Annual Report - Cooperative Governance and … · Annual Report 2012/2013 vii Overview by the Accounting O#cer ncreasingly, nations and communities are appreciating the importance

National Disaster Management Centre

Annual ReportFinancial Year 2012/2013

National Disaster Management Centre

Annual Report 2012/2013 i

Table of ContentsTable of Contents

Acronyms and Abbreviations iiiForeword by the Minister vOverview by the Accounting Officer viiOverview by the Head of the National Disaster Management Centre ix

Table of Contents i

Chapter 1 General Information 1

Chapter 4 Results of Monitoring, Prevention and Mitigation Initiatives 27

Chapter 5 Disasters Declared, Classified and their Effects 31

Chapter 7 Recommendations by the National Centre 41

Chapter 9

Chapter 8

Chapter 6 Problems Experienced in Dealing with Disasters and Implementing the Act and the National Disaster Management Framework 37

Chapter 2 Introduction 3

Chapter 10 The Annual Reporting Process 59

National Coordination 51

Progress with the Preparation of the Disaster Management Plans in terms of Sections 25, 38, 39, 52 and 53 and Strategies by Organs of State Involved in Disaster Management 45

Chapter 3 Overview of Activities of the NDMC by Sub-Programmes 53.1 Chief Directorate: Legislation, Policy and Compliance Management 53.2 Chief Directorate: Planning, Coordination, Intervention and Support 123.3 Chief Directorate: Intelligence, Information and Communication Systems 173.4 Chief Directorate: Monitoring and Evaluation 243.5 Directorate: Communications 25

National Disaster Management Centre Organisational Structure 11.1 Strategic Overview 1

Vission 1Mission 1

1.2 Legislative Mandate 1Disaster Management Act 2Fire Brigade Services Act (FBSA) 2

ii National Disaster Management Centre

Acronyms and AbbreviationsBAAM Business-Adopt-A-MunicipalityCCA Climate Change AdaptationCoGTA Cooperative Governance and Traditional AffairsCSIR Council for Science and Industrial ResearchD:FSC Directorate: Fire Services CoordinationDCoG Department of Cooperative GovernanceDRG Disaster Relief GrantDRM Disaster Risk ManagementDRR Disaster Risk ReductionEU European UnionFBB Fire Brigade BoardFBSA Fire Brigade Services ActGAP Geospatial Analysis PlatformGFDRR Global Facility for Disaster Reduction and RecoveryICDM Interdepartmental Committee on Disaster ManagementICT Information and Communications TechnologyIDDR International Day for Disaster ReductionIDP Integrated Development PlanIICMS Intelligence, Information and Communication Management SystemsIRP Indicative Risk ProfileJOC Joint Operational CentreJOCOM Joint Operation CommandMDMC Municipal Disaster Management CentreMOU Memorandum of UnderstandingMTEF Medium Term Expenditure FrameworkNATJOC National Joint Operation CentreNATJOINTS National Joint Intelligence StructureNCBCF National Capacity Building Coordinating ForumNDMAF National Disaster Management Advisory ForumNDMC National Disaster Management CentreNDMF National Disaster Management FrameworkNDRMETF National Disaster Risk Management Education and Training FrameworkOFO Organising Framework for OccupationsPDMC Provincial Disaster Management CentreSAIA South African Insurance AssociationSAWS South African Weather ServiceSOP Standard Operational ProcedureSRS Situation Reporting SystemTTT Technical Task TeamUFS University of the Free StateUR Understanding Risk

iiiAnnual Report 2012/2013

iv National Disaster Management Centre

he Department of Cooperative Gover-nance (DCoG) herewith presents the disas-

ter management annual report for the2012/13 financial year in terms of section 24of the Disaster Management Act (Act No. 57of 2002). This annual report provides anoverview of the activities undertaken by theNDMC in the 2012/13 financial year across thecountry. This report reflects on progress madeby the NDMC in line with its objective of promoting an integrated and coordinatedsystem of disaster management, with specialemphasis on prevention and mitigation, bynational, provincial and municipal organs of state, statutory functionaries, other roleplayers involved in disaster management andcommunities.

During this reporting period, several provincesacross our country, notably Limpopo, KwaZulu-Natal, Western Cape and Eastern Cape, were affected by disasters of varying magnitude andeffects. These disastrous events have demon-strated our country’s continued vulnerability tohazards. In rendering support to affected areas,the NDMC provided emergency disaster reliefgrants amounting to R107 million. In addition to this, the National Treasury allocated approxi-mately R1,3 billion for post-disaster reconstruc-tion and rehabilitation. The rising cost of disaster

response necessitates that sustained efforts are placed on the integration of disaster risk reduction initiatives in development planning.

The disasters that occurred in this financial yearalso highlighted that sector departments have akey role in disaster management. Sectors such astransport, agriculture, water, education andhuman settlements have incurred significantlosses to their infrastructure as a result of disasters. It is clear that effective disaster management requires the active involvement ofsector departments and ongoing critical reflec-tion and mechanisms that ensure that sectoralactivities and planning initiatives contribute toreducing disaster risks. Adequate legal basis already exists as each national organ of state hasa responsibility to develop a disaster manage-ment plan for its area of responsibility in termsof section 25 of the Disaster Management Act.One of the requirements of the plan is to set outits capacity to fulfil its role and responsibilities.Furthermore, it is stipulated that the disastermanagement plan must form an integral part ofthe planning of respective organs of state.

It is anticipated that global climate change willalso significantly affect the frequency and inten-sity of hazard occurrence in the country. As out-lined in the National Climate Change Response

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Foreword by the Minister

vAnnual Report 2012/2013

Mr L TsenoliMinister for Cooperative Governance and Traditional Affairs

White Paper (2012:10), South Africa will have to adapt to the impacts of climate change bymanaging its climate and weather-related risks,reducing its vulnerability and increasing the resilience of society and the economy to the adverse effects of climate change and variability.Building resilience to climate change–related extreme events forms the basis of South Africa’sapproach to disaster management. Against thisbackground, during this reporting period, theNDMC coordinated several capacity building initiatives/campaigns aimed at building commu-nity resilience to disaster risks. In addition to this,the NDMC also commemorated the InternationalDay for Disaster Reduction (IDDR) which takesplace on 13 October annually. The commemora-tion was hosted by the NDMC with the Gautengprovincial government and the City of Tshwaneunder the theme “Women and girls: the invisibleforce of resilience”, which sought to highlightthat:! Women and girls are the foundation of

disaster resilience.! Women and girls must participate in service

delivery and the sustainable developmentprocesses.

! It is not gender but gender inequality thatputs women and girls in harm’s way whendisasters strike.

As indicated in the White Paper on Disaster Man-agement (1999:19), natural and other threats arenot constrained by national boundaries andmeasures taken in South Africa can increase orreduce risks in neighbouring countries, just aspotential dangers across our borders can directlyaffect South Africa. This implies that regional cooperation on disaster management activitiesis critical for South Africa, as it enables joint plan-ning on emergency preparedness and response,amongst others. During this reporting period,South Africa participated in several internationalgatherings, notably the Fourth Africa RegionalPlatform for Disaster Risk Reduction and the FifthAfrica Drought Adaptation Forum held in Tanza-nia in February 2013.

It is clear from this annual report that althoughsignificant progress has been made in the imple-mentation of the Disaster Management Act andnational disaster management framework(NDMF) by sector departments, provinces, municipalities and other role players includingNGOs and academic institutions, led by the NDMC, there are still huge challenges that besetour disaster management system. In dealingwith these challenges, the NDMC also startedwith the process of amending the Disaster Management Act, to close some of the gaps that are in the legislation as it currently stands.Amongst others, the amendments seek to clarifythe role of local municipalities in disaster management, outline the importance of disasterrisk assessments as part of the disaster manage-ment planning, address disaster risk reduction issues and reflect on climate change adaptationand related matters. I am confident that theseamendments will strengthen our hand in dealingwith disasters in the country, with specific emphasis on reducing disaster risks. While wemust put more emphasis on the integration ofdisaster risk reduction in development initiativesand programs, similar and sustained efforts arerequired to enhance our capacity to respondrapidly to disastrous incidents.

Mr L TsenoliMinister for Cooperative Governance and Traditional Affairs

vi National Disaster Management Centre

Foreword by the Minister

viiAnnual Report 2012/2013

Overview by the Accounting Officer

ncreasingly, nations and communities areappreciating the importance of providing

services in an efficient and sustainable manner. Studies and empirical evidence havedemonstrated the fact that there is beginningto be widespread recognition that the realisa-tion of this vision requires the mainstreamingof risk reduction. This is because there iswidespread appreciation of the fact that dis-aster risk reduction is a critical contributor tothe sustenance of services and development,and as a measure for safeguarding lives, ex-isting services and infrastructure. This is crit-ical to ensure that much-needed services,livelihoods, infrastructure and the environ-ment are protected for current and futuregenerations.

Within this context, in line with our government’soutcomes approach to service delivery and development, our department has committed toensuring a responsive, accountable, effective andefficient local government system. We are however mindful of the fact that realising thisobjective requires a suite of measures, some ofwhich revolve around the need for the mainstreaming of disaster risk reduction intoprogrammes and projects. This must also happen within a framework in which there is a

closer relationship between disaster risk reduc-tion development, and the management of the effects of changes in climate and weather patterns.

It is therefore my pleasure to present the 2012/13annual report for implementing the disastermanagement function in South Africa with afocus on risk reduction. The report also toucheson the country’s regional and global responsibil-ities and programmes on disaster risk reductionunder the applicable international frameworks,such as: ! The Hyogo framework for action, 2005–2015;! The Africa regional strategy for disaster

reduction, 2004, and! The SADC policy and strategic plan for

disaster risk reduction (DRR), 2010–2015.

Dealing with the performance of sub-pro-grammes, the report notes that the department,through the NDMC, has consolidated the imple-mentation of the disaster management function.This is evidenced through specific outcomessuch as:! The mainstreaming of the function in sector,

provincial and municipal programmes.! Support in the establishment and function-

ing of the disaster management centres.

I

Mr V MadonselaDirector-General

! The integration of disaster risk reduction issues within municipal integrated develop-ment plans (IDPs).

! Consolidation of the areas that necessitatedthe review of the Disaster Management Act.

! The design and implementation of capacitybuilding and research programmes.

! Effective response and recovery from incidents and disasters.

! The publication of a fire services discussiondocument towards a Fire Services WhitePaper.

! The development and adoption of the national education and training frameworkfor disaster management.

Notable also is the fact that following the intro-duction of the immediate Disaster Relief Grants(DRGs), in the form of the provincial and munic-ipal grants, there is a marked improvement indealing with emergency relief needs of our com-munities following the occurrence of disasters,and while awaiting long-term reconstructionand rehabilitation measures.

It is therefore my belief that this report will contribute to shedding light on the contributionof the disaster risk reduction function to sustain-able service delivery and development.

The 2012/13 annual report is therefore presentedfor public scrutiny.

Mr V MadonselaDirector-General

viii National Disaster Management Centre

Overview by the Accounting Officer

ixAnnual Report 2012/2013

Overview by the Head of the National Disaster Management Centre

OVERALL PERFORMANCE

Aim of the programme

The NDMC aims to promote an integrated and coordinated system of disaster management and fireservices, with special emphasis on prevention, mitigation and preparedness by national, provincialand municipal organs of state.

Strategic achievements

This past year has been a particularly significant one for the NDMC. The country successfully hostedthe 2013 Africa Cup of Nations (AFCON) (disaster-free tournament). The NDMC participated in theBusiness-Adopt-A-Municipality (BAAM) initiative, particularly in respect of addressing the needs identified in terms of disaster management and fire services. Through this initiative, five municipalities,Ulundi, Thulamela, Mafikeng, Mbombela and Eden District, were provided with fire equipment andwill also be supported in the 2013/14 financial year through training and awareness programs, tobuild capacity for fire services and disaster management.

The second Understanding Risk (UR) Forum was held in Cape Town from 2–6 July 2012. Organised inpartnership with the DCoG (through the NDMC). The forum brought together over 500 risk assess-ment experts from more than 86 countries around the world. The forum was convened by the GlobalFacility for Disaster Reduction and Recovery (GFDRR) in collaboration with the World Bank’s Africa Region. The former, Honourable Minister of CoGTA, Mr. Richard Baloyi, opened the forum with akeynote address that highlighted the importance of the disaster risk management (DRM) and climatechange adaptation (CCA) agendas to the African continent. Extensive participation by African delegates confirmed that identifying risk is particularly relevant to Africa and that progress has beenmade in the developing world to make better use of risk assessments. We are confident that the URForum series will lead to new partnerships and innovative advances in risk assessment, so essentialfor achieving sustainable development in Africa and elsewhere.

Mr K TerryHead: National Disaster Management Centre

In its efforts to promote good governance, the NDMC is also in the process of amending legislationand developing guidelines to assist municipalities to improve the implementation of disaster management policy and legislation. During this year, the NDMC also published a discussion paperon the review of the fire brigade services legislation for public comment. This is a first step in theprocess of developing comprehensive legislation for fire services, which is consistent with the existinglocal government legislation.

The NDMC also established a monitoring and evaluation unit to enhance its oversight function. Inthe 2013/14 financial year a framework will be developed to assist with the accurate monitoring andevaluation of all post-reconstruction projects as a result of declared disasters over the past three years,especially to ensure that the repair work is done on time and to the required standard.

In order to inculcate a culture of disaster risk reduction, the NDMC has supported all sector depart-ments and provincial governments in rolling out public awareness and education programmes. Thenational disaster risk management education and training framework (NDRETF) was developed andadopted by national stakeholders. Stakeholder consultation and support rendered also resulted inthe submission of disaster management plans from provinces and sector departments.

The contract with the University of the Free State (UFS) on the management of the NDMC bursaryand studentship programme was successfully implemented. This bursary is also making a positiveimpact on skills development in disaster risk reduction and contributes to career pathing for the beneficiaries.

The NDMC has also started a feasibility study, and is in the process of finalising a business case to become a government component that will further enhance its operations and oversight role.

In terms of support to provinces and municipalities, support visit meetings and workshops were convened in order to assist the disaster management centres to comply with the requirements of theAct. The support visits were carried out in a number of municipalities, such as Frances Baard DistrictMunicipality in the Northern Cape, Waterberg District Disaster Management Centre in Limpopoprovince, Nkangala District Disaster Management Centre in Mpumalanga and a follow-up meetingat Umkhanyakude District Municipality in KwaZulu-Natal.

The visits were very fruitful and resulted in changes of status of the respective disaster managementcentres. The centres mentioned above have prioritised disaster management in terms of budget,training and capacity building, disaster management plans and overall management of disaster management centres. Over and above the support visit meetings, the NDMC convened provincialdisaster management workshops in Mpumalanga and Limpopo. These workshops have not only stimulated progress in the relevant disaster management centres, but also in some sector depart-ments that are critical for disaster risk management.

Without getting into the details of the improvements, suffice it to say that the NDMC, together withthe respective provincial disaster management centres, has applied the turnaround strategy of mainstreaming disaster management in all integrated development plans of municipalities. This isnecessary in order to fund disaster management projects.

x National Disaster Management Centre

Overview by the Head of the National Disaster Management Centre

To forge cooperation from stakeholders and improve coordination, NDMC also had some engagementwith Eskom’s Enterprise Resilience Unit and the South African Weather Service (SAWS). Both of theseorganisations are represented in the National Disaster Management Advisory Forum (NDMAF), whichis held quarterly.

Disaster risk reduction and management is a cross-cutting issue that affects all sectors of governmentand society. Key stakeholders in disaster management have come to the realisation that no amountof effective service delivery, poverty reduction and sustainable development can be realised withoutthe parallel implementation of the disaster reduction agenda. It can therefore be argued with confi-dence that disaster reduction must be a strategic focus for implementing disaster management. Theintegrated and trans-disciplinary nature of the function dictates that the different sectors, spheresand disciplines must play an active role in risk reduction in line with their respective policies andstrategies. The best way to reduce the effect of disasters is by the integration of resilience in the dailyservice delivery, poverty reduction and sustainable development programmes.

Mr K TerryHead: National Disaster Management Centre

xiAnnual Report 2012/2013

xii National Disaster Management Centre

1.1 Strategic Overview

Vision

An integrated system of disaster management and fire services.

Mission

To coordinate the system of disaster management and fire services through:! Developing and implementing appropriate policies and regulatory frameworks.! Promoting a culture of risk avoidance by creating enabling mechanisms for stakeholder

participation.! Monitoring and evaluating disaster management programmes across the spheres of

government.! Strengthening cooperation amongst stakeholders in disaster management.! Informing and directing SA’s disaster management efforts to achieve the priorities of

regional and international frameworks.

1.2 Legislative Mandate

The National Disaster Management Centre (NDMC) is responsible for two pieces of legislation:the Disaster Management Act (Act No. 57 of 2002) and the Fire Brigade Services Act (Act No.99 of 1987).

1Annual Report 2012/2013

Chapter 1: General Information

Branch: National Disaster

Management CentreHead of the Centre

Chief Directorate:

Planning, Coordination,

Intervention andSupport

Directorate:Communi-

cations

Chief Directorate:Legislation, Policy and

ComplianceManagement

Chief Directorate:Intelligence,

Information andManagement

Systems

Chief Directorate:Monitoring

and Evaluation

Directorate:Intelligence, Information, and Commu-

nications Management

Systems

Directorate:Early

Warning andCapability

ManagementSystems

Directorate:Capacity

Building andDevelopment

Directorate:Planning,

Interventionand Support

Directorate:Fire ServicesCoordination

Directorate:Policy,

Legislationand

ComplianceManagement

National Disaster Management Centre Organisational Structure

Disaster Management Act

The Disaster Management Act provides for:! An integrated and coordinated disaster management policy that focuses on preventing or

reducing the risk of disasters, mitigating the severity of disasters, emergency preparedness,rapid and effective response to disasters and post-disaster recovery.

! The establishment of national, provincial and municipal disaster management centres.! Disaster management volunteers.! Matters incidental thereto.

Fire Brigade Services Act (FBSA)

Firefighting services in terms of Schedule 4, Part B of the South African Constitution is the responsibility of local government with national and provincial oversight. The existing FBSA isthe primary piece of legislation regulating fire services and provides for the establishment,maintenance, employment, coordination and standardisation of fire brigade services.

In terms of the FBSA, local authorities are required to establish and maintain a fire brigadeservice for the following purposes:! Preventing the outbreak or spread of a fire.! Fighting or extinguishing a fire.! The protection of life or property against a fire or other threatening danger.! The rescue of life or property from a fire or other danger.! Subject to the provisions of the Health Act (Act No. 63 of 1977), the rendering of an

ambulance service as an integral part of the fire brigade service.

Proclamation R 153 of 1994 further assigned all sections of the FBSA to the provincial sphereof government, with the exception of Section 2 (Fire Brigade Board) and 15 (Regulations),which remained the administrative responsibility of national government.

2 National Disaster Management Centre

Chapter 1: General Information

ccording to Sections 24, 36, and 50 of the Disaster Management Act, 2002(Act no 57 of 2002) the Disaster Management Centres of the three spheres

of Government must submit a report annually to the Minister, the Member of theExecutive Council (MEC) and the Municipal Council respectively. In addition, sec-tor departments and State Owned Enterprises (SOE’s) are also required to reporton disaster management activities in their respective areas of responsibility.

This annual report specifically seeks to comply with the requirements imposedon the National Disaster Management Centre in terms of section 24 of the saidAct. Annual reports of the other spheres of government will be made availablethrough their respective structures and will be published on the website of theNDMC.

This approach will also contribute to accurate reporting and accountability at therelevant sphere.

One of the key legislated obligations of the National Disaster Management Centre(NDMC) is to submit a report annually to the Minister (who is designated in termsof Section 3 of the Act to administer the Act) on:-a) its activities during the year;b) the results of its monitoring of prevention and mitigation initiatives;c) the disasters that occurred during the year in each province;d) the classification, magnitude and severity of these disasters;e) the effects they had; f ) particular problems that were experienced-

i. in dealing with these disasters; andii. generally in implementing this Act and the national disaster management

framework;g) the way in which these problems were addressed and any recommendations

the National Centre wishes to make in this regard;h) progress with the preparation and regular updating in terms of sections 25,

38, 39, 52 and 53 of disaster management plans and strategies by organs ofstate involved in disaster management; and

i) an evaluation of the implementation of such plans and strategies .

Section 24 further stipulates that the Minister must submit the report to Parlia-ment within 30 days of receipt of the report from the NDMC. The NDMC must, atthe same time that its report is submitted to the Minister, submit a copy of thatreport to each provincial and municipal disaster management centre.

The purpose of the annual report is:! To provide an overview of the status of disaster management in the country.! To provide a record of activities of the respective disaster management

centres during the financial year to which the report relates.! To promote accountability to the NDMC for the decisions made relating to

disaster management throughout the year.! To provide information regarding occurrences leading to the declaration of

a state of disaster, expenditure on response and recovery, actions pertainingto risk reduction, and particular problems experienced in dealing with suchdisasters.

! To monitor the implementation of policy and legislation relating to disasterrisk reduction and management.


Chapter 2: Introduction

A


Chapter 2: Introduction

he NDMC has several sub-programmes. The reports in this section will comprise the informationfrom the various sub-programmes.

3.1 Chief Directorate: Legislation, Policy and Compliance Management

The Chief Directorate comprises an Executive Manager, one Senior Manager, two Managers,one Deputy Manager and one Administrative Assistant. It is composed of two Directorates: Policy, Legislation and Compliance Management, and Fire Services Coordination.

Purpose

To develop and provide implementation support of disaster management policies and legislative frameworks embedded in the Disaster Management Act and the NDMF across allspheres of government.

The key performance areas of the Chief Directorate include:

Development and implementation of disaster management policies and legislative frameworks across the three spheres of government

" Directed a process to review the Disaster Management Act." Initiated and directed a process to develop regulations on disaster management." Developed guidelines for disaster management planning and fire services for BAAM

municipalities.

Provision of support to disaster management centres across the spheres of governmenton disaster management policy and compliance matters

" Put processes in place to support the establishment and effective functioning of disaster management centres across the spheres of government.

" Conducted workshops and meetings to strengthen capacity on implementing policy andlegislation.

" Provided guidance and advice to several disaster management centres to improve theirfunctioning.

Provision of strategic direction to the development and implementation of policy and strategies on fire services nationally

" Enhanced administration, coordination and guidance of fire services." Oversaw the consultation process and the development of a discussion paper on fire

brigade services. " Developed a fire services framework." Ensured targeted support to three provinces on fire services activities." Developed and published an “Urban Search and Rescue Framework” for public comments." Reviewed the FBSA." Act as Secretariat for the Fire Brigade Board (FBB).

Establishment and strengthening of institutional structures for effective disaster management

" Put several processes and measures in place to improve the effectiveness and functioningof disaster management structures (NDMAF, Technical Task Teams) and embarked on a


Chapter 3: Overview of Activities of the NDMC by Sub-Programmes

T

process to establish the Inter-Governmental Committee on Disaster Management in termsof the Disaster Management Act.

" Strengthened partnerships and developing Memorandums of Understanding (MOUs) withkey stakeholders, such as the South African Insurance Association (SAIA), Railway SafetyRegulator, Fire Protection Association, etc. Coordinated South Africa’s responsibilities ofco-hosting the UR Forum with the GFDRR, attended by global disaster assessment andother experts from across the globe.

Advancement of the overall functioning of the NDMC

" Provided strategic input in departmental processes on issues related to the NDMC (climatechange, National Development Plan, etc.).

" Participated in processes to support departmental strategies and plans (e.g. BAAM project,simplified IDP, priority municipalities, etc.).

" Advised on planning and participation in national and international events (UnderstandingRisk Forum (UR), International Standards Organisation, Technical Task Team on Societal Security, G20 participation, African Risk Capacity, etc.).

Some of the key achievements of the Chief Directorate for the reporting period includethe following:

A process to review the Disaster Management Act, 2002 was conducted. The unit is also continuously developing supporting documents guiding the implementation of the legislationwhich can ensure uniformity and foster compliance. Specific guidelines for disaster manage-ment planning and fire services for municipalities that were supported through the BAAMproject were also developed.

A draft national disaster response framework was also produced and presented to the NDMAF.Another key process that the unit embarked on is the review of the fire services legislation.The FBSA, promulgated in 1987, has been identified as one of the old-order pieces of legislationthat requires a comprehensive review. This review aims to closely align and harmonise theFBSA with other applicable legislation, especially local government legislation. During the reporting period, a discussion paper was developed after several consultation sessions withstakeholders. In line with the government’s approach to policy development, the nextprocesses will include the development of a White Paper, a Fire Services Bill, and ultimatelynew fire services legislation.

Furthermore, the unit was involved in high-level engagements with national and internationalstakeholders, participating as speakers or members of panel discussions or providing input topolicy documents and discussions. These include the G20 process, UR Forum 2012, the NationalClimate Change Committee, etc.

3.1.1 Directorate: Policy, Legislation and Compliance Management

The Directorate comprises a Manager and a Deputy Manager.

Status of Disaster Management Centres during 2012/13

During the 2012/13 financial year the NDMC identified 10 disaster management centres thatwere supported through guidance, advice, identification of challenges and working with thevarious spheres of government in finding solutions. The centres that were targeted are indi-cated in the table on the next page:


Chapter 3: Overview of Activities of the NDMC by Sub-Programme

The support visits were partly a form of checklist on compliance of the municipality in termsof the Disaster Management Act and the NDMF. The information required and gathered wasrelated to the following:

Number Centre Province

1. Nkangala District Disaster Management Centre Mpumalanga

2. UMkhanyakude District Disaster Management Centre KwaZulu-Natal

3. Frances Baard District Disaster Management Centre Northern Cape

4. Waterberg District Disaster Management Centre Limpopo

5. Sedibeng District Disaster Management Centre Gauteng

6. Thabo Mofutsanyane District Disaster Management Centre Free State

7. UThukela District Disaster Management Centre KwaZulu-Natal

8. Ngaka Modiri Molema District Municipality North West

9. Cape Winelands District Disaster Management Centre Western Cape

10. ILembe District Disaster Management Centre KwaZulu-Natal


Key reporting area Relevant Sections in the Act

Disaster management framework approved and implemented 28, 45

Appointment of the Head of the Disaster Management Centre 28, 42

Adequate personnel capacity 29, 43

Physical facilities (building, etc.) 29, 43

IT system and other equipment 30, 44

Risk assessment on prevalent hazards 33, 47

Disaster response 35, 40, 41, 49, 54, 55

Annual report 36, 50

Effective functioning of the advisory forum (involvement of stakeholders) and coordination structures

37, 51

Disaster management plans and IDP process 38, 39, 52, 53

Stakeholder and community capacity in disaster risk reduction 33, 47

Funding and capacity 38, 52, 56, 57

The procedure followed on the process to determine the functionality of disaster managementcentres and identify the support required, was as follows:! Presentation by the NDMC on the abovementioned requirements.! Presentation by the relevant centre on its current status, achievements, opportunities

and challenges.! Agreement on matters that need to be pursued further.

A) Summary of achievements

The purpose of the visits was to support the establishment and functionality of the disastermanagement centres and primarily to:" Establish a platform for one-on-one dialogue with the respective centres in an attempt

to address issues affecting a particular centre." Give feedback and to allow the centres to have the opportunity to engage the NDMC." Identify areas of support for the short, medium and long term." Develop an information management database system that will assist in verifying the

compliance of the disaster management centres, and also to discuss progress made inimplementing disaster management legislation.

As a result of the support as outlined above, the achievements that are highlighted beloware evidence of the contribution towards effective and efficient performance of the centres.Prior to 2012, there were 30 out of 62 centres that complied with the minimum require-ments of the Act; in March 2013 there were 48 centres that complied." Certain disaster management centres managed to increase their human capacity and

also influenced municipalities to prioritise key aspects of disaster management. Nkangala and Umkhanyakude are examples of centres that made some positivechanges in this regard.

" Coordinating structures were revived by the involvement of the NDMC, particularly theoperation of district municipality disaster management advisory forums.

" Sector departments were also taken on board in the coordinating structures andprovincial workshops were conducted in Mpumalanga, Limpopo and Gauteng.

" The NDMC acted as a catalyst between the provincial disaster management centre(PDMC) concerned and the centre supported. Its visibility was enough to give instantdirection and clarity on matters that were presented by the coordinating structures.

" In cases where funding plans were not clear, especially where some centres managedto get assistance with funding for the establishment of a dedicated disaster manage-ment building, the NDMC engaged all parties to try to resolve the bottlenecks and/orfind out how to engage other structures for support.

" The NDMC could isolate critical challenges that needed the NDMC to assemble a teamto drive the intervention process in areas like Uthukela, Thabo Mofutsanyane andNgaka Modiri Molema.



The following summary illustrates the status of disaster management centres per province:


The diagram above shows that a total of 48 disaster management centres out of 61 compliedwith the minimum requirements of the Disaster Management Act. These requirements are specified in the document Minimum Requirements for Functionality of the Disaster Management Centres.

All centres were assessed against 10 key priorities identified as the minimum requirements forthe functioning of disaster management centres in terms of the legislation, which include:-! Dedicated disaster management centre building/disaster management function.! Approved disaster management plan.! Approved risk assessment document.! Disaster management framework.! Functioning advisory forum.! Functioning information management system.! Awareness campaigns, training and education.! Existence of standard operational procedures (SOPs) for dealing with disaster incidents.! Existence of an operational centre for call taking and dispatching (24/7).! Simulation exercise.

Comparison between 2011/2012 and 2012/2013 financial years:

Status of Disaster Management Centres Adequately Functioning

2011/12 financial year 2012/13 financial year

Centre Adequatelyfunctioning

Not adequatelyfunctioning

Total Adequatelyfunctioning

Not adequatelyfunctioning

Total

PDMC 7 2 9 8 1 9Metro 5 3 8 8 0 8DM 22 22 44 32 12 44TOTAL 34 27 61 48 13 61

2011/12 financial year



Adequately functioning

2011/12 financial year

B) Impact on communities

The aim of disaster management is to build resilient communities that are safe from naturaland human-induced disasters. It is the NDMC’s duty to see to it that the Disaster Manage-ment Act and the NDMF are implemented by all 62 disaster management centres so thatgovernment and other role players are able to prevent disasters, reduce the impact of thosethat cannot be prevented and respond effectively and efficiently to disaster occurrences.This can then be passed over to communities in the following ways:-" Communities will be well guided in reducing the disaster risk." The number of disaster fatalities and damage to property will be reduced. " Response time and assistance to the community will be enhanced.

Adequately functioning

3.1.2 Directorate: Fire Services Coordination

The Directorate: Fire Services Coordination comprises a Senior Manager and a Manager and isresponsible for the administration and implementation of the FBSA.

The administration of the FBSA is one of the key mandates of the DCoG. The FBSA is administered by the Directorate: Fire Services Coordination (D:FSC) and provides for the establishment, maintenance, employment, coordination and standardisation of fire brigadeservices in the country. During the financial year 2012/2013, the D:FSC developed a discussionpaper on the review of the FBSA. This project was part of the annual performance plan of thedepartment. The review of the FBSA has been identified as a priority in order to bring aboutcomprehensive fire services legislation which, amongst others, is harmonised with other relevant legislation and provides clarity on the support and oversight role of both provincialand national government in relation to fire services, which is a municipal function in terms ofthe Constitution, 1996.


The discussion paper on the review of the fire services legislation was successfully developed following consultations between the D:FSC and key stakeholders from the fireservices fraternity. Following approval by the Minister of Cooperative Governance and Traditional Affairs, the D:FSC published the discussion paper in the government gazette inorder to solicit public comment. In an effort to optimise public participation in the processof reviewing the FBSA, the D:FSC also published notices in identified national newspapersalerting members of the public to the discussion paper and how it could be accessed.


The discussion paper seeks amongst others to clarify the roles and responsibilities of national and provincial governments in the provision of fire services, which is essentially alocal government function in terms of the Constitution. In addition to this, the discussionpaper recognises that the delivery of sustainable and effective fire services requires activeinvolvement of communities at risk from fires and other role players. The discussion paperalso espouses a paradigm shift from an operation-intensive approach to the delivery offire services explicitly focused on fire risk reduction, prevention and safety. This fundamen-tal shift at a strategic policy level will ultimately result in massive allocation of resources to fire risk reduction initiatives, thereby reducing the risk posed by fires to human lives, infrastructure, property, livelihoods and the environment.

Understanding Risk Forum 2012

In addition to the above, the Chief Directorateplayed a key role in planning and hosting the URForum 2012.

South Africa, through the NDMC hosted the2012 UR Forum from 2–6 July 2012 in CapeTown. The GFDRR of the World Bank convenedthe 2012 UR Forum in partnership with theNDMC, CoGTA and the European Union (EU).


Minister Baloyi welcomed the 500 disaster management experts and practitioners from morethan 86 countries who came together to exchange knowledge and share best practice in dis-aster risk assessment. The theme for this conference was “Mapping Global Risk” which seeksto highlight the essential role of hazard, exposure and vulnerability data in understanding riskand making informed decisions to build resilience.

The Best Practices in Risk Assessment handbook that was published subsequent to the event,summarises the stimulating discussions that took place during the forum, covering topics rang-ing from risk assessment for financial applications, drought resilience and climate change tosatellite earth observation, crowdsourcing and new tools for building resilience for floods,earthquakes, and landslides.

The event was a resounding success, not only because it brought together the world’s leadingexperts on risk assessment, but because it was testimony to the tremendous progress achievedin understanding risk since UR first launched in 2010.

3.2 Chief Directorate: Planning, Coordination, Intervention and Support

The Chief Directorate comprises an Executive Manager, two Senior Managers, two Managers,two Deputy Managers, a Senior Administrative Officer and an Administrative Assistant. It iscomposed of two Directorates: Planning, Intervention and Support, and Capacity Building.

Purpose

3.2.1 Directorate: Planning, Intervention and Support

The Directorate comprises a Senior Manager, a Deputy Manager and a Senior AdministrativeAssistant. It is responsible for rendering support with regard to the identification and assess-ment of disaster risks, hazards and community capacities at all levels. The Directorate is alsoresponsible for the coordination and provision of guidance for disaster-stricken areas before,during and after disaster-related incidents, managing the implementation of contingencyplans in relation to disaster incidents, and the operationalisation of people-centric early warning systems. The Directorate is further responsible for the coordination of assistance inthe event of international disasters where South Africa has been requested to assist.

" Emergency Disaster Relief

Municipal Disaster Relief Grant

An amount of R73 179 683.00 was allocated in 2012/2013 from the Municipal Disaster ReliefGrant to assist municipalities to respond to immediate needs after a disaster. This fundingcan be accessed within three months following the declaration of a disaster.

Emergency relief was allocated as follows: Eastern Cape: R 43 574 603.00 Limpopo: R 14 200 000.00Western Cape: R 15 405 080.00



Provincial Disaster Relief Grant

An amount of R850 000.00 was allocated in 2012/2013 from the Provincial Disaster ReliefGrant to assist provincial departments to respond to immediate needs after a disaster. Thisfunding can be accessed within three months following the declaration of a disaster.

Emergency relief was allocated as follows: Limpopo: R850 000.00

" Disaster Reconstruction and Rehabilitation

The Directorate is responsible for providing intervention and support to spheres of government following a disastrous event. In December 2010/January 2011 a national stateof disaster was declared as a result of flooding. This declaration affected all provinces apartfrom the Western Cape. Subsequently, funding for disaster reconstruction and rehabilita-tion was allocated by national government to provinces over the medium-term expendi-ture framework (MTEF). In the 2012/13 financial year, funds for reconstruction andrehabilitation allocations amounting to R1 302 613 927.00 were allocated as follows:

2012/13 Requests for reconstruction and rehabilitation

A request for an amount of R922 742 761.00 was recommended to be allocated to disasterreconstruction and rehabilitation of flood-damaged infrastructure in thirty-six municipalitiesin four provinces, Western Cape, KwaZulu-Natal, Limpopo and Mpumalanga, following floodsthat occurred in the 2011/12 financial year.


Province Amount

Eastern Cape R344 000 000.00

Free State R133 791 574.00

Gauteng R6 050 136.00

Kwa Zulu-Natal R123 000 000.00

Limpopo R152 726 217.00

Mpumalanga R2 046 000.00

Northern Cape R495 000 000.00

North West R46 000 000.00

TOTAL R1 302 613 927.00

" Policies and guidelines

The Directorate, as part of its responsibilities to admin-ister the grants, developed conditions and guidelinesfor disaster response funding which were extensivelydiscussed during meetings and workshops of theProvincial Disaster Management Committee in Gauteng, North West, Eastern Cape, Mpumalanga andKwaZulu-Natal.

As part of its responsibility to provide guidance tospheres of government Planning, Coordination andSupport and Fire Services directorates, developedguidelines for disaster activation for veld fires, whichwere workshopped to the Provincial Disaster Manage-ment Committee. The process resulted in the develop-ment of a national veld fire response strategy, which isstill being finalised.

The Directorate is responsible for assisting numerousstakeholders, such as Sector Departments, Provincesand Municipalities, to develop disaster managementplans. As part of its efforts to provide this assistance, aguideline on the integration of disaster managementplans into municipal IDPs was developed followed by aguide on how to develop disaster management plans.These efforts resulted in the submission of 16 disastermanagement plans to the NDMC at different levels.

3.2.2 Directorate: Capacity Building and Development

The Directorate comprises a Senior Manager, two Managers,a Deputy Manager and an Administration Officer. It is primarily responsible for the implementation of Enabler 2of the National Disaster Management Framework of 2005(NDMF) which aims at promoting a culture of risk avoidanceamong stakeholders by capacitating all role players throughintegrated processes of education, training and publicawareness, supported by scientific research. As part of itsmandate, the Directorate is involved with a number ofcommittees and task teams nationally and in the regions.

The Directorate has planned four projects for the financialyear namely:-! The development of the NDRMETF for South Africa.! The management of agreements on education, train-

ing, research, knowledge and information services(Jamba journal and UFS bursary and studentship pro-gramme).

! The roll-out of disaster management advocacy andawareness programmes.




! Alignment of curriculum of identified universities for thecapacitation of disaster management stakeholders.


The NDMC successfully developed the National Disaster Risk Management Education and TrainingFramework.

This Framework calls for an integrated and uniform approach to address education and training across alllearning areas (foundation, integration and executionlevels). It was adopted by national stakeholders throughconsultative workshops and was approved during February and March 2013.

The contract with University of the Free State on themanagement of the NDMC Bursary and Studentshipprogramme was successfully implemented.

This project aims at contributing to skills developmentwithin the disaster risk management fraternity by takingstudents through a comprehensive learnership andMaster’s Degree programme in Disaster Management.Full time students are placed as interns at various government departments, non-governmental organi-zations as well as private organizations involved in disaster related issues in South Africa, for the purposesof enhancing their knowledge and skills in DisasterManagement. One of the outputs of this programme isto support the publication of research projects that arecritical in informing policy decisions.

In 2012 academic year, 23 new first and second year students were funded, and the beginning of 2013 sawa total of 30 students being funded through the programme. This means that a total number of 53 students benefited in 2012/13 financial year.

The budget allocation for the project has been expanded and monitoring reports submitted and approved by DCoG management. It can be confidentlystated that the bursary is making a positive impact on skills development in the disaster risk reduction fraternity and contributes to career-pathing for the beneficiaries.

The Jamba journal on disaster risk studies is an academic journal administered through a contract withthe African Centre for Disaster Studies of the Universityof North West. This is a peer-reviewed journal focusing

on the issue of disaster risk reduction with the aim of providing for issues specifically relatedto disaster risk reduction on the African continent.

Following its accreditation by the Department of Higher Education and Training duringJanuary 2012, the journal administration was placed under the AOSIS open journal systemto enhance its quality and facilitate publication of articles. As a year end product, volume4.1 of the journal was published in February 2013.

Design and roll-out of public awareness programmes for disaster management capacity building were successfully implemented.

The following documents were adopted and implemented to guide capacity building pro-grammes inclusive of advocacy and awareness programmes:! The establishment of a National Capacity Building Coordinating Forum (NCBCF);! The design and adoption of the National Capacity Building action Plan;! The design and adoption of the National Capacity Building Support Strategy; and! The design and adoption of the National Capacity Building Monitoring and Evaluation

Framework.

The strategies were successfully implemented. The project was also enhanced by the successful commemoration of the International Day for Disaster Reduction (IDDR) on 12October 2012. The commemoration took the shape of a symposium hosted by the City ofTshwane under the auspices of the Gauteng Provincial Disaster Management Centre. Thetheme for the 2012 commemoration was: “Women and Girls are Powerful Agents ofChange.” This theme noted the government’s commitment to the disaster managementfunction, in particular with regard to empowering women and children to be part of themainstream economy, as well as playing an active role in building community disaster resilience.

“Alignment of curriculum of identified institutions for the capacitation of disasterrisk reduction and management stakeholders”

This project is aimed at strengthening alignment between academic institutions programmes and the market needs, to build capacity, to create awareness on planningand disaster management issues, to establish and roll-out research programmes, tostrengthen knowledge management services, especially information and advisory servicesand most importantly, to support the implementation of education and training programmes across the country in order to ensure the building of capacity for disaster riskmanagement issues nationally.

The NDMC in collaboration with its provincial and municipal counterparts supported anumber of academic institutions to integrate DRM in their courses or curriculum. The specific support the NDMC provided to these institutions was to participate in the workshops to unpack the modules and their content across all qualification programmes.

Engagements on the development of new disaster management programmes took placewith the Durban University of Technology, Stenden South Africa and the University ofVenda. Engagements on the alignment of the existing programs and curriculum took placewith the University of KwaZulu-Natal and the University of Limpopo. Engagements on thesupport in terms of existing programmes took place with the University of Witwatersrand,the University of Stellenbosch, the University of the Free State and the University of NorthWest (DRR Knowledge Products).




The success of disaster risk reduction depends on the level of capacity in existence to dealwith the subject. The capacity in question should cover three perspectives: institutional,individual and environmental. The capacity building interventions as outlined above havecontributed greatly to enhancing the implementation of national, regional and interna-tional frameworks on Disaster Risk Reduction. This also had a beneficial effect on commu-nities as their capacity to manage disaster risk is enhanced, thereby enabling them tosafeguard their hard earned services and development gains.

3.3 Chief Directorate: Intelligence, Information and CommunicationSystems

The Chief Directorate comprises an Executive Manager, a Senior Manager, three Managers,three Deputy Managers and an Administrative Assistant. It is composed of two Directorates:Intelligence, Information and Communication Management Systems (IICMS) and Early Warningand Capability Management Systems.

Purpose

The Geographic Information Systems plays a critical role in the development of the NDMC’senhanced national disaster management information system. The system can be seen as anall-encompassing information technology (IT) solution that relates to various aspects of hazardanalysis, vulnerability assessment, contingency planning, reporting systems, as well as earlywarning systems.

3.3.1 Directorate: Intelligence, Information and Communication Management Systems

For 2012/13 the IICS Chief Directorate held workshops and training in the PDMCs and participated in workshops and support visits to provinces in collaboration with the Legislation,Policy and Compliance Management Chief Directorate.

During the year under review, several enhancements were made to the Situation ReportingSystem (SRS). External user training was held in various provinces and disaster managementcentres; planning activities were focused on supporting highly distressed municipalities withthe use of the SRS system.

A profile database on the status of disaster management centres was developed and will soonbe deployed. This will create the capability for the respective disaster management centres tocapture the data online. The scope of the project will focus on monitoring and evaluating thestatus of the disaster management centres in the entire country. Within South Africa, at thenational and provincial levels, it will also identify areas for priority intervention and identifyneeds for capacity building.

The Chief Directorate will facilitate access to data and information for various stakeholders andpartners. In addition the SRS was used during the Orange AFCON soccer tournament to reportincidents. Subsequent to that, a resource database will be built from the SRS data collectedduring the exercise.





In a new and innovative way, the NDMC is the first government entity to implement Exchange Server 2013, which is considered to be the preferred technology of the currenttime by Microsoft South Africa. In addition, it is a major implementation of the convergencemessaging system which will allow the NDMC to play an important role in advancing disaster management in the country.


In the context of the services paramount to disaster management, and as stated earlier inthe report, we interact and collaborate with the internal business and the stakeholders. Inaddition, partnering through robust technology and a variety of channels such as websitesand emails is high. Despite capacity constraints, the roll-out and training on the SRS usagewas a success. Users in the PDMCs make use of the SRS to record disaster incidents withease, and leverage the idea of uniform reporting.

3.3.2 Directorate: Early Warning and Capability Management Systems

A) Major activity: Indicative risk profile – Floods

During the 2012/13 financial year the Directorate embarked on ascertaining national indicative risk in terms of flooding.

In compliance with legislative requirements, the national indicative risk and vulnerabilityprofile finds its credence in the Disaster Management Act, with special reference to Sections17 to 22. In addition, the disaster management framework of 2005 clearly states that thereis a need for the identification of risks in KPA 2 – Disaster Risk Assessment (specifically Sec-tion 2.2: Generate a National Indicative Risk Profile), its utilisation of derived information in KPA 3 – Disaster Risk Reduction and the nature of information and its dissemination inEnabler 1 – Information Management and Communication.

The NDMC Directorate: Early Warnings and Capability Management Systems conducted adesktop study using the GIS as a spatial and statistical analysis tool. The GIS will also be theprimary vehicle for the dissemination of the findings to the NDMC’s primary stakeholders,the disaster management fraternity. In determining risk of disasters, the project used awell-accepted formula for risk in terms of the following equation:-

RISK = HAZARD × (VULNERABILITY/CAPACITY)

In terms of quantifying flood risk, each of the above-mentioned parameters of risk neededto be computed in order to derive the final output. This included a hazard assessment, vulnerability analysis and a capacity assessment at national level. These outputs thenformed the different milestones of the project. Various national and private sector spatialdatasets were procured and used in the computation of each milestone. All data was referenced to the Council for Science and Industrial Research’s (CSIR) Geospatial AnalysisPlatform (GAP), which served as the primary unit of measurement.

A strong emphasis on seasonality of flooding was incorporated, as the project aims to provide stakeholders with seasonal outlooks related to risk every quarter for planning purposes. The scope of the desktop analysis was to provide guidance and a baseline forengagements while attempting to provide greater clarity on the nature of flood hazard inSouth Africa from a spatial point of view.


Map 1: An indication of flood hazard - Summer

Map 2: An indication of flood hazard - Autumn

LowLow-MediumMediumMedium-HighHigh




Map 3: An indication of flood hazard - Winter

Map 4: An indication of flood hazard flood hazard - Spring

Maps 1 to 4 depict the hazard component of risk. The outputs have been derived using variousdatasets related to historical flooding, rainfall and stream flows. The hazard component is calculatedusing a weighted scoring model from various indicators related to frequency, magnitude, likelihoodand predictability.




Map 5: An indication of flood vulnerability

Map 5 illustrates a compounded vulnerability map encompassing social, environmental, economicand technological elements.

Map 6: An indication of flood capacity

Map 6 indicates levels of capacity towards addressing the hazard. This is a collated view encompassingelements of capacity related to institutional and programme capacities as well as physical capacities(resources), people and competencies.





Map 7: An indication of flood risk - Summer

Map 8: An indication of flood risk - Autumn




Map 9: An indication of flood risk - Winter

Map 10: An indication of flood risk - Spring



The first iteration of the Indicative Risk Profile (IRP) yieldedinteresting results (Maps 6 to 10). While it is evident thatthere is a clear seasonal dimension to flood hazard in SouthAfrica these findings are underemphasised by the overwhelming lack of capacity and high vulnerability inparts of the country. In terms of this, the initial determina-tion of the risk component seems ambiguous in nature.

In light of this, the important function of disaster manage-ment should be aimed at reducing risk by instituting interventions in terms of minimising vulnerability andmaximizing capacity.

RISK = HAZARD × (VULNERABILITY/CAPACITY)

The project has succeeded not only in the contribution ofthe determination of risk at a high level but also to validateand reinforce the value that the disaster management fraternity and disaster risk reduction initiatives may providein curbing risk.

Through the sourcing, analysing and modelling of variousdatasets, many potential challenges have been identifiedand plausible solutions going forward have been submit-ted. As stated, the purpose of the GIS desktop analysis wasto provide a starting point and baseline to foster engage-ments around the determination of risk for the array of hazards South Africa faces.

The project is dynamic in nature and requires a seasonalcomponent to be calculated annually. The next step in thisproject is to refine the modelling processes, address identi-fied data and modelling challenges, disseminate findingsand engage stakeholders and specialists in the field offlooding.

The IRP for floods GIS desktop analysis has provided a suitable baseline and the future is the move towards the establishment of a fully consulted and integrated IRP forfloods. It is envisioned that these outputs may contributein guiding planning strategies in the future and assist in focusing microlevel analysis of floods in South Africa.

3.4 Chief Directorate: Monitoring andEvaluation

Introduction

During the 2012/2013 financial year, the Monitoringand Evaluation Chief Directorate was established.This Chief Directorate currently comprises one Executive Manager.



Purpose

The purpose of this new unit is to ensure that theNDMC and other relevant stakeholders move from“opinion-based policy” towards “evidence-based policy” and “evidence-influenced policy”. This ismainly due to the nature of the policy environment,as well as national technical capacity to provide goodquality and trustworthy evidence needed within thedisaster management environment.

3.5 Directorate: Communications

The Communication Directorate was established inSeptember 2012 under the office of the Head of theCentre. It has currently one position, that of a SeniorManager.

Purpose

The Directorate’s aim is the communication of issuesof disasters around the country. The first draft of thenational disaster management centre communica-tion strategy as well as communication guidelinesand protocols in a crisis situation have been devel-oped.

This initiative has encouraged the promotion of disaster interventions through lines of media. The disaster interventions have been communicatedthrough radio and television programmes. Commu-nication presentations have also been given in differ-ent disaster practitioners’ institutions in an effort toencourage the sharing of information amongst thethree spheres of government, as well as other institu-tions.

The Directorate is also expected to establish a com-municators’ forum which will comprise communica-tors from PDMCs. Five provinces have been visited tofind out about their communication challenges andhow communication is achieved in the case of disas-ters. It was found that communication for PDMCs iscarried out by departmental spokespersons, as theirstructures do not have dedicated communicationspeople. However, NDMC communication will attendthe national and provincial government communica-tors’ forums in order to highlight the existence of thisDirectorate, and that information will be shared accordingly.




4.1 Considerations

In order to conduct and quantify a DRR and community-based assessment, the impact (damages) as a function of disaster magnitude needs to be assessed and quantified. Someform of impact must be appropriately incorporated into an assessment of DRR initiatives. Also,it must be quantifiable into monetary values so that the costs and benefits can be comparedfor a disaster occurrence before the implementation of DRR, and for the same disaster occurrence after the implementation of the same DRR initiatives in the same area.

It is difficult to incorporate unquantifiable and non-additive impacts into the quantitative portion of the DRR assessment; however, they are nevertheless considered in the qualitativebenefits of DRR initiatives.

The NDMC is yet to commission a study/research into the impacts of the DRR initiatives in terms of reducing disaster losses and impacts. The results of this study could provide quantitative evidence of the benefits of the DRR initiatives being implemented country-wide.

4.2 NDMC DRR initiatives

In implementing the Disaster Management Act, the NDMC is responsible for the promotionof a culture of risk avoidance amongst all stakeholders by capacitating them through multi-hazard programmes of DRR.

In 2012/13, the NDMC implemented the following:-! The development of the NDMETF.! The management of agreements on education, training, research, knowledge and

information services (i.e. North West University Jamba Journal for Disaster Risk Studies and the UFS Bursary and Studentship Programme).

! The roll-out of disaster management advocacy and awareness programmes.! Alignment of curricula of identified universities for the capacitation of disaster

management stakeholders.! The facilitation of the development of disaster management plans and integration

into municipal integrated development plans.

4.3 Results of the evaluation of DRR initiatives

The implementation of the above-mentioned DRR interventions have had and continue tohave a positive input into the success of the disaster management function. It is worth high-lighting that the level of disaster management capacities in the country has a great bearingon the success of DRR initiatives. The NDMC DRR initiatives implemented in 2012/13 have contributed to building individual, institutional and environmental capacities in all threespheres of government.

The DRR and capacity building initiatives have contributed to enhancing the implementationof international and national frameworks as well as community-based DRR. The capacities ofcommunities to deal with the risks and disasters in their areas have been enhanced and, thus,the communities can better safeguard their livelihoods using the knowledge imparted to them.


Chapter 4: Results of Monitoring, Prevention

and Mitigation Initiatives

Selected initiatives in Provinces

Disaster Awareness Campaigns

KZN Provincial Disaster Management Centre reported that their awareness campaigns were planned and intended to build community awareness on several issues, including thefollowing:" Correct and safe use of generators, gas, candles and paraffin;" Flood awareness;" Thunderstorm and lightning awareness;" Veld fire awareness; and" Informal settlement fire awareness

Other issues that were discussed include the protocols to be implemented when incidents are reported and how to seek assistance from relevant government departments and otherstakeholders in disaster management. It is worth noting that more emphasis was placed onprecautionary measures.

KwaZulu-Natal Disaster Awareness DVD

Where possible, particularly in awareness campaigns organised in community centres, work-shops were opened with the showing of a disaster awareness DVD depicting actual footagefrom incidents that have occurred in this province, in order to highlight the necessity and urgency of dealing with disasters. The aim of the DVD is to sensitise communities and spark discussions regarding the impact of disasters in the Province as well as preventative and mitigation measures that can be taken.

Disaster Mitigation initiatives in Gauteng

Disaster mitigation is the means taken before, or after, a disaster aimed at decreasing or eliminating its impact on communities, the economy, infrastructure and the environment.

The implementation of appropriate and targeted mitigation initiatives can offer cost savingsto communities and government in the event of a disaster. They should be subject to rationalcost/benefit and social investment decisions, with special provision for remote, indigenousand other vulnerable communities.

The following are some of the key prevention and mitigation strategies developed by the Gauteng PDMC during the reporting period:" Acid Mine Drainage

A Team of Experts has been instructed by a Task Team, chaired by the Directors General of Mineral Resources and Water Affairs to advise the Inter-Ministerial Committee (IMC) on acidmine drainage (AMD), comprising the Ministers of Mineral Resources, Water Affairs and Scienceand Technology and the Minister in the Presidency: National Planning Commission.

Within Gauteng Province the Western, Central and Eastern Basins were identified as priorityareas requiring immediate action, because of the lack of adequate measures to manage andcontrol the problems related to AMD, and the urgency of implementing intervention measures.


Chapter 4: Results of Monitoring of Prevention and Mitigation Initiatives

The following risks have been identified with respect to the flooding of the mines in the priorityareas and the subsequent decant of AMD into the environment:

" Risks owing to flooding of the mines# Contamination of shallow groundwater resources required for agricultural use and

human consumption# Geotechnical impacts, such as the flooding of underground infrastructure in areas

where water rises close to urban areas# Increased seismic activity which could have a moderate localised effect on property

and infrastructure

" Risks owing to the decant of AMD into the environment:# Serious negative ecological impacts# Regional impacts on major river systems# Localised flooding in low-lying areas.

A generic approach to the management of these risks has been proposed for implementationin the three priority areas:

" Decant prevention and management: Experience in the Western Basin has shown the severe impacts that can be expected if the mine void is allowed to flood completely anddecant. For this reason it is recommended that the water levels in the basins be held at orbelow the relevant Environmental Critical Levels1 (ECLs) by pumping of water. In the Western Basin this will require pumping to lower the water level that is already at surface.

" Ingress control — reduction of the rate of flooding and the eventual decant volume: Pump-ing and treating water into the future will be a costly exercise. It is therefore necessary toreduce the volume of water to be pumped and treated. The water flooding the mine voidcomes from several sources, including direct recharge by rainfall, groundwater seepinginto the workings, surface streams that lose water to shallow mine workings, open surfaceworkings, seepage from mine residue deposits, and losses from water, sewage andstormwater reticulation systems.

" Ingress control can be achieved by preventing the recharge of the shallow groundwaterabove the mine void by the canalisation of surface streams, the sealing of surface cracksand mine openings and a number of other measures. In some areas it may prove feasibleto abstract clean groundwater from aquifers that feed water into the mine voids, thereby reducing the volume of water that becomes polluted. This will also provide an additionalclean water resource for use in the area.

" The possible losses from water, sewage and storm water systems must also be addressed.

Risk Reduction and Mitigaton activities in the Western Cape

Risk Reduction Interventions

Overstrand water shortage

The Western Cape Disaster Management Centre (WCDMC) is in the process of assisting theOverstrand Local Muncipality in acquiring funding for a waste water re-use plant. The plantwill be used to mitigate the risk of an impending water shortage in the region. The WCDMChas a monitoring and coordinating role to ensure that the necessary intervention is imple-mented to avoid a water shortage in the next three years.


Awareness Campaigns

The Hazard Awareness Campaign is apriority project of the Department ofLocal Government and aims to raiseawareness primarily on fire and floodsafety in the Province, as these aretwo commonly occurring hazards affecting vulnerable people andcommunities.

The campaign aimed to ensure ahigh level of preparedness by com-munities in case of these disasters;educate and inform audiences aboutfire and floods and reach a largernumber of people throughout theprovince.

The Western Cape Provincial DisasterManagement Centre has successfullyreintroduced the Hazard AwarenessCampaign (Fire and Flood Roadshow)and reached over 12 000 learners inrural areas and within vulnerablecommunities. Positive reactions fromteachers, principals and learnersalike, were received, many asking forthe roadshow to come back to theircommunities. There was positivepublicity in all districts; local mediaattended shows and numerous radiointerviews were completed. Further-more, videography was done at eachschool and community. There is aplan to disseminate dvd’s to everyschool.

A successful event with regard toUNISDR: United Nations InternationalDay for Disaster Reduction, was heldin Laingsburg, focusing on womenand girls who are resilient during disasters. A local councilor andwomen support groups were keyspeakers.


Chapter 4: Results of Monitoring of Prevention and Mitigation Initiatives

he NDMC is responsible for classifying and recordingof disasters in line with Section 23 of the Disaster

Management Act.

The following disasters occurred during the 2012/2013financial year:

Eastern Cape:

On 17 October 2012 heavy rains and flooding affectedthe areas of Nelson Mandela Bay Metropolitan munici-pality and Cacadu District municipality in the EasternCape.

The heavy rains resulted in the sudden increase of riverflows, dam levels and flooding of low-lying areas, thusdamaging major infrastructure such as roads, bridges,housing, schools, water and sewerage pump stations.

The magnitude and severity of the occurrence resultedin a provincial state of disaster being declared by theEastern Cape provincial government in terms of Section41 of the Disaster Management Act.

Following the declaration, the province invoked extraor-dinary measures in terms of Section 41(b) and responded to the disaster accordingly. This resulted inan estimated amount of R114 704 500.00 being contributed by the affected municipalities followed by acontribution of R43 574 603 provided by national government for emergency relief.

Western Cape:

On 13–14 July and 8–10 August 2012 heavy rains andflooding affected the areas of Overberg, Cape Winelandsand Eden District municipality in the Western Cape.

The heavy rains resulted in the sudden increase of riverflows, dam levels and flooding of low-lying areas, thusdamaging major infrastructure such as roads, bridges,agricultural land and infrastructure as well as water andsewerage pump stations.

The magnitude and severity of the occurrence resultedin a provincial state of disaster being declared by theWestern Cape provincial government in terms of Section41 of the Disaster Management Act on 26 September2012.


Chapter 5: Disasters Declared, Classified and their Effects

T



Following the declaration, the Province invoked extraordinary measures in terms of Section 41(b) andresponded to the disaster accordingly. This resulted in an estimated amount of R4 302 067.00 beingcontributed by the affected municipalities and sector departments. This was followed by a contribu-tion of R15 405 080.00 by national government.

KwaZulu-Natal:

On 9–11 December 2012, heavy thunderstorms and severe flooding affected the areas of UthukelaDistrict, Ugu District and Ethekwini metropolitan municipality in KwaZulu-Natal.

The thunderstorms resulted in the sudden increase of river flows, rising dam levels and flooding oflow-lying areas, thus damaging major infrastructure such as roads, bridges, water and sewerage pumpstations, as well as houses.

The magnitude and severity of the occurrence resulted in a provincial state of disaster being declaredby the KwaZulu-Natal provincial government in terms of Section 41 of the Disaster Management Acton 06 February 2013.

Following the declaration, the province invoked extraordinary measures in terms of Section 41(b) ofthe Act and responded to the disaster accordingly. This resulted in an estimated amount of R9 561330.00 being contributed by the affected municipalities and sector departments. This was immedi-ately followed by a request for a national contribution of R34 124 030.00, which was allocated in the2013/2014 financial year.

Limpopo:

January 2013

On 16 January 2013 heavy rains in the Lowveld area affected four municipalities in the jurisdiction ofMopani District municipality: Maruleng, BA-Phalaborwa, Greater Tzaneen and Greater Giyane.

Maruleng municipality was the worst affected with major infrastructure such as roads, bridges, housing, schools, clinics and water pump stations being damaged.

Preliminary reports on the incident further revealed the following: ! A total number of 311 households were affected.! 98 people were rescued (airlifted by the South African National Defence Force) and 12 support

personnel were transported.

The magnitude and severity of the occurrence resulted in a local state of disaster being declared bythe Mopani District municipality in terms of Section 55(1) of the Disaster Management Act.

Following the declaration, the municipality invoked extraordinary measures in terms of Section 55(2)and responded to the disaster accordingly. This resulted in an amount of R5 000 000.00 and R2 000000.00 being contributed by the Mopani District municipality and Maruleng local municipality respectively. A national government contribution of R14 200 000, 00 was allocated to the Mopani District municipality. R850 000 was allocated to the provincial Department of Roads and Public Worksfor the temporary repair of an access road in the area.


Flooding in Limpopo (January 2013)

Type of incidence Flooding of Limpopo basin affecting Thohoyandou Area.

Customers affected 42 events were recorded & a total of 288 804 customers hours supply loss was accumulated from 11 to 12 January.

Severity of impact to Eskom Servitudes & lines affected are within the 50 year flood plane

Loss in terms of lives -

Damage to property and other goods

Some power lines were swept away, wooden poles damaged and foundationseroded on medium and low voltage networks

Action taken towards risk reduction

The events were escalated to the Senior Management to keep them updatedwith the status of the network.Customer Services and Communications were engaged to keep customers informed through the Media about the status of our networks and faults.Collaboration with the farming community around Musina played a major supportrole during the events.Eskom’s role as part of the Provincial Disaster Management Centre ensures thatthe event is properly managed

Particular problems experienced in dealing with the disaster

Most of the bridges around Musina and Malamulele areas were washed away.Areas around the Limpopo river were worst hit and technicians couldn’t attendto faults due to inaccessibility, and crocodiles which escaped from the breedingfarm.

January 2013

On 15–28 January 2013, heavy rainfall and severe flooding affected the areas of Vhembe District municipality in Limpopo, causing severe damages to areas in Mutale, Thulamela, Musina andMakhado.

The flooding that occurred resulted in the sudden increase of river flows, rising dam levels and flooding of low-lying areas, thus damaging major infrastructure such as roads, bridges, water pipelinesand sewerage pump stations, as well as houses.

Eskom, a major organ of state also reported on the flooding affecting their infrastructure and operations as follows:

The magnitude and severity of the occurrence resulted in a local state of disaster being declared bythe Vhembe District municipality in terms of Section 55 of the Disaster Management Act on 22 February 2013.

Following the declaration, the district invoked extraordinary measures in terms of Section 55 of theAct and responded to the disaster accordingly. This resulted in an estimated amount of R1 050 991.00 being contributed by the affected municipalities to deal with some of their most critical require-ments. A contribution of R87 661 200.00 was subsequently allocated by national government.

The process of post-disaster verification assessment and making recommendations for post-disasterreconstruction and rehabilitation funding for these four provinces was underway at the end of2012/2013.



Post Disaster Recovery and Rehabilitation for mediumto long-term projects.

The DM Act requires that the NDMC in collaborationwith the province should ensure that all damaged infra-structure is repaired soon after disaster incidents haveoccurred, irrespective of whether a state of disaster hasbeen declared or not. Section 56 of the DM Act still applies. For example Mpumalanga provincial govern-ment and its affected municipalities at the instructionof the Premier (in terms of section 41 of the DM Act)managed to reprioritise capital budgets and the MECfor Finance allocated some funding from the provincialrevenue.

For National funding to be allocated to provinces or municipalities the NDMC has to conduct a formal verification process using Professional Engineers to determine amongst others:! The actual cost of damages in terms of the magni-

tude and severity, the financial capacity of the victims of the disaster and their accessibility to commercial insurance.

! Whether any prevention and mitigation measureswere taken, and if not reasons for the absencethereof.

! Whether the disaster could have been avoided orminimised had prevention measures been taken.For example maintenance of roads, the resilience ofthe buildings. What is currently observed is that it ismainly RDP houses that are affected when disastersoccur. The old houses, clinics and schools whichwere built before the RPD programme are in a bettershape than the newly built ones. Furthermorewhere infrastructure is not well maintained the costof damages is very high e.g. clinics and schools withleaking roofs during heavy rains resulting in ceilingfalling, is due to lack of maintenance.

! The NDMC has a panel of these experts to ensurethat there are no delays in assessing the damagessoon after an application for additional funding issubmitted. A system has been put in place withprovinces to ensure that a team per local municipal-ity or ward is available to assist with the verificationprocess. In some cases provinces and or municipal-ities increase the estimated cost of damages andeven areas that were not affected by the disastersjust to get more funding from national government.


Disasters classified by the NDMC

Following assessments conducted by the NDMC, the following disasters were classified:

Province Areas affected Level of classification

Date

Eastern Cape Cacadu District MunicipalityNelson Mandela Bay Metropolitan Municipality

Provincial 6 November 2012

Western Cape Cape Winelands District MunicipalityEden District Municipality

Provincial 19 November 2012

KwaZulu-Natal Ugu District MunicipalityEthekwini Metropolitan Municipality Uthukela District Municipality

Provincial 31 January 2013

Limpopo Mopani District Municipality Local 30 January 2013

Vhembe District Municipality Local 25 February 2013

Magnitude and severity of disasters classified

Three of the five declarations were classified as provincial state of disasters. Total losses were estimatedat R1 265 870 802.00, with an estimated 1 327 households being affected as follows:

Province Households affected Losses

Eastern Cape 250 R213 421 000.00 (verified) R43 574 603.00 (emergency, verified) R256 995 603.00

Western Cape 170 R193 119 699.00 verified)R15 405 080.00 (emergency, verified) R208 524 779.00

KwaZulu-Natal 5 750 R309 265 636.00 (not verified)

Limpopo January 2013: 311 R72 761 784.00 (verified)R15 050 000.00 (emergency, verified)R87 811 784.00

January 2013: 7 246 R403 273 000.00 (not verified)




Chapter 6: Problems Experienced in Dealing with Disasters and Implement-

ing the Act and the National Disaster Management Framework

he NDMC conducted an audit of the functionality of the centres and the results revealed thatprovinces and municipalities are currently at varying stages of development regarding their

capacity to effectively implement the DM Act and the NDMF. Some provinces, and only a few munic-ipalities, have adequate financial and human resource capacity to execute their mandate whilst othersare still in developmental phases.

Some provinces reported that Disaster Management Centres have been established and are func-tioning at an acceptable level. These include most of the provincial, the metropolitan and some ofthe stronger district disaster management centres who succeeded in securing funding within theirmunicipal or provincial budgets to meet the requirements of the legislation.

Some provinces and municipalities on the other hand have cited inadequate funding for disastermanagement, especially in the municipal budget allocations, as a main contributing factor effectivelyimplementing the requirements of legislation. This can be attributed to disaster management beingperceived as a function only responding to disasters without, understanding its important role in disaster risk reduction and integrated development planning. This perception has a direct impactwhen funding for disaster management is discussed or allocated.

The placement and level of the function of disaster management within the hierarchy of the variousorganisations and entities contribute greatly to its effectiveness. In instances where the Head of theProvincial/District/Local Disaster Management Centre is not part of the management and decisionmaking team of a province or municipality, issues of disaster risk management are often not regardedas a priority within the organisation.

Challenges in implementing the DM Act.

The main areas of challenges hampering the effective functioning of Disaster Management Centresin Provinces and District Municipalities are highlighted in research as follows:! Lack of disaster Risk units or focal points for sectors, leading to lack of clarification on some of the

policies developed by the sectors e.g. when do sectors contribute and for what type of infrastruc-ture before funding applications are submitted to the Treasury Committee?

! Lack of equipment by some centres in dealing with disasters as quickly as possible to minimisethe effects of the disasters e.g. fire engines, appropriate cars.

! Lack of trained and skilled personnel, resulting in delays in submitting the required documenta-tion to the NDMC. In most cases the NDMC has to physically go and assist with the compilationof the report. This also relates to availability of the provincial engineers to assist with the cost estimates so as to reduce the time it takes for the application to be submitted for national contri-bution.

! Lack of political will in some municipalities where decisions on either declaration or reprioritisationare delayed thus delaying, the whole process of responding to the affected communities.

! Lack of involvement of government departments e.g. the provincial departments of Human Settlements, to provide guidance on Emergency housing.

! Discussions are being held with National Treasury to review the delegations for the approval ofimmediate relief funds, and the way that the funds for immediate relief are appropriated.

! Incorrect interpretation of the DM Act, particularly with regards to the perception that a declara-tion means that the NDMC and national government will provide funding for the disasters.

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Chapter 6: Problems Experienced in Dealing with Disasters and Implementing the Act and the National Disaster Management framework

There were common challenges that were raised by some of those disaster management centres thatwere visited. Some of those challenges are as follows:! Disaster management is not prioritised by many municipalities. As a result, they lack funding and

the human and material capacity to do the job.! Sector departments do not participate in local disaster management forums but parachute

projects from the province or national without working with the centres or municipalities concerned.

! Where there is political instability or frequent political changes, disaster management is often affected by those changes, as in some cases benefit from disaster relief support is said to be politi-cised.

! Some of the disaster management centres that comply with the requirements of the Act and theNDMF do not necessarily do better in implementing disaster risk reduction programmes.

Some of the specific challenges experienced are as follows:! Inadequate reporting from some of the PDMCs.! Institutionalisation and mainstreaming of disaster risk reduction within the sector departments.! Misalignment with sectors’ capacity building programmes.! Lack of dedicated capacity for capacity building in some of the PDMCs.! Misaligned budget allocation for DM capacity building.! Workload and lack of specialisation rendering the municipalities unable to prioritise emergen-

cies.

The biggest challenge prohibiting effective use of the SRS by the disaster management centres is ICTinfrastructure and skills shortage as well as problems with retention of suitably qualified staff in therural areas. The lack of adequate budget for ICT is a dominant factor; in response to the gap the IICSChief Directorates have implemented Web-based connectivity to ensure that disaster reporting is asuccess throughout the nine provinces. Comprehensive SRS training and roll-out to the provincesand support visits were also part of capacitating and targeting the distressed municipalities. The purpose of the initiatives was to empower the users in those areas to actively participate in disastermanagement processes, and to enable them to make informed decisions about issues affecting theirwork within their municipalities and communities they serve.

Current Initiatives by the NDMC to Address Challenges

Measures to address the challenges amongst others are as follows:! The NDMC is in the process of reviewing the current DM Act to deal with the gaps on how disasters

should be managed in South Africa.! The current location of the NDMC has been discussed with the Minister and is being attended to

in consultation with the DPSA to deal with the structure of the NDMC. This will ensure that theMinister of COGTA has the necessary powers to deal with the disasters within the country andwithin the SADC region and to meet international standards as required by the United Nations.

! Provinces are being supported by the NDMC to institutionalise the post disaster procedures. ! The NDMC drafted the National Disaster Risk Management Education and Training framework to

guide and provide hands-on support to DM education and training in the country and beyond.! The NDMC is currently forging relationships with academic institutions of higher learning to

ensure the improvement in DM education and training.

The above mentioned measures will ensure that:! Disaster risk reduction is a national, provincial and

local priority with strong institutional basis for implementation.

! Systems are in place to identify, assess and moni-tor disaster risk and enhance early warning.

! Knowledge, innovation and education is used tobuild a culture of safety and resilience at all levels.

! Use knowledge, innovation, and education tobuild a culture of safety and resilience at all levels,so as to reduce the underlying risk factors in communities.

! Disaster preparedness for effective response isstrengthened at all levels.

The NDMC is putting supporting measures in place toenhance the functionality of centres and implemen-tation of plans. The NDMC also developed guidelines,as part of the simplified Integrated DevelopmentPlans for Municipalities, to assist them in incorporatingdisaster management planning into their IntegratedDevelopment Plans.

The expected impact of the intervention is improvingthe effective functioning of Disaster ManagementCentres through targeted support across the spheresof government to meet the requirements of legisla-tion, and which are also responsive to the needs of thecommunity, sustainable development and of effectivegovernance.

Fire Services Challenges

Although the Directorate: Fire Services Coordinationis severely constrained by the capacity at its disposal(one Senior Manager and one Manager), it has embarked on the following initiatives to address thechallenges:-

! Review of FBSA.

The NDMC has identified the review of the FBSAas one of its annual performance plans with thedevelopment of a discussion document on fireservices legislation as the target for the current financial year. The review of this legislation is a crit-ical starting point as it will enable the departmentto introduce and clarify the roles and responsibil-ities of all three spheres of government in the


provision of fire services. This is critical as it will also ensure harmonisation of new legislation withother key Acts that directly impact on fire services, such the National Veld and Forest Fire Act, Disaster Management Act and Municipal Structures Act. This project is well underway and is builtupon the consultative sessions held with key stakeholders in all provinces in the financial year2010/2011.

! Development of a fire services framework

The department is also finalising the development of a national fire services framework that willset out the medium term key performance indicators and objectives which are aimed at guidingand directing the planning and provision of fire services. The NDMC has also consulted all keystakeholders on this framework through nine consultative workshops held in all provinces duringthe financial year 2010/2011. The NDMC held a five-day workshop with identified fire chiefs andother senior personnel from services across the country where the first draft framework was developed. The NDMC is currently refining and fine-tuning this framework, and will be submittingit to the Minister for consideration and publication for public comments in due course.

! The provision of inputs into the Organising Framework for Occupations (OFO)

The NDMC is working with the Local Government Sector Education and Training Authority andother key role players in the process of providing inputs into the OFO. In essence, the OFO is acoded occupational system used by the Department of Higher Education and Training as a keytool for identifying, reporting and monitoring skills demand and supply in the South Africanlabour market. The OFO links industry needs to training interventions and job opportunities. Thiswork driven by the NDMC will go a long way in addressing the fire services qualifications challenges and linking this to a career path for firefighters.

! The provision of targeted support to provinces

The NDMC has identified the fact that provinces are not able to execute their fire services mandate.The support revolves around four key focus areas: fire safety, the improvement of winter season preparedness (veldfire planning, etc.), the development of organisational structures for fire services in provincial government, as well as the establishment and provision of support on intergovernmental structures to coordinate fire services in the respective provinces. Otherprovinces will be supported in the coming financial years.


Chapter 6: Problems Experienced in Dealing with Disasters and Implementing the Act and the National Disaster Management framework


Chapter 7: Recommendations by the National Centre

Investing in Disaster Risk Reduction (DRR)

Advocating for risk reduction to be a priority and pro-actively build theknowledge base and our capacity to adapt to the inevitable impacts ofclimate change, most importantly by enhancing early warning, monitor-ing and disaster management systems. This needs to be reinforced by research, capacity development, and technology development, and torespond to the needs of DRR in the short-term, and integrated resourceand development planning in the medium- and long-term.

Putting measures in place to strengthen preparedness for response andpromote the development of Disaster Management plans across thespheres and sectors of government, to build climate resilience and improve the country’s ability to respond to climate linked disasters. Itshould take into account the potential consequences of changes in climate along the coast, in vulnerable rural and urban communities, particularly considering the increased incidence of extreme weatherevents.

It calls for mechanisms and partnerships to mainstream DRR and ClimateChange Adaptation (CCA) into integrated development planning andstrategies of government and municipalities in an effort to develop hazard-resilient communities and the protection of people from thethreat of disasters. The measures shall also contribute to safeguardingthe natural and economic resources and social wellbeing and livelihoods.

According to Margareta Wahlström, UNISDR Chief and the UN SpecialRepresentative for Disaster Risk Reduction, "Africa's economic growth isbringing opportunities and new investment. It has the highest rate of urbanization in the world. Half of Africa's population will live in cities andtowns by 2050. Investment decisions which are being made now will determine the future of disaster risk across the continent.”

As South Africa, we need to continue our quest to mainstream disasterrisk reduction and to build resilience and reduce vulnerability to disastersespecially within our more vulnerable and poorer communities.

Education, Training and Capacity Building

The United Nations International Strategy for Disaster Reduction suggests that education for disaster reduction and human securityshould not be a once-off affair, but rather a continuing process, offeringindividuals lessons in coping with hazards, not just once but several timesthroughout their lives. Furthermore, education and awareness raising ondisaster risks must respond to society’s changing needs and focus on empowering individuals in their lives.

The findings of the National Education, Training, Research Needs and Resources Analysis (NETaRNRA) (2010) have revealed the gaps that existin the implementation of the DMA and NDMF and the current resourcesavailable to train Disaster Management practitioners as well as to educateand empower learners and the communities they live in.



The National Disaster Management Education and Training Framework,(2013) therefore introduces a paradigm for disaster management education and training which is founded on a uniform, coherent and systematic education and training system for the country, with regionaland international alignment. It introduces mechanisms for ensuring thateducation and training needs are addressed in a uniform manner and inline with the findings of NETaRNRA, and taking into account the nationalrisk dynamics.

The Framework therefore institutes an education and training systemthat is founded on the need to build disaster management capacity inan integrated manner, applying a combination of a bottom-up and top-to-bottom approach. This approach will apply at foundational, inte-gration and execution levels, applying the key sources of learning,namely: education, training, public awareness and research. These meas-ures will be implemented under the institutional framework of an Education and Training Quality Assurer for Disaster Management in SouthAfrica.

Introducing a different organisational form

The need to improve the effectiveness and efficiency of disaster management efforts through the implementation of a different organi-sational form is supported by International case studies which depict thatthe disaster management function is better suited to be administered asan independent component for reasons such as, but not limited to:i. Enabling quick decision-making on disaster management matters.ii. Enabling adequate funding mechanisms for disaster risk reduction,

response, recovery and rehabilitation.iii. Attracting and retaining specialised skills.iv. Enabling quick and decisive action in the face of or pre-empting

disaster incidents.v. Enabling the development of specialised systems around training,

accreditation, and quality assurance.vi. Enabling it to have disaster risk reduction enforcement capacity.

The existing disaster management legislation and comprehensive requirements to implement a coherent, transparent and inclusive policyon disaster management for South Africa as a whole, calls for: i. Customising administrative and operational arrangements to better

suit the disaster management service delivery environment.ii. Improving governance by bringing accountability and decision-

making closer to the point of service delivery.iii. More direct control and influence by the Executive Authority over

disaster management and meeting the needs of our communities.iv. Building an integrated monitoring, reporting and evaluation system

that will enable government to have accurate, quality informationthat can be used to inform decision-making and evidence based policy changes.

7.1 Functionality of the disaster management centres

Support and establishment of functional disaster managementcentres is an ongoing process. There cannot be immediate results,here and now, but the project serves as a continuous effort to improve performance and will doubtless yield some good results in time. Some of the recommendations that can be flaggedare as follows:- ! Partnerships should be formed between the NDMC and the

affected PDMC to deal with implementing an interventionplan for an identified centre.

! The NDMC must form project teams to implement the inter-vention plans developed from support visits for the establish-ment of functional disaster management centres.

! An integrated information management database systemshould be implemented that will have enough space andspeed, and can upload information from all 62 centres.

! A benchmarking and outcome-based database system thatcan generate quarterly reports should be implemented.

7.2 Capacity building! Dedicated capacity (quantity and quality) for capacity building

matters at provincial and municipal levels (districts, metrosand local municipalities).

! Budget allocation for DM capacity building programmes.! Alignment of priorities and plans (national, provincial, munic-

ipal, sectors and disciplines) on DM capacity building programmes.

7.3 Information systems

A key challenge facing the integration of systems to the NDMC isthe lack of enterprise service bus and resource database of the National Disaster Management Information System (NDMIS), andalso the data collection of structured and unstructured data. It isrecommended that the NDMC revisit the technological function-ality of some disaster management centres over and above thesupport visits offered in the past to track and trace progress made.There is a need to improve integration and create cloud comput-ing for email messaging to affected municipalities, like Thabo Mofutsanyana, Uthukela, and Ngaka Modiri Molema, Sekhukhune,to prevent further deterioration and also enforce compliance. Disaster management centres should be engaged on issues ofproper ICT strategic planning that adversely affect disaster report-ing. Of particular concern is the state of some centres without ICTinfrastructure and inefficient technology.





Chapter 8: Progress with the Preparation of the Disaster Management Plans in

terms of Sections 25, 38, 39, 52 and 53 and Strategies by Organs ofState Involved in Disaster Management

he DM Act requires each organ of state to prepare a disaster management plan setting out the roles and

responsibilities in term of the NDMF regarding emergencyresponse and post disaster recovery and rehabilitation. Thisplan must also indicate the capacity that the organ of statehas to fulfil its roles and responsibilities, and outline measures to finance the implementation of disaster management strategies. This plan must form an integral partof its planning and it must be submitted to the NDMC.

Processes and procedures developed to managedisasters

The NDMC in collaboration with the national sector depart-ments and provinces have developed and agreed on the following processes to be followed before, during and aftera disaster has occurred.

Disaster Risk Planning! The development/review and annual submission of

Disaster Management plans to the NDMC. These plansmust be signed-off by the Executives at each sphere ofgovernment.

! The development and submission of Contingency plansannually or seasonally for each summer and winter season, detailing all processes required for risk reduc-tion, response and recovery measures to be put in placeto reduce and mitigate against the effects of impedingor identified hazards that may impact on vulnerablecommunities, livelihood services, infrastructure and theenvironment. The plan should include contact details ofall stakeholders from government, NGOs and other relevant stakeholders.

! The NDMC analyses the plans and develops a nationalconsolidated plan to guide a national DM strategy andprioritisation of implementation measures. The provin-cial and sector plans also form the basis from which response measures can be put in place by national gov-ernment, should a disaster happen as well as provincesthat might need additional capacity from the national government.

! The NDMC has established a National Response and Recovery Technical Task Team, which is constituted of national sector departments that provide essential basicservices, to discuss and improve the level of prepared-ness.

T


Chapter 8: Progress with the Preparation of the Disaster Management Plans in terms of Sections 25, 38, 39, 52 and 53 and Strategies by Organs of State Involved in Disaster Management

Local government plays a crucial role in building resilience through local disaster response but alsoplanning human settlements and urban development; the provision of municipal infrastructure andservices; water and energy demand management; amongst others.

Scope of a Level 1 DM plan! Developing and implementing contingency plans for known priority risks. ! Establishing foundational institutional arrangements for disaster management (10 action

steps).! Developing the capacity to generate a Level 2 disaster management plan.

Scope of a Level 2 DM plan! Establishing processes for comprehensive disaster risk assessments.! Identifying and establishing formal consultative mechanisms for specific priority risk reduction

projects.! Developing a supportive information management system.! Developing emergency communication capabilities.

Stakeholder Status Level of plan

Department of Transport New 1 Department of Agriculture Revised 2 Department of Environmental Affairs New 1 Eskom New 1SAPS Revised 2OR Tambo District municipality New 1 Kopanong Local municipality New 1 Lejweleputswa District municipality New 1 Letsemeng Local municipality New 1 Nala local municipality New 1Naledi local municipality New 1Mohokare local municipality New 1Metsimahlolo local municipality New 1Tswelopele local municipality New 1Xhariep District municipality New 1

Support stakeholder with the development DM plans

Guidelines on the development of DM plans and the integration of DM plans into IDPs were developed and discussed during workshops in at the PDMC for Gauteng, North West, Eastern Cape,Mpumalanga and KwaZulu-Natal respectively

Stakeholder consultation and support rendered by the NDMC resulted in the following DM plansbeing submitted:

Scope of a Level 3 DM plan! Establishing specific institutional arrangements for coordinating and aligning disaster

management plans.! Establishing mechanisms to ensure informed and ongoing disaster risk assessments.! Implementing mechanisms to ensure relevance of disaster management plans and frameworks.

Selected Disaster Risk Reduction initiatives by organs of state

8.1 ESKOM

Disaster Risk Reduction and Preparedness Structures

Eskom has established Provincial Reliability Teams (PRTs) to enhance the collaborative natureof risk awareness and management between its divisions. These PRTs, chaired by the ProvincialDistribution Operating Unit General Manager, ensure a common view of risks facing a givenprovince and of the status of the existing controls and risk treatment plans. The teams provideconsolidated feedback to Eskom’s Management Committee (Operations). The re-alignment ofthese teams to the provinces allows for enhanced integration with the Provincial Disaster Management Centres (PDMCs) and Provincial Joint Operations Centres (ProvJOCs). For thisreason accountability for provincial disaster management oversight has been assigned to theseteams.

Situational Awareness Capability.

The monitoring function that is provided by Eskom’s operational structures (e.g. control rooms,contact centres, media monitoring) is augmented by centralised nerve centres, which providereal-time and near real-time situational awareness (examples include Eskom’s Integrated Generation Control Centre and a newly-established Customer Nerve Centre under Group Customer Services).

Provincial situational awareness structures, called Provincial Nerve Centres (PNC’s) are estab-lished on a temporary basis when large national or regional events are hosted (e.g. the FIFAWorld Cup and Africa Cup of Nations, national elections, the COP17 event). These centres collate and provide information on any electricity-related incidents, or any risk that could impact the provision of supply to the event or facilities related to the event. The informationfrom these structures forms the basis for information provided in real time to the joint nationaland regional structures (i.e. the NatJOC and ProvJOC structures).

Integrated Emergency Response Exercises

A national exercise is undertaken annually with the ERCC and Eskom’s country-wide responsestructures. The exercise undertaken in the reporting period focuses on a critical power systemconstraint scenario.

In addition to this, an unannounced regional exercise is executed annually in each province.

These exercises test the technical response to an incident, as well as the operation of theprovincial command structures (PJCCs). The scenarios used in these exercises test the existingemergency preparedness plans as well as introducing parameters beyond the scope of theseplans. Nine such exercises were executed in the reporting period. An exercise in the North WestProvince was substituted with an evaluation of the response to an actual incident involvingloss of supply to customers including deep level mines. An additional exercise was conductedinvolving a scenario engaging the Apollo HVDC scheme.




Koeberg Nuclear Power Station Exercises

Four Koeberg Nuclear Power Station (KNPS) emergency drills and exercises were held to testemergency response actions of the different organisations involved. A special emergency re-sponse exercise was held to test the KNPS Technical Support Centre interface with the original equipment manufactures and other international organizations. The biennial National NuclearRegulator (NNR) Emergency Response exercise was held on the 5th September 2012. All findings and observations of the National Nuclear Regulator’s report on the exercise were successfully addressed and closed by December 2012.

Disaster Painting

Over-and-above emergency preparedness planning for specific sites (substations, power stations, building facilities). Eskom is engaged in-planning for identified disaster risks, as required by the Act including incidents of a very low likelihood.

Nuclear Disaster Risk Reduction & Readiness

The Koeberg Nuclear Power Station (KNPS) is designed and operated to internationally recognized standards. Furthermore, the National Nuclear Regulator Act and the Disaster Management Act contains provisions which Eskom is required to comply with relating to nuclear emergency preparedness and response. The provisions contained in the National Nuclear Regulator Act are cascaded into requirements addressed in various regulations relatingto safety standards and regulatory practices, records of all persons in nuclear defined areas,public information forums, and financial security. The provisions contained in the Disaster Management Act are cascaded into preparedness and response requirements addressed inthe National Nuclear Disaster Management Plan. The Eskom Standard on Emergency Prepared-ness and Response contains the licensing requirements for the Koeberg Nuclear Power Station,as prescribed by the National Regulator (NNR). These licensing requirements are based on:-! The requirements addressed in the Memorandum of Agreement between Eskom, the

Provincial Government of the Western Cape and the City of Cape Town, are being discussed.! New emergency preparedness and response initiatives recommended by the IAFA are

being reviewed.! The NNR is preparing to fulfill an advisory role of the City of Cape on nuclear emergency

matters during a nuclear or radiological accident.

National Supply Constraint Risk Reduction & Readiness

A national supply constraint would materialise if the available real-time generation capacitydoes not match real-time demand. The System Operator is required, in terms of the Grid Code(System Operations Code) to manage the security of the national power system and ensureadequate emergency planning is in place. To support this planning, NERSA has mandated thata Code of Practice for Emergency Load Reduction (NRS 048-9) be implemented by all licences(Eskom and the municipalities). Eskom played a key role in developing the Code, and has beenengaging with the electricity supply industry on the implementation of the Code. Readinessis being tracked and continual improvements made. National exercises related to a supply constraint were conducted by Eskom in March 2011 and May 2012. Ad-hoc control-room exercises are also executed – at times in collaboration with municipalities that shed their ownload.


The performance of Eskom’s generation fleet is an important factor in avoiding a national supply constraint. Eskom has during the reporting period initiated a revised maintenance philosophy which aims at securing the sustainable performance of its plant in the context of current generation capacity constraint. Further options continue to be evaluated and imple-mented to respond to supply constraints. During the reporting period Eskom implementedseveral demand-side initiatives as risk reduction measures – including the buy-back of powerfrom large customers and the implementation of a national awareness initiative on the needfor energy savings (the 49m programme). More recently public awareness campaign has alsobeen implemented to engage the country in reducing demand during winter, when demandpeaks between 5 and 9pm in the evening. A team has been established under the Office of the Chief Executive to oversee an integrated response to balancing the management ofgeneration maintenance, and the system capacity constraint.

Societal resilience in the event of a national supply constraint is to some degree addressedthrough provisions in the National Code of Practice (NRS 048-9). These provision include themanner in which critical loads are addressed (hospitals, airports, water suppliers, fuel lines,etc.). Eskom is engaging with the NDMC’S programme on targeted disaster planning to extendthis focus on societal resilience.

8.2 TELKOM

Telkom also reported on initiatives related to projects undertaken, public awareness pro-grammes and how communities were involved as follows:! Various articles were released in E-News, introducing the internal BCM course, Business

Continuity in Telkom and the implementation plan.! BCM Awareness meetings with various Managing and Group Executives.! Telkom Subsidiaries are included to comply with the DM Act.! Held an integrated exercise with NKP JPC members at Hartbeesthoek .



9.1 Disaster Management Centres across the spheres of government

To give effect to legislation, there are 62 Disaster Management Centres across the spheres of government including the National Disaster Management Centre (NDMC) which is the custodian for disaster management in South Africa. The NDMC is the co-ordinating body forthe implementation of cross-sectoral disaster management activities.

The NDMC is established as a Presidential assigned function to a Cabinet Member. At this pointthe Minister of Cooperative Governance and Traditional Affairs is duly assigned to handle matters of disaster management.

The DMA (section 10) requires the Minister to appoint a Head of the Disaster ManagementCentre.

The DMA prescribes the objective of the NDMC which is to promote an integrated and coor-dinated system of disaster management, with special emphasis on prevention and mitigationby national, provincial and municipal organs of state, statutory functionaries, other role playersinvolved in disaster management and communities (section 9).

The NDMC is responsible for establishing effective institutional arrangements for the development and approval of integrated disaster management policy. The aim of the NDMCis also to function as a conduit and repository of information relating to disasters, hazards, vul-nerability and disaster risk.

The NDMC must at all times maintain an unbiased overview, and must have the authority,backed by political will, to fulfil its objectives and responsibilities with regard to the improve-ment of disaster management planning, preparedness, and response and recovery across the various organs of state and sectoral role players with individual responsibilities for disastermanagement. The efficiency with which the NDMC will be able to perform these functions andcoordinate national disaster response, will depend on its ability to fast-track decision making,and minimise red tape.

Each Province, each District Municipality and each Metropolitan Municipality is compelled toestablish a Disaster Management Centre in terms of the Disaster Management Act, 2002.

There is currently no standardised approach in terms of the placement and level of functioningof disaster management within an organisation. Disaster Management Units function withinvarious departments in provinces and municipalities. Some are located within departmentsresponsible for local government and human settlement matters in provinces. In municipali-ties, some centres are located in the office of the Municipal Manager; others are within Community Safety, Community Services or Emergency Services Departments. The function isoften on a low organisational level which limits access to swift decision-making.

The DMA gives the NDMC (and provincial and municipal disaster management centres) thenecessary legislative authority to compel organs of state and other role players to make relevant information available. However, exercising such authority could prove extremely problematic from within a national, provincial or municipal line function department whichhas a sectoral bias.

If the NDMC and provincial and municipal disaster management centres are to achieve theirobjectives, they should be granted the necessary stature and must be able to operate in environments that are robust and seamless.


Chapter 9: National Coordination



As is evident in the report, this objective can only be achieved through the institution of coor-dination mechanisms within the national, provincial and municipal spheres of government.For effective sector and disciplinary risk reduction, internal coordination mechanisms are inplace. The section hereunder outlines the coordination mechanisms.

9.2 Intergovernmental structures in terms of legislation

The DMA provides for the establishment of the following intergovernmental structures:

9.2.1 Intergovernmental Committee on Disaster Management (ICDM)

The ICDM must be established by the President and include representatives from allthree spheres of government and is chaired by the Cabinet member designated bythe President to administer the Act. The ICDM must advise and make recommenda-tions to Cabinet on issues of disaster management. This structure has not been functioning and it still needs to be established formally through a President’s Minute.

9.2.2 The National Disaster Management Advisory Forum(NDMAF)

The NDMAF is a technical forum in which national, provincial and local governmentand other disaster management role players consult one another and co-ordinate theiractions on matters relating to disaster management. The Structure is also replicatedat provincial (PDMAF) and Municipal level (MDMAF).

The NDMAF also serves as a National Focal Point for Disaster Risk Reduction (DRR) inSouth Africa for purposes of the Hyogo Framework of Action to serve as a platform fordiscussing cross cutting issues of DRR and management. Technical Task Teams are alsoestablished to deal with specific cross-sectoral disaster management issues.

The Chairperson of the NDMAF is the Head of the NDMC. The NDMAF meets on a quarterly basis to discuss issues of disaster management which have national inter-est.

9.3 Disaster Management function within sector departments

Sections 25 and 38 of the Disaster Management Act, 2002 (Act no 57 of 2002) require nationaland provincial organs of state to:“a) Prepare a disaster management plan setting out -

i) the way in which the concept and principles of disaster management are to be appliedin its functional area;

ii) its role and responsibilities in terms of the national or provincial disaster managementframework;

iii) its role and responsibilities regarding emergency response and post disaster recoveryand rehabilitation;

iv) its capacity to fulfil its role and responsibilities;v) particulars of its disaster management strategies; andvi) contingency strategies and emergency procedures in the event of a disaster, including

measures to finance these strategies.”


The above provisions presuppose that National departments and provinces need to establish an adequate level of disaster management capacity inorder to be able to execute their disaster manage-ment functions in terms of legislation and to meet theneeds of our communities.

9.4 The national, provincial and municipal disaster management centres

The function of disaster management in South Africa is carried out by the following 62 disaster management centres:-! The National Disaster Management Centre: 1! The Provincial Disaster Management Centres: 9! Metropolitan Disaster Management Centres: 8! District Disaster Management Centres: 44

The NDMC is a branch in the National Department of Coop-erative Governance and all the PDMCs are attached to theprovincial departments of local government. In certainprovinces, the provincial local departments are combinedwith Traditional Affairs and Human Settlement and in otherprovinces the Department of Human Settlement is a stand-alone department.

In terms of coordination, the NDMC primarily coordinates thePDMCs and the PDMCs coordinate the district disaster management centres under their jurisdiction. This coordina-tion is primarily about complying with the requirements ofthe Disaster Management Act and the NDMF. All the centresmust comply with and implement the function of disastermanagement as specified in the Act and in the NDMF; includ-ing DRR, response, recovery and rehabilitation. This meansthey must have:! Dedicated capacity sufficient to implement the function.! Dedicated building and/or offices from which to imple-

ment the function.! An ICT system that allows the centre to function properly

and to communicate with all municipalities and othercentres.

! An electronic documentation system to keep records ofdisaster occurrences and expenditure on disaster projects.

! The ability to develop and map their own indicative riskprofile and early warning systems.

! Proper and approved disaster management plans and risk assessments that are imple-mented and periodically evaluated.

! Functional advisory forums that can also engage with sector departments and communi-ties.

! Awareness, training and information and programmes on capacity building in general.! Functional project steering committees, especially for declared disaster projects.! Operation centres for call taking and dispatching.! Standard operational procedures for all identified disaster occurrences in their risk assess-

ment.! Functional joint operational centres (JOCs).! Participation in simulation exercises pertaining to events like evacuation, crowd control,

etc. ! Proper reporting systems

The centres are regularly assessed on these aspects so that the NDMC is in an aggregate stateof readiness in terms of the capability of each centre to carry out the disaster managementfunction, at all levels of operation.

9.5 The National, Provincial and Municipal Disaster Management Advisory Forums (DMAFs)

One of the important structures of coordinating the disaster management function is throughthe establishment of the advisory forums across the spheres of government. Although it is notcompulsory for the municipal sphere of government to establish this kind of forum, it is en-couraged, and many municipalities have since established disaster management advisory fo-rums.

On a quarterly basis, these forums bring together relevant stakeholders, such as; sector departments, SANDF, SAPS, business entities, non-governmental organisations like the Inter-national Red Cross, South African Weather Service, Geoscience, non-profit organisations, mobile communications, private companies, and other specialists.

The purpose of this forum is, inter alia, to:-! Share information on high-level disaster-related matters pertaining to safety and security

of people.! Bring to the attention of all stakeholders all matters that need to be addressed, such as

those matters that pose threats to communities, for example dolomite, outbreaks of communicable diseases, extreme weather conditions, quality of water management, special events, seasonal changes, awareness cases, etc.

! The forum also facilitates joint operation and sharing of resources on matters that requiremany stakeholders.




A business case for the functioning of the TTTs was developed; some of the TTTs functioned well andsome were not functioning adequately. As a result,the NDMC is proposing to review their function during the 2013/14 financial year.

All 15 TTTs had a standing chairperson and Terms ofReference. The purpose of these TTTs was, inter alia,to assist in coordinating all matters that were broughtto the attention of the NDMAF and report to theNDMAF on what was assigned to them.

9.6.1 Challenges for the TTTs

The TTTS were confronted with a number of challenges:-" The disaster management function in

many of the sector departments was notorganised to the level that was expected.

" The Disaster Management Act did notspecify any kind of formal arrangementbetween the NDMC and the sector departments or line function depart-ments.

Agricultural Hazards Social Relief

Capacity Development and Research

Funding

Communication and Information

Geological Hazards

Early Warnings International Relations and Cooperation

Energy Water Related Hazards

Environmental Emergency Fire (a) Building Environment

(b) Veld Fires

Public Health Transport

Response and Recovery Coordination

9.6 The NDMAF Technical Task Teams(TTTs)

The NDMAF has established fifteen disaster manage-ment TTTs, namely:-

" There were no dedicated people nor the capacity to perform the disaster manage-ment function in many of the line function departments. Even in departmentswhere there was a focal point person, the function was not properly organised.

" Many of the TTTs overlapped in terms of the activities of the line function depart-ments. As a result, line function departments had to split in different TTTs, whichwas not possible because of capacity limits in those departments.

9.7. Event-based forums

The coordination of disaster management efforts revolves around the need to continually manage risk as it pertains to ad hoc events organised around specialised services. Such eventsinclude sporting events, elections and state funerals.

During January 2013, South Africa successfully hosted the Orange African Cup of Nations event.(AFCON)

The Chairperson of the National Joint Operational and Intelligence Structure (NATJOINTS),Lieutenant General Elias Mawela congratulated all member departments on the role whichthey played in ensuring that the AFCON 2013 took place in a peaceful, safe and secure environment. “The inter-departmental cooperation was excellent, as it was during the 2010FIFA World Cup and many other major events, and the spirit of camaraderie betweenNATJOINTS personnel and the public was motivating to our busy members", he added. "Therewas also constant communication between the NATJOINTS and other AFCON provinces whichwere on full alert due to bad weather, especially the Mpumalanga PROVJOINTS, which had itshands full with disaster management operations".

One of the key stakeholders who also contributed to the success of the event, was Eskom, whoundertook extensive preparations for this event. They reported as follows: “Learning developedfrom the FIFA World Cup event was retained – including the establishment of local situationalawareness centres (Provincial Nerve Centres) for the duration of these events. The ProvincialResilience Teams, in hosting Provinces undertook detailed risk assessments of the supply tothe venues and implemented treatment actions to address these risks. The National NerveCentre distributed regular updates on the status of the system and issues related to the eventto Eskom’s emergency response structures and senior staff.

9.7.1 National Joint Operational Centre (NATJOC) structure

The NATJOC is a grouping of senior representatives (LINE FUNCTION EXPERTS) fromrelevant government departments, and other required role players, who are tasked tomanage designated or unexpected events/situations in the safety and security sphere,in a coordinated manner from a centralised venue, on behalf of the Justice, Crime Prevention and Security (JCPS) Cluster of Government.

The NATJOC is a coordination structure where joint decision-making is achievedthrough consensus. It allows for innovative inter-agency best practices and solutions

In terms of this operation, disaster management must:-" Participate in joint decision-making" Chair the meeting during non-security related disasters" Organise disaster management across the three spheres of government.



" Compile Standard Operation Procedures (SOPs) for all eventualities." Submit operation plans with contact numbers." Inform the NATJOC on all disaster-related incidents, threats and occurrences

NATJOC Functions" Provide real-time situational awareness of entire country to safety and security

issues" Manage unexpected events within safety and security sphere and provide addi-

tional interdepartmental support and resources, where required and requested byPROVJOC’s

" Provide assistance and support for responses to natural disasters such as earth-quakes and floods, upon request, by National Disaster Management Centre

" Monitor all activities in border environment (ports and line)" Operational conduit for JCPS Cluster and NATJOINTS

# Issuing directives# Monitoring/analysing implementation# Assimilating feedback# Reporting

9.7.2 The National Joint Operational and Intelligence Structure (NATJOINTS)

The NATJOINTS was established as the operational arm of the Justice, Crime Preventionand Security Cluster following a Cabinet decision. The mandate of the NATJOINTS isto plan, implement, execute and monitor all inter-departmental and cross-provincialoperations affecting safety, security and stability in our country.

The NATJOINTS is a joint structure comprising the South African Police Service, theSouth African National Defence Force, the National Disaster Management Centre, thevarious Metro Police departments, and the intelligence community and representa-tives of various other relevant government departments,

As with other special events successfully hosted over the past decade and longer, allsecurity-related operations that took place in South Africa during the reporting period,such as AFCON 2013 and the BRICS Summit, were coordinated through the NationalJoint Operational and Intelligence Structure (NATJOINTS), together with its relevantprovincial counterparts.

South Africa, through the dedicated efforts of all departments operating as theNATJOINTS, has an internationally-recognised reputation as leaders in major event security and the operations of 2012/13 undoubtedly reinforced our reputation.

9.7.3 Development coordination and integration

The success of the disaster risk reduction function depends on the ability to main-stream the function in the development and service delivery programme of sectorsand disciplines.





Chapter 10: The Annual Reporting Process

10.1 Challenges Experienced in Compiling the 2012/2013 NDMC AnnualReport! It has been generally noted that municipalities, provinces and sector departments were

used to provide inputs on the Annual Report not according to the relevant sections: 25,36 and 50.

! Though District and Metropolitan municipalities together with the PDMCs were submittinginputs to the NDMC, it was noted that the reports had not been discussed at the relevantforums such as: Provincial Legislature, Municipal Council, etc.

! Whilst the NDMC has made every effort to provide a holistic picture of the country’s disastermanagement problem, the fact that some of the Sector Departments and other organs of state did not submit their reports limited the ability of the NDMC to present a compre-hensive state of disaster management in the country.

! While the NDMC endeavours to provide the total picture on the status of disaster manage-ment in the country, the inaccuracy and inconsistency of the data in some of the reportshas been an issue of concern in this particular process.

! Generally, there has been a poor response on the submission of Annual Reports by someof the NDMC stakeholders.

! The capacity to champion the Annual Reporting process at the NDMC is severely limited.

10.2 Recommendations! The NDMC has instituted a process to encourage municipalities, provinces and sector

departments to report to their respective principals whilst also submitting a copy of thereport to the NDMC. (Reporting to the relevant oversight structures enhances accounta-bility and ownership of the disaster management function).

! High level engagements are required to obtain a buy-in from other sector departments toprovide data that will enable comprehensive reporting by the NDMC.

! Adequate capacity at the NDMC to champion the Annual Reporting process is required.

In addition to the above recommendations, an overall guidance towards the Annual Reportingprocess is summarized below.

10.3 Annual Reporting Guidelines

It is expected that all provinces and municipalities and other organs of state involved in disastermanagement use the annual report guidelines to compile and submit their annual reports, ontime, to the respective structures.

The annual report of the province must be submitted to the Member of the Executive Council(MEC) responsible for the provincial government in which the centre is located. The provincemust at the same time submit a copy of that report to the NDMC and to each Municipal DisasterManagement Centre (MDMC) in the province.

The annual report of the municipality must be submitted to the municipal council. The municipal disaster management centre must at the same time submit a copy of the report tothe NDMC and the disaster management centre of the province concerned.


Chapter 1: The Annual Reporting Process

Organs of state involved in disaster management in the respective spheres of governmentmust submit a report on progress, with the preparation and regular updating of its disastermanagement plans and strategies, to the disaster management centre of the sphere of government in which it operates.

This circular will assist provinces and municipalities to achieve quality and relevant reporting,reduce duplication of reports, enhance governance and promote accountability.

The annual report guidelines can be downloaded from the NDMC website(www.ndmc.gov.za).

10.4 Summary of the annual reporting guidelines

Legislative requirements (Act No. 57 of 2002)

Institution Legislative requirement

Executive structure

Copies Date of Submission

NDMC Section 24 " Minister" Parliament

" PDMCs" MDMCs

31 July 2013

PDMC Section 36 " MEC" MEC to Provincial

Legislature within 30 days

" NDMC" Each MDMC

in the province

30 June 2013

MDMC Section 50 Municipal council " NDMC" Relevant province" Each local

municipality

31 May 201330 October 2013

Organs of state involved in disaster management

Progress in terms of Sections 25, 38,39, 52 & 53 on DM plans and on any occurrence leading to the declaration of a disaster

Part of NDMC, PDMCand MDMC reports

" NDMC" PDMC" MDMC

31 May 2013


Notes

Notes

Notes

Notes

National Disaster Management Centre62

Documents

Annual Report - Cooperative Governance and … · Annual Report 2012/2013 vii Overview by the Accounting O#cer ncreasingly, nations and communities are appreciating the importance