safety and security Cultural clashes temporary structures analysis regulations Lack of crowd control present compliance Substance abuse Adequate No disaster Unusual emotional facilities/amenities prevention plans states Security at adjacent Type of event premises Crowd expectations Lack of knowledge of VIP presence access and evacuation routes 8. Mission critical Sabotage Illegal connections Non-payment for Pollution Accurate accounting systems failure Irresponsible care for overloading systems services rendered Extreme weather systems equipment Planning and Maintenance of conditions Alternative sourcing Improper usage maintenance of systems options available Crime e.g. theft systems Non-compliance to Disaster risk control measure over management plans

75 COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL Bypass of meters/ resources e.g. Safety and equipment watering outside environmental Illegal connections restriction times regulations Abuse of natural enforcement resources Compliance to Rage national and provincial Despondent council regulations employees 9. Transportation Social behaviour e.g Lack of clear road Road maintenance Extreme weather License renewals incidents tiredness, substance names/maps/signs Emergency service conditions Enforcement of traffic abuse Poor road conditions provision and costing regulations Road rage Poor vehicle condition Policing costs Integrated Crime e.g. Hi-jackings Lack of appropriate Safety nets infrastructure planning, vandalism lighting after hours 3 rd party insurance Adherence to road Overloaded vehicles Availability of regulations Vehicles not alternative routes Overloading of roadworthy vehicles Lack of SOS Rubbernecking at communication incidents assistance Insufficient trained and effective Metropol and EMS personnel in

76 COMMUNITY: Vulnerable elements exacerbating the possible impact of the hazard COT HAZARD SOCIAL PHYSICAL ECONOMIC ENVIRONMENTAL POLITICAL/ INSTITUTIONAL incident management 10. Building collapse Exceeding max Building structure Reconstruction Environmental impact Lack of compliance to people capacity Building maintenance costs assessment prior to building and safety Vandalism Location Insurance costs development regulations Crowd and spectator Search and Geological analysis Lack of emergency control rescue costs prior to dev (soil planning Terrorism Law suits analysis) Early warning systems in place

77 9. THE DISASTER RISK PROFILE OF THE COT The City of Tshwane, as one of the urban growth centres in South Africa, faces increased levels of urban risk. These disaster risks include the following as listed in table 3.The DMC considered and incorporated all inputs and comments obtained from role-players through the processes mentioned above. The risks had now to be ranked in order of importance. To assist with this process, the following risk equation was applied: Risk = Hazard X vulnerability Manageability X capacity. Priority Risk Area/region most vulnerable 1 Dolomite resulting in sinkholes South (region 4) 2 Community impact of mission critical All regions systems failure 3 Informal settlement and veld fires All regions 4 Pollution All regions 5 Flooding incidents All regions 6 Hazardous material incidents 7 Civil strife and xenophobia Attrigeville & Mamelodi 8 Major transportation accidents All major routes 9 Epidemics All regions 10 Special events incidents All regions

78 Other disaster risks occurring within the jurisdiction of the City of Tshwane include but not limited to the following:- Terrorism/Weapons of Mass Destruction Extreme Heat Tornado Blight Infestation Drought Earthquakes Extreme Cold Hail Hostage Incident Windstorm Aviation incidents 10. FORMAL CONSULTATIVE MECHANISM FOR DISASTER RISK REDUCTION PROJECTS The appropriate mechanisms for consultation for disaster risk reduction projects are indicated in the CoT DRMF. Though these forums and in partnership with the activities of the IDP structures of the CoT, disaster risk reduction projects must be identified and planned for in line with the disaster risk priorities in section 8 above. The rationale is that disaster risk can largely be addressed through developmental initiatives and projects. The IDP process is therefore ideally suited for such actions. In order to ensure the continuous incorporation of disaster risk related information into the IDP planning process and projects it is important that the MDMC have access to the IDP planning structures and become an active member of its meetings. Although cognisance is taken of the fact that disaster risk management will not be incorporated into all developmental projects in the short-term, it remains imperative that current IDP projects are aligned with the disaster risk profile of the CoT.

79 10.1 IDP projects contributing to vulnerability and hazard reduction An assessment of the current IDP projects indicated that a number of developmental projects are already contributing to disaster risk reduction in the CoT to some extent. Although these projects form part of the normal line function responsibilities, it already indicate that a vast number of projects are inherently taking issues of disaster risk reduction into account. It remains impetrative to conduct a detailed analysis of these as well as all future planned projects and align these with the disaster risk priorities as alluded to earlier in this plan. The following IDP projects are linked to the disaster risk priorities. Note that some projects are repeated as they address more than one priority risk. 11. DISASTER RISK MANAGEMENT PLANNING PRIORITIES FOR THE COT Although the CoT disaster risk profile has identified a wide range of risks posing a potential threat to its area, it is not practical nor is it financially achievable to address all the risks simultaneously. Effective and focused disaster risk management planning by all organs of state and municipal entities can only be achieved through the identification of priority disaster risks and by the identification of the areas, communities and households most at risk to disaster in council s area. It is therefore necessary to adopt a carefully considered process which will enable this prioritisation. Part of the prioritisation process will also be to adopt a three - phased approach to disaster risk management planning. This does not however imply that once the third phase is completed that the planning process is over. It must be clearly understood that disaster risk management planning is not a stop/start activity or project but a continuous process which of necessity must produce dynamic, real time plans which remain current in a continuously changing environment.

80 The process of prioritisation for disaster risk planning is critically informed by the disaster risk assessment findings for the CoT. The CoT must focus on the development of plans and the implementation of explicit programmes, projects and practices which give priority to building resilience and reducing the impact of a wide range of different disaster risks in areas, communities and households known to be to risk The CoT s priorities must therefore focus on preventing or limiting the impact of the following disaster risks: Wide scale events that due to their magnitude, likely to affect the CoT as a whole. These include widespread floods and other severe weather events such as severe storms, and tonadoes; veld fires; and hazardous materials (storage, transportation and usage). Recurrent high and medium impact events that may require CoT s intervention or the mobilization of resources and infrastructure such as sinkholes, special events, floods and other severe weather events, large informal settlement fires, veld and urban fringe fires. Low frequency high and medium magnitude disaster risks with potential for severe loss and which require specialist support possibly not available in the CoT, such as nuclear accidents, major transport accidents, Mission Critical Systems Failure and building collapse. Disaster risks that affect neighboring authorities which may have consequences for the CoT. In the above regard it is the responsibility of each division and any other entity included in the organizational structure of the CoT to identify and prioritize those disaster risks relevant to their functional area and prepare their departmental disaster risk management plan accordingly. Action Performance Time frame Budget Responsible

81 Disaster risks must be prioritised by different municipal entities and departments in line with the key functions. indicator All CoT departments and entities have prioritised the CoT disaster risks in line with their specific function and include this in their planning. entity 12. INCENTIVE SYSTEM FOR THE PROMOTION OF DISASTER RISK MANAGEMENT IN THE COT Referral section in the DMA: 44(1)(e) 44(2) Referral section in the CoT DRMF: In involvement of all role-players in disaster risk management in the CoT remains an important element which must be achieved in the next 5 years. Although this is not a requirement of a Level 1 Disaster Risk Management Plan, the process to involve all stakeholders and to obtain their buy-in is long term. For this reason the CoT MDMC must already develop an incentive system for the promotion of disaster risk management in the CoT. Such an incentive system can take on various formats from tax rebates, to local/ward competitions, schools projects and community imbizos. The development of an incentive system for the CoT must from part of the deliberations of the CoT DRMAF. No. Action Performance indicator Time frame Budget Responsible entity

82 12.1 Develop a phased incentive system for the promotion of disaster risk management in the CoT among different roleplayers. A phased incentive system has been developed through the assistance of the DRMAF. 13. DISASTER RISK MANAGEMENT INFORMATION SYSTEM The Disaster Management Information System (DMIS) for the CoT is in the process of development. It is been developed in a web base environment and is database driven to make it accessible from anywhere and to make it more user friendly. The system relies on data and different databases for disaster risk assessment. Spatial and attribute data is joined to provide a complete picture of disaster risk or what to expect whenever a disaster occurs. The DMIS is enabled to do hazard identification, vulnerability assessments, risk assessments, disaster risk reduction as well as planning for an incident. In order to conduct the above a vast amount of GIS information is required which ranges from baseline information (such as infrastructure, land use, topography and hydrology) to stakeholder contact detail for contingency planning. A functional element of the DMIS is the integration of various checklists which allows the MDMC to track tasks and responsibilities of all role-players. These checklists guide the used through a planning process which ensures that all information requirements are supplied by the various municipal departments and entities. Furthermore, all Standard Operation Procedures, legislation, policies and bylaw documentation are incorporated in the system for ease of use and reference. The DMIS has a SMS and facility to communicate between all role players. All actions on the system are captured in an electronic Occurrence Book for record keeping.

83 The GIS system is an integrated and essential part of the system in order to display generic datasets. The overlay functionality of the GIS allows various databases and datasets to be overlaid in order to provide a valuable and powerful decision-making tool for the MDMC and all other municipal stakeholders. Vulnerability and hazard maps is a key output of the system as this can provide politicians with a better understanding of the dynamics of a specific ward. Reporting to the NDMC is also done by exporting data from an incident to a MS Excel worksheet. Status screens assist in keeping top management up to date will all actions of all role-players through a web-enabled environment. It remains imperative for the MDMC to obtain full functionality of the DMIS in order to fully utilise its components for development planning and disaster risk reduction purposes. Action Ensure the completion of the DMIS. Performance indicator DMIS is completed and operational. Time frame Budget Responsible entity 14. EMERGENCY COMMUNICATION SYSTEM During 2009 the CoT has procured a Tetra radio system for all departments. This system replaces all other analogue system that was in operation. This system is managed by Electronic Services and they also provide user support and technical support. All tetra radios are multi-channel and users can select on which channel they want to work. Direct communication between two radios is also possible. All functions that are available on the desktop and mobile versions are also available in the hand held sets. All line functions are responsible for their own contingency plans for emergency communication. Where there is no reception this system makes use of the cell phone network to communicate.

84 Figure 2 below is a graphical representation of the current information flow between the different role-players in the case of an emergency, major event or disaster. The flow of information is directly related to the physical set-up within the DOC. For purposes of coordination and different levels of decision-making the information flow is divided into two sections: information for tactical decision-making (DOC) and information for strategic decision-making (Decision Making Room Perdehoef). The DOC is responsible for the coordination of all operation and tactical information from the various role-players. Such information is relayed to the DMIS and GIS system for readily available strategic decision-making by the Decision Making Room (situated in the Perdehoef in the Pieter Delport Centre). It should be noted that the diagram below has not been adapted to include the new and current realities of the Cot MDMC in relation to the CoT DRMF, contingency plans, incident management system (see Annexure C) and Level 1 Disaster Risk Management Plan. The emergency communication system must be updated and aligned by the MDMC to take into account the aspects as discussed above.

85 Figure 2: Emergency Communication flow in the Disaster Operation Centre of the CoT

86 Action Align the current emergency communication flow with the new requirements of the Cot DRMF and Disaster Risk Management Plan Performance indicator Emergency communication flow plan. Time frame Budget Responsible entity 15. AREAS FOR FOCUSSED DISASTER RISK ASSESSMENTS In order to process towards a Level 2 Disaster Risk Management Plan for the CoT, and in line with the findings of the macro disaster risk assessment, it is imperative that the following wards enjoy immediate attention in terms of focussed, community based disaster risk assessments: (wards still to be confirmed) The above assessments must be conducted in accordance with acceptable community based disaster risk assessment methodologies, taking into account the specific requirements of the MDMC GIS. Action Determine and agree on a community based disaster risk assessment methodology for the highrisk wards in the CoT. Conduct detailed community based disaster risk assessments in Performance indicator A robust community based disaster risk assessment is developed. Comparative and robust results of the community based disaster risk assessments. Time frame Budget Responsible entity 16. IMPLEMENTATION STRATEGY FOR THE DRM PLAN In order to successfully implement this plan the MDMC is responsible for all action as contained in Annexure A. Through the successful implementation of the actions as set out in Annexure A, the CoT MDMC will have achieved a Level 1 Plan status for the CoT.