13 th Annual Emergency Management Higher Ed Conference, 20101 Irmak Renda-Tanalı, D.Sc. Associate Professor, Program Director, Homeland Security Management

13th Annual Emergency Management Higher Ed Conference, 2010 1

Irmak Renda-Tanalı, D.Sc.Associate Professor, Program Director, Homeland Security Management & Emergency ManagementGraduate School of Management and Technology, University of Maryland University CollegeMaryland

E-mail: [email protected], Tel: 240-684-2435

A Critical Analysis of Turkish Emergency Management System

mailto:[email protected]

6/9/2010Turkish Emergency Management System 2

Eastern Mediterranean sector of Alpine-Himalayan Belt



Republic of Turkey Population: ~72 million (2nd largest in Europe) Capital: Ankara (3.4 mil) Government: Parliamentary Republic f(declaration: 1923) Population (largest cities) Istanbul 9.4 mil, Ankara 3.4, izmir 2.4, Bursa 1.2, Adana

1.2 Language: Turkish (official) Land area: ~800,000 sq km / ~300,000 sq mi Latitude-longitude: 39° 00'N, 35° 00'E Landforms: European side rolling hills, across Bosphorus Strait into Central Turkey:

wide plains, all surrounded by high, rugged mountains (Taurus, Koroglu, Pontic) Many peaks exceed 10,000 ft, highest peak Mt Ararat 16,945 ft. Along Mediterranean coast, land is lower and fertile. Major rivers Tigris, Kizilirmak, Sakarya, Euphrates. Largest lake; Lake Van.

Land Division: 81 provinces Neighbors: Greece, Bulgaria, Georgia, Armenia, Iran, Iraq, Syria GDP: $880 billion (2009) Per capita $8700 Currency: New Turkish Lira (TRY) www.turkey.org


Republic of TurkeyFacts (cont.): Multi-party parliamentary since 1946 A secular democracy in predominantly Moslem population Member of : NATO (1952), Council of EU, EU candidate Free market economy, free and privately owned media Strategically located: Bordering 12 nations, straddling between Europe and

Asia,Outlet for Blacksea basin countries to Mediterranean, energy terminal for Caspian oil and natural gas

Contributor to UN peacekeeping ops worldwide Supporter of the Southeast European Countries Cooperation Process and

initiator of the Multinational Peace Force Southeastern Europe; participant in the Kosova International Security Force and in Afghanistan and the Lebanon.

Supporter of the Middle East Peace Process and the only regional country which participates in the Temporary International Presence in Hebron (TIPH) upon the request of both the Palestinian and Israeli sides.

www.turkey.org

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Republic of TurkeyFacts (cont.): A modern telecommunication and transportation network. 17th largest and 4th fastest growing economy in the world. 4th biggest donor country in the world with respect its GNP. Donor of $3.5 billion in economic and technical assistance including credits and $500

million in humanitarian aid to several countries. Russia alone, the investments of Turkish private enterprises amount to $10 billion. With an average annual growth rate of 5%, the fastest growing country in the

Mediterranean. Exports to 155 countries, ranging from cable for the Channel Tunnel to cars to China. Europe's largest supplier of textiles and apparel. The only F-16 fighter plane factory outside the US. A regional center for international companies such as Coca-Cola, Chase Manhattan,

Philips and Siemens. Privatization program including state enterprises active in airlines, banking,

telecommunications and petroleum. One of the 10 big emerging markets. www.turkey.org


Frequent seismic activity Earthquakes: Turkey lies on Eastern Mediterranean sector of Alpine-Himalayan earthquake belt. 90% national territory and >70% of population subject to seismic risk

Floods, LandslidesAvalanchesFires (building, brush – deforestation)Hazardous material spill—Environmental pollutionTraffic accidents (cars, vessels in Bosphorus

straits)Terrorism (PKK, far left, radical Islamists)

Hazards


Avalanches killing >300 people in Eastern Anatolia

Major flooding/landslides in Western Blacksea region– dozen deaths, hundreds homeless

Nine major earthquakes measuring over 6.0 Richter magnitude, caused >20,000 deaths, >15 billion $$

1ncludes 1999 Marmara Earthquake that accounts for 90% of death toll, 95% financial toll – resulted in sea change in Turkish disaster management and risk perceptions.

Major events in past two decades

Turkish Emergency Management System

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Policy Framework TR Emergency Management system is based on two

major pillars of legislation: Disasters Law 7269:1959) and Development Law (3194:1985)

Emergency Management evolved mainly as a reaction to frequent occurrence and losses from devastating earthquakes.

◦ First Comprehensive Relief Legislation (financial , housing, and family aid) introduced as a result of 1939 Erzincan Earthquake that caused 30,000 deaths (3773:1940)

◦ Continued to date as a politically engrained, socially expected practice

◦ Continuous floods in 1940s led to first flood mitigation legislation (4373:1943)

◦ Until 1944 disaster mitigation policies not harmonious with urbanization and industrialization policies.


• At national level, separate frameworks used for dealing with natural hazards and civil conflicts/terrorist attacks

• National Disaster Declaration authority vests with Cabinet (2935:1983):• “Extraordinary Situation” Law(2935:1983) --

Declaration of statewide disasters is provided in the same law. (authority vested in the Cabinet) concerns natural disasters, pandemic events, economic depression, use of violence threatening free democratic regime and personal rights and freedoms.

Policy Framework

Policy Framework (cont.)• Disasters Law (7269:1959)

• After devastating earthquakes between 1939-1944,causing over 40,000 lives lost, first EQ zoning map + seismic design code developed (4263:1944) was then comparable to Japan, US, and Italy, elevated Turkey to 4th nation having legislation on seismic risk mitigation based on scientific studies.

However Law 4263 did not address permanent settlement practices

Ministry of Public Works and Settlement formed to carry out the mandate

◦ later led to Disasters Law (7269:1959) – still in use with many modifications


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• Disasters Law (cont.) (7269:1959)• Combined discrete laws under one.• Includes disasters fund (authority previously vested

with Ministry of Public Works and Settlement through its General Directorate of Disaster Affairs (GDDA) • General Directorate of Disaster Affairs (GDDA)

founded (1964) –tasked with nationwide disaster management, main post-disaster reconstruction agency

• task shifted to Prime Ministry in 1996• Applies to all hazards/ includes Disasters Fund

outside state budget • Deals with determining property damages and

provision of shelter and housing to victims of disasters on an eligibility basis.

Policy Framework (cont.)

Policy Framework (cont.)• Development Law (3184:1985)

• Mass urbanization + rapid industrialization in 1950s resulted in hastily built structures, hazardous practices – Led to Urbanization legislation (6785:1956), led to development law with modifications to date

• Authority vested with Ministry of Public Works and Settlement

• Regulation instrument for physical development• One of the two pillars of emergency management

• Not tied well with Disasters Law, the other pillar?


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EM Framework• Civil Defense Law (7126:1958) tasks General

Directorate of Civil Defense (MOI) with response and rescue activities including all hazards

• Turkish Atomic Energy Council responsible for physical security of nuclear energy production

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EM Framework◦After 1999 Marmara Earthquakes, dozens of laws, law-

amending ordnances, by-laws issued to improve policies◦TEMAD founded in 2000 (similar to FEMA)◦Natural Disasters Insurance Administration (DASK)

founded with Compulsory Earthquake Insurance (CEI) introduced (587:1999)

◦Emergency Management Higher Council – permanent undersecretaries of involved ministries (depts) and TRC

Policy FrameworkUntil recently,State level actors: • General Directorate of Disaster Affairs (under

MPWS),• Civil Defense General Directorate (under MOI), • Turkish Red Crescent• Turkish Emergency Management Agency (PM) • Other Ministries: Transportation, Social Welfare,

Interior, Energy and Natural Resources, Industry and Trade, Forestry etc.


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Policy Framework (cont.)• Kocaeli and Düzce earthquakes:

Resulted in sea change in attitudes, legislation, government and NGOs

• General Directorate of Civil Defense for Rescue and Emergency (Ministry of Interior)

• General Directorate of Emergency Management (TAY) (reporting to PM)

• Compulsory Earthquake Insurance and Natural Disasters Insurance Administration (DASK) created

• Commission Reports, studies, microzonation maps, building code amendments, new construction inspection standards, changes in government tender law, etc.


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Observations No effective disaster mitigation policies or not

harmonious with settlement, development, industrialization for the first 30 years of modern Republic led to haphazard settlement practices – still continues

Organized industrial regions development ignored needs, resources, geological formation – too close to population centers, or located on fertile agricultural lands etc leads to disasters

TR Emergency Management system has been based on two major pillars of legislation: Disasters Law 7269:1959) and Development Law (3194:1985) – separate

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Observations More emphasis on disaster relief/immediate response

than mitigation and risk management policies Risk mitigation still largely unattended Municipalities tasked to keep maps, resources – no

trusted central authority exists Too many actors, overlapping duties – new

reorganization intends to fix that (see next slide) Clear policies for sustainable development needed US model does not necessarily fit Turkish system!!

Reorganization


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GDDA

CDCG

TEMAD

A new TurkishEmergency

Management Agency

Office of Planning

and Preparation

Response Office

Recovery Office

Civil Protection

Office Earthquake Office

Administrative Services Office

Disaster Time Line


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Year Event No. of Deaths

Outcomes or legislative changes Source

1939 Erzincan Earthquake 30,000 First comprehensive relief legislation (no.3773, 1940)

Şimşek, 1998; Yılmaz, 2000

1940s Flooding events First flood mitigation legislation (no.4373, 1943)

TBMM, 1999; Çorbacıoğlu and Kapucu, 2006

1940-1944

Niksar-Erbaa, Hendek, Ladik, Bolu-Gerede, and 5 more earthquakes*

11,000+

First comprehensive earthquake mitigation law (no.4623, 1944-1955); first earthquake zoning map; first earthquake code (1944)*

TBMM, 1944; TBMM 1999; Yılmaz, 2000; Ergünay 1999

1946-1959

Varto-Hınıs, Karlıova, Kurşunlu, Yenice, Eskişehir earthquakes, Adıyaman and Çankırı flash floods, Fethiye and Abant earthquakes **

880+ Urbanization Law (no. 6785, 1956); Law 7116 creating MPWH in 1958; Civil Defense Law (no.7126, 1958); Disasters Law (no.7269, 1959)**

TBMM, 1999; MPWS, 2009; ITÜ, 2002; Balamir, 2002; Çorbacıoğlu & Kapucu, 2006

1959-1968

Varto, Mudurnu, Pülümür, Bartın earthquakes, Mersin floods**

2600+ Law No. 1051 amending Law no. 7269**

TBMM, 1999; Yilmaz, 2000; Corbacioglu & Kapucu, 2006,

1969-1971

Alaşehir, Gediz, Burdur, Bingöl

2000+ Earthquakes Fund (law no. 1571) created, GDDA Earthquake Research Directorate founded (1971)

TBMM, 1999; Çorbacıoğlu & Kapucu, 2006

1983-1985

Erzurum-Kars earthquakes**

1155+ Extraordinary situation law (no.2935, 1983); Development Law (no.3194) supersedes no.6785

Yılmaz, 2000; ITÜ 2002; TBMM 1999

1999-2001

Kocaeli and Düzce earthquakes

18,200+

TEMAD (no.583, 1999, 600/2000), CEI and DASK (no.587,1999); NEC 8 major laws; 32 major decrees; 13 major cabinet decrees; numerous circulars

Gülkan, 2002; Balamir, 2002; Keleş, 2003, Mançebo & Renda-Tanalı; 2009; Çorbacıoğlu & Kapucu, 2006; www.tumgazeteler.com

Event driven policy outcomes

Erzincan earthquake is also a main influence together with the earthquakes of 1940-1944 for the outcomes listed, ** No direct linkages were identified from literature between these disasters and the listed legislation outcomes. However, the disasters preceding the legislation outcomes imply indirect relationship at the very least. A more rigorous breakdown of the events and their linkages may be identified at later stages of the research.


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Turkey’s Disaster Time Line

To be continuedRenda-Tanali, I & Ozceylan, D. (2009) ‘Turkey’s disaster time line: Is the past

prologue?’, Proceedings of the 16th Annual TIEMS conference. Istanbul, Turkey.

Mancebo, F & Renda-Tanali, I. (2009). ‘Toward an integrated policy of risk management: A critical analysis of Turkey and France’, Int. J. Emergency Management, Vol. 6, No.1, pp.99-115.


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Irmak Renda-Tanalı, D.Sc.Associate Professor, Program Director, Homeland Security Management & Emergency Management (coming up Fall 2010)Graduate School of Management and Technology, University of Maryland University CollegeMaryland

E-mail: [email protected], Tel: 240-684-2435

mailto:[email protected]

Documents

13 th Annual Emergency Management Higher Ed Conference, 20101 Irmak Renda-Tanalı, D.Sc. Associate Professor, Program Director, Homeland Security Management