Page 2 of 2 China plans for the next big disaster
By Peter J Brown
China recognized that things had to be improved years ago. An article in the
China Daily in January 2007, for example, described the forthcoming National
Programs of Comprehensive Disaster Reduction, under the 11th Five-Year Plan
(2006-10).
"Unlike the National Disaster Reduction Program of China (1998-2010), which
emphasized principles, the new programs focus on information-sharing,
coordinating ministry-level disaster prevention efforts, and increasing public
awareness of how to respond to disasters." [1]
Still, at a meeting last September attended by the team preparing the ADB
report and several representatives from various government agencies and others
in Gansu province, local and
provincial authorities along with ordinary citizens where everyone was
encouraged to share their opinions, one sees that very little progress had been
made.
Some attendees, "provided different opinions on the existing [governmental
response], and recognized that [it] was not effective enough, particularly in
the initial phase after the earthquake occurred. The group recognized that
united leadership under the government was crucial, however, the Provincial
Committee for Disaster Reduction was not able to fully exercise its important
and key roles before, during and after the disaster, as its role is restricted
to coordination and it does not have the power that it needs to undertake the
broader role," the ADB report stated.
The attendees in Gansu then went on to describe "a series of problems on
command, coordination and information dissemination during the disaster
response and relief [efforts] ... There was no advanced equipment for disaster
emergency response, such as satellite mobile phones, movable command vehicles
and rescue tools. This affected relief activities significantly in the critical
early stages of the disaster," the ADB report stated.
Another problem is that the individual offices responsible for disaster relief
do not in and of themselves have the clout they need, nor are they set up to
have it, according to Drew Thompson, director of China Studies at The Nixon
Center in Washington, DC. Those offices play a coordinating function and are
embedded within the MCA, which is supposed to provide the political clout.
"When a crisis occurs, there is a classification system that designates
what level of political leader is in charge in the event of a disaster. That
leader brings the clout and is expected to mobilize the different branches of
the bureaucracy, which in normal times would exercise a certain degree of
independence," said Thompson. "The relationship between the central government
and the provinces is very different than the federal government and states [in
the US]. In particular, Chinese provinces are, in financial terms, relatively
less dependent on the central government compared to the US system. Certainly,
central government funds flow to provinces and disaster areas in the event of a
crisis, but those are ad hoc arrangements, rather than systematic, long-term
budgetary relationships."
Here are just a few of the many
recommendations (edited and abridged) that appear in the ADB report:
A National Disaster Management Authorized Agency (NDMAA) needs to be
established with sufficient power at the national level, and similar emergency
management agencies should be established at provincial and local levels. The
NDMAA should adopt what is known as an "all hazards" approach under a steering
committee composed of relevant ministers chaired by a top leader of the
country.
Besides a National Disaster Management Operations Center under the NDMAA, a
disaster management operations center should be established in each of six
regions, along with a sophisticated and reliable network for activating and
sustaining effective inter-provincial and intra-provincial command, control and
coordination.
A comprehensive national law on disaster risk management must emerge which will
also provide a legal basis for the establishment of the NDMAA, related
committees and regional operation centers. Disaster risk management must rise
to a higher level of priority, and, ongoing governmental and fiscal support for
this and other related activities must be maintained in a stable, responsible
and predictable manner over time.
An action plan for implementing the “National Plan for Comprehensive Disaster
Reduction during the ‘Eleventh Five-Year Plan’ period of the People’s Republic
of China" needs to be urgently developed, and disaster risk reduction needs to
be mainstreamed into the development cycle at all levels.
A public-private partnership must emerge to collectively address the process of
spreading disaster risk, and a flexible and responsive insurance compensation
system should be established with the support and approval of the government,
and the insurance sector.
"The Chinese government has made great efforts to reduce the risks and
consequences of natural disasters. And yet, it is clearly aware that
inadequacies exist that need to be addressed immediately," the white paper
said.
Besides coordination and integration of relief efforts, laws and regulations
concerning disaster reduction as well as related policies need to be improved.
An effective disaster monitoring system is evolving, but it is not in place and
operating in 2009. Support for the construction of disaster-resistant or
reinforced infrastructure is lacking, and finally, public awareness needs to be
enhanced, according to the white paper.
"As natural disasters pose a common challenge to mankind, disaster reduction is
a global effort. China will continue to work unremittingly to reduce the risks
and damage posed by natural disasters together with the rest of the world for
the development and progress of human society," the white paper said.
Andrew Maskrey, the lead author of the new United Nations report -"Global
Assessment Report on Disaster Risk Reduction" - which was released in mid-May
told the New York Times that China has not adequately addressed the surge in
population in its coastal zone, and that China "has not yet developed the
institutional mechanisms to reduce the risk that entails." [2]
China seems to take Maskrey's comments in stride and, for example, had already
proceeded to highlight the uncertainty surrounding the seemingly unavoidable
impact of climate change in its white paper.
"Now and for a fairly long time to come, the risks of extreme weather phenomena
are increasing along with global climate changes. The probability of strong and
extra-strong typhoons, tempests and other disasters is quite high," said the
white paper.
Many of the goals and objectives that are spelled out in the white paper and
ADB report will take at least two to three years to achieve, if not longer.
Allocating sufficient funds, applying talented and well-managed human
resources, and, maintaining a suitable momentum across multiple organizations,
associations and communities will remain a huge challenge for China.
Accomplishing this vital undertaking cannot be done simply by governmental
decree alone.
Peter J Brown is a freelance writer from Maine USA. His related
commentaries primarily on emergency communications have appeared in the
Washington Times, Journal of Emergency Management and Disaster Medicine &
Public Health Preparedness, a journal of the American Medical Association. He
is a contributor to Asia Times Online.
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