Introduction: A policy framework for disaster risk ...

1 Introduction: A policy framework for disaster risk management in South Africa South Africa's disaster risk management context South Africa faces increasing levels of disaster risk. It is exposed to a wide range of weather hazards, including drought, cyclones and severe storms that can trigger widespread hardship and devastation. In addition, South Africa's extensive coastline and proximity to shipping routes present numerous marine and coastal threats. Similarly, our shared borders with six southern African neighbours present both natural and human-induced cross-boundary risks, as well as humanitarian assistance obligations in times of emergency.

2 In addition to these natural and human-induced threats and despite ongoing progress to extend essential services to poor urban and rural communities, large numbers of people live in conditions of chronic disaster vulnerability in underserved, ecologically fragile or mar- ginal areas where they face recurrent natural and other threats that range from drought to repeated informal settlement fires. Severe floods in Cape Town's historically disadvantaged Cape Flats in June 1994 profiled the urgency for legislative reform in the field of disaster risk management, stimulating a consul- tative process which resulted in Green and White Papers on disaster Management.

3 These important discussion and policy documents afforded opportunity for consultation with mul- tiple stakeholder groups and provided the platform for development of draft legislation in 2000 that was consistent with emerging international trends in disaster risk reduction. Such sustained, committed and concerted efforts with regard to disaster risk management reform by the government and a wide range of stakeholders were reflected in the promulga- tion of the disaster Management Act, 2002 (Act No. 57 of 2002) on 15 January 2003.

4 The Act provides for: an integrated and co-ordinated disaster risk management policy that focuses on preventing or reducing the risk of disasters, mitigating the severity of disasters, preparedness, rapid and effective response to disasters, and post- disaster recovery the establishment of national, provincial and municipal disaster management centres disaster risk management volunteers matters relating to these issues. The Act recognises the wide-ranging opportunities in South Africa to avoid and reduce dis- aster losses through the concerted energies and efforts of all spheres of government, civil society and the private sector.

5 However, it also acknowledges the crucial need for uniformity in the approach taken by such a diversity of role players and partners. The national disaster management framework is the legal instrument specified by the Act to address such needs for consistency across multiple interest groups, by providing a coherent, transparent and inclusive policy on disaster management appropriate for the Republic as a whole' (section 7(1)). 1. In this context, the national disaster management framework recognises a diversity of risks and disasters that occur in southern Africa, and gives priority to developmental measures that reduce the vulnerability of disaster -prone areas, communities and households.

6 Also, in keep- ing with international best practice, the national disaster management framework places explicit emphasis on the disaster risk reduction concepts of disaster prevention and mitiga- tion as the core principles to guide disaster risk management in South Africa. The national disaster management framework also informs the subsequent development of provincial and municipal disaster management frameworks and plans, which are required to guide action in all spheres of government. Structure of the national disaster management framework document The national disaster management framework comprises four key performance areas (KPAs).

7 And three supportive enablers required to achieve the objectives set out in the KPAs. The KPAs and enablers are informed by specified objectives and, as required by the Act, key per- formance indicators (KPIs) to guide and monitor progress. In addition, each KPA and enabler concludes with a list of guidelines that will be disseminated by the NDMC to support the implementation of the framework in all three spheres of government. Key performance area 1 focuses on establishing the necessary institutional arrangements for implementing disaster risk management within the national, provincial and municipal spheres of government.

8 It specifically addresses the application of the principle of co-opera- tive governance for the purpose of disaster risk management. It also emphasises the involvement of all stakeholders in strengthening the capabilities of national, provincial and municipal organs of state to reduce the likelihood and severity of disasters. KPA 1 describes processes and mechanisms for establishing co-operative arrangements with international role players and countries within southern Africa. Key performance area 2 addresses the need for disaster risk assessment and monitoring to set priorities, guide risk reduction action and monitor the effectiveness of our efforts.

9 Although A note on terminology disaster risk management The term disaster risk management' refers to integrated multisectoral and multidisciplinary administrative, organi- sational and operational planning processes and capacities aimed at lessening the impacts of natural hazards and related environmental, technological and biological disasters. This broad definition encompasses the definition of disaster management' as it is used in the disaster Management Act, 2002 (Act No. 57 of 2002). However, where appropriate, the more updated term disaster risk management' is preferred in this framework because it is consistent with the use of the term internationally.

10 disaster risk reduction Similarly, the preferred term disaster risk reduction' is used throughout this framework . It refers to all the elements that are necessary to minimise vulnerabilities and disaster risks throughout a society. It includes the core risk reduction principles of prevention, mitigation and preparedness. 2. South Africa faces many different types of risk, disaster risk specifically refers to the likeli- hood of harm or loss due to the action of hazards or other external threats on vulnerable structures, services, areas, communities and households.