Disaster Management Plan

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CITY OF TSHWANE

Disaster Management

Plan

Updated Level 1

Disaster Management Centre 2011

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ACCRONYMS

CBO Community based organisation

CoT City of Tshwane

CoT DRMF City of Tshwane Disaster Risk Management Framework DMA Disaster Management Act No. 57 of 2002.

DMIS Disaster Management Information System DOC Disaster Operations Centre

DRA Disaster Risk Assessment DRR Disaster Risk Reduction

DRMAF Disaster Risk Management Advisory Forum DRMP Disaster Risk Management Plan

EIA Environmental Impact Assessment FOG Field Operations Guide

FPA Fire Protection Association

GIS Geographical Information Systems

GM General Manager

GP PDMC Gauteng Province Provincial Disaster Management Centre GPDMF Gauteng Province Provincial Disaster Management Framework GPS Geographical Positioning System

IDP Integrated Development Plan IRCS International Red Cross Society JOC Joint Operations Centre

KPA Key Performance Area

MDG Millennium Development Goals MDMC Municipal Disaster Management Centre

MFMA Municipal Financial Management Act No. 56 of 2003 MMC Member of the Mayoral Committee

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NDMC National Disaster Management Centre NDMF National Disaster Management Framework NGO Non-governmental organisation

PDMC Provincial Disaster Management Centre PDMF Provincial Disaster Risk Management Framework PFMA Public Financial Management Act No. 1 of 1999 SED Strategic Executive Director

SOP Standard Operating Procedure

VOC Venue Operations Centre

DEFINITIONS

Disaster is a progressive or sudden widespread or localized, natural or human-caused occurrence which causes or threatens to cause death or injury, damage to property, infrastructure or environment, disruption of life of a community and its magnitude exceeds the ability of those affected to cope using only their own resources.

Disaster management is a continuous and integrated multisectoral and multidisciplinary process of planning and implementation of measures aimed at disaster prevention, mitigation, preparedness, response, recovery and rehabilitation.

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Prevention means activities to provide outright avoidance of the adverse impact of hazards and means to minimize related environmental, technological and biological disasters.

Mitigation means structural and non-structural measures undertaken to limit the adverse impact of natural hazards, environmental degradation and technological hazards.

Preparedness means activities and measures taken in advance to ensure effective response to the impact of hazards, including the issuance of timely and effective early warnings and the temporary evacuation of people and property from threatened locations.

Response means measures taken during or immediately after an incident or a disaster in order to bring relief to affected communities or individuals

Recovery means efforts, including development aimed at creating a situation where-

(a) Normality in conditions caused by a disaster is restored; (b) The effects of a disaster are mitigated; or

(c) Circumstances are created that will reduce the risk of a similar disaster occurring

Capacity is a combination of all the strengths and resources available within a community, society or organization that can reduce the level of risk, or the effects of a disaster.

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Hazard is a potentially damaging physical event, phenomenon or human activity that may cause the loss of life or injury, property damage, social and economic disruption or environmental degradation.

Disaster risk reduction is the conceptual framework of elements considered with the possibilities to minimize vulnerabilities and disaster risks throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) the adverse impacts of hazards, within the broad context of sustainable development.

Environmental Impact Assessments are studies undertaken in order to assess the effect on a specified environment of the introduction of any new factor, which may upset the current ecological balance.

Environmental degradation is the reduction of the capacity of the environment to meet social and ecological objectives, and needs.

Geographic Information System is an analysis that combines relational databases with spatial interpretation and outputs often in form of maps. A more elaborate definition is that of computer programmes for capturing, storing, checking, integrating, analysing and displaying data about the earth that is spatially referenced.

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EXECUTIVE SUMMARY

Disaster risk management has become the major challenge the entire world is faced with currently owing to the ever growing population, climate change, and the ever changing environment in general. Natural and man-made disasters result in economic as well as environmental losses which places a need for systematic approach to management of risks.

The Constitution of the Republic of South Africa (Act 108 of 1996) places a legal obligation on the Government of South Africa to ensure the health (personal and environment) and safety of its citizens. In terms of section 41(1)(b) of the Constitution, all spheres of Government are required to “secure the well-being of the people of the Republic”. Section 152(1)(d) also requires that local government “ensure a safe and healthy environment”. In the light of the above, and the established understanding of disaster management, the primary responsibility for disaster risk management in South Africa rests with Government.

Section 26(g) of the Municipal Systems Act 32 of 2000 as well as sections 52 and 53 of the Disaster Management Act 57 of 2002 compels each municipal entity to develop a disaster risk management plan as part of and an integrated part of their Integrated Development Plans. This plan establishes the arrangements for disaster risk management within the City of Tshwane (CoT) and has been prepared in accordance with the requirements of the Disaster Management Act, 57 of 2002 (the Act) and section 26(g) of the Municipal Systems Act, 2000.

A Level 1 Disaster Risk Management Plan applies to national or provincial organs of state or municipal entities that have not previously developed a coherent Disaster

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Risk Management Plan. It focuses primarily on establishing foundation institutional arrangements for DRM, putting in place contingency plans for responding to known priority risks as identified in the initial stage of the DRA, identifying key governmental and other stakeholders, and developing the capability to generate a level 2 plan.

The purpose of the CoT Disaster Risk Management Plan (DRMP) is to document the institutional arrangements for disaster risk management planning which includes the assignment of primary and secondary responsibilities for priority disaster risks posing a threat in the CoT. It further provides the broad framework within which the disaster risk management planning requirements of the Act will be implemented by the departments and other entities included in the organisational structure of the CoT. It establishes the operational procedures for disaster risk reduction planning as well as the emergency procedures to be implemented in the event of a disaster occurring or threatening to occur in council’s area. It aims to facilitate an integrated and coordinated approach to disaster risk management in the municipality which will ensure that the CoT achieves its vision for disaster risk management which is to build a resilient people in the CoT who are alert, informed and self-reliant by establishing risk reduction and resilience building as core principles, and developing adequate capabilities for readiness; and effective and rapid, response and recovery. Lastly the plan established contingency measures in the form of specific and generic contingency plans in line with the indicative risk profile of the municipality and to ensure a coordinated approach to disaster response.

This plan aims to familiarise key role-players in the CoT with the mainstream concepts of disaster risk reduction. It provides a brief background study of the CoT in line with its current Integrated Development Plan (IDP). The CoT disaster risk management plan contains a macro disaster risk assessment based on field

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research, observation, primary- and secondary data sources. The CoT DRMP has as far as possible been imbedded in the current reality of the municipality. The macro disaster risk assessment provides the foundation towards risk reduction planning based on the identified and prioritised disaster risks and vulnerabilities of the CoT. This DRMP for the CoT furthermore provides the municipality with a guiding framework for future disaster risk management planning by the municipality as a whole as required by the Disaster Management Act 57 of 2002 (DMA), the National as well as CoT Disaster Management Framework, and the Municipal Systems Act 32 of 2000. This plan also gives guidance in relation to the declaration of a local state of disaster, disaster classification and the institutional arrangement necessary for the successful implementation of the Act.

1. CUSTODIAN OF THE PLAN

The Head of the CoT Municipal Disaster Management Centre (CoT MDMC) is the custodian of the disaster risk management plan for the CoT and is responsible to ensure the regular review and updating of the plan.

The Head of the Centre will ensure that copies of the completed plan as well as any amendments to the plan are submitted to:

• the Disaster Management Centre of the Gauteng Province; • the National Disaster Management Centre (NDMC);

• the CoT ward disaster management structures; and • each of the municipalities neighbouring the CoT.

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In terms of section 52 of the Act each municipal organ of state and any other

municipal entity operating within council’s organisational structure is responsible for the development and maintenance of a disaster risk management plan for its

functional area. Departmental plans and plans of other entities are an integral part of council’s comprehensive disaster management plan and therefore the head of each department and of each entity must ensure that copies of the plan and any

amendments to the plan are submitted to the CoT MDMC.

2. INTRODUCTION

In terms of the Disaster Management Act, 57 of 2002, each organ of state must have the disaster management plan and review and update it regularly. Planning for disasters leads to organisational preparedness and readiness in anticipation of an emergency or disasters. The first version of Disaster Risk Management Plan for the CoT has been structured in such a way as to address the requirements of a Level 1 Disaster Management Plan as per the guidance of the National Disaster Management Framework (NDMF). This document aims to be a practical and implementable plan which will ensure an integrated approach to disaster risk management for the CoT.

Throughout this document, reference has been made to the Disaster Management Act, NDMF, CoT DMF and localised incidents policy. It is therefore imperative to read this plan in conjunction with these documents. Each section of this plan addresses the multi-disciplinary, multi-sectoral and coordinated approach to disaster management as stipulated in the DMA.

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The workable objective criteria have been used to prioritise and plan for CoT’s ten identified risks, informed by the results of risk assessment conducted.

3. LEGISLATIVE MANDATE

In terms of the constitution of the Republic of South Africa, Act 108 of 1996, section 41(1)(b), it is the responsibility of all spheres of government to secure safety and wellbeing of the people of the Republic. The constitution also places the responsibility of securing the safety and health of the environment on all spheres of government. It is therefore imperative to realise that disaster management is the primary responsibility of government as well, because the DMA puts emphasis on healthy and safe communities and environment.

Section 26(g) of the Municipal Systems Act 32 of 2000 as well as sections 52 and 53 of the Disaster Management Act 57 of 2002 compels each municipal entity to develop a disaster risk management plan as part of and an integrated part of their Integrated Development Plans. This plan establishes the arrangements for disaster risk management within the City of Tshwane (CoT) and has been prepared in accordance with the requirements of the Disaster Management Act, 57 of 2002 (the Act) and section 26(g) of the Municipal Systems Act, 2000.

Reference has also been made to the CoT Disaster Management Policy Framework and the Disaster Management Localised Incident Policy.

4. PURPOSE

The purpose of this plan is to establish processes for a comprehensive disaster risk assessment. It further seeks to identify and clarify the roles and responsibilities of the internal and external stakeholders throughout the entire cycle of disaster

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management, i.e.: pre-disaster, during disaster and post disaster phases. It again identifies and establishes consultative mechanisms for specific priority risk reduction projects aimed at promoting resilient communities within the city.

5. CITY OF TSHWANE OVERVIEW

The City of Tshwane Metropolitan Municipality was established on 5 December 2000 after the amalgamation of the following local authorities:

• The Greater Pretoria Metropolitan Council • The City Council of Pretoria

• The Town Council of Centurion

• The Northern Pretoria Metropolitan Substructure • The Hammanskraal Local Area Committee • The Eastern Gauteng Services Council

• The Pienaarsrivier Transitional Representative Council • The Crocodile River Transitional Council

• The Western Gauteng Services Council

• The Winterveld Transitional Representative Council • The Temba Transitional Representative Council • The Mabopane Transitional Representative Council • The Ga-Rankuwa Transitional Representative Council • The Eastern District Council

After the 2011 local elections, City of Tshwane officially merged with Metsweding District Municipality, incorporating the areas such as Bronkhorspruit, Cullinan and Reyton, making CoT the world’s third biggest municipality with an area of 6 368 km2

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The CoT's land area increased from 2,198 square kilometres (849 sq mi) in 2010 to 6,368 square kilometres (2,459 sq mi) after the incorporation of Metsweding and a population of just over 2.5 million.

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6. DISASTER MANAGEMENT PLANNING OVERVIEW

The National Disaster Management Policy Framework has simplified the disaster management planning process into three progressive phases, being level 1, 2 and 3. The table below summarises the levels of disaster management planning as well as the expected critical outcomes as per the national policy framework requirements.

LEVEL OF PLAN

CRITICAL OUTCOMES

I

1 Establish foundation institutional arrangements for disaster risk management

2 Develop the capability to generate a Level Two Disaster Risk Management Plan

3 Develop and implement contingency plans for known priority risks 4 Establish processes for comprehensive risk assessments

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II

6 reduction projects Develop a supportive information management system 7 Develop emergency communication capabilities

III

8 Establish specific institutional arrangements for coordinating and aligning plans

9 Establish mechanisms to ensure informed and on-going risk assessments 10 Institute mechanisms to ensure on-going relevancy of disaster risk

management policy frameworks and plans

However, this document will only focus on the level 1 disaster management plan. The level 1 disaster management plan (this plan), according to the National Disaster Management Policy Framework, focuses primarily on establishing foundation

institutional arrangements for disaster risk management, putting in place contingency plans for responding to known priority threats as identified in the initial stages of the disaster risk assessment. It further identifies key stakeholders and develops

capabilities to generate a level two disaster management plan.

6.1 FOUNDATIONAL INSTITUTIONAL ARRANGEMENTS

In terms of disaster management legislations (i.e. disaster management act 57 of 2002, national disaster management policy framework, Gauteng disaster

management policy framework and municipal disaster management policy

framework), the council of each metropolitan municipality must establish institutional capacity for disaster risk management in its area for implementing disaster risk management within the municipal sphere of government. Furthermore these Source: Best Practice Handbook Series, NDMC (undated

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arrangements must be consistent with national and provincial arrangements and must provide the appropriate mechanisms to allow for the application of cooperative governance to facilitate both intergovernmental and municipal interdepartmental relations as well as community participation for the purpose of disaster risk management. This is in line with the requirements of a Level 1 Disaster Risk Management Plan as per section 3.1.1.2 of the National Disaster Management Policy Framework.

6.1.1 Disaster Risk Management Policy Framework

The Act requires the development of one national disaster management framework, a provincial disaster management framework for each province and disaster

management frameworks for all district and metropolitan municipalities. The national disaster management framework is the legal instrument specified by the Act to address such needs for consistency across multiple interest groups, by providing ‘a coherent, transparent and inclusive policy on disaster management appropriate for the Republic as a whole’ (section 7(1)). The national disaster management

framework also informs the subsequent development of provincial and municipal disaster management frameworks and plans, which are required to guide action in all spheres of government.

The CoT Disaster Risk Management Framework (DRMF) aims to provide CoT with a holistic and integrated policy framework which underpins the implementation of the Disaster Management Act 57 of 2002 at metropolitan level. This policy is in line with the requirements of the National Disaster Risk Management Framework of 2005 as well as the Gauteng Provincial Disaster Risk Management Framework. The CoT DRMF is still under review and will soon be circulated for comments. The national

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disaster management framework comprises four key performance areas (KPAs) and three supportive enablers required to achieve the objectives set out in the KPAs. The KPAs and enablers are informed by specified objectives and, as required by the Act, key performance indicators (KPIs) to guide and monitor progress. In addition, each KPA and enabler concludes with a list of guidelines that will be disseminated by the NDMC to support the implementation of the framework in all three spheres of

government.

In all spheres of government, the disaster management framework is the guiding and coordinating policy instrument for ensuring an integrated and uniform approach to disaster risk management by all organs of state and other institutional role players. This includes, among others, NGOs, the private sector and institutions of higher learning. With specific reference to district municipalities, the disaster management framework is the integrating instrument for consolidating the disaster risk

management plans of individual municipalities within the district.

Each disaster management centre in the respective sphere of government is responsible for consultatively facilitating the development of the disaster

management framework in its area of jurisdiction, and subsequently amending it in consultation with key stakeholders. Provincial and municipal disaster management frameworks must be consistent with the national disaster management framework and must establish foundation institutional arrangements for disaster risk

management, including formal consultative processes that provide for participative planning.

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6.1.2 EMERGENCY SERVICES DEPARTMENT TOP MANAGEMENT COMMITTEE

Referral section in the CoT DRMF:

4.1.1

The CoT DRMF indicates that the Management Committee of the CoT is used as the managerial coordinating body for inter-departmental liaison and coordination. In order for this plan to be implemented successfully it is imperative for the Management Committee to adopt disaster risk management as a standing agenda point of the meeting. This will ensure that disaster risk management is addressed on a regular and on-going basis. Though the Management Committee, high-level decision-making will inform the tasks of the different disaster risk management focal points in the respective divisions and municipal entities.

Action Performance indicator Time frame Budget Responsible entity

Include disaster risk management as a standing agenda point on the Top Management Committee agenda. The Management Committee accepts disaster risk management

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as a standing agenda point and discusses related issues on an on-going basis.

6.1.3 DISASTER RISK MANAGEMENT ADVISORY FORUM

Referral sections in the DMA 44 51 Referral section in the CoT

DRMF:

4.1.3

The Act calls for the active participation of all stakeholders, including the private sector, NGOs, technical experts, communities, traditional leaders and volunteers, in disaster risk management planning and operations. Specific arrangements must be implemented to ensure the integration of stakeholder participation, to harness technical advice and to adopt a holistic and organised approach to the

implementation of policy and legislation. In order for all relevant role-players in disaster risk management in the municipal area to co-ordinate their actions on matters relating to disaster risk management as prescribed in Section 4.1.3 of the

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CoT DRMF, Section 44 of the Act, Council has established a Disaster Risk

Management Advisory Forum in 2004 as provided for in Section 51 of the Disaster Management Act 57 of 2002. The Forum comprises of the relevant stakeholders and role-players including all CoT departments, NGOs and CBOs; individuals or groups with special technical expertise.

This forum carries the following responsibilities:

¾ give advice and make recommendations on disaster-related issues and disaster risk management

¾ contribute to disaster risk management planning and co-ordination ¾ establish joint standards of practice

¾ implement response management systems

¾ gather critical information about the municipality’s capacity to assist in disasters and to access resources

¾ Assist with public awareness, training and capacity building.

Action Performance indicator Time frame Budget Responsible entity The MDMC to arrange a meeting of the DRMAF and invite all the

relevant role-players as per the relevant sections of the DMA and CoT

A meeting of the DRMAF is arranged. Quarterly Disaster Management Centre

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DRMF. The DRMAF to establish permanent membership and establish a terms of reference.

All relevant role-players who will enjoy permanent membership on the DMAF are recorded and a term of reference is developed and adopted. DMC The DRMAF to consider the content of the CoT DRMF and DRMP and to provide input and advice in this regard.

Advice and input from the DRMAF has been noted and incorporated into the relevant documents where needed. On-going None DMC The DRMAF to consider the indicative disaster risk profile of the CoT and provide input to the MDMC.

The indicative risk profile of the CoT is assessed by the DRMAF with written advice and comments to the MDMC.

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The DRMAF to consider the different sub-committees to function under the DRMAF (in relation to the indicative disaster risk profile). Different permanent and ad hoc sub-committees for the DRMAF have been

established.

The DRMAF to meet at least twice a year. Two successful meetings of the DRMAF has been arranged and completed. 6.1.4 NGO FORUM

4.1.3.1

Template MDMC_2

The NGO Forum as a sub-committee of the CoT DRMF is responsible for the development and alignment of their own terms of reference with this DRMP and the CoT DRMF, and for the development of a social disaster relief contingency plan.

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Such a plan must be developed according to Contingency Plan template as contained in the CoT DRMF.

According to the Terms of Reference of the NGO Forum it is responsible for: ¾ Relief resources mobilisation;

¾ Assist in relief distribution;

¾ Damage and needs assessment; ¾ Hazard identification;

¾ Assistance during response;

¾ Coordination of relief efforts from various NGOs and CBOs;

¾ Participate in DRM activities in the CoT such as awareness campaigns; and

¾ Provision of first aid services (especially during events in the community). The NGO Forum consists of the representation of all the regions of CoT:

The NGO sub-committee to meet in conjunction with the meetings of the DRMAF. Bi-annual meetings of the NGO sub-committee has been planned and completed.

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The NGO sub-committee to align their terms of reference with the CRMP and CoT DRMF and for social disaster relief. An NGO sub-committee term of reference is developed and adopted by the DRMAF. The NGO

sub-committee to develop a social disaster relief contingency plan. A social disaster relief contingency plan is developed and aligned with the indicative disaster risk profile of the CoT.

The NGO sub-committee to develop a

contingency plan for social disaster relief in line with the guidelines in the A social disaster relief contingency plan has been developed in line with the

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CoT DRMF requirement of the CoT DRMF and adopted by the DRMAF. The NGO

sub-committee to develop standardised and agreed relief requirements in terms of food provision, shelter and clothing. Relief requirements has been develop and adopted by the DRMAF. 6.1.5. OTHER SUB-FORA

Due to the dynamic nature of disaster risk management, the DRMAF must from time to time consider the establishment of other sub-fora should the need arise. These sub-fora, as is the case of the NGO Forum will be responsible for the development of their own Term of Reference for the fulfilment of a specific disaster risk management task assigned to them by the Head of the CoT MDMC.

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The MDMC to identify the need for additional sub-fora linked to the DRMAF. Additional sub-fora are established to address a specific disaster risk management need.

6.1.6. DISASTER RISK MANAGEMENT COMMITTEES

It is further recommended that all metropolitan and district municipalities establish interdepartmental disaster risk management committees for their areas and that all district municipalities establish disaster risk management committees in district management areas. In addition, local municipalities should establish their own disaster risk management committees and ensure the establishment of disaster risk management committees or forums in all municipal wards. Ward structures have been identified and tasked with responsibility for disaster risk management.

6.1.7. PARTICIPATION OF VOLUNTEERS IN DISASTER RISK MANAGEMENT

Volunteers are citizens over the age of 18, who donate their time to assist the Disaster Management Centre in a variety of areas. These generous citizens are trained and enhance the Centre's ability to build safer and disaster resilient communities.

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In order to maintain an inclusive approach to the participation of volunteers in disaster risk management, volunteers are classified into three categories. These categories are:

¾ Units of volunteers ¾ General volunteers ¾ Spontaneous volunteers.

6.1.8. MUNICIPAL DISASTER MANAGEMENT CENTRE (MDMC)

Referral section in the DMA 43 & 43 Referral section in the NDMF 1.2.5.1 Referral section in the GPDMF 1.2.3 Referral section in the CoT

DRMF:

4.2.1 4.2.2

The CoT Disaster Management Centre is the primary functional unit for disaster risk management in the municipal area. It (DMC) provides direction for the

implementation of disaster risk management policies and legislation and integration and coordination of municipal disaster risk management activities and priorities in order to ensure that national and provincial objectives are achieved. Furthermore, the DMC provides support to the NDMC and the GPDMC.

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Action Performance indicator Time frame Budget Responsible entity Establish and maintain institutional arrangements that will enable the implementation of the DMA; The MDMC has ensured the establishment of institutional

arrangements (as per above sections 5.2, 5.3 and 5.5).

Communicate the indicate disaster risk profile of the CoT to all

planning

departments in the CoT in order to inform

developmental planning.

The indicate risk profile of the CoT has been communicated to all stakeholders.

Provide disaster risk management input to the IDP process.

HOC is member of IDP planning committee and

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Action Performance indicator Time frame Budget Responsible entity management input to development planning. Monitor the integration of disaster risk reduction initiatives into development plans. The MDMC monitors the integration of disaster risk reduction initiatives into

development plans on an ongoing basis and provides planning departments with advice and input. Establish communication links. The MDMC has established communication links with all relevant disaster risk

management focal points in the CoT. Facilitate the

development of response and recovery plans.

Contingency plans for prioritised risks have been developed by all divisions and

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

facilitate and promote disaster risk management education, training and research Implement and maintain dynamic disaster risk management monitoring, The MDMC has developed programmes for monitoring, evaluating and improve disaster

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Action Performance indicator Time frame Budget Responsible entity evaluation and improvement programmes; risk management in the CoT. Regular reporting of disaster risk management activities. The MDMC submits an annual report on its disaster risk

management activities to the NDMC, PDMC and neighbouring MDMCs as per the requirements of the DMA and NDMF. Make recommendations regarding the funding of disaster risk management in the municipal area and the initiation and facilitation of

The HOC has made recommendations regarding disaster risk management funding in the CoT to the relevant

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Action Performance indicator Time frame Budget Responsible entity efforts to make such funding available. 6.1.9. SUB-STRUCTURES OF THE MDMC

4.2.2.5.1

The approved organisational structures of the Disaster Management Division (referred to as the MDMC in this Plan) consist of the following sections:

• Office of the HoC

• Disaster Risk Management Planning. • Community Disaster Risk Management. • Multi-Sectoral coordination.

• Disaster Operations Centre

The Section: Community Disaster Risk Management is the only section within the MDMC which functions on a regionalised basis.

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Each of these sub-sections has full responsibility for community preparedness by ensuring community participation though the ward structures as well as the involvement of the public and private sector.

Action Performance indicator Time frame Budget Responsible entity The MDMC sub-structures to establish appropriate community preparedness and participation mechanisms. Community disaster risk reduction programmes and strategies are developed in line with the indicative risk profile of specific wards.

6.2. DIVISIONAL DISASTER RISK MANAGEMENT FOCAL POINTS

The CoT DRMF elaborates on the general and specific disaster risk management responsibilities of each division in the CoT. In order to comply with the requirements of a Level 1 Disaster Risk Management Plan each division/department/municipal entity must complete the following actions:

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Action Performance indicator Tim e fram e Budg et Responsi ble entity

KPA 1: Institutional capacity for disaster risk management

Identify one person in the administration of the division/department/munic ipal entity to serve as the disaster risk management focal point.

A disaster risk

management focal point for the

division/department/munici pal entity has been

identified and include disaster risk management responsibilities on the scorecard/performance agreement of the individual as well as SEDs and GMs. Assess the

division/department/munic ipal entity institutional capacity for disaster risk management.

Each

division/department/munici pal entity has undertaken an assessment of their own capacity to engage in disaster risk management and have submitted a report to the MDMC (such a report can contain training and capacity

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Action Performance indicator Tim e fram e Budg et Responsi ble entity building requirements or infrastructure requirements). In consultation with the

disaster risk management structures of the MDMC, take ownership (primary, secondary or tertiary responsibility) of an indicated risk in line with the core functions of the division/department/munic ipal entity.

The

division/department/munici pal entity is actively

planning towards the reduction of the disaster risk as per the agreement with the MDMC.

Conduct an annual resource analysis of critical resources and communicate such analysis with MDMC.

Annual resource analysis is communicated with MDMC in written and agreed format (see Template MDMC_1 of the CoT DRMF).

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Conduct a scientific risk assessment of agreed division/department/munic ipal entity risks.

Each

division/department/munici pal entity with primary responsibility has

conducted a scientific risk assessment as per MDMC guidelines

Determine acceptable levels of risk and possible thresholds for action.

Acceptable and

measurable levels of risk are identified and

thresholds for action have been allocated.

Identify

division/department/munic ipal entity specific

developmental projects with directly reduces the disaster risk in the CoT.

An updated list of developmental projects which contributes to disaster risk reduction has been submitted to the MDMC.

KPA 3: Disaster risk reduction

Develop a disaster risk management plan for the

A

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Action Performance indicator Tim e fram e Budg et Responsi ble entity division/department/munic ipal entity.

nicipal entity disaster risk management plan is

developed, submitted to the MDMC and incorporated into the Level 3 Disaster Risk Management Plan of the CoT.

Integrate disaster risk reduction activities into the day-to-day planning and operations of the division/department/munic ipal entity.

Reduced risk in the CoT is evidence of the integration of disaster risk reduction activities into all

divisions/departments/muni cipal entities.

Identify and implement projects annually in line with departmental mandate which will reduce risk in vulnerable communities

Developmental projects are identified, planned and executed with reduced disaster risk in the CoT.

Develop contingency plans in line with primary,

Contingency plans for all prioritised risks in the CoT.

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Action Performance indicator Tim e fram e Budg et Responsi ble entity secondary or tertiary responsibility of the division/department/munic ipal entity and

unacceptable thresholds. Submit an annual report on the risk reduction activities of the

division/department/munic ipal entity to the MDMC for inclusion in the annual municipal disaster risk reduction report to be submitted to the NDMC as per the DMA

Annual reports of all

divisions/departments/muni cipal entities are timely submitted to the MDMC for inclusion in the CoT annual report on Disaster Risk Reduction.

KPA 4: Response And Recovery

Compile standard operating procedures (SOPs) and field

operations guides (FOGs) in line with the

Divisional/departmental/mu nicipal entity SOPs and FOGs has been developed.

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Action Performance indicator Tim e fram e Budg et Responsi ble entity requirements of the division/department/munic ipal entity specific

contingency plan and the guidelines of the CoT DRMF.

Adhere to the standard for incident management of the CoT and ensure that all response personnel are trained in the standard (See Annexure 2 of the CoT DRMF).

The standard for incident management in the CoT is implemented.

Ensure that rehabilitation and reconstruction plans relating to the primary activities of the specific division/department/munic ipal entity are developed in line with disaster risk management plans.

Rehabilitation and reconstruction plans are develop in line with

division/department/munici pal entity disaster risk management plans.

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Ensure that rehabilitation and reconstruction plans are based on

developmental challenges and are development oriented.

Rehabilitation and reconstruction plans are based on developmental challenges.

Enabler 1: Information management and communication

Communicate disaster risk management data and information to all relevant

divisions/departments/mu nicipal entities.

Divisions/departments/muni cipal entities are

communicating disaster risk management data and information on an on-going basis with written evidence. Draft standard warning

messages to be

disseminated in the media for specific risks

pertaining to the core function of the

division/department/munic ipal entity.

Standard warning messages for specific primary, secondary or tertiary responsibility risks is drafted.

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Diligently record all incidents, hazardous impacts and disasters in order to establish a historical record for forward planning.

Historical records of hazardous impacts and incidents pertaining to division/department/munici pal entity responsibility are maintained.

Enabler 2: Education, training, public awareness and research

Conduct a disaster risk management training needs analysis for the division/department/munic ipal entity

A disaster risk

management training needs analysis is compiled and forwarded to the MDMC.

Identify specific target groups for awareness campaigns and

coordinate such campaigns with the

MDMC (e.g. early warning communication).

Target groups are identified.

Encourage research in disaster risk management

Research relating to division/department/munici

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Action Performance indicator Tim e fram e Budg et Responsi ble entity related to the department’s main responsibility

pal entity specific disaster risk focus is commissioned and/or undertaken.

Enabler 3: Funding arrangements

Budget adequately for departmental disaster risk management activities.

Disaster risk management is budgeted for through the normal budgeting process of the CoT.

Allocate a percentage of the annual budget to implement developmental projects focussing on disaster risk management (capital as well as

operational).

A percentage of

division/department/munici pal entity budget is

allocated for developmental projects focussing

specifically on reducing disaster risk.

Co-finance disaster risk reduction projects with other

divisions/departments/mu nicipal entities in line with

Disaster risk reduction projects are co-funded by CoT

divisions/departments/muni cipal entities.

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the IDP of the CoT.

Promote insurance and reinsurance of public assets.

CoT public assets are insured and reinsured where necessary.

6.2.1 ROLES AND RESPONSIBILITIES OF THE DEPARTMENTS/SERVICES

In order for this plan to be practical and executable, the internal departments have to carry out the following roles and responsibilities in accordance with the CoT DMF.

i. Office of the Mayor and City Manager

Action Performance indicator KPA 1: Institutional capacity for disaster risk management

Appoint the Head of the MDMC. A head of the MDMC has been appointed. Ensuring all departmental involvement

in disaster risk management matters by identifying senior officials to serve on the disaster risk management structures

Senior officials to serve on the disaster risk management structures of the CoT have been identified.

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Action Performance indicator

of the CoT.

Assign specific disaster risk

management responsibilities to each CoT department and ensure the inclusion of measurable disaster risk management criteria in the scorecard of each focal point.

Specific DRM responsibilities have been assigned to each CoT department and measurable DRM criteria have been included in the scorecard of each focal point.

Enforce the implementation of any national, provincial and CoT guidelines pertaining to disaster risk reduction.

The implementation of national, provincial and CoT guidelines pertaining to disaster risk reduction are enforced.

Ensure the effective integration of the disaster risk management plan within the municipal IDP.

The disaster risk management plan has been integrated in the municipal IDP.

Implement sustainable livelihoods strategies as an integral part of the IDP process.

Sustainable livelihoods strategies are implemented in the IDP process.

Encourage gender sensitivity in risk reduction and development planning.

Risk reduction and development planning processes are gender sensitive.

Enforce an IDP focus on poverty reduction strategies.

The IDP focuses on poverty reduction strategies.

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access to resources by the most vulnerable communities is enhanced.

vulnerable communities’ access to resources improves.

KPA 4: Response and recovery

Ensure emergency funds and stocks (through MAAs with product providers).

Emergency funds and stocks are available.

ii. CORPORATE AND SHARED SERVICES DEPARTMENT

Ensure that procedures are in place to appoint temporary staff on short notice if necessary to execute disaster risk responsibilities.

Procedures to appoint temporary staff on short notice are in place.

Ensure that the Conditions of Service make provision for the utilisation of CoT staff to assist with the mitigation of a disaster.

Conditions of service includes a clause to the effect that staff may be used to assist with disaster mitigation.

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matters related to business continuity and human resource management in order to ensure limited duplication with disaster risk management.

division of labour regarding DRM.

Ensure adequate continuity planning and structures are in place for

information management.

Adequate continuity planning and structures are in place for information management.

Develop, implement and update the IT Disaster Recovery plan for CoT

information systems and data.

An IT Disaster Recovery plan for CoT information systems and data has been implemented and procedures are in place for updating.

iii. Economic Development Department

Action Performance indicator KPA 2: Disaster risk assessment

Integrate the indicative disaster risk profile of the CoT with all economic development programmes and projects in order to ensure no or minimal

The indicative disaster risk profile of the CoT has been integrated with all

economic development programmes and projects.

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disruption of natural and anthropogenic hazards on the economic development of the CoT;

Identify areas of vulnerability related to different economic activities.

Areas of vulnerability related to the most prevalent economic activities have been identified.

Ensure that economic growth contributes to vulnerability reduction and disaster risk avoidance within the CoT.

Economic growth and development has a specific focus on vulnerability reduction.

Making arrangements for providing transport for affected families.

An emergency transportation contingency plan is developed.

Plan for mass transport during emergencies and disasters.

Contingency plans for mass transport during emergencies are in place.

iv. FINANCE DEPARTMENT

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Establish a disaster management task team for finances under the guidance of the Chief Financial Officer.

A disaster management task team for finances under the guidance of the chief financial officer has been established.

Enforce disaster risk management measures as pre-requisites for project funding.

Project funding is only allocated when DRM measures are in place.

Implement disaster risk management spending guidelines and mechanisms for resource mobilisation.

Resource mobilisation takes place in accordance with DRM spending guidelines and measures.

Ensure adequate disaster risk management funding in line with the requirements of the Disaster

Management Act 57 of 2002 and the NDRMF (see Table 71 and 7.2 of the NDRMF) and the Municipal Finance Management Act for:

Disaster risk management on-going

Disaster risk management is adequately funded for:

Disaster risk management on-going activities;

Disaster risk reduction;

Mitigation and preparedness measures; Contingency reserve;

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activities;

Disaster risk reduction;

Mitigation and preparedness measures; Contingency reserve;

Disaster response, recovery and rehabilitation; and

Education, training, capacity building programmes and research.

Disaster response, recovery and rehabilitation; and

Education, training, capacity building programmes and research.

v. EMERGENCY SERVICES DEPARTMENT

House and equip the MDMC as per legislation and national policy requirements.

The MDMC is established and equipped as per national legislation and policy.

The Fire and Rescue Division must attend to all fire fighting and rescue

Contingency plans and operating

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functions (rescue of people and animals).

The Emergency Medical and Ambulance Division must execute patient care and transport patients to hospitals and clinics. They must have a plan in place for handling mass

casualties.

Contingency plan for the handling mass casualties is developed.

Operational Support must coordinate emergency communication and have procedures in place to deal with same. They must provide adequate

communication links with relevant stakeholders.

Operational Support has procedures in place for emergency communication.

vi. CITY PLANNING, DEVELOPMENT AND REGIONAL SERVICES DEPARTMENT

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are in place. Apply various forms of environmental

protection and management (e.g. reforestation, river-basin planning, agricultural practices, soil conservation and natural hazard control techniques) and enforce the adherence to the above through the Management Meeting.

The absence of environmental degradation.

Integrate risk management within all project management activities.

All management activities include an element of disaster risk management. Include DRM principles in spatial

development frameworks.

Spatial and development frameworks include DRM principles.

Compile a strategy and plan to provide for alternative housing, temporary shelter in case of emergencies.

A strategy and contingency plan to

provide for alternative housing, temporary shelter in case of emergencies is in place. Compile a contingency plan to provide

for alternative housing during localised events and disasters. This should include criteria of the circumstances when alternative housing will be

A contingency plan to provide for

alternative housing during localised events and disasters, including criteria of the circumstances when alternative housing will be provided should be in place.

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provided.

Compile a response strategy to deal with informal settlements at various levels. (Including illegal squatting).

A response strategy to deal with informal settlements is in place.

Relocation procedures as prevention measure and during emergencies.

Relocation procedures are in place.

Prepare a plan for mass burials (cemeteries, social development).

A contingency plan for mass burials is in place.

Plan for and provide transport to move affected people to temporary shelter in cooperation with Local Economic Development.

A contingency plan to move affected people to temporary shelter in cooperation with local economic development is in place.

Communicate development related information to the MDMC especially information on high risk developments.

MDMC is always aware of high risk developments.

vii. CORPORATE & SHARED SERVICES DEPARTMENT

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Action Performance indicator KPA 4: Response and recovery

Ensure a legal framework for response and recovery in terms of CoT liability to identified risks.

A legal framework for response and recovery in terms of CoT liability to identified risks is in place.

viii. COMMUNITY SAFETY DEPARTMENT

Action Performance indicator KPA 4: Response and recovery

Provide security in response to disasters and emergencies, if needed.

Contingency plans for the provision of security in response to disasters and emergencies are in place.

ix. ROADS AND TRANSPORT DEPARTMENT

Conduct regular flood assessment. Up to date flood assessment is available. Ensure a continuous of water supply to Maintenance records of water supply

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the CoT. infrastructure are available.

Monitor and maintain flow meters in rivers in the CoT

Records of flow meter inspections are available.

Create adequate supportive

infrastructure to enhance sustainable livelihoods.

Adequate supportive infrastructure to enhance sustainable livelihoods is created.

Develop and maintain storm water infrastructure.

Maintenance records of storm water infrastructure are available.

Maintain maximum water discharge capacity in storm water infrastructure.

Procedures/guidelines are in place for maintenance of storm water infrastructure and are enforced.

Compile a flood management plan. A flood management plan is available. Strive to maintain a healthy balance

between flood prevention and environmental conservation.

Proper guidelines to ensure a balance between flood prevention and

environmental conservation are in available and enforced.

Provide water tankers in emergency and disaster situations.

Plans/procedures are In place for the deployment of water tankers in emergency and disaster situations.

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Provide for the pumping of water from flooded houses and areas.

The necessary equipment for pumping water form flooded houses is available and working.

Repair/reconstruct road damage caused by hazards.

Roads are always in good order.

Enabler 2: Education, training, public awareness and research

Initiatives to support awareness of flooding and being water wise in general.

Water awareness projects are launched.

Funding all activities related to flood management.

Sufficient funding for all flood

management has been sourced and is available when needed.

x. PUBLIC WORKS AND INFRASTRUCTURE DEVELOPMENT DEPARTMENT

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electricity provision. provision exists and is available. Identify critical facilities for priority

electricity provision (e.g. hospitals, national key points, CoT systems).

A list of critical facilities for priority

electricity provision exists and is available.

Develop and implement an effective infrastructure maintenance programme.

An infrastructure maintenance programme is implemented.

Conduct contingency planning for prolonged electricity failures.

Contingency plans for prolonged electricity failure exist and are available.

Provide generators in the case of electricity crises during emergencies and disasters.

Working generators are available.

Maintain a database of critical facilities in terms of electricity.

A database exists of critical facilities in terms of electricity.

Establish communication links with Disaster Operations Centre.

Relevant lists of telephone/cell phone numbers and e-mail addresses are available.

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xi. SOCIAL DEVELOPMENT DEPARTMENT

Identify socially vulnerable communities.

Records of socially vulnerable communities and the reason(s) they are deemed

vulnerable (vulnerability assessments) are available.

Ensure that communities at risk have access to basic services in line with the developmental focus and strategic objectives of the CoT in order to reduce vulnerabilities.

Universal provision of basic series such as, water, sanitation and electivity.

Compile an in-departmental response and relief plan for all eventualities with specific emphasis on the human element.

An in-departmental response and recovery plan for all eventualities is available.

Develop and implement procedures for provision of emergency food, blankets and shelter (in coordination with the Housing, City Planning and

Procedures for the provision of emergency food are on record.

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Environmental Management Department).

Maintain an indigent register which will contribute to vulnerability identification.

An indigent register is available.

Provide information on “poverty pockets”.

A list of “poverty pockets” and the relevant details of each pocket (e.g. location and extent and nature of poverty) is on record. Provide information on child headed

families.

Information relating to the amount of and locations of child headed households are available.

6.3. INTEGRATED DEVELOPMENT PLAN

In view of the inextricable relationship between disaster and development, it is imperative that the heads of MDMCs and those individuals assigned responsibility for disaster risk management in local municipalities serve on the relevant IDP structures. The Head of Disaster Management Centres has full participation in integrated development planning processes and structures for the City.

As disaster risk reduction efforts are medium- to long-term multispectral efforts focused on vulnerability reduction, they must be incorporated into on-going IDP projects, processes, programmes and structures. Effective and adaptive disaster risk

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reduction interventions in the municipal sphere are best planned and implemented as development initiatives through IDP mechanisms and phases.

6.4. MUTUAL ASSISTANCE AGREEMENTS

In accordance with the Act, national departments, provinces and municipalities must establish their level of capacity to deal with disaster risk reduction, response and recovery. Where necessary, and to strengthen this capacity, they must enter into mutual assistance agreements with their neighbours, the private sector, other organs of state and communities. At provincial and municipal level, operation and co-ordination efforts must be supported by cross-boundary mutual assistance

agreements (that is, between provinces, between provinces and municipalities and between municipalities), and by creating partnerships within each sphere with the private sector and NGOs through memoranda of understanding. Mutual assistance agreements and memoranda of understanding are legal documents. Their

parameters must be clearly defined and they should include details of financial arrangements, reimbursements and liability. They must also be in compliance with the national standard guideline on mutual assistance agreements developed by the NDMC.

6.5. CROSS-BORDER RELATIONSHIPS

It is of paramount importance that the CoT maintains cross-border relationships with other municipalities. The GPDMC is coordinating cross-border task team which comprises of all municipalities in the Gauteng Province and the team meets regularly to monitor the cross-border related disaster management issues. The team also gives feedback to the CoT DMAF.

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7. THE DISASTER RISK MANAGEMENT PLANNING FRAMEWORK

The diagram below (figure 1) provides an overview of the structure for disaster risk management planning for the CoT for compiling its disaster risk management plans and must be viewed in conjunction with the disaster risk management framework for the CoT. It is applicable to disaster risk management planning by the divisions and other municipal entities of the CoT.

Two main components to the planning framework for disaster risk management is the integration of disaster risk assessment and developmental practices. This is evident in the emphasis this planning framework places on disaster risk assessment and the Integrated Development Plan. In essence the planning framework aims to introduce the need for mainstreaming disaster risk management actions into development planning. The rationale behind this is the fact that in the South African context, disaster risk is rooted in community vulnerability and poverty. Thus, a logical and most appropriate manner in which to address the above is through development planning.

Furthermore, the planning framework is divided into two sections: risk reduction planning and contingency planning. In both instances the CoT MDMC as well as all municipal departments/divisions/entities has certain planning responsibilities. These planning responsibilities are directly related to the inherent function of the municipal

departments/divisions/entities in question. Section 1.7 of the CoT DRMF provides information in the specific and general responsibilities of the different municipal departments/divisions/entities.

7.1 RISK REDUCTION PLANNING

In terms of disaster risk reduction planning, each municipal departments/divisions/entities as well as the CoT MDMC must compile a disaster risk management plan.

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Risk reduction planning consists of two components. Firstly, the disaster risk management plans of the MDMC as well as the different municipal departments/divisions/entities must engage in vulnerability reduction planning. Such planning involves addressing the root causes on social, economic, physical, ecological and political vulnerabilities. Each of these can already be addressed by the existing development projects in the CoT. Secondly, municipal departments/divisions/entities must make provision for disaster risk management planning in their respective developmental projects. Special emphasis should be placed on high risk developments as well as in communities in which multiple vulnerabilities has been identified.

7.2 CONTINGENCY PLANNING

The Disaster Management Act mandates each municipal entity and organ of state to prepare a disaster risk management plan which must include contingency strategies and emergency procedures to be implemented in the event of a disaster. It mandates all municipalities within an applicable municipal disaster risk management framework to develop disaster risk management plans which must include contingency plans and emergency procedures to be applied in the event of a disaster.

Contingency planning is referred to as ‘a forward planning process in a state of uncertainty’ because although the findings of the disaster risk assessment for the CoT provides a risk profile from which the hazards which pose the greatest threat (priority risks) have been identified, there is no certainty of:

• when it will strike?

• where it will strike?

• what the magnitude and extent will be?

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Despite the fact that planning must focus on those hazards that pose the greatest threat, planning must also take into account other threats which are less likely to occur, or those which may not occur at all but cannot be ignored.

Contingency planning is therefore a matter of creating scenarios and making assumptions, asking the question ‘What if?’, and then planning to deal with the possible consequences. Disaster risk-based planning means that although plans must address the specific hazards which have been identified as a priority for a given area they must also be flexible enough to cater for all eventualities (hazards). All of these factors will have a direct influence on how contingency plans are structured.

Contingency planning therefore related to the mitigation, prevention and response plans for all prioritised hazards in the CoT. These contingency plans is risk specific and aims to ensure that in the event of a hazard exploiting vulnerability, a response and mitigation mechanism is in place. As is the case in disaster risk reduction planning, the MDMC and all other municipal departments/divisions/entities must be involved in the development of contingency plans (see section 11 below).

The second aspect to contingency planning is the development of generic contingency plans. These generic plans aims to ensure contingency measures for the activities normally associated with any event. It therefore means that these generic plans can be applied in any given instance which will limit the amount of planning which will be repeated in the hazard specific contingency plans.

Cognisance should be taken of the fact that a number of contingency plans already exist in the CoT. These plans must be incorporated into the planning process of the MDMC and aligned with this DRMP.

Disaster Management Plan