4 Gearing South Africa towards a community centred Disaster Management System - by Minister Velenkosini Hlabisa
Early Warnings for All (EW4ALL)
8 Early Warnings for All (EW4ALL): From strategy to resilience - by Owen Becker
Stormwater analysis
12 Stormwater analysis vital for mine planning but now more complex
International Day for Disaster Reduction (IDDR)
14 Minister Hlabisa calls for a culture of disaster preparedness during the commemoration of the IDDR - by Lebogang Mosotho
Futurecasting
18 Futurecasting: Building resilience in the face of climate change disasters - by Dr Niel Rooi
George building collapse
22 Victoria Street building collapse: Fire and rescue when the unimaginable happens - by Santa Sternsdorf
30 Western Cape urban search and rescue response to the George building collapse; a provincial perspective - by Colin Deiner
38 George structural collapse: Emergency Medical Service response
Early warning systems
42 Integrated Climate-Driven multi-hazard Early Warning System (ICMHEWS), Vhembe, Limpopo - by Tshilidzi Nthambeleni
Weather stations
43
The self-powered VitalWeather stations provide weather updates every five minutes
Research paper: Planning an implementation gaps in effective DRM
44 Planning and implementation gaps in effective disaster risk management (DRM): Analysis of the Molweni Nodal Functional Plan (eThekwini Metropolitan Municipality) - by Dr M Reddy
Consequence management
50
54
A consequence management approach to disaster management: Incident Site Layout and Organisation (Part 11) - by Dr Johan Minnie
Informal settlement fires
The efficacy of applying vermiculite (Tekrok C) in reducing the spread of informal settlement fires - by Joshua Emmanuel Bernard Fortune
People
62 Schalk Carstens retires
CFF Technical Exchange workshop
66 City of Johannesburg delegation participated in the CFF Technical Exchange workshop in Cape Town - by Dr Niel Rooi
Simulation exercise
69
72
Bus crash simulation exercise held in Vhembe District Municipality, Limpopo - by Tshilidzi Nthambeleni
News
Stenden South Africa second-year students tour Garden Route District Municipality’s Disaster Management Centre
Click a headline to view the article
74 Capricorn District Municipality disaster radio awareness campaign - by Lebogang Mosotho
The National Disaster Research Agenda Seminar
76 The National Disaster Research Agenda Seminar held in Pretoria - by Koketso Mpshane
Heavy equipment and disaster relief
84 Heavy equipment: The silent workforce of natural disaster relief - by Harshvardhan Singh
Disaster preparedness
88 The role of consulting engineers in disaster preparedness - by Chalmers Pagiwa
89 Contact
DMISA
President Owen Bekker
Deputy President Lebogang Mosotho
DMISA EXCO Member: Journal
Production and Marketing Tshilidzi Nthambeleni
Disaster Management Journal Editor
Lee Raath-Brownie lee@fireandrescue.co Cell 082 371 0190
Advertising advertising@fireandrescue.co
Design and layout
Marc Raath marc@fireandrescue.co
Finance accounts@fireandrescue.co
Circulation subs@fireandrescue.co
Administration Kelebogile Moroane
Contributions
Dr Elias Sithole
Owen Becker
Lebogang Mosotho
Tshilidzi Nthambeleni
Dr Niel Rooi
Santa Sternsdorf
Colin Deiner
Richard Botha
Dr Mal Reddy
Dr Johan Minnie
Schalk Carstens
Joshua Fortuin
Koketso Mpshane
Harshvardhan Singh (India)
Chalmers Pagiwa
Publisher
Lee Raath-Brownie
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THE PRESIDENT'S PEN
Disaster management professionals operate in a dynamic environment where maintaining a high level of knowledge and skill through continuing professional development is essential.
Conferences, seminars, colloquia and workshops provide a learning environment that is enhanced through participation, engagement and networking to multiply the experience of the participant. Personal contact in enhances collaboration and builds relationships that go beyond the walls of the venue.
The vast distances between cities and towns in South Africa and the rising costs of transport and accommodation, makes in person events extremely expensive. This is further exacerbated by austerity measures that focus on the perceived “nice to have” travel, accommodation and catering.
Finding the balance between professional competence and the most affordable manner of achieving it, is a challenge facing the world and requires innovative thinking.
COVID-19 has fast tracked the use of virtual platforms for communication and education but lacks the personal contact.
This journal is another platform where knowledge and experience can be exchanged. To realise the full benefit of the journal requires the sharing of experiences, new legislation, methods and products as well as photographs. Each regional committee should have a dedicated committee member or a sub-committee to collect
information and photographs that can be forwarded to the publisher. This does not inhibit individuals from submitting articles.
The value of the journal can be further enhanced through feedback and debate on articles that are published, either as new articles or as letters to the editor.
The journal can be further developed as a continuing professional development tool, where readers can indicate what they have learnt from an article and how they will apply it in their work environment. The response will accumulate continuing professional development points.
Readers are encouraged to share their ideas and comments with me via email: owen777becker@gmail.com or mobile: 083 305 6917.
Owen Becker
FOREWORD: DMISA EXCO MEMBER: JOURNAL PRODUCTION AND
MARKETING
By Tshilidzi Nthambeleni: DMISA EXCO Member, Portfolio: Journal Production and Marketing
Firstly, let me extend my warm greetings to all the dedicated members, colleagues, and stakeholders of the Disaster Management Institute of Southern Africa (DMISA). It is noteworthy stating that the COVID-19 pandemic has immensely caused negative impacts to the communities globally, disrupting lives and posing challenges for many organisations. However, COVID-19 prompted innovations in technology for disaster management. DMISA adopted virtual platforms such as Microsoft Teams to host a series of dynamic and informative virtual conferences from 2020 through 2022. These conferences fostered engagement and collaboration among disaster management professionals despite physical barriers.
2024 Disaster Management Institute of Southern Africa Conference, which will be held at the City of Cape Town marks the second year of DMISA hosting its annual conference post COVID-19 pandemic. Last year, Vhembe District Municipality hosted 2023 DMISA Conference at the Kalahari Waterfront in Thohoyandou Nandoni Dam. This will be our second publication following the one released in October 2023.
South Africa, like other countries including our Southern African Development Community (SADC) region, continues to be devastated by the impact of disasters due to climate change. KwaZulu-Natal experienced heavy, thunderstorms, strong
winds caused by flooding and other weather-related incidents. More than 70 houses and road infrastructure including schools, clinics and water supplies were damaged in April 2024. During June 2024, KwaZulu-Natal was again hit with unprecedented flooding that was both unusual in its timing and staggering in its severity. The provinces affected include KwaZulu-Natal, Eastern Cape and North West where widespread damage occurred including electric structural damage, electric poles fell, cables were cut off and lives were lost during the occurrence.
Limpopo Province experienced a violent storm that occurred on 27 to 28 October 2024, unleashing intense thunderstorms that caused substantial infrastructure damage and displaced numerous residents from their homes.This catastrophe has highlighted the vulnerabilities and urgent need for improved infrastructure and disaster preparedness within South Africa.These extreme weather events serve as stark reminders of the urgent need for improved disaster preparedness and response strategies.
Western Cape Province is always ravaged by wildfires in the City of Cape Town. Climate change and deforestation have increased the frequency of blazes in the humid forest. Limpopo Province also experience wildfires, damaging farms and plantations, particularly Waterberg and Mopani districts take lead.
This important international observance focuses on empowering citizens, especially the youth, to prepare for and mitigate the effects of disasters.
It is with gratitude to announce the increase of DMISA members and not forgetting registration of disaster management officials as professionals. Professionalisation is a milestone strengthening disaster management and protecting the profession.
We applaud the breakthrough in implementation of Municipal Staff Regulation as mandated by Municipal Systems Act (Act 32 of 2000), which compels the municipalities to shortlist and hire candidates who holds Disaster Management qualifications and registered as professional.
We look forward to continue managing disasters better and hosting our yearly Disaster Management Institute of Southern Africa (DMISA) Conference.
The main objective for this journal is to showcase activities achieved by disaster management officials, research papers from elite academics and also serve as a platform of learning best practices and information sharing. The achievement of hosting this prestigious event is all the hard work of DMISA EXCO members.
Thank you for your dedication to disaster management. Together, we can work towards a more resilient society.
GEARING SOUTH AFRICA TOWARDS A
COMMUNITY-CENTRED DISASTER MANAGEMENT
SYSTEM
By Minister Velenkosini Hlabisa, Minister of Cooperative Governance and Traditional Affairs
In a world facing the relentless march of climate change, South Africa, like many nations, finds itself at the mercy of both natural and man-made disasters. Whether it is pandemics, environmental crises or technological catastrophes, the reality is clear: no community is immune.
The United Nations defines a disaster as any event that disrupts the functioning of a community, causing human, economic or ecological harm. These events can strike anywhere, anytime, with devastating impacts, like the recent floods in parts of the Western Cape and the fierce veldfires that swept through parts of KwaZulu-Natal and Limpopo in July 2024.
Effective disaster management is not just about responding to these crises, rather it is about being prepared. It is about ensuring that when a disaster strikes, we can act swiftly, tactically and
effectively. This requires the coordination of resources and role players across all sectors, public, private, non-profit and volunteers, to minimise the impact and protect lives.
Our Constitution designates Disaster Management as a shared responsibility between national and provincial spheres of government. While we acknowledge and welcome the fact that South Africa's disaster management framework is well-established, it needs urgent review and modernisation.
For years, the National Disaster Management Centre (NDMC) played a critical coordinating role pre, during and post disasters. Through the NDMC, the aim is to collectively reduce or avoid the potential losses from all types of calamities, ensure prompt and appropriate assistance to victims of disaster and achieve rapid and effective recovery.
With disasters becoming more frequent and severe, particularly in the context of climate change, we must rethink our approach to disaster management.
Accordingly, the NDMC is undertaking a comprehensive review of the disaster management and fire services system for South Africa, collaborating with stakeholders across the sector. This review aims to close the gaps in our current system which were highlighted through a detailed
analysis of literature, reports, benchmarking and international best practices.
The result of this review has been 12 key strategic objectives, seven of which are critical to strengthening our disaster management system:
• Mainstream disaster management in development planning
• Enhance disaster management capacity
• Implement an integrated information and communication system
• Explore innovative funding and risk management solutions
• Improve Coordination and responsibility in disaster management
• Strengthen institutional arrangements
• Enhance disaster resilience through risk assessment, capacity building and publicprivate Partnerships
However, weaknesses remain. The 2015 updates to the Disaster Management Act addressed some emerging issues but left critical gaps in coordination, mainstreaming and funding unaddressed. The Constitution’s lack of explicit recognition of disaster management as a local government function complicates legal and financial frameworks. Moreover, the system’s reliance on cooperative governance principles without effective enforcement measures hampers its effectiveness.
The envisioned model for South Africa emphasises risk reduction over mere response and recovery. This model will integrate disaster management into government planning at all levels, ensuring that it is adequately funded and that all government agencies are prepared to protect lives and livelihoods. This approach, inspired by international examples like Mozambique, California and New Zealand, aims to enhance emergency management and ensure swift, coordinated responses.
In this new model, disaster risk reduction is at the forefront. We will focus on preventing new risks, reducing existing ones and managing residual risks, all of which are essential to building resilient communities. To ensure this, we will forge stronger partnerships with both the public and private sectors, cutting through bureaucracy to
deliver immediate, life-saving aid when disaster strikes.
At the heart of our work and the new envisioned system is a simple truth: communities must be the priority. They are the ones who bear the brunt of disasters and their protection
is our ultimate goal. Preparing for disasters saves lives, speeds recovery and reduces costs. With this new, proactive approach, we are committed to safeguarding our communities and ensuring that no South African is left behind in times of crisis.
FOREWORD: HEAD, NATIONAL DISASTER MANAGEMENT CENTRE
By Dr Bongani Elias Sithole, Deputy Director General: Head - National Disaster Management Centre
1. Fire Services Contingency Planning 2024/2025 Summer Season
As we approach the summer season, the National Disaster Management Centre (NDMC) assures the public that the country’s disaster management and fire services are wellprepared to respond to the seasonal increase in fire incidents, floods and severe weather conditions across both coastal and inland provinces. With the heightened risk of veld fires, informal settlement fires, storms and potential floods, extensive interagency collaborations and readiness measures have been put in place to ensure a coordinated response to any emergencies.
1.1 Provincial summer contingency plans in action
The National Disaster Management Centre (NDMC), in collaboration with all Provincial Disaster Management Centres, has developed a comprehensive National Contingency Plan establishing a robust state
of readiness to effectively mitigate risks and ensure a coordinated and rapid response to potential emergencies during the upcoming summer season. Through strategic alignment and joint planning, the NDMC has reinforced its capacity to anticipate, manage and minimise the impact of disasters, prioritising the safety and resilience of communities nationwide.
Considering the increasing levels of disaster risk and exposure to severe weather conditions, the NDMC has facilitated comprehensive preparedness measures, coordinated at national, provincial and municipal levels. The key focus remains on saving lives, protecting property and maintaining critical infrastructure and services.
Planning protocols for the summer season are specifically designed to address preparedness for a broad range of risks, including inclement weather, flooding incidents, veldfires, informal settlement fires and special hazards such as search and rescue and hazardous materials incidents. In preparation for the season, municipal fire services have coordinated closely with their Provincial, Municipal and District Disaster Management Centres to ensure a state of readiness. Measures include implementing early warning systems, enhancing inter-agency communication and prepositioning firefighting resources in high-risk areas.
1.2 Coordinating structures
The National contingency summer season contingency plan details a multi-layered coordinating structure to effectively manage and respond to incidents during the summer season. Key coordinating structures include:
• National Disaster Management Joint Special Operations Command
• National Joint Flood Coordinating Committee (NJFCC)
• Inter Ministerial Committee on Disaster Management (ICDM)
• National Joints Operational and Intelligence Structure (NATJOINTS)
• DFFE: Natural Resources Management Branch –(Working on Fire Programme activation)
Earlier in 2024, the National Disaster Management Centre (NDMC) engaged with the Department of Forestry, Fisheries and the Environment (DFFE) to request the redistribution of their unused firefighting and support vehicles to municipalities, aiming to strengthen local firefighting capabilities. The DFFE agreed to the request and the unbundling process is now underway across provinces to bolster the capacity of municipalities ahead of the upcoming summer firefighting season. This strategic redistribution of resources reflects a collaborative effort between the DFFE and NDMC to ensure that municipal firefighting services are better equipped to
respond effectively to wildfires and other emergencies, particularly in high-risk regions.
1.3 Key impacts of the national contingency plan
The contingency plan for the summer season has been strategically developed to deliver several crucial impacts aimed at enhancing disaster preparedness and response capabilities across all levels. The key impacts include enhanced coordination and rapid response, improved community resilience and risk reduction, efficient use of resources and asset allocation, effective incident management and communication, robust early warning and information systems
1.4 Key safety messages to communities
Stay informed and act on warnings, prepare for floods and severe weather, prevent and prepare for fires, have an emergency plan, secure property and infrastructure, Know the key emergency numbers within your area, look out for vulnerable community members, avoid hazardous areas.
By reinforcing these key messages and impacts, the national contingency plan aims to build a culture of preparedness and safety within communities, ensuring they are well-equipped to respond effectively to emergencies during the summer season.
2. National Fire Services Indaba (+ logo)
The National Disaster Management Centre (NDMC) is proud to announce the hosting of the National Fire Services Indaba, scheduled to take place in George, 5 to 6 December 2024, under the theme: “Towards repositioning of fire services in South Africa”.
We showcase this event with the support of the Western Cape Department Local Government, through its Western Cape PDMC, the Garden Route District Municipality, George and Mossel Bay local municipalities.
This pivotal event will bring together key stakeholders from across South Africa’s fire services sector, government departments, private industry, academia and civil society. The Indaba is a critical platform aimed at fostering dialogue and collaboration to strengthen fire risk reduction efforts, ensure the effective implementation of fire safety initiatives and enhance the capacity of fire services nationwide.
Key objectives of the Indaba Day 1: Practitioners’ day (5 December 2024) Presentations and discussions driven by practitioners:
Galvanising national action: Fire services professionals will be mobilized to implement fire safety and prevention strategies, aimed at significantly reducing fire risks and economic losses.
Raising awareness: The event will engage political leadership at both provincial and national levels to increase awareness of the dynamics of fire services and the critical role they play in protecting lives and assets.
Enhancing municipal capacity: Discussions will be centred on strengthening the capacity of municipalities, to fulfil their legislative mandates related to fire services, in line with the Fire Brigade Services Act.
Improved coordination:
The Indaba will serve as a platform to discuss enhanced coordination mechanisms
across the three spheres of government and between the public and private sectors for more effective fire management.
Day 2: (Ministerial session) 6 December 2024
The second day of the National Fire Services Indaba promises to be a day of high-level discussions, strategic reflections and futureoriented dialogue on the role of fire services in South Africa. With the Deputy Minister of Cooperative Governance and Traditional Affairs acting as the programme director, the day will feature expert insights and collaborative conversations on key issues facing the sector.
Planned activities for Ministerial session:
• The Deputy Minister of Cooperative Governance and Traditional Affairs will reflect on the key outcomes of Day 1, setting the stage for the critical discussions to follow.
• A Keynote address by the Minister for Cooperative Governance and Traditional Affairs will focus on the theme: "Towards the Repositioning of Fire Services in South Africa." This address will highlight the roadmap for improving the capacity, readiness and resilience of fire services in the country.
• The day will also feature panel discussions moderated by the Deputy Minister, focusing amongst other, on:
• Integrated Fire Management and strategies for veldfire risk reduction
• Fire safety and prevention strategies for traditional landowners and communities on traditional land
• Artificial intelligence (AI) and its transformative potential in firefighting and fire prevention.
EARLY WARNINGS FOR ALL (EW4ALL): FROM STRATEGY TO RESILIENCE
By Owen Becker
The alarming number of deaths and financial losses resulting from climate related hazards and disasters prompted the United Nations secretary general, Antonio Guterres, to declare 2023 to 2027 Early Warnings for All (EW4ALL), with the objective of making early warnings accessible to everybody.
A four-pillar strategy was developed and a lead agent was assigned to each strategy: Pillar 1: Disaster Risk Knowledge - United Nations Disaster Risk Reduction (UNDRR).
Pillar 2: Detection, Observation, Monitoring, Analysis and Forecasting - World Meteorological Organisation (WMO).
Pillar 3: Warning Dissemination and Communication - International Telecommunications Union (ITU).
Pillar 4: Preparedness and Response Capabilities
International Federation of Red Cross and Red Crescent societies (IFRC).
These strategies are aimed at mobilising the development of international and national early warning systems, however, early warnings are only effective when they stimulate the appropriate response from the households and individuals at risk. This requires the identification of the exposed person or community and their understanding of the risk and its consequences and the mitigation required to manage the impact. Early identification of potential risks occurring and the timeous (maximum lead time) communication to those at risk will enable them to respond appropriately and eliminate or minimize death, injury, damage and loss.
It is concerning to note that hundreds of motorists were stranded in snow on the N3 for two days despite more than five days of warnings. In the United
States hurricane Helene caused 47 deaths in North Carolina 1 200 kilometres from landfall with a lead time in excess of five days.
This paper will examine the processes required to convert the strategies into operations that will meet the needs of communities, livelihoods, households and individuals at risk.
Disaster risk assessment
The foundation for managing disaster risk is understanding the associated hazards, consequences, vulnerability and capacity at a community, household and individual level.
Sources of information
Indigenous knowledge is information that people who live or work (including officials) in a specific area and have experienced or been told about historical incidents and disasters. These data are not documented and are usually passed from one generation to the next by word of mouth.
Qualitative data
Documented accounts of previous incidents and disasters including: newspapers, municipal records and reports, ship logs, journals, specialist and technical studies, libraries, archives and museums.
Qualitative data
Information that has been analysed, calculated, extrapolated and mapped to facilitate observation and spatial context for rapid and accurate decision making.
Risk informed development
The purpose of a risk assessment is not limited to when a crisis develops. Armed with the knowledge of a spatially aligned scientific risk assessment, disaster managers, planners, communities and decision makers are able to identify and prevent or mitigate the consequences and impacts of hazards in new and existing development and reduce the need for expensive response and reconstruction.
New development
New development provides an opportunity to address the potential impacts and consequences during planning, construction and operation so that prevention, mitigation and preparedness can be incorporated to ensure resilience and sustainability, “Begin Building Better”.
Existing development
Where hazardous conditions, such as settlement in flood lawns, ohh identified risk reduction strategies, programmes and projects must be implemented to eliminate the risk “Build Back Better”. Until the risk has been negated, early warnings need to be in place to ensure timeous response by the community and emergency services.
Early warnings
Early warnings are the collection and interpretation of conditions and their potential consequences so that communities and individuals can be informed of potential threats facing them, giving them as much time as possible to take avoidance measures.
Long to medium term forecasts include ENSO - El Nino and La Nina and may last for approximately a year.
Seasonal forecasts normally cover a period of three months and are based on predictions of the probability of temperatures and precipitation being below normal, normal or above normal.
7-to-14-day forecasts are computer generated models of the outcome of similar conditions in the past. The closer that the forecast is to real time the greater the accuracy will be, but less lead time will be available to respond appropriately.
Hazards versus consequences It is important to know what potential consequences can result from different types of hazard so that specific responders are assigned to deal with those that are in their mandate:
• Drought: crop failure, stock loss, insufficient potable water, increased fire risk and longterm socioeconomic impacts.
• Snow: hyperthermia, blocked roads and access to goods and services, stranded motorists, power and communication failures and building collapse.
• Tropical storms (hurricanes, typhoons and cyclones): very strong wind that damages buildings, infrastructure and trees. Sea surge and heavy rain result in flooding with water causing almost 90 percent of fatalities in tropical storms. Embedded tornadoes are often present in tropical storms when they make landfall.
The constant monitoring of the weather by the South African Weather Service facilitates the development of early warnings for hydrometeorological disasters, however, informal and wildfires,
human and animal disease outbreaks, industrial and chemical disasters, building and structural collapse, earthquakes, tsunamis, volcanic eruptions and transport disasters that are identified in a risk assessment, also require early detection and warnings.
Developing early warning systems
The development of an early warning system requires a comprehensive understanding of the hazards and vulnerability and their management. This can be achieved by using the 5W1H approach: What? Where? When? Who? Why? and How? in the following five step process:
• Data collection: It is necessary to identify what data must be collected, when, where and why they must be collected and how are the data collected and by whom.
• Data analysis and processing: What data for what areas (where) must be analysed and processed, when does this occur. Why and how is it done and by whom.
• Indicators: Develop indicators by establishing what indicators will be used, for which communities (where), when they will be used, why and how they will be used and by whom.
• Trigger thresholds: Use the 5Ws and an H to select specific trigger thresholds for
specific hazards in specific communities. This means that at a given threshold (when and why), a certain level of exposure and vulnerability will occur (what and how) in a given community (where and who). The threshold is normally set below the actual danger point to allow sufficient lead time to carry out the necessary actions.
• Activation: Once the trigger thresholds have been identified, it is necessary to assign responsibility for the appropriate activation. Using the 5Ws and an H the when, where and why can be established to allocate the what and how that must be undertaken by whom.
Note: specific early warning systems need to be developed for every potential hazard facing communities at risk.
Dissemination of early warnings
A similar process using the 5W1H can be followed when disseminating warnings that are based on the early warning system that has been developed:
• Data collection: What data are monitored and collected, at the points the data are collected and monitored (where) at what frequency (when)? This may change as determined by the early warning system. How and
why the data are collected and by whom?
• Data analysis and interpretation: Who analyses and interprets the data (what) how often is it analysed (when) and for what areas (where)? How is it analysed to establish what information (why)?
• Indicators: What indicators are monitored, how often (when) for what areas (where) how are they monitored, to establish which trigger thresholds (why) and who does the monitoring?
• Trigger thresholds: When a predetermined threshold (what) is reached for a given area (where) a predetermined alert is triggered (how and why) by whom?
• Activation: At given trigger thresholds (when) for specific areas (where) warnings will be issued by whom and to which communities and services? How will the warning be issued, prompting what action and why?
Note: A number of warnings at different levels could be effective at the same time and these will change as the incident or disaster develops.
Conclusion
Early warning systems, based on risk assessments and maps,
must be developed to address the alarming number of deaths caused by incidents and disasters.
Risk assessments must be used to address disaster risk through risk informed development and risk reduction strategies before a disaster occurs.
The development of an early warning system is a five-step process based on the 5W1H approach:
• Data collection
• Data analysis and processing
• Indicator development
• Development of trigger thresholds and
• Activation.
The dissemination of early warnings follows a similar process:
• Collection of observation data
• Processing and analysis data
• Monitoring of indicators
• Trigger according to thresholds and
• Activation.
Effective early warning systems will provide all communities, households, individuals and emergency services with sufficient time to take appropriate steps to mitigate and prevent the impact of the consequences on lives, livelihoods and property.
References
Erdman, J. 2023 This Is Actually The Biggest Killer During Hurricanes And Tropical Storms [online] Available at: <https:// weather.com/safety/hurricane/news/us-deaths-hurricanestropical-storms-nhc-study> [Accessed October 2024].
George Petras, G. Loehrke, J. Zarracina,J. 2024. Maps track Hurricane Helene's 800-mile path of destruction across southeastern US. [online] Available at: <https://www.usatoday. com/story/graphics/2024/09/29/hurricane-helene-damagemaps/75440587007/> [Accessed 27 October 2024].
WMO. 2022. Early warnings for all. [online] Available at: <https:// earlywarningsforall.org/site/early-warnings-all> [Accessed 15 October 2024].
DMISA, the voice of the Disaster Management community and the SAQA recognised professional body for Disaster Management in South Arica, proudly presents:
2024 DISASTER
Connecting generations and communities to collectively build and maintain disaster risk reduction capability in the face of change and uncertainty.
C A P E T O W N
Western Cape Province, South Africa
STORMWATER ANALYSIS VITAL
FOR MINE PLANNING BUT NOW MORE COMPLEX
With South Africa experiencing numerous devastating flood events in recent years, this has placed a spotlight on the challenges inherent in minimising flooding by undertaking accurate stormwater analysis and using this analysis to place infrastructure away from vulnerable flooding areas.
One of the key aspects of placing infrastructure is guided by estimating the flood levels and modelling where flood levels through hydrological and hydraulic modelling of stormwater volumes and flows, according to hydrologist Charmaine Thulo, a member of SRK Consulting’s water team. A fundamental objective is to manage the risk to life and property but there are also stringent water regulations which must be observed.
“Regulation GN704 of the Water Act requires that clean water runoff that is not contaminated by mine infrastructure be separated from runoff water that
comes into contact with mine infrastructure.” said Thulo.
Sizing facilities
The analysis of stormwater patterns is therefore the subject of specialised computer modelling, to simulate storage in pollution control dams as well as assisting the sizing of drainage channels and pipes. This modelling helps minimise discharge from the pollution control dams. Such models utilise detailed rainfall data from one or more sources, to establish baselines and predictions for 1-in-50-year or 1-in-100-year floodlines.
“At the same time, many clients such as mines are looking for ways to reduce their reliance on external water resources like municipalities,” she explained. “This can include finding ways to store more water for their own use, while still managing the risk of excessive stormwater inflows, which could exceed the capacity of their pollution control dams.”
Rainfall more variable
She highlights that historic rainfall data has been the traditional benchmark for stormwater analysis, as it has in the past provided a reliable basis for what to expect in the future. However, climate change has already started to lead to more variable rainfall patterns, making it more difficult to make accurate predictions.
“Our modelling of stormwater now has to take this into account, as there could be significant variations going forward which demand adjustments to the designs
and specifications of water infrastructure,” she said.
For mining companies with tailings storage facilities (TSFs), for example, there are also recent standards that require stricter compliance. The Global Industry Standard on Tailings Management (GISTM) focuses on climate change adaptation and explicitly demands that signatories recognise climate change factors and build these into their designs to ensure that TSFs remain stable and safe for their long life spans and to reduce the risk of environmental impacts.
Reviewing drainage “These concerns have led to some clients asking us to review the capacity of their TSF penstocks, decant pipes and water channels,” said Thulo. “This is an important consideration as rainfall is a key factor in the stability of structures such as tailings dams and drainage capacity must keep up with the volumes of rainwater being retained on the surface.”
Stormwater analysis is also vital in establishing the water balance for any mining operation as it helps in understanding and managing the runoff from rainfall, which consolidates the volumes of water available and the respective uses. Such an exercise helps identify water sources and allows for efficient allocation to its facilities including plants, tailings and return water storage dams. These calculations, which must ensure operational efficiency and environmental compliance, must now also deal with the
SRK Consulting hydrologist Charmaine Thulo
Climate change has already started to lead to more variable rainfall patterns making it more difficult to make accurate predictions
uncertainties associated with climate change, she concluded.
SRK Consulting is an independent, global network of over 45 consulting practices on six continents. Its experienced engineers and scientists work with clients in multi-disciplinary teams to deliver integrated, sustainable technical solutions across a range of sectors ie mining, water, environment, infrastructure and energy. For more information, visit www.srk.co.za.
ABOUT CHARMAINE THULO
With three years of experience in the field on several South African projects, Charmaine Thulo is a hydrologist with SRK Consulting. Her work has covered various aspects of hydrology including floodlines, mine water management and stormwater management planning.
Her areas of expertise include mine water balance, and the hydraulic and hydrological modelling of watercourses using HECRAS and GIS (ArcMap). She holds a BSc degree in Hydrology and Water Resources and a BSc (Hons) in Geography.
MINISTER HLABISA CALLS FOR A CULTURE OF DISASTER PREPAREDNESS DURING THE
COMMEMORATION OF THE IDDR
By Lebogang Mosotho, deputy president, DMISA
The Minister of Cooperative Governance and Traditional Affairs (CoGTA), Minister Velenkosini Hlabisa, led the South African commemoration of the International Day for Disaster Reduction (IDDR) in Polokwane on Friday, 11 October 2024. The event was organised by the National Disaster Management Centre (NDMC), the Limpopo PDMC, Capricorn District and Polokwane Municipalities and Santam.
The day is observed annually on 13 October as a global event aimed at promoting a culture of risk awareness and disaster reduction.
In observing the importance of disaster risk reduction as an all of government and society responsibility, Minister Hlabisa was joined by the Chairperson of the National House of Traditional and Khoi-San Leaders (NHTKL), Kgosi Thabo Seatlholo; Deputy Ministers, Dr Namane Masemola and Prince Zolile Burns-Ncamashe of CoGTA, David Mahlobo of DWS and Mmapaseka Letsike of DWYPD; MEC Basikopo Makamu of COGHSTA; Mayors of Capricorn District, Cllr Mamedupe Teffo and Cllr Mosema Mpe of Polokwane Local Municipality as well as Cllr Sabina Mtsweni from SALGA and other councillors, business representatives, practitioners and civil society organisations
to optimise the promotion of an informed, alert and self-reliant society capable of playing part in all aspects of disaster risk and vulnerability reduction.
The theme for the 2024 IDDR is: "The role of education in protecting and empowering youth for a disaster-free future". This theme captures the essence of what we aspire to achieve; a future where all young people, regardless of their circumstances, are equipped, empowered and ready to face the challenges of a world increasingly shaped by natural or manmade hazards, climate change and complex global dynamics.
The programme animated the theme with active and enthusiastic participation from learners, which underscores the pivotal role of education in preparing younger generations to face and mitigate the impacts of natural and human induced disasters.
Following insightful discussions at the commemoration, which put a spotlight on the role of ‘Education in protecting and empowering youth for a disaster-free future’, Minister Hlabisa emphasised the importance of empowering everyone to respond promptly and effectively in case of emergencies and disasters.
Disaster risk reduction is not just about responding to disasters when they occur; it’s about creating a culture of prevention and preparedness, where vulnerabilities are reduced and resilience is built into the fabric of our communities.
Education is the cornerstone of disaster risk reduction. Through education, we can instil a culture of prevention, preparedness and resilience. We can teach our children not only how to respond in the face of disaster but, more importantly, how to anticipate, mitigate and prevent these disasters from occurring.
The commemoration comes at a time when South Africa like many countries is experiencing unprecedented myriad of hazards and disasters such as, drought, floods, storms, lightning strikes, extreme heat, veld fires, cold spells, snow, tremors, etc. This, therefore, not only calls for effective DRR mechanisms but also early warnings, preparedness, mitigation, response and recovery efforts.
The IDDR event was crucial as it reiterated the need for proactive and collaborative efforts in reducing disaster risks. The event emphasised and fostered a culture of prevention and preparedness, to build safer and more resilient communities worldwide.
Teaching the youth about the role of disaster risk reduction is a much required investment in the future, which augurs well with this year's theme that advocates for a youth led global movement for disaster risk reduction initiatives.
The speakers at this commemoration called for the incorporation of disaster risk reduction in the curricula starting at primary schools to universities, disaster risk education must become an integral part of our teaching and learning processes.
Education is the most powerful tool that we can use to build resilience. It is through education that we can empower youth to take control of their futures and become leaders in disaster risk reduction.
Deputy Minister Masemola indicated during his scene setting address that, the International Day for Disaster Reduction is a day reserved to acknowledge the ever-present risk of disasters whether natural or manmade. But most importantly, it is a day to inculcate a universal culture of risk averse behaviour through raising awareness and empowering communities to champion disaster risk reduction especially youth.
Dr Elias Sithole, Head of the National Disaster Management Centre (NDMC), emphasised that building a resilient South Africa starts with educating the youth. "By equipping the younger generation with knowledge and skills in disaster risk management, we're laying the groundwork for a resilient nation," he stated. Dr Sithole stressed the importance of integrating schools into disaster Early Warning Systems (EWS) and equipping them with emergency plans.
He urged for age-appropriate education on disaster risks, highlighting youth's potential as active participants in disaster risk management.
The event featured engaging activities for primary school learners from the Capricorn District, including quizzes and presentations on disaster risk reduction (DRR). These activities demonstrated the ongoing integration of DRR education into the school curriculum.
Tersia Mdunge from Santam provided insights into the private sector's role in DRR. She called for a shift from protection to prevention in the insurance industry and emphasised the need for more research on incentivising DRR-related investments.
Kgosi Seatlholo, raised the need for capacity building targeting traditional leaders to guide traditional land use to avert settling in flood plains, which lead to disaster.
The two-day commemoration was characterised by engagements with learners from various schools focusing mainly on how to empower youth to safeguard lives and livelihoods, especially by minimising human induced disasters by employing young people as agents of change in pursuit of resilient societies.
Participants further agreed that disaster reduction requires collaborative approaches that also integrate partnership,
technology and innovation as well as indigenous knowledge.
This is a challenging task but it is not an impossible one. We have the knowledge, the tools and the resources to make this vision a reality.
Disaster risks reduction should also be inclusive to cater for vulnerable members of the communities including persons with disabilities, LGBTQI+.
As we move forward, our goal must be to build a culture of preparedness. We need a culture where disaster risk reduction is embedded in our daily lives,
our educational systems and our governance structures. This culture must be one that is inclusive, where every young person, regardless of who they are or where they come from, is empowered to contribute to a disaster-free future.
During the event, all stakeholders reaffirmed the commitment to the protection and empowerment of our youth, whilst also recognising the diversity of our young people. We need to ensure that our efforts are inclusive, equitable and far-reaching.
The future we aspire to, a future where disasters no longer
devastate lives and communities, is within our reach. But it requires everyone to act now, to educate, to empower and to involve our youth in every step of the journey. Together, we can build a disaster-free future. A future that is safe, resilient and just for all.
Delivery the concluding remarks, Deputy Minister BurnsNcamashe recommitted the resolve by all stakeholders to use education as a responsive and anticipatory catalyst for disaster reduction.
As they say, “We do not inherit the earth from our ancestors; we borrow it from our children."
FUTURECASTING:
BUILDING RESILIENCE IN THE FACE OF CLIMATE CHANGE DISASTERS
By Dr Niel Rooi, City of Johannesburg Disaster Management Centre
Building disaster resilience is critical for role-players in disaster management, communities and governments worldwide, especially in the face of frequent natural and human-induced hazards. Futurecasting is a strategic, forward-looking approach aiming to actively shape the future we want to create rather than passively predicting what might happen. It uses scenarios to explore potential futures based on different assumptions about key socio-economic and environmental change drivers. These scenarios help us identify risks and opportunities and plan for broader possibilities.
In an era marked by increasing ecological challenges, social upheavals and fiscal uncertainties, the need for disaster resilience has never been more pressing.
Futurecasting, a strategic foresight tool, offers a robust framework for organisations and communities to anticipate potential disasters and develop robust resilience strategies. This article looks at the importance of disaster resilience, explores the relevance of the futurecasting concept, its significance in disaster resilience and steps to implement it. It concludes with some case studies and potential benefits and challenges.
The importance of disaster resilience
Disaster resilience refers to the ability of individuals, communities and systems to prepare for, respond to, recover from and adapt to adverse events. Building resilience is crucial to primarily protect lives and livelihoods. The potential of futurecasting to develop effective resilience
strategies is not just an emerging theoretical debate. It's a practical tool to save lives and minimise economic losses during disasters. This underscores our responsibility to implement futurecasting to its fullest potential.
Furthermore, resilient communities are not just better equipped; they are inspiring examples of adaptability. They can sustain their social, economic and environmental systems in the face of challenges, offering hope and inspiration for others. This adaptability is a key component of resilience, making resilient communities such powerful models for the rest of us.
Lastly, as climate change and other global shifts impact societies, resilience becomes essential for adapting to new
realities. Resilient communities survive and thrive in the face of challenges, inspiring us all to strive for a better future.
Futurecasting and its relevance to disaster resilience
Futurecasting is envisioning multiple potential futures based on current trends, data and expert insights. Unlike traditional forecasting, which often relies on linear projections, futurecasting embraces uncertainty and complexity. It encourages stakeholders to consider various scenarios, including best-case, worst-case and everything in between. This holistic approach allows for a more nuanced understanding of potential risks and opens a world of opportunities that might otherwise be overlooked.
Futurecasting as a tool for disaster resilience could enhance disaster resilience by enabling organisations and communities to:
• Identify vulnerabilities - by exploring future scenarios, stakeholders can identify potential vulnerabilities in their systems and processes.
• Develop adaptive strategies - futurecasting encourages the development of flexible strategies that can be adjusted as conditions change.
• Foster collaboration - engaging diverse stakeholders in the futurecasting process promotes cooperation, collaboration and a shared understanding of risks.
Steps
to implement futurecasting for disaster resilience
Data collection and insights: The first step in futurecasting is to collect relevant historical and current disaster data, trends,
vulnerabilities, future risks and expert opinions. This information serves as the foundation for scenario development and engaging diverse stakeholders. Involving diverse stakeholders, including community members, government officials, business leaders and subject matter experts, in scenario planning could ensure interventions are tailored to their needs and greater buy-in and ownership. In addition, the diverse insights and perspectives are invaluable in recognising patterns and trends that could shape realistic scenarios or future risks.
Realistic scenario development allows for creating a range of future likelihoods that reflect
best-case, worst-case and most probable scenarios that consider climate change, technological advancements, economic shifts and social dynamics. Each scenario should outline possible impacts on the community or organisation. Analysing the possibilities for each scenario impact can establish what vulnerabilities might be exposed or what resources would be needed to respond effectively. This analysis could help prioritise actions and investments. Furthermore, strategies and actionable plans should be developed based on the scenario analysis that outlines specific steps to enhance resilience. These plans should be costeffective, flexible, adaptable
and adjustable to new data or emerging trends. The key to implementing a futurecasted plan is that it is not a one-time exercise. The effectiveness of implemented plans should be regularly monitored and changes in trends, emerging risks, scenarios and action plans accordingly. This ongoing process ensures that resilience strategies remain relevant and practical.
Case studies of futurecasting in action
The impacts of climate change are widespread and escalating, from devastating flooding to deadly wildfires to powerful hurricanes and prolonged rural and urban droughts. The World Economic
Forum warns that by 2050, climate-related disasters could cause 14.5 million deaths and $12.5 trillion in economic losses.
The Netherlands and Flood Resilience:// The Netherlands has long been vulnerable to flooding due to its low-lying geography. By employing futurecasting, Dutch authorities have developed comprehensive flood management strategies that consider various climate scenarios. Their strategies include reinforcing dikes and constructing new barriers to protect against rising sea levels and storm surges. They have also implemented the “Room for the River” approach. This
innovative approach allows rivers to flood in designated areas, reducing pressure on dikes and minimising damage to nearby infrastructure. The Dutch also implemented sustainable urban drainage systems (SUDS), which consist of permeable pavements, green roofs and rain gardens to manage stormwater effectively. Climate Adaptation Plans reinforce these strategies. These plans integrate various climate scenarios to ensure resilience against future weather extremes in the Netherlands. The Netherlands aims to create a flexible and adaptive approach to sustainable flood management by considering the different climate scenarios. This proactive approach has made the Netherlands relatively flood-resilient and has led to innovative solutions like floating neighbourhoods and enhanced dike systems.
California Wildfire
Preparedness:/ In California, futurecasting has been used to address the increasing threat of wildfires. Analysing climate data and fire patterns indicates that fires start earlier and last longer. State officials used the data to develop targeted strategies for community preparedness, including improved evacuation plans and fire-resistant infrastructure. In addition, the wildfires are creating an increase in respiratory illnesses. Keeping a trend analysis assists California in equipping its medical facilities better with the potential future ailments increase as residents age.
Urban Resilience in New York City/: Following Hurricane Sandy, New York City implemented futurecasting to enhance its resilience to future storms. The city engaged stakeholders in scenario planning, leading to investments
in green infrastructure, improved emergency response systems and community engagement initiatives.
South Africafuturecasting its city’s
The City of Johannesburg has drafted and implemented a Disaster Management Plan and a Climate Action Plan to enhance its resilience based on the various trends and risk scenarios set. The city hosts webinars and workshops through its Disaster Management Centre to engage stakeholders on common climate-related risks, establish collaborative interventions and enhance resilience building. The city has also led or formed compacts to implement various projects to address flooding in flood-prone areas, such as Koka Street in Soweto and the Jukskei catchment monitoring project.
Benefits and challenges of futurecasting in disaster resilience
The benefit of futurecasting is that it enhances preparedness and response capabilities. It Improved resource allocation based on predetermined scenario probabilities and disaster risk management. Lastly, it Increased stakeholder awareness and engagement.
While futurecasting offers significant straightforward benefits, there are complex challenges to consider. One of these is data limitations. Access to reliable related data is crucial. The quality and availability of associated data can impact the effectiveness of futurecasting.
Another is over-complexed scenarios. Developing realistic scenarios that accurately reflect the complexities of real-world systems. Careful consideration should be given to
interdependencies and potential cascading effects.
Another challenge is time management. Engaging diverse stakeholders can be timeconsuming and may require skilled facilitation and finances to ensure productive discussions.
Considerations
• Upgrading infrastructure: This includes using building materials and designs that are more resilient to flooding, high winds and other climateemerging impacts.
• Updating building codes: This might include higher standards for building insulation, roofing and windows to withstand disruptive storms and temperature extremes.
• Risk reduction and planning: This includes mapping out vulnerable communities, creating ward-based emergency response plans and conducting regular drills.
• Climate equity: can involve improving access to housing, economic resources and community services.
• Innovation and technology: This could include scenariobased early warning systems
and green infrastructure like parks and wetlands that can absorb floodwaters.
• Community engagement: involves public awareness and education campaigns, community workshops and ward-based participatory planning processes.
Conclusion
Building disaster resilience through futurecasting is a proactive approach that could empower communities and organisations to prepare for potential challenges and navigate uncertainty. By embracing a holistic scenariobased view of possible futures, stakeholders can identify vulnerabilities, develop adaptive strategies and foster timeous collaboration. As the world continues to face complex and evolving threats, futurecasting has emerged as a critical concept that plays a vital role in shaping resilient societies capable of thriving in the face of adversity. Lastly, by making a few considerate changes, cities can respond more effectively to current extreme weather challenges and build a foundation for greater resilience against future shocks.
9 December 2022: Water level at a house in Lenasia
VICTORIA STREET BUILDING COLLAPSE: FIRE AND RESCUE WHEN THE UNIMAGINABLE HAPPENS
By Santa Sternsdorf, station commander, George Fire and Rescue Department
No textbook in the world can prepare you for the unknown when disaster strikes. Rescue workers experienced this truth first-hand when a five-storey building under construction collapsed in the city centre of George, South Africa, on Monday, 6 May 2024, killing 39 people and injuring 28 others.
The incident, which became known as the Victoria Street Building Collapse, attracted worldwide media attention and redefined emergency services’ approach to search and rescue of collapsed buildings in urban environments.
It also set a new standard for interdepartmental cooperation within a municipality as well as for collaboration between municipalities and other emergency response and humanitarian services.
George Fire and Rescue Chief Fire Officer Neels Barnard, who was the incident commander for the building collapse, said complete implosion of a multistorey building with multiple deaths, was exceptionally rare in South Africa and responders would seldom be exposed to the full implications of such an incident. “Victoria Street
demanded every grain of skill, experience and initiative to address the wide range of unique challenges. We were privileged to be supported by experienced rescuers from across the country, some of whom had worked on rescue and recovery following natural disasters in other parts of the world,” said Chief Barnard.
The incident scene
The structure, once completed, was going to be a five-storey, 42-apartment building including an underground basement for parking vehicles, which stood on pillars in the basement supported by weight bearing walls.
An aerial view of the incident site and SAR operations
The building collapsed in pancake fashion with very little debris beyond the twometre perimeter. The adjacent buildings, an apartment building on the eastern side and a residence on the western side, were nearly unaffected with only a cracked window and three broken roof tiles.
There were two asbestos-roofed parking structures, at the back of the collapsed building’s property, being used by occupants of the neighbouring apartments. A section of the asbestos roof had been damaged in the collapse and immediately raised hazardous material concerns.
The George Municipality’s main building is situated directly across the road from the collapsed building site.
Situated in the centre of town, the collapsed building site is less than a block from the city’s main road, known as York Street.
Initial reports indicated about 82 people were working construction-related jobs on the site at the time of the collapse. Demographics of workers included students from a local trade school, male and female and foreigners from countries such as Mozambique, Zimbabwe, Botswana and Lesotho.
Initial response
The first report was made within seconds from the collapse at 14h09, by a civilian, directly to the mobile phone of the George Municipality Fire Chief, Neels Barnard.
The George Fire Department responded with its full on-duty operational staff complement and four senior officers. All other relevant emergency and municipal services were informed and dispatched immediately thereafter. Every emergency worker will confirm that when a call is received regarding a building collapse, the image in one’s mind is mostly that of partial collapse, section of floor or wall, a roof segment or support. No one could have imagined the scale of the collapse and people involved. Even engineers, who witnessed the aftermath, stated that buildings are meant to be designed to fail in section or parts, not all at once.
Upon arrival, initial objectives were to take control of the scene, close it off, triage patients and distinguish people on the scene between bystanders, workers and patients. Fire and rescue services also assessed the general stability of the scene, the building rubble pile and
surroundings. Finding direction in the chaos to implement some structure was a very big and difficult task. There were a thousand things to consider and arrange, to give all a sense of direction to know what to do.
George Municipality Fire and Rescue took incident command (IC) with triage being set up by private ambulance services until the state’s Metro EMS ambulance service arrived and took over the management thereof.
22 patients, mostly tagged green/walking wounded and two patients tagged blue/ deceased, were rescued and recovered within the first four hours of the collapse.
Construction supervisors initially estimated 59 or 62 people on site but a figure of 82 had come from the Multi Agency Centre (MAC).
Responders quickly realised that the scale of the incident required specialised equipment and more assistance and contacted the Western Cape Disaster Management Centre (WCDMC) at 14h30 to request provincial rescue support.
The following resources were dispatched or activated in response to the request:
Scaffolding on site posing risk to rescue workers
• Western Cape Department of Health and Wellness
• Search and Rescue capabilities from Cape Town including:
• Western Cape Provincial Search and Rescue cache
• Breede Valley Municipality Search and Rescue
• City of Cape Town Fire and Rescue team together with heavy-duty equipment
• SARZA Search and Rescue (highly specialised and trained volunteers owning 4x4 vehicles)
• South African Police Search and Rescue including K9 search dogs
Initially, all bystanders and workers were called off the rubble to allow for the site to be assessed and teams to be organised. Rescue teams were then formed by combining fire service, ambulance rescue technicians, other rescuers and volunteers.
Safety officers were appointed for each rescue team that went into the rubble. Later, the area was divided into six sectors, with a safety officer overseeing three sectors each.
Initial challenges on the scene included determining the location of live victims and
determining which types of resources were required to rescue them. Scaffolding was hanging precariously over the front (north) and western side of the collapsed building, which was considered dangerous.
The action plan for the first 24 hours was:
Establishing the incident command, site sectorisation (6 sectors were demarcated from Alpha to Foxtrot), structural stabilisation, access victims whose position was known, patient removal and emergency care (live victims were prioritised), identification of possible voids and further void exploration and using intelligence plans to identify location of possible victims
With operations going into darkness on Day 1, the George Municipality Electrotechnical Department set up spotlights around the scene to ensure 360-degree illumination. The block on which the site was situated, had lost electricity when the building collapsed. The electrical source to the site was isolated and the rest of the block’s power restored.
George Municipality’s Civil Engineering Department provided yellow plant and tipper trucks for the removal of debris for ease of movement around the site.
Ongoing operations
Twelve hours into operations, with most of the rescue teams having arrived on site, the scope of the extended operation was estimated to be about 14 to 28 days’ work.
Shift systems were implemented to manage human resources, tool staging areas were established and an area was created for rescue workers’ care.
The senior management team of the George Municipality under the leadership of the municipal manager, gave the chief fire officer full authority to execute the operations. Their presence during the incident assisted in quick and decisive consultation and decision making to ensure optimal resources were available to the rescue teams’ disposal.
Rescue mode
Considering the first 72 hours as the most likely to find live victims, the operation remained in ‘rescue mode’ with the main objectives being:
• Location, access and releasing from the rubble victims whose positions were known
• Marking areas where victims known to be deceased were located
• Identifying two large voids inside Sectors Bravo and Echo
• Securing access points, first with rebar and later using wooden T-spot shores
• Confined space search operations
• Removal of destroyed scaffolding and moving all debris off-site.
Department of Labour (DoL)
Officials of the National Department of Labour arrived on Day 2 and insisted on access and jurisdiction based on the accident site’s status as a worksite on which people were employed, injured and killed. However, since it was still an active rescue site, legal jurisdiction remained with local rescue authority: George Fire and Rescue, supported by Western Cape Province Disaster Management.
Labour officials were given access to the site to observe. The department also insisted that building rubble that had been removed from the imploded site had to remain on the property until the necessary structural tests and investigations could be undertaken. The site’s location and size, as well as health and safety concerns, did not allow for it.
The George Municipality Solid Waste Department made an emergency decision to transport all incident rubble to a dedicated space on its refuse site, where it could be guarded by municipal law enforcement and a private security company, until the Labour Department’s investigation was complete. The trucks transporting the rubble were escorted by the George Traffic Department to prevent in-transit tampering.
Asbestos
risk
The asbestos roof of the parking structure was damaged during the collapse, creating a potential health and safety risk to everyone on site. Incident commander, Fire Chief Neels Barnard, arranged for an accredited service provider to remove all asbestos from Delta Sector before work could recommence.
Extended rescue mode
While the possibility of survival was diminishing, the team remained in extended rescue mode, treating the site with care in expectation of more live rescues. This approach paid off when a worker was found alive on Day 6 relatively unharmed.
Nonetheless, the removal of deceased victims’ bodies from under the rubble was becoming priority because of health risks associated with decomposing bodies.
At the same time, information was being collected regarding the collapsed building’s construction, layout, collapse patterns, risks and material behaviour of the rubble.
Structural delayering was becoming urgent for rescuers to reach deeper where victims may be trapped but efforts were being hampered by substandard building materials that were not responding as was expected.
Transition to heavy demolition assistance
A specialised demolition
company was brought in to assist with the breakup and removal of building material. The company arrived on Day 5 and started delayering from Charlie Sector.
Void backfilling (stability)
Engineers were becoming concerned that the retaining wall for the basement was becoming unstable due to the pressures from the sides, as well as the failure of the ground floor that was supposed to counterweight from the sides. The cement slabs, which formed the ‘floors’ of the building, were laying on top of uneven rubble, causing it to start losing integrity.
The area against Victoria Street was suitable for backfilling with rubble from other sectors to help stabilise the retaining wall but was searched and cleared twice by K9 dogs to confirm that there weren’t any people in the space, before backfilling started.
Rescue and recovery
Rescue operations were a combined rescue and recovery process but priority was given to locations of known living patients.
Damaged asbestos roof in Delta Sector
Operations were complicated by the poor quality of building materials which did not behave in the manner rescue workers were accustomed, such as concrete that would turn into powder instead of breaking into manageable pieces, causing concrete slabs to unexpectedly shift. These factors were of great concern to the safety of emergency personnel.
The rescue and recovery rate ran as follows over the eleven days of the incident, bearing in mind the original estimated number of people missing, according to the Multi Agency Centre (MAC), was 82.
First four hours: 22 rescued, two deceased (24)
Day 2; 7 May 2024: 8 rescued, 3 DOA* (35)
Day 3; 8 May 2024: 1 rescued, 1 DOA (37)
Day 4; 9 May 2024: None (37)
Day 5; 10 May 2024: 3 DOA (40)
Day 6; 11 May 2024: 1 rescued, 2 DOA (43)
Day 7; 12 May 2024: 7 DOA (50)
Day 8; 13 May 2024: 11 DOA (61)
The final count of people rescued was 34 and 28 bodies recovered; totalling 62. Five of the rescued people succumbed to injuries in hospital, raising the final death count to 39.
The remaining persons unaccounted for were later verified by the South African Police Service (SAPS) as not having been present at the time of the collapse.
The pinnacle of the rescue operations was when Mr Gabriel Guambe was discovered alive on Day 6. With morale low and hope dwindling, the initial thought was that the sounds the rescuers were hearing under the rubble could not possible be that of a survivor. It was too good to be true. Verifying every indication from the K9s to the camera and acoustics’, the discovery of a survivor gave renewed vigour into all on site. His survival after 118 hours under the rubble was the miracle everybody prayed for. It was the embodiment of why we became rescuers.
Hospitals
Local hospitals activated mass casualty protocol with the George Hospital (state) and Mediclinic (private) excellently, providing the required emergency care to victims. Patients were sent to emergency care centres based on the triage process and capacities of each hospital as the only selection factors.
Rescue equipment
Day 9; 14 May 2024: 1 DOA (62)
Day 10; 15 May2024: None Day 11; 16 May 2024: None. Site handed over to SAPS/DOL.
* DOA = Dead upon rescuers reaching the victim
Rescuers made use of a wide range of equipment, including power and hand tools, across a diverse rescue site.
Battery operated tools worked best and small power tools, such as angle grinders, were essential in breaking up rubble, cutting reinforcement rods and for working in confined spaces.
Rescue operations prioritising live victims
Some private companies sponsored hard-wearing parts such as drill bits and blades, which required administration functions to ensure that all sponsored and paid services were correctly processed before items were used.
Dedicated personnel were assigned to handle tool maintenance exclusively such as cleaning, sharpening and battery charging, which was very effective. Tools were readily available at a moment’s notice.
Non-emergency support and logistics
The George community has handled its share of disasters, including the 2017 Knysna Fires and the 2018 Outeniqua Mountain Fires and local NGOs and community-based organisations were familiar with emergency services workers’ needs. Well-connected networks of resources were very quickly activated and a full catering facility was set up on site. By Day 3, they were able to provide nearly three hot meals a day.
The George Fire Department implemented a colour tag system to identify authorised people on site. Emergency workers carried green, volunteers for search and rescue as well as outside construction workers were labelled orange and volunteers working the food, rest and recovery area wore pink labels. The system was not perfect and small adjustments were made throughout the incident as required. According to sign-in sheets, approximately 1 000 people volunteered on site on Tuesday (Day 2).
Construction volunteers were reduced after Day 3 and completely stopped on Day 4.
A major logistical challenge was the personal protective equipment (PPE) required for volunteers as they were not allowed onto the rubble pile without a helmet, safety shoes, gloves and a reflective bib. It was also difficult to ensure the safety of volunteers. Donations from companies and NPOs helped tremendously to address this challenge.
The logistics of food and water became an operation almost on its own. Small shipping containers were donated to help with storage. The Garden Route Health Department monitored food preparations and storage as well as health and hygiene on site. Wash basins and sanitising stations were set up with a very strict individual, ensuring everybody washed their hands before entering the food area.
K9 response (trained dogs) The K9 response consisted of K9 Search and Rescue Organisation (volunteers organisation), the SAPS K9 unit and, later, joined by dogs from the Gift of the Givers humanitarian organisation. Five dogs and their handlers worked
the incident with the assistance of another two when required.
The dogs initially helped finding live patients. Each positive indication from a dog was verified by a second dog before efforts at a specific place would commence. Later, the dogs were used to find possible deceased patients (cadaver search).
Interpretation of the dogs’ finds and information provided by their handlers, informed decisions that Incident Command made about action plans.
As mentioned before, dogs were used to confirm that there were no people in an area where backfilling was required to stabilise a retaining wall.
The extended period of operations took its toll on the dogs and lessons learnt included the establishment of shifts and ‘off duty’-dogs to be taken off site completely to reduce noise stress and overstimulation.
People working on site were asked to refrain from eating on the site and rubble pile where
Dog hander and K9 conducting a search
dogs were required to work, as the food scents could interfere with the smells required to locate people under the rubble. The site had to be kept as ‘sterile’ as possible in order to give the dogs the best opportunity to give accurate indications.
As with other rescue data sources, it was realised that information provided by dogs could sometimes be limited or wrongly interpreted and should therefore not be interpreted as the sole indicator for rescue action.
Humanitarian assistance
Families of the victims arrived at the scene within hours and were initially accommodated at the edge of the site. By the next morning it was clear that a structure was required where families could wait for news, out of the elements yet close enough to be updated and cared for and they were relocated to the nearby Town Hall.
Their needs became a challenge to resolve and the National Department of Social Development (DSD) was slow to assist and not really equipped to deal with the situation. The George Municipality Social Services section provided some assistance supported by NGOs and NPOs.
To try and address basic needs of family members, only spouses, parents and children were allowed inside the hall. However, it was difficult to confirm familial connections, which some opportunistic bystanders abused to try and obtain donations under false pretences.
Since many of the victims on the site were from foreign African countries, recording connections to victims was a great challenge due to language barriers and the search for suitable interpreters took time. Some of the victims were known by more than one
name. This made it difficult to match the list of names received from the Multi-Agency Centre to the names given by the families.
The families were eventually helped with mattresses and blankets to sleep in the hall while waiting for news, with food and food parcels also provided. It was later realised that the proximities of families near the site was not ideal. Every time an ‘all quiet’-signal was called by blowing an air horn, the families would interpret it as someone having been found, setting of an emotional response to try and find out if family members were found dead or alive.
Media
Media coverage on the building collapse was almost unprecedented. Managing the media became a balancing act between safe and fair access and protecting the privacy and dignity of victims and their families.
Site cleared before handing over to SAPS
The media was initially kept on the periphery of the incident as part of safety measures but by Day 3, Wednesday, 8 May 2024, they were allowed to move to designated safe areas around the site. This concession was made to allow media better coverage but also to control their movements.
The George Municipality Communications Department reported 2 302 news clips for the month of May 2024, information derived from contracted news clip services. About 2,4 billion views of media material linked to the George Municipality and the Victoria Street Building Collapse, were reported. The equivalent advertising value for this media coverage would have cost R48,7 million.
Pathology and SAPS investigations
Pathology services became part of the rescue teams as their staff are trained in most of the rescue principles but also to provide the necessary guidance when a victim was found deceased.
The SAPS dive unit officers were also included for legal proceedings of inquest documentation as they had to provide the statements for legal proceedings for the deceased.
On Day 3 (Wednesday) the undamaged part of the parking structure at the back of the site was converted into a temporary holding area where Pathology Services could complete the required processing before a victim was transported off site and to the mortuary.
The SAPS investigation continued throughout the rescue and recovery process. At times, operations had to be adjusted to allow core samples to be taken from cement slabs. Engineers and investigators were assigned a
safety officer to escort them on site while rescue operations continued.
Incident statistics
• The live rescue success rate was 54 percent of victims found alive on site
• More than 140 rescue workers and more than 1 200 civilian volunteers were a part of the incident
• George Municipality spent more than R8 million on the incident
• The total cost of the incident, including expenses of other organisations but excluding hospital costs, is over R12 million
• An estimated 6 000 tons of rubble and building material was removed from the site in 11 days and one hour
Western Cape Chief Director Disaster Management and Fire and Rescue Services, Colin Deiner, substituted incident commander duties with George Fire and Rescue Services Chief Neels Barnard.
Deiner said the Victoria Building Collapse incident would be unforgettable for many reasons. “It was profoundly sad and shocking but is also testimony to the brave rescuers, committed workers and a compassionate community. In the face of many challenges, a multi-agency team overcame differences and obstacles and managed to work together for the greater good. When it mattered, the experience and character of the people, and deep-seated relationships sustained us through eleven intense days,” said Deiner.
References and appreciation
• Manager Fire and Disaster Management George Municipality CJJ (Neels) Barnard
• Western Cape Chief Director Disaster Management and Fire and Rescue Services, Colin Deiner
• George Fire and Rescue Staff, DC Johan Brand and SO Johan Crouse
• Athane Scholtz, Editing
The building prior to the collapse
WESTERN CAPE URBAN SEARCH AND RESCUE RESPONSE TO THE GEORGE BUILDING COLLAPSE; A PROVINCIAL PERSPECTIVE
By Colin Deiner, chief director, Disaster Management and Fire Brigade Services, Western Cape Government
Monday, 6 May 2024, will be remembered by many people as a day that changed their careers and, in many cases, their lives, forever. In this article I will provide my own observations of the operations and touch on the history of technical rescue in the Western Cape and how we were able to respond to this incident and manage it to its successful conclusion. I hope I will do the responders and the pioneers of this discipline justice. They thoroughly deserve it.
On that Monday, I was meeting with our provincial Disaster Operations Director in my office
just after 14h00, when I received an urgent phone call from the George Fire Department Chief Fire Officer, CFO Neels Barnard, who informed me that a fivestorey residential building, which was in the final stages of its construction, had collapsed and that several construction workers were missing. My immediate reaction was to activate the full capacity of the Western Cape Emergency Response System and get them to George as soon as possible. The first decision was to activate the Provincial Disaster Management Centre from where we could collectively determine what was needed and how we
would respond our resources. It was agreed that a core group would try to get to George as soon as possible to determine the conditions at ground zero and report back to Cape Town on the most critical needs.
After a faster than normal road trip, we arrived in George around 21h00 and was met by Chief Barnard, who proceeded to brief us on the situation and the immediate needs. Several first responders from the George Fire Department and Provincial Emergency Medical Rescue Services were already on the scene and had, at that
stage, rescued approximately 20 construction workers. The George Municipality had acted very quickly and ensured that sufficient lighting had been installed to ensure that operations could proceed through the hours of darkness.
By the time of our arrival, the Provincial Urban Search and Rescue (USAR) Unit had already responded with a team of rescue technicians from its base in the Breede Valley. The Provincial Department of Health and Wellness had responded with additional rescue technicians from various bases and their Heavy Rescue Unit from Cape Town. We had also requested the City of Cape Town Fire and Rescue Services to respond with one of their Heavy Rescue Units together with a team of rescue technicians. The bulk of the team from Cape Town was made up of experienced rescue technicians who, just a year earlier, had responded to the major flooding disaster that had struck the KwaZulu-Natal coast and cost the lives of more than 140 people.
When the sun rose on the morning of Tuesday, 7 May 2024, most of the resources that were needed had arrived and were being deployed to the six sectors identified by Incident Command (IC). What followed over the next 10 days was a herculean effort by more than 200 rescuers and approximately 400 support personnel that led to 28 people rescued and 39 bodies recovered. The incident grabbed the imagination of the nation and many people sat glued to the various television and online news channels to stay updated on the events as they unfolded. Senior media reporters from all the mainstream media outlets in the country converged onto the town and literally camped out on the space provided to
them from where they reported on all aspects of the operation, ranging from the actual rescue to the humanitarian efforts and the family members of the victims. As the actual events that transpired are well covered by other contributors in this publication, I will focus on the response by the various provincial services and their activities.
Provincial capacity
The Western Cape Province has a rich history in the development of technical rescue dating back to the 80s when the legendary Dr Alan McMahon recognised the need for a specialized rescue capability which focused, among others, on the operation of cranes for rescue purposes and management of victims trapped underneath heavy loads. The formation of the Metro Rescue System was further developed by Dr Cleeve Robertson and Dr Wayne Smith, who were instrumental in creating a world-class rescue service. The introduction of structural collapse by the rescue manager, Neville van Rensburg, established Metro Rescue as the leading rescue service in the country. The Western Cape Chief Fire Officers Committee, which is representative of the municipal and designated fire services in the province, also identified the need for a dedicated USAR system in the province and established the Western Cape USAR working group who played a leading role in the programme as it currently exists.
A large amount of work was done prior to the 2010 FIFA World Cup to develop an integrated system, which included the acquisition of a broad range of equipment and an ongoing training programme to ensure a good number of rescue technicians available for any major technical rescue incidents. The province currently maintains a register
of approximately 130 rescue technicians who are employed as rescuers, firefighters and emergency medical personnel in their normal day but can be made available when needed.
Another important component of this endeavour is the Western Cape Incident Command System (ICS), which has been developed over several years and is utilised during the summer seasons when the province is affected by frequent large wildfires. The ICS is specifically designed to manage all aspects of a major incident in which large numbers of responders are involved. All services are required to implement this system during major emergencies and annual refresher training is provided to ensure that they are kept current and brought up to speed on any new developments in the system.
A further vital cog in the system is the network of NGOs and volunteer organisations that give of their time to work beside the formal services in the various rescue operations across the province.
With its long coastlines and outdoor environment, which is conducive to outdoor activities, the South African Police Services Divers and Rescue Team are valuable partners as are NGOs such as SARZA, who not only provide their specialised off-road rescue skills but also their impressive command and control application, which they are able to deploy for a wide range of eventualities.
In a previous article I discussed the Western Cape Fire Services Mutual Aid Agreement and the benefits it holds for, particularly, wildfire response in the summer season. The agreement was instrumental in the province being
able to deploy 1 108 firefighters within two days to the Knysna wildfire disaster in 2017. The agreement was invoked several times during one of the busiest wildfire seasons in the province’s history between December and April this year and set the trend for a large, combined response to George in May 2024.
Deployment in George
The deployment of the Provincial Disaster Management Centre staff to George was the fifth major incident that they had managed following the large wildfires in January and February 2024, a 10-day regional electricity blackout in the Central Karoo district in March 2024 and widespread flooding in April 2024. The ever increasing volume of major incidents that they are confronted with has had the advantage of building a solid base of operational experience. I must stress that the Western Cape disaster management system doesn’t only consist of the full time staff employed in the centre but includes a wide range of disciplines ranging across the disaster management spectrum including rescue, infrastructure, health, humanitarian and security services. Most of these people have been involved in disaster response in some form since the 2017 “Day Zero” drought disaster and have dealt with many diverse incidents since then. No report back on this disaster
will be complete if we don’t mention the community of the town who arrived on the first day and provided meals and sustenance to the many people working on the scene. They were there from the first day until the final hours and, in that time, provided thousands of meals and drinks at all hours. I was personally inspired by the display of support by this remarkable group of people. They also had to endure the trauma of the teams who inevitably migrated to the rest area for a coffee or a meal after recovering a victim dead or alive. They took it in their stride and (just like the rescuers) put the pain and trauma behind them and continued with their task.
Decisions
The first objective of the Incident Command Team was to ensure the safety of the rescue and support teams, which would enable the saving of lives. It was important to manage the expectations of the public, media and the rescue teams who were encouraged by the frequent shouts by people still trapped beneath floor slabs.
Management of fatigue became an important added priority and soon a system was introduced where teams were rotated off the site and forced to rest before returning for the next “shift”. Continuous arrangements needed to be made for prolonged work in
the darkness and, at one point, a threat of rain also required us to plan for that eventuality.
Encouraged by the signs of life in several places, the decision was made to stay in ‘Rescue Mode’ for as long as possible and to adapt our tactics to support this strategy. Rescuers were for the first time exposed to entirely foreign conditions such as one trapped victim who was able to communicate with his family using his cellphone. The victim was advised that, to save battery life, to only turn his phone on at certain times. He was rescued on the Tuesday evening.
After the rescue of four survivors on day three it was decided to continue in rescue mode for as long as there was a possibility of finding a live victim.
Many of the decisions were dictated by the instability of the structure. On day three, it became necessary to find a way to delayer the five floors that had formed a “pancake” collapse over most of the structure. The size of the slabs was huge and this necessitated cutting them into manageable sizes, which could be removed by crane. This decision resulted in a considerable slowing down of activities, which created a fair amount of confusion and anguish among the bystanders and families of the victims who thought that the rescue operation
was ending. A hurried media briefing was called and, with the expert help of Prof Richard Walls of Stellenbosch University, we were able to explain the reasons for our decision. Prof Walls had contacted us on the morning after the collapse and offered his services, which we immediately accepted. After rearranging his schedule and getting replacements for his lecturing duties at the engineering faculty, he made his way to George where he provided critically important advice on the stabilisation and removal of the slabs.
Another important decision that was made was to contract the services of a specialist demolition company to assist in the delayering process. We were fortunate to have access to the services of a company with an excellent track record in focused demolition work and operating in limited spaces. Ross Demolition arrived late on day four and, after a short planning session, deployed their equipment in support of the operations. The risk of damage to entrapped victims is high when heavy demolition equipment is deployed and this necessitated the placement of additional lookouts at strategic points around the machinery. This proved to be a good decision as it accelerated the effort and allowed the teams to quickly access more victims and remove them with more ease.
The Miracle on Victoria Street
Even though the last live victims had been recovered late on the third day, it was decided to stay in rescue mode and not to move over to recovery mode. The reasons for this decision were that we were able to access more voids with the demolition equipment and that the rotation of our rescue teams was ensuring a high working tempo. On Saturday, 11 May
2024, late morning, rescue dogs detected a victim after a layer had been removed in a sector designated close to the lift shaft. A second dog verification and subsequent seismic and acoustic search indicated that the victim was still alive. Communication was established with him soon after and then followed a careful process, which entailed core drilling at identified points to determine the extent of entrapment and explore the options for releasing him. After a careful and focussed operation, Gabriel Guambe was rescued after being trapped for 118 hours.
For many of the people involved, this single event represented the combined success of all the days and hours of dedicated effort by so many people. The Premier of the Western Cape, Alan Winde, who was passing Mossel Bay on his way back to Cape Town when he was informed of the live rescue, immediately had his driver turn his vehicle around to George where he was among the first to congratulate the teams.
Final observations
There have been several reports and presentations made about this incident and many positive (and some negative) observations have been made by various people. Some of my own observations are the following:
• Capacity: In 2012 the Western Cape Government took the decision to improve the capacity of fire and rescue services in the province and what followed was a capacity building programme, which ensured that every fire and rescue service in the province receiving new vehicles and equipment over the next 12 years. This did not only improve the local capability but also, together with the capacity of the Western Cape
Emergency Medical Services capacity, greatly strengthened the combined provincial response to major incidents.
• Early response is crucial: The fact that a response was initiated on this scale immediately after the call for assistance, ensured that specialist skills and equipment could be deployed within a few hours of incident and ultimately the significant number of lives saved.
• Support: The unconditional support provided by the Premier of the Western Cape Province and the relevant cabinet minister and department heads, meant that whatever equipment was needed, was made available without delay. The Minister responsible for Disaster Management in the province, Minister Anton Bredell, arrived on the Monday evening and was present throughout the rescue phase of the operation to ensure that any assistance was provided.
• Plan together: The importance of planning and practicing together can’t be overstated. Emergency services in Western Cape spend many hours planning for the risks identified as part of our risk assessment process. That was evident when many of these groups were called upon to carry out this mission.
In closing
The commitment I observed over the 11 days and one hour that passed from the moment of the collapse to when the site was handed back to the relevant authorities, has left me with an enormous sense of gratitude. I was privileged to have played a small part in this mission. For that I will forever be thankful.
Photos courtesy of Deirdré Cloete, Deds Photography
GEORGE STRUCTURAL COLLAPSE: EMERGENCY MEDICAL SERVICE RESPONSE
By Richard Botha, EMS-Rescue, Western Cape Government Department of Health and Wellness
Monday, 6 May 2024, was an unforgettable day for us in the Garden Route and Provincial EMS. Our service team embodies the motto: “A health-focused EMS system delivered by skilled, efficient and motivated personnel, equipped with the necessary resources that can be rapidly accessed and responds promptly to ensure patients receive appropriate care in the shortest possible time, leading to the best patient outcomes.”
At 14:14, our Garden Route EMS Call Centre received a call regarding a building collapse on Victoria Street, across from the George Municipality building, with reports of people
trapped inside. All EMS units, including Ambulance, Rescue, Planned Patient Transport, and the Management Structure, were dispatched.
Upon arrival at the scene at 14h24, we assessed the situation and immediately implemented the Major Incident Medical Management and Support Plan (MIMMS). This plan is invoked when the number, severity or type of casualties or the location of the incident, requires extraordinary resources. We reported to Chief Fire Officer Neels Barnard, the incident commander of the George Fire Department, providing a scene report detailing the building collapse and the fact that
workers were trapped under debris. Additionally, a methane report was relayed back to our call centre.
Major incident: Declared a major incident
Exact location: Incident on Victoria Street opposite the George Municipality building
Type of incident: Multiple-storey structural collapse
Hazards: Unstable structure, building material like scaffolding
Access and egress route: From York Street into Victoria Street Number and severity of casualties: 70 plus trapped under the building material
Emergency Services: EMS –Ambulance and Rescue, Fire Service, Police, Traffic, additional resources were requested from
District and Provincial
The Control, Safety, Communication, Assessment, Triage Treatment, Transport (CSCATTT) principles were followed in conjunction with ICS Operational Section Chief layout.
Command “Bronze, Silver, Gold” and Control, Safety, Communication, Assessment, Triage Treatment, Transport
Our EMS Rescue Team, led by Richard Botha, collaborated with the multi-sectoral rescue teams, to facilitate the rescue of individuals trapped under the building structure. The highly trained and designated rescue technicians specialised in structural collapses worked seamlessly together, utilising all available rescue equipment from local, district and provincial levels at the scene.
Our medical teams ensured a high level of performance in triage, treatment and transportation, working alongside local and provincial medical doctors under the leadership of our Provincial Disaster Medicine Doctor, Dr Wayne Smith. In total, we rescued 14 patients classified as red, seven as yellow, seven as green and 34 as blue from the collapse site. The rescue operation was successfully concluded on 17 May 2024.
Lots of rescues was done and people lives were saved, but there is one rescue that was giving hope for more lives that might be saves. That was the rescue of Gabriel on day 6 when the K9 Search and rescue dogs, our EMS Search and Rescue Camera
team gives us the positives that there is a patient that is still alive under collapse concrete floors. The rescue teams has started the drilling and breaking of the concrete finally a light in the end of darkness for Gabriel as he was medically stabilized and packaging for removal from the rubble by the rescue team for a full examination by our medical team and transportation with the ambulance to the hospital.
Successes
• Collaboration of the multidisciplinary rescue teams
• The success rate of medical and rescue staff in collaborating as a cohesive unit to save and transport lives
• The efficiency of rescue workers functioning inside a unified command structure/system
• Positive and functioning command controlled system
• The success of the rescue operation and the survival rate
• Metro Rescue structural collapse training provided rescuers with a platform from which to work
• A support George community, kitchen and refreshment team
• Excellent assistance from Government on national, provincial and local level, the community and nongovernmental organisations
• The South African President extends wishes and compliments all rescues for their diligent efforts and achievements.
Lessons learned for improvement
• Imperative requirement: a motion sonar scanner is crucial for accurately determining the location and orientation of patients currently restricted
• Comprehensive volunteer management system – skills and support
• Skills training programmes with the aim of capacity building
• Dog handler's involvement training focuses on the role of a Disaster Management system
We would like to acknowledge and express our gratitude
for the efforts, diligence and commitment of the EMS personnel, rescuers, SAPS, Fire and Disaster Management personnel and all volunteers whose support was instrumental in executing the rescue operation.
INTEGRATED CLIMATE-DRIVEN MULTI-HAZARD
EARLY WARNING SYSTEM (ICMHEWS), VHEMBE, LIMPOPO
By Tshilidzi Nthambeleni: DMISA EXCO Member
The South African Weather Services (SAWS) engaged in a meeting with the Vhembe District Municipality in July 2021 regarding Integrated Climate-Driven Multi-Hazard Early Warning System Project and the installation of an automatic weather station for Vhembe District Municipality
and the proposal was approved by the Council.
Vhembe District Municipality was one of three district municipalities selected in South Africa. The project was funded by the Government of Flanders. A workshop took place on 6 to 10 May 2024 and was held
at Lirav Boutique Lodge in Thohoyandou, Limpopo. An awareness campaign was also held at the Malamulele Community Hall in Malamulele, Limpopo on Thursday, 9 May 2024. The educators also attended the workshop because there are weather stations installed in schools by SAWS.
THE SELF-POWERED VITALWEATHER STATIONS
PROVIDE WEATHER UPDATES EVERY FIVE MINUTES
Severe and extreme weather events often require evacuation measures to ensure the safety of residents in vulnerable areas. Alerts and notifications along with live data help authorities communicate evacuation orders and provide information on safe shelter.
By promptly notifying the public, individuals can evacuate to safer locations and find appropriate shelter, reducing the risk of injury during the event.
Public safety is a priority when you know when dangerous weather is on the way, letting you shut down operations and move people to safety in plenty of time.
During severe weather events, effective communication is essential for coordinated response efforts, alerts and notifications facilitate communication between emergency management agencies, first responders and the public. This ensures that everyone is aware of the situation and understands the recommended actions to coordinate response accordingly.
In the event of flooding, wildfires and other extreme weather, there is no room for indecision; by acting fast you save lives and protect livelihoods. Accurate real-time data means that you can move early, confident that you have made the right choice.
Severe weather events such as tornadoes, floods or wildfires pose significant risks to human life. By improving response times, emergency personnel can evacuate people from vulnerable areas, provide medical assistance and ensure the safety of residents. Every moment counts in these situations; faster response times increase the likelihood of successful rescues and reduce the loss of lives.
The big problem here is that in order to understand and respond to these events, one requires an effective network of weather stations reporting to a central unit.
The VitalWeather network currently has over 400 weather stations situated throughout South Africa and surrounding countries, providing an incredible amount of data and growing by the day.
The new VitalWeather stations are totally selfpowered and simply require installing in the right
direction, turn on the power switch and voila, your station is then online, updating every five minutes.
For further information, login to www.vitalweather. co.za with username: vital and password: weather or contact them directly at CW Price and Company on Tel: 011 805 4720.
PLANNING AND IMPLEMENTATION GAPS IN
EFFECTIVE DISASTER RISK MANAGEMENT (DRM):
ANALYSIS OF THE MOLWENI NODAL FUNCTIONAL PLAN
(ETHEKWINI METROPOLITAN MUNICIPALITY)
By Dr M Reddy, Ms S Zulu and Dr S S Pillay (Durban University of Technology)
Introduction
The common misconception of the term natural disasters against natural hazards and hazard impacts has become the most common scapegoat for poorly planned disaster risk management operations, globally.
Climate change is one of the major factors influencing the increased aggravation of hazards in the modern world. Instead of proper anticipation and risk planning for climate change related hazards, disaster management officials are more likely to redirect the failure of risk management plans, response and mitigation strategies on unprecedented climate change effects.
Disaster risk management in South Africa is guided by national policies, including
the Disaster Management Act of 2002, which emphasises a proactive approach to reduce vulnerability and enhance community resilience (Department of Cooperative Governance and Traditional Affairs [COGTA]. 2005). The act mandates the establishment of disaster management frameworks at municipal levels, which are crucial for localised implementation (Patterson. 2021). However, despite these frameworks, local implementation often falls short due to corruption and political interference, insufficient resources and limited community engagement (Patterson. 2021).
Mbiyozo et. Al. (2022) states that floods are South Africa’s most common and frequent annual hazards that are deadly and catastrophic due to cut-off-lowpressure systems and KwaZuluNatal is no exception to the risks associated with the hazard.
Molweni, a community located in the western part of eThekwini Metropolitan Municipality of KwaZulu-Natal, South Africa, is characterised by its rich cultural heritage and diverse socioeconomic landscape. However, like many communities in South Africa, it faces various natural hazards that necessitate effective disaster risk
management (DRM) planning and implementation. The area is prone to significant hazards, particularly flooding and storms.
Molweni has a history of devastating floods, notably in 1994, 2008 and 2022, which lead to extreme damage to infrastructure, fatalities, multiple injuries and displacement of residents (Meyer. 2020). These occurrences are evidence to the community’s vulnerabilities influenced by factors such as inadequate drainage systems, limited knowledge, financial issues and urbanisation (due to the surrounding areas’ rapid development).
The Molweni community has recently experienced significant challenges due to severe flooding in 2022 when a state on national disaster was declared. The severity of the impact exposed critical gaps in disaster risk management (DRM) practices. The scenario herein not only highlights the vulnerabilities of the community but also reveals the need for effective planning and implementation strategies in disaster risk reduction for Molweni.
The context of this paper reflects on the 2022 flood disaster in Molweni considering the 2008 response to the local
disaster and the proposed risk reduction strategies, as articulated in the Molweni Nodal Functional Area Plan (2012).
The study analyses the planning and implementation gaps within the existing DRM framework, emphasising the importance of risk-informed development.
Background
According to Census (2021) Molweni had approximately 20 000 residents in 2020, with over half the population being the youth and an overall 99 percent Black African isiZulu speakers. Molweni is situated in a hilly terrain (forms part of the Valley of a one thousand hills), making it susceptible to landslides, flooding and other natural disasters. The area is inhabited by low-income communities that are often vulnerable due to inadequate infrastructure, lack of access to resources and limited economic opportunities (Maharaj & Sutherland. 2019). The area attracts low-income earners who are drawn to domestic work provided by nearby urban communities such as Kloof, Waterfall, Crestholme and Hillcrest as well as local industrial firms, factories and retail shopping centres.
These socioeconomic conditions in Molweni significantly influence disaster resilience, as communities with limited means often struggle to recover from disasters (Smith. 2020). Due to most parts of the area being semi-rural, land is sold by residents and sales conducted by the chief with a permission to occupy land (PTO) as proof of ownership. This makes vacant land affordable and easy to buy and use. The lack of enforcement of town and regional planning regulations and compliance of building standards has
resulted in houses being constructed on low lying areas that are repeatedly flooded and completely demolished during flood impacts.
Scenario
14 November 2008, flash floods with heavy wind and rain strike Molweni for approximately six minutes and claimed five lives, at least one hundred injuries with at least fifty severely injured, and over four hundred homes destroyed (Stolley. 2008). The flash floods had significant infrastructural damages including roads that were flooded with large trees and housing remains, this caused serious disruption to the distribution of aids and first responders had difficulties reaching victims on time.
According to locals, most schools in the area were closed due to damages sustained and the trauma experienced by pupils and the community at large.
This called for a serious intervention from authorities. As a rehabilitation, prevention and reduction strategy, Durban. (2012) created a Molweni Nodal Functional Area Plan that was drafted for implementation (PDF).
The Nodal Plan is a thoroughly researched development plan,
which considers disaster risks and prioritises development projects according to anticipated area development, population increase, and risks associated with these changes. Development projects were categorised from high to low priority. Amongst the Nodal objectives, other objectives included:
• The provision of a framework for coordinating and informing both the public and private sectors and development in Molweni
• The assessment of social facilities and services backlogs in relation to eThekwini Social Facilities Standards
• Identify and provide sustainable responses to existing bulk infrastructure.
During April 2022, eThekwini Municipality was hit by a 300mm rainfall in less than 24 hours and due to the severity of the impact and incapacity to cope with available own resources, a national state of disaster was declared . Molweni was one of the severely impacted areas with over two hundred homes completely destroyed, over twenty-five fatalities and over three hundred families displaced (Resting Hope. 2022) Facebook video link. Five shelters were activated for displaced individuals as temporary
shelters, these included schools, community halls, local creches and a church. Entrance to the area was restricted as the main road leading to Molweni (Inanda Road) was washed away and limited access to and from Molweni, finding alternative routes using vehicles was an extreme sport for at least three days before temporary road fixtures were implemented.
Study analysis
After the 2008 disaster declaration, Road restructuring and additional housing were identified as both short term and long term proposed projects that had to be implemented by latest 2021. “Of the proposed 10 000 houses to be built, less than 40 percent has been built to date” stated a community member. This meant people had to improvise and build in an unregulated manner in low-lying areas that further exposed them to flood impacts.
Over 50 percent of the destroyed homes in 2008 were government built (RDP) structures, after the Nodal plan, new housing projects were implemented to build resilience. During the 2022 disaster, the same rebuilt homes were washed away by 2021 floods - YouTube link (SABC News. 2022). This indicated that the build back better strategy was compromised and the anticipation of a hazard impact of this scale received little or no attention and risk reduction planning was evidently inadequate.
Upgrading of Inanda Road to a high mobility road was identified as one of the priorities as this is the only main road leading to Molweni. Parts of the Inanda Road had collapsed during the 2008 local disaster declaration and this limited the efficiency of aid delivery to victims. The project was implemented but
during the 2022 floods, the road was severely damaged, with large segments of the road washed away. This time around damages to the road infrastructure far exceeded the 2008 destruction, in spite of the road upgrade project. This is another indication of limited risk informed development and poor implementation of the build back better strategy.
Planning and implementation gaps
The Nodal functional plan is an exceptional development plan that was well researched and strategised to accommodate the anticipated population and economic growth in the Molweni area. The plan was developed after the 2008 local disaster declaration in Molweni which highlighted limited development as one of the contributing factors to natural hazard impacts. The plan is very particular in its development strategies, the level of importance and timeframes but also reflects massive delays and the priorities and implementations that do not align with the disaster risk management strategies including building back better.
A significant gap identified in the Molweni scenario is the lack of comprehensive risk assessments tailored to local conditions. While the NDMC provides guidelines for conducting risk assessments, local authorities in Molweni have struggled to implement these effectively, resulting in a lack of understanding of specific vulnerabilities (Oberholzer & Kruger. 2021). This has led to inadequate emergency planning and resource allocation during the recent flooding event. This is also an indication of a lack of coordination with Disaster Management and the departments responsible for
development, including Human Settlement, Engineering and the like.
These study findings indicate that the Molweni Nodal Functional Plan had very limited disaster management input or none. The input of a disaster management official would at least consider progression to safety models, the application of building back better strategy, due consideration to prioritising community resilience building and other salient disaster risk management strategies.
Moreover, community involvement in DRM planning remains minimal. Research indicates that effective DRM requires active participation from local populations to ensure that plans are relevant and culturally appropriate (Buchanan et al. 2021). In Molweni, the absence of robust community engagement strategies limited the effectiveness of response efforts during the flood incidents, as residents were not adequately informed about evacuation plans or safety measures (Joubert et al. 2023).
Risk-informed development
Disaster risk-informed development refers to the integration of disaster risk reduction strategies into development planning and practices. This approach seeks to ensure that development initiatives actively consider and mitigate potential disaster risks, ultimately enhancing community resilience (UNDRR. 2015). By prioritising risk assessment and management, disaster riskinformed development aims to create sustainable growth that is less vulnerable to natural hazards (World Bank. 2019).
This concept emphasises collaboration among various
stakeholders, including government agencies, NGOs, and local communities, to foster a culture of resilience and preparedness.
In Molweni, this approach has not been fully realised. For instance, urban planning initiatives such as building reinforced RDP houses, proper waste management, maintenance of drainage systems and restructuring roads have often overlooked the unique geographic and socio-economic factors that contribute to disaster risk in the area (Mthembu et al. 2020). As a result, development efforts may inadvertently increase vulnerability, as seen in the unregulated expansion of informal settlements on floodprone land in low lying areas and edge of hill where landslides are prone.
Also, community input and participation were hardly considered, considering how the community has indigenous resilience knowledge such to read weather through the emigration of birds to certain directions and the movement of ants and termites from underground to over ground or from ground to underground.
Development, a disaster problem
Disasters are development problems and development are a disaster risk issue, this can also work as two sides of the same coin, where development can mitigate disaster risks and disaster events can catalyse development through building back better and using the disaster impact to respond with delayed development strategies. In Molweni, the 2008 disaster declaration catalysed the need for an urgent development plan and project implementation to minimise future possible
disaster risks similar to that of 2008 flash floods.
The concept of risk-informed development emphasises the integration of disaster risk considerations into planning and development processes (Cohen et al. 2018).
To note, the delayed development projects within Molweni, that were to be actioned by latest 20162021 and which were never implemented, such as the main road reconfiguration, local clinic development and the extension of housing projects, further magnify the risk factors within the area.
Build Back Better Strategy implementation
"Build Back Better" (BBB) refers to the principle of improving infrastructure and community resilience after a disaster, ensuring that recovery efforts lead to enhanced safety and sustainability. This approach emphasises not just restoring what was lost but also integrating risk reduction strategies and promoting social equity. By addressing vulnerabilities, BBB aims to create more resilient communities that are better equipped for future hazards (UNISDR. 2017).
The lack in implementation of this disaster risk management strategy in the Molweni’s Nodal development housing projects reflected in the destruction of the homes and roads that were rebuilt in 2010 and were similarly impacted and destroyed during the 2022 floods, which also pose future disaster risk.
Critical challenges
From the above analysis, it is evident that the planning and implementation gaps in the
disaster and risk management practices towards risk informed development in Molweni are mostly due to:
Limited community participation
Limited community participation in development planning in Townships mostly stems from several factors, including socioeconomic barriers, lack of awareness, financial constraints, and distrust in political leaders (Mabasa. 2018). This challenge may also be purposefully bias to limit publicising knowledge of budgets and budget controls to limit accountability.
In Molweni, the consequences of limited community participation are evident in the consistent similar disaster impacts. This is evidence that community opinions are not accounted for. Additionally, lack of information and education about development processes can lead to low awareness and interest in participation (Cloete. 2015).
Furthermore, historical marginalisation and a perception of ineffectiveness regarding government institutions can foster distrust, making community members reluctant to engage in planning efforts (Maharaj. 2019). These barriers collectively contribute to diminished community involvement, ultimately impacting the effectiveness of development initiatives.
Poor departmental collaborations
Lack of collaboration with the disaster management department poses significant challenges for successful planning and implementing disaster and risk management practices toward risk-informed development. Without strong collaboration, efforts may become fragmented, leading to disjointed strategies that do not effectively address community needs. This can result in overlaps or gaps in services and resources (Kapucu. 2008). In this case, the Molweni Functional Nodal Plan was a standalone plan without limited participation of disaster management, while the disaster management centre had an independent eThekwini disaster management plan.
The non-application of disaster management strategies was evident in the development approaches adopted post the 2008 flood disaster.
Resource
constraints
Limited access and availability of resources pose a significant challenge in the planning and implementation of disaster and risk management practices toward risk-informed development.
This challenge manifests in several key areas such as insufficient funding (this is due to annually decreasing budget allocations for development
projects and programmes). Lack of technical expertise, effective disaster risk management relies on skilled professionals who understand risk assessment, planning and mitigation strategies. Limited resources often lead to a shortage of trained personnel, hindering the ability to implement best practices and inability to sustain the project outcomes, meant to enhance disaster risk reduction and develop community resilience.
Proposed recommendations
Comprehensive disaster risk assessment
Conducting a comprehensive disaster risk assessment in Molweni is highly recommended to address challenges and identified gaps. This assessment should begin by engaging the community through workshops to gather indigenous and general local knowledge and perspectives. The workshops should not be politically affiliated nor bias, it should be a fair representation of all age groups, financial understanding, home location and gender. Data collection should be based on hazards, vulnerabilities and capacities using surveys and existing reports (UNDRR. 2015).
Application of the pressure and release model
According to Wisner (2004) when assessing disaster risk, it is essential to consider the social factors that contribute to vulnerability with equal importance as understanding and addressing natural hazards. In simplified terms, we believe that the risk experienced by individuals should be viewed as an interplay between vulnerability and hazard. Disasters occur from the
interaction of both elements; a disaster cannot happen if hazards exist but vulnerability is theoretically absent, nor can it occur if there is a vulnerable population without any hazardous event.
In Molweni, the Pressure and Release Model should be applied to identify root causes and unsafe conditions, facilitating a deeper understanding of risks in the area for homes built on the edges of the hill, on flat surfaces and low-lying areas. Risk analysis should be performed through mapping hazards against vulnerable populations, considering socio-economic factors such as income levels, education, employment status, access to healthcare, etc. (IPCC. 2014). This should be done before development planning and implementation.
Competent disaster leadership
The establishment of effective and efficient leadership strategies such as the ability to collaborate with key stakeholders ensures that roles and responsibilities are clear and adhered to (Kapucu, 2008). The active involvement of a competent leader would ensure the application of knowledge and expertise in disaster risk management within the development strategies. Competent leaders encourage community participation and adequate use of available resources, aligning project priorities with disaster risk reduction strategies.
The presence of a disaster management competent leader would ensure the application of build back better strategies after progression of safety tests and suggest early warning and response systems application within the
development strategies for better risk reduction.
The skills and expertise of a disaster management leader are crucial in development plans and development strategies to ensure mutually beneficial relationship between development and disaster risk management, ensuring that beneficiaries are satisfied with the safety plans. This would also address almost all the presented challenges and identified gaps.
Total disaster risk management
Total Disaster Risk Management (TDRM) signifies a shift in perspective from viewing disasters solely as outcomes of extreme hazard events to recognising them as manifestations of unresolved development issues. TDRM enhances sustainability by integrating risk assessment, evaluation and the implementation of risk-reduction strategies into the core of the development process. (UNISDR. 2009).
To achieve more effective disaster reduction and response, the TDRM approach seeks to comprehensively address various concerns and gaps throughout the disaster management cycle.
It extends beyond merely responding to disasters by considering a wider range of issues related to disaster risk and its management. By focusing on the root causes of disasters linked to unsustainable development, TDRM enables relevant sectors and communities to understand these issues better and explore strategies for reducing their vulnerability (Guzman. 2002).
The application of this holistic risk reduction approach with the Molweni Nodal Plan will limit future similar hazard impacts
and allow for effective risk informed decision making.
Conclusion
The recent 2022 flooding in Molweni highlights critical gaps in disaster risk management practices, particularly in planning and implementation.
There is a pressing need for comprehensive risk assessments, enhanced community engagement and the integration of risk-informed development strategies to build resilience in vulnerable communities. Addressing these gaps will not only improve disaster preparedness but also contribute to sustainable development in the Molweni area.
Relevant leadership in development and disaster management should take accountability for failures and seek growth.
Climate change and the aggravating effects thereof should be accounted for during disaster risk management and development planning and implementation, to address the identified gaps and prevent similar hazard impacts in future.
A CONSEQUENCE MANAGEMENT APPROACH TO DISASTER MANAGEMENT:
INCIDENT SITE LAYOUT AND ORGANISATION
By Dr Johan Minnie PrDM and Schalk Carstens PrDM
This article is the eleventh article within this series of articles on consequence management. In the previous article, Part 10, we discussed joint response management structures, building on our previous analysis of the mechanics of joint response management and in Part 9 the nine key elements or steps of a joint response management procedure.
In this article, Part 11, we take a look at incident site layout, what to think about when setting up an incident scene in terms of control of the site, effective intervention and coordination. This article only describes a single site and does not cover
higher coordination structures dealing with multiple incident sites at the same time; as such, coordination is addressed in other articles in this series.
This article should be read with previous articles that also refer to the on-scene management elements we will be describing here.
The next article, Part 12 will move on to training, exercises and drills.
The incident site and impact area
The area of impact of whatever hazard(s) have translated from risk to reality normally defines the location and extent of an
incident site or scene. Variables that influence the extent of the site include whether the impact is still expected, whether it is already happening and could potentially grow, what dangers are present, and the space needed for responding services to deal with the consequences, address the hazards, ensure staff as well as public safety and coordinate their on-site actions.
The initial on-site assessment by the first responders, which must be communicated to the relevant control centre and other responding entities, will determine the initial layout of the site. The METHANE assessment where M = major incident, E= exact location,
T = type of incident, H = hazards, A = access and egress routes, N = number of casualties and their condition and E = emergency and essential services on site and required, will assist additional responding agencies in understanding what they will find on the incident site.
While the first instinct of every responder is to start helping whoever needs help, it is just as critical for responders to ensure that the incident scene is managed effectively, because the actions implemented and the communications made with first arrival will have a major influence on the effectiveness of the response going forward.
While no two incident sites will be exactly the same, two key questions relating to initial site layout are 1) where do we coordinate from and 2) what area do we want to control.
Point of command, control and coordination
In the initial response and first responder arrival, the point of coordination will be with the senior person of the first arriving responding agency, and could be indicated by something as simple as a traffic cone on the roof of a vehicle.
If the incident is complex and requires the response of multiple agencies, the point of coordination can be transferred between organisations and between officers within organisations, depending on who should be leading the incident response based on mandate, expertise, onsite conditions and progress through the life-cycle of the incident. In bigger incidents an on-site incident coordination or command team will be established, working from
an on-site Joint Operations Centre (JOC) or Joint Incident Command Post.
Responding services could be using formalised Incident Command System (ICS), Major Incident Medical Management and Support (MIMMS) or other mechanisms to establish and transfer command or to establish a unified command. In less resourced areas, simplified agreed interoperability protocols can also be effective.
It is vitally important that all responding services interact with the point of coordination when arriving on scene, during the response and when leaving the scene. This means that arriving services must locate the point of coordination and check in with the command and coordination structure, communicating their presence and capabilities and determining their on-scene responsibilities in support of the incident objectives and action plan. Depending on their mandate, arriving services may need to take over the responsibility of coordination or command. During the incident interaction with the point of coordination must be maintained
and once the service has completed its tasks and can depart, must check out with the point of coordination.
In complex situations, a unified command would potentially be required, where incident commanders from various jurisdictions operate together managing a common set of incident objectives and strategies.
While the point of coordination could be a spot on a road where leaders of disciplines meet and discuss objectives and responsibilities, it could also be located in a mobile joint operations centre, a temporary structure such as a tent, or a conveniently located building. In essence, the point of coordination is where on-scene leadership is co-located.
The point of coordination is also the point where all communication with higher coordinating structures such a disaster operations centre should flow through.
Area of control
One of the first decisions to make during initial response and scene organisation is to
Figure 1: A point of coordination is vital in scene organisation
decide what the area of control will be. An outer cordon will be established and controlled from where members of the public will be excluded and inside which the intervening organisations will deploy. The distance of this outer cordon will vary depending on the hazard impact and threat, the risks on site, the environment, and the physical characteristics of the site and its surroundings. Some elements such as staging areas and assembly/ rendezvous points could be located outside the outer perimeter if practical.
In most cases an inner cordon will also be established to separate the physical hazardous emergency work area from the support, staging and coordination area. The area inside the inner cordon is often called the “hot zone” and in many cases would require special PPE or other equipment. When it comes to hazardous materials response, current and expected wind direction will play a vital role in delineating the outer and inner cordon and the physical placement of response elements.
Physical security measures will often be required to indicate
and establish the outer cordon and enable access control and crowd control. Other points to consider in establishing an outer cordon include sightlines to casualties.
Intervening organisations
It is highly likely that any major incident will result in a wide variety of safety, security and emergency services arriving on the scene of an incident. This could include police, fire and rescue, emergency medical services, traffic services, defence force as well as private security or emergency medical services and volunteer organisations. These services could be located at municipal, provincial or national level. Each entity will have its own on-site command point and possibly staging area and will be reporting back to its own control and higher command structures. In order to ensure that all services work together effectively to save lives, the principles that need to be applied include co-location, communication, coordination, joint risk understanding and shared situational awareness. All of these principles can be implemented through a properly established point of coordination.
Hazard response activities
Incident site layout should enable intervening services to focus on the priorities of protecting life, property and the environment.
From firefighting to structural collapse to oil spills at sea, certain hazard response activities will normally form part of on-scene activities, aimed at stopping impact or reducing and containing impact on life, property, the environment and the socio-economic functioning of a society.
Incident scene layout should provide space and support for these primary response activities, which could include firefighting, search and rescue, hazardous materials response, securing facilities/equipment against expected hazards and many others.
Therefore, in setting up an incident site layout, the required space for hazard response should be considered.
Patient handling
Since protecting life is first priority, enabling effective casualty and patient handling should be front of mind when determining incident site layout. The effective handling of casualties will require an effective on-site layout of patient handling elements such as triage, first aid treatment, patient holding areas and loading points for patient transport. Variables in this space will include whether rescue is required, provision for psychosocial support and dealing with the deceased.
It should be noted that animals could also require rescue and treatment and animal handling may need to be factored into site layout.
Figure 2: Establishing an area of control is essential in incident site layout
Crime scene management
The scene of an incident is often also a crime scene; almost always if people are injured or deceased and definitely if any foul play is suspected. Saving lives remains the priority but crime scene preservation will have an impact if legal action were to result from the impacts experienced. Therefore crime scene preservation and enabling investigation must be considered. If the incident and impact is the result of active criminal action such as a hostage situation or terrorist attack, it is obvious that security services will take command and site layout would need to consider their needs.
Traffic control and management
When setting up a scene, the minimising of disruption of surrounding areas while ensuring safety should be considered. If roads need to be closed, their re-opening must remain a priority objective for the incident management team. At the same time, safety comes before convenience, so there should be no hesitation to implement area isolation through controlling traffic where necessary and reasonable. Vehicle and equipment staging areas and routes of access and egress will be need to be factored into site layout and effectively communicated to all services involved.
Public information point
Site layout also needs to consider establishing a point on the outer cordon where media representatives can be received and briefed by the incident commander or a designated spokesperson/public information officer.
Landing zone
If air operations are included
in the response to the hazard impact, whether manned or unmanned, provision will need to be made for landing zones or safe operating zones. Weather conditions and safety will need to be considered in determining the site of the landing zone.
Site layout elements for incidents and events
The following graphic depicts some of the standard incident site layout elements and indicates that event safety management layout can be very similar to incident site layout.
Conclusion
Incident site layout is an important element of on-scene consequence management.
All responders must exercise discipline in ensuring proper scene management and layout to support services working together to protect life, property and the environment.
In this article we covered the most critical elements of site layout and this concludes this eleventh article in this series of articles about the wider consequence management practice.
All of the articles thus far have focused on what must be done but in order to know and understand what must be done when it must be done, training and exercises and drills are essential. In the next article we will be moving on to training, exercises and drills.
Figure 3: Incident site layout for incidents and events (Laskey, Konings & Minnie, 2006)
THE EFFICACY OF APPLYING VERMICULITE (TEKROK C) IN REDUCING THE SPREAD OF INFORMAL SETTLEMENT FIRES
By Joshua Emmanuel Bernard Fortune, Disaster Management Practitioner (DMPc 011): City of Cape Town Disaster Risk Management Centre, Area West Operations, Safety and Security Directorate
Introduction
Erakis Investment Holdings (Mandoval) funded a pilot fire risk reduction project in Overcome Heights Informal Settlement, Lavender Hill in Cape Town. This was done in collaboration with the City of Cape Town’s Disaster Risk Management Department.
The purpose of the project was to reduce the number of dwellings affected when there was a fire in the settlement by the application of a fire retardant product called Tekrok C, which is a vermiculate-based cementitious product.
The goal is to contain the spread of fires in informal settlements, by reducing the amount of dwellings destroyed by fire, reducing injury and fatalities and saving the state money on needing to replace infrastructure such as electricity poles, standpipes and chemical toilets.
Fires pose significant risks in the global south and it was shown that most fire-related deaths occur in low- and- middle-income countries, which is estimated to account for 95 percent of all firerelated deaths globally (Rush et al., 2020).
Informal settlement fires occur daily worldwide, displacing approximately 20 households on average (Rush et al., 2020). Rapid urbanisation is further increasing the number of people migrating to cities, increasing the risk of informal settlement fires in cities, which in turn is threatening sustainable development (Nagendra et al., 2018, Gibson et al., 2019). Nagendra et al (2018) further revealed that the African urban tapestry would amount to 60 percent, making it the fastestgrowing population by 2050.
Walls et al (2020) highlights that South African informal fire stats for the years 2003 and 2018 illustrates that there were 15 to 30 informal fires and one fatality daily in South Africa. Informal
settlements (IFS) populations are increasing tremendously in South Africa (Walls et al., 2020), due to the lack of the state’s capacity to provide social housing to marginalized communities (Gunter and Massey, 2017.
IFS fires are a major problem, not just globally but also in Cape Town. Most people lose everything they have when a fire takes place. This can be illustrated during the Easter weekend in Cape Town where nearly 339 dwellings burned to the ground within 24 hours, leaving 759 people displaced and at the cost of two fatalities (Chironda, 2024).
The frequency of informal fires and the devastating impact they have on households can directly affect the livelihoods of those affected. Many people in South Africa cannot afford to be losing everything, as poverty is a reality for many in South Africa. Cowling (2023) revealed in 2023 that approximately 18,2 million South Africans are living in extreme poverty.
The strategic focus areas of the City of Cape Town are enshrined in the City’s Integrated Development Plan (IDP). The vision of the City of Cape Town is to be a City of Hope for all, a prosperous, inclusive and healthy city where people can see their hopes of a better future for themselves, their children and their community become a reality.
The mission of the City’s Disaster Risk Management Centre, is to effectively mitigate, prepare for, respond to and recover from disasters while focusing on risk reduction to ensure the safety and well-being of all residents and visitors.
The Disaster Risk Management Centre is committed to identifying and addressing underlying vulnerabilities, promoting sustainable practices and advocating for policies that reduce risks and enhance overall resilience in our communities.
Through proactive planning, risk reduction initiatives, education and collaboration with stakeholders, the Centre aims to create a more resilient and sustainable city that is better equipped to withstand and minimise the impact of disasters.
The article aims to give a background of the fire risk reduction pilot project that was rolled out in the Overcome Heights settlement. The article will provide more detail about the vermiculite based product, the selection of structures and how the product was applied. A case study of a fire incident that occurred on 9 August 2024, will also be discussed.
Context, background and project progress
In 2023, the City of Cape Town Disaster Risk Management (CCT DRM) Department was approached by Mandoval to fund a pilot project to reduce the spread of fires in an informal settlement. Overcome Heights informal settlement in St Patrick Avenue, Seawinds was selected for this pilot project. This was done after consultation with the community leadership of Overcome Heights and ward Cllr Mandy Marr.
The “A” Section of the settlement was selected as per the guidance of the community leadership. The settlement was chosen due to the high frequency of fires in the settlement and the presence of a formal leadership structure in the community as well as an active ward councillor that had a good relationship with the community.
The inception of this innovative project came from the chief executive officer of Mandoval, Andrew Lashbrooke. Mandoval Vermiculite (Pty Ltd) is the largest vermiculite mine in the world and is at the Palabora Mining Company (PMC), which produces more than 50 percent of the world’s supply.
The mine is 75 years old and was originally developed by Rio Tinto. It was subsequently sold and the majority shareholders are Chinese. Rio Tinto established Mandoval at the same time, 75 years ago, to help commercialise vermiculite as it was not a well-known product. Over the years most of the major innovations in vermiculite come from Mandoval and are still setting global standards in the mining sector.
Erakis Investment Holdings (Pty Ltd), a Cape Town-based beneficiator of industrial minerals, acquired Mandoval in 2016. A key objective was to drive growth through innovation and finding new uses for vermiculite. Hence the tagline for Mandoval , Vermiculite Innovation.
The CoCT DRM department’s role during the pilot project was to provide local labour via the Extended Public Works Programme. A project manager, Joshua Fortune, was appointed to manage the labour force provide logistical support and assist with community liaison. The City of Cape Town’s involvement was overseen by Mark Pluke, head of Disaster Management Area West Operations and Head of the City of Cape Town Disaster Centre , Dr Johan Minnie.
Mandoval adsorbed all the cost for materials, tools and machinery. Mandoval further provided support via means of training of workers, financial incentives for community workers and assigned two Mandoval employees, which included a technical supervisor, Petrus Mahlangu and health and safety officer, Sinovuyo Liwane.
Due to the nature of the application of the product to the informal dwellings, strict occupational health and safety measures needed to be in place, such as a risk assessment, emergency plans, continuous supervision of staff and daily tool box talks. The management of Mandoval that oversaw the project was Andrew Lashbrooke, Brent Burger and Gert du Plessis.
The project commenced on 1 July 2023 and concluded on 15 December 2023. The project stems from a simulation of the product, which was held at the City of Cape Town’s Epping Fire Station on 25 August 2021, which showed promising results. (see video:)
Thus, there was a need to ascertain the efficacy of the product in real-life situation. Due to this being a pilot project and as such, it carried inherent risks. Residents needed to sign an indemnity form before their dwellings were coated.
The application of the dwellings was done with the consent of the owner after being informed and understanding that there might be unforeseeable risks associated with the application of Tekrok C to their dwelling.
In phase one of the project, 33 structures were fully coated, inclusive of an ECD. In phase two of the project, 47 structures were coated of which 12 were fully coated and 35 partially coated. The total amount of structures that were coated is 80.
After a few months post the application, no severe adverse consequences were reported, other than some complaints of coated roofs that were still leaking. Also, there was an increase in condensation in some of the dwellings.
At the end of the project, EPWP workers were awarded certificates as approved applicators of Tekrok Fire Protective Plasters from Mandoval. Also, the City of Cape Town awarded these workers with First Aid Level One certificates and provided evacuation marshal training.
Challenges faced when applying the product Many lessons were learnt and challenges faced during the pilot project. Challenges such as inclement weather, community disputes and chronic bad condition of roofs slowed productivity.
The close proximity of dwellings posed a challenge in the application of the product to the entire structure.
Where the entire dwelling could not be coated, other innovative methods was implemented such as the creation of 5 meter fire buffer zones.
The project consisted of two phases. Phase 1 saw the coating of entire dwellings. In phase 2, some dwellings were fully coated, where space allowed and others were partially coated, which formed part of the fire buffer approach.
See figure 4 and 5 below:
Figure 4: Where the entire structure could not be coated due to space constraints, only one side of the dwelling was coated and approximately 2.5 metres on the roof, this was duplicated to the opposite dwelling
Figure 5: In some cases two sides was coated of a dwelling, to create a fire buffer zone. This is to prevent the spread of fires from one section to another. The aim was to create a grid formation
The Kindling Organisation, assisted with community mapping for the selection of dwellings to be coated.
Mapping fire risk in Overcome Heights informal settlement
The critical separation distance, in the context of fire spread, refers to the minimum distance that must
Figure 1: EPWP workers of the Overcome Heights Project with Technical Supervisor Petrus Mahlangu and City of Cape Town’s Disasters Management, Joshua Fortune
Figure 2: EPWP workers of the Overcome Heights Project writing First Aid examinations post training at the City of Cape Town’s Disaster Management Training Centre, Alphen Centre, Constantia
Figure 3: Mandoval Management with Overcome Heights IFS leader, Karen Mentoor and Disaster Management Practitioners of the City of Cape Town briefing residents of the community about the pilot project, before it commence.
be maintained between two structures or flammable objects to prevent the spread of fire from one to another. It is a crucial factor in fire safety. The goal is to ensure that if a fire occurs in one location, it does not easily ignite or transmit flames or radiant heat to nearby structures or combustible materials. By maintaining an adequate critical separation distance, the risk of fire spread can be significantly reduced, helping to protect lives and property.
Wang et al (2021) determined critical separation distances for informal settlement dwellings in Cape Town using a combination of:
• Mapping where fire did and did not spread in past fires in the settlement of Masiphumelele.
• Full-scale fire experiments conducted in a laboratory.
From this data, a graph of "survival probability" against the distance between dwellings was compiled (Figure 6), where survival probability refers to the probability of a neighbouring dwelling not igniting. It can be seen from the graph that at distances of less than one metre, the survival probability is very low. However, at distances exceeding three metres, the survival probability is very high. This supports the reports by the Overcome Heights community leadership regarding the fire not spreading between blocks in the past. It is important to note that local conditions, building materials, wind etc, will have an impact on these distances and it is, therefore, not advised to use these figures as absolutes but rather as relative values when identifying dwellings most at risk in a settlement.
From a fire spread perspective and for the practicalities of applying a coating or product to the dwellings, it is true to say that as the distance between dwellings increases, so does the survival probability and the ease of application of the product. Simplistically put, the dwellings that are at the highest risk and would potentially most benefit from being coated are the ones that are least accessible to be coated. Conversely, the dwellings least at risk of fire spread are the dwellings, which are easiest to access to apply the product to. This is the conundrum that the mapping process aimed to simplify.
GIS is a technology that allows users to work with data that has a geographic or spatial component, such as maps, satellite images and natural or man-made features like rivers, roads and buildings. However, to be able to conduct analysis, data is needed. In this case, the aim was to use GIS to map various separation distances between the dwellings in Overcome Heights.
To do this, up-to-date dwelling footprint data is needed. A GIS technician from the City of Cape Town digitised dwelling outlines from high resolution aerial photography acquired by the City. Where it was not possible to distinguish where one dwelling started and another end (due to dwelling being built in very close proximity), multiple dwellings may have been digitised as single dwellings, as from a fire spread perspective they can be considered as such. In Figure 8, dwellings at mutual risk of fire spread are mapped as a single colour.
Figure 7: Dwellings digitised from high resolution aerial photography. Individual dwellings (from a fire spread perspective) are mapped as a single colour
Figure 6: The cumulative function of survival probability from experiments and GIS (Wang et al., 2021).
A Geographic Information System (GIS) is a system designed to capture, store, analyse, manage and present spatial or geographic data. In simple terms,
This data can be transformed into useful information by highlighting the spaces between dwellings where a selected separation distance (or access distance) is not met. For example, in Figure 8, hypothetical dwellings are used to illustrate the places where a separation distance of one metre is not met and the hypothetical fire spread pathways at that critical separation distance are shown. One metre is also the minimum separation distance required for access to apply the vermiculite coating. The red areas highlighted in Figure 8(b) represent areas that are inaccessible and also signify the potential fire pathway at the probability linked to the one-metre separation distance (very likely fire would spread; refer to Figure 6). Should a smaller separation distance be used, the inaccessible areas/fire spread pathways will increase in size.
This concept is illustrated by mapping at mutual risk using separation distances of 0,5-metre, 1-metre, 1,5-metre and 3-metre, using the Overcome Heights dwelling footprint data. Figure 4 illustrates how the dwellings at mutual risk increase as the separation distance increases. It should, however, be noted that while the size of the potential fire grows with increasing separation distance, the probability of a fire spreading between individual dwellings decreases with increasing separation distances. The purpose of the maps is, therefore, to highlight where coated dwellings would have the most significant impact in terms of preventing a fire from spreading throughout an entire block.
a meeting facilitated by the City of Cape Town Disaster Risk Management Department on 31 August 2023, the process and thinking behind the mapping were explained to community leadership.
Given the goal to identify dwellings that would most effectively reduce the risk of fire spread in the settlement and are accessible for coating, the community leadership used the map of the onemetre separation distance to assess fire spread pathways. The 0,5-metre separation distance was used as a reference as it represented the dwellings most at risk and where necessary, the trowel application of the product could potentially be used. In addition to identifying potential dwellings, the community leadership mapped the locations of doors and windows on the dwellings.
Fire spread usually occurs through openings in dwellings and knowing the locations of these openings can inform where additional protection would be useful. After the community, leadership has completed their mapping and identification of potential dwellings, these dwellings will need to be checked in the field for suitability, as all remotely sensed mapping projects should be verified in the field before being executed in practice. It is recommended that a similar exercise be carried out with community leadership using the 1,5-metre separation distance map and subsequently, higher separation distance maps, if additional dwellings can be coated.
A series of maps were compiled, overlaying the "potential fire pathways" at varying separation distances on top of the aerial photography. At
the community mapping process, along with the City of Cape Town Disaster Management, Mandoval and community leadership of Overcome Heights informal settlement
Figure 8: Illustration of the identification of fire spread pathways/inaccessible areas on the basis of predetermined separation distances.
Figure 9: Varying separation distances applied to the Overcome Heights data
Figure 10: Dr Gibson and Danielle Antonellis, founder and executive director of Kindling, facilitating
How does a coated dwelling look like when coated
Some positive feedback that was received from residents is that their structures are warmer during the winter months. Residents reported that they feel safer and protected against fires and there was an overall satisfaction of the appearance of their dwelling once coated.
Figure 12 above illustrates a corrugated coated dwelling and figure 11 illustrates a wooden coated dwelling.
A case study where a fire contained in Overcome Heights IFS, 9 August 2024
On 9 August 2024, a fire incident occurred at approximately 11h15, where one coated dwelling was affected. This structure was coated on all four sides and the roof was not coated. The fire incident resulted in the displacement of eight
people. Fortunately there were no fatalities and no persons injured.
The cause of the fire is yet to be determined. The affected residents lost all personal belongings. The fire occurred on Women’s Day, a public holiday and the weather conditions were windy and rain was experienced throughout the day.
All the surrounding dwellings were unaffected. The surrounding dwellings are all approximately one to two metres apart. All side panels where Tekrok C was applied remained intact and there was no damage to city infrastructure.
According to the homeowner, Mrs Vanessa Isaacs, at approximately 11h15, she observed smoke coming from her roof upon returning to her home. She mentioned when opening her front door she was overwhelmed by smoke and all she could see was dark smoke inside of her dwelling as well as flames.
This prevented her from going inside to be able to save anything. She further accounted that she went to call for help and left the front door open. Community leader Karen Mentoor called the emergency services.
She sadly lost everything; beds, TV, stove, fridge, clothes, baby cot, cupboards etc. The dwelling’s roof also caved in, the front door was damaged and windows destroyed. She claimed the product works, despite her being the victim of losing everything, she is glad that her neighbours were not affected. She also stated that in 2018, her house was also burned down due to another dwelling that was alight and it took a few minutes for that fire to destroy many dwellings in A section.
Since that fire or any other fire, Mrs Isaacs concluded that one never really gets to build back entirely once losing everything. Please contact write for contact details of Mrs V Isaacs.
The affected dwelling had one door and four windows to the anterior portion of the dwelling, with no windows or doors on the other sides.
Measurements
• Distance from anterior dwelling to neighbouring dwelling is 96cm
• Distance from posterior dwelling to neighbouring dwelling is 129cm
• Distance from left side dwelling to neighbouring dwelling is 102cm
• Distance from right side dwelling to neighbouring dwelling is 86cm
Figure 11: Wooden coated dwelling with Tekrok C
Figure 12: Corrugated coated dwelling with Tekrok C
Community leaders and the Fire department’s account of the incident that occurred on 9 August 2024
According to the community leader, Karen Mentoor, she initially smelled wires burning and thought someone was burning copper and on inspection, she saw smoke and walked towards it. This is where she came into contact with Mrs Isaacs and called the emergency services. She said she initially also panicked, in fear that her house might also be affected as was the case in 2018, where nearly the entire A section burned down.
She said that she is glad the fire was contained to only one dwelling and that the product showed its effectiveness in preventing the spread of fire. She claims that the dwelling was burning for approximately 30 minutes before the fire department arrived.
According to the fire officer that responded to the incident, Rudi van der Berg, they got the call at 11h39 and received the second call to the station for the call at 11h44. He mentioned that he arrived with his fire appliance at 11h48, with the fire department being approximately 4,5km away.
On arrival, access to the area was easy, as he gained access via 7de Laan and observed a fully mature fire. The roof of the dwelling collapsed and all four sides of the dwelling remained intact, which was coated with Tekrok C. Based on the fire officer’s experience and in his opinion, the product worked and the fire was contained. All four coated sides of the affected dwelling that was coated with Tekrok C remained intact and thus preventing the spread of the fire to the surrounding dwellings, which was approximately one metre away on all sides.
The fire officer also mentioned in closing that if the dwelling was not coated with Tekrok C, there would have definitely been eight to 10 dwellings well alight on his arrival.
Photographic evidence of dwellings post fire incident
15: Illustrates a partial aerial view of A136 and shows dwelling in comparison to surrounding dwellings. The left side of the dwelling still standing and one can see it is coated with Tekrok C
Figure 13: Picture illustrating A136 dwelling with all internal contents destroyed and sides still standing
Figure 16: Illustrates the posterior side of the affected dwelling, which was coated with Tekrok C
Figure
Contributors to the article and that was also instrumental in the pilot project
In no particular order, the following persons was instrumental in the pilot project:
• Andrew Lashbrooke : chief executive officer of Mandoval
• Brent Burger: Continuous Improvement Management of Mandoval
• Gert Du Plessis: Mandoval National sales leader
• Petrus Mahlangu: Technical supervisor
• Sinovuyo Liwane: Project administrator and health and safety officer
• Dr Johan Minnie: Head ( manager ) of City of Cape Town Disaster Management Centre
• Mark Pluke: Head of Area West Operations Disaster Management, City of Cape Town
• Joshua Fortune: Disaster Management Practitioner for the Disaster Management Centre,
Area West Operations in the City of Cape Town
• Dr Lesley Gibson is a freelancer consultant and Extraordinary Associate Professor at Department of Civil Engineering, Stellenbosch University
• Danielle Antonellis: Founder and executive director of Kindling
• Ward Councillor of Ward 45 Cllr Mandy Marr
• Community leadership of Overcome Heights IFS: Karen Mentoor, Winiswa Zozi, Liza Khumsha, Amienena Reyneveld, Tandiswe Herbs
• EPWP workers: Daren Gertzee, Sinekhaya Libala, Samkelo Makwembe, Taylo Rensberg, Marcel Moray Latolo, Nelisiwe Makaya, Sizwe Majambe, Vuyokazi Jonas, Thembalethu George, Mojalefa James Mabizela, Paulus Josephs and Abduraghmaan Samuels
References
Chironda, M.2024. Cape Town Fire Displaces Over 700 in Informal Settlements - South African News Briefs - April 1, 2024' (2024) allAfrica.com, available: https://link-gale-com.ez.sun.ac.za/apps/ doc/A788261890/AONE?u=27uos&sid=bookmark-AONE&xid=f8e08d68 [accessed 28 April 2024].
Gibson, L., Engelbrecht, J. & Rush, D. 2019. Detecting historic informal settlement fires with Sentinel 1 and 2 satellite data - Two case studies in Cape Town. Fire Safety Journal. 108:102828. DOI: 10.1016/j.firesaf.2019.102828.
Gunter, A. & Massey, R. 2017. Renting Shacks: Tenancy in the informal housing sector of the Gauteng Province, South Africa. Bulletin of Geography. Socio-economic Series. 37(37):25–34. DOI: 10.1515/bog-2017-0022.
Nagendra, H., Bai, X., Brondizio, E.S. & Lwasa, S. 2018. The urban south and the predicament of global sustainability. Nature Sustainability. 1(7):341–349. DOI: 10.1038/s41893-018-0101-5.
Robison, L. J., Schmid, A. A. and Siles, M. E. (2002) ‘Is Social Capital Really Capital?’, Review of Social Economy, 60(1), pp. 1–21. doi: 10.1080/00346760110127074.
Rush, D., Bankoff, G., Cooper-Knock, S.-J., Gibson, L., Hirst, L., Jordan, S., Spinardi, G., Twigg, J., et al. 2020. Fire risk reduction on the margins of an urbanizing world. Disaster Prevention and Management: An International Journal. 29(5):747–760. DOI: 10.1108/dpm-06-2020-0191.
Walls, R., Cicione, A. and Pharoah, R. 2020. Fire safety engineering guideline for informal settlements : towards practical solutions for a complex problem in South Africa. Stellenbosch University, Matieland, South Africa: Firesun Publications.
Wang, Y., Gibson, L. , Beshir, M. et al. Determination of Critical Separation Distance Between Dwellings in Informal Settlements Fire. Fire Technol 57, 987—1014 (2021). https://doi.org/10.1007/ s10694-020 01075-w
SCHALK CARSTENS RETIRES
Schalk Carstens has recently entered retirement after years as the director for Disaster Risk Reduction at the Western Cape Disaster Management Centre. Married for 45 years, Schalk has two children and two grandchildren.
DMISA
Schalk has been a member of DMISA since 1990. He served on the DMISA Council since 1990 and from 1998, as a member of the Executive Committee (EXCO), where he served in several portfolios as EXCO member, mostly responsible for the publication of the DMISA Journal for six terms.
He also served as president of DMISA from 2010 to 2012, as past president the following two years and in 2016 registered as a Disaster Management Professional (DMT:6).
Academic involvement
From 1993 to 2000, he tutored at the Disaster Management United Nations Programme,
which was presented by the UNISA and is only one of two lecturers in the country who have completed the UNDP Disaster Management ‘Tutor’ Diploma (Five-year qualification). This qualification is accredited by UNISA, Cranfield as well Wisconsin Universities.
In 2015, Carstens trained as a SAQA Assessor for future DMISA professional assessments and tutored in Disaster Management from 1994 to 2000 at Technikon South Africa and UNISA. After completion of his Master’s Degree in Disaster Management in 2005, he continued to lecture (part time) at the DiMTEC Masters Programme at the University of Free State, namely two modules, Disaster Risk Assessments and Disaster Strategy.
He also assisted the North-West University with the development of an “All hazard” Disaster Management Preparedness,
Response and Relief Knowledge Product (KP38).
National involvement
Schalk, furthermore served on several National Disaster Management structures such as the NDMC 2010 Soccer world Cup Task Team, Disaster Management Training, Education and Awareness Task Group, the Legislation Review Task Group as well as being appointed by the NDMC to assist with the development of the draft Disaster Management Regulations.
With 42 years of service in the disaster management and related fields, he was employed as a Disaster Management practitioner, firstly at the Gauteng Provincial Government and from 1988 to 2000 and then from 2000 until his retirement in 2024, at the Western Cape Provincial Government.
Employment
Since 2000, Schalk was instrumental with the establishment of the Western Cape Provincial Disaster Management Centre as well as its related structures. systems and mechanisms, which some were the first of its kind in the country. This included the following key performance areas:
• Develop and maintain a GIS support software programme as well as a provincial risk profile
• Develop and maintain continuous hazard, risk and vulnerability assessments
• Develop maintain a disaster warning and alerts system
• Intervention programmes in high risk hazards which could cause disasters
• Ensure inclusion of risk reduction in developmental programmes
• Develop and maintain a risk reduction (mitigation) strategy
• Develop and implement disaster training, education and research programmes and
• Develop and maintain disaster marketing and awareness programmes
• Initiated the establishment of a Provincial Disaster Management Centre
• Creation and development of a disaster information management system (IT programme) and
• Initiate and implement Disaster Training, Education, Awareness and Marketing (TEAM) programme.
• Seconded to facilitate the disaster management work streams for the 2010 FIFA World Cup™ tournament. During this period, he also served on the National Disaster Management Centre’s 2010 FIFA World Cup™ Steering Committee, well as on the Task.
• Develop and maintain a risk and vulnerability profile of the possible hazards in the province
• Ensure the implementation of disaster risk reduction, preparedness and recovery activities, which includes coordination and provision of guidance and capacity building support
• Provide inputs for the formulation of strategic planning and
• Coordinate and implement effective disaster preparedness and response mechanisms and systems.
Gauteng Provincial Government, 1988 to 2000: His duties as assistant director included the following:
• Coordinate the effective and sufficient implementation of disaster management activities in the West Rand, Greater Johannesburg, East Rand and the Vaal Triangle areas
• Responsible for the coordination and monitoring of all disaster prevention, mitigation, preparedness and recovery activities in the areas above
• Instrumental in the establishment of a capacity building programme
• Supported and coordinated the activities of 25 Rural Civil Protection Organisations, which were at that stage not part of the municipal sphere.
Gold Field Security, 1979 to 1988: Employed on several mines, namely Matthey Rustenburg Refineries, Buffelsfontein and Beatrix where the main activities and duties revolved around safety and security aspects.
Department of Correctional Services, 1976 to 1979: Duties as warden mainly included prison protection, rehabilitation of prisoners and guard duties.
Message from Dr Johan Minnie I first met my good friend Schalk somewhere back in the mists of time in 2000. We were across the road from each other in Wale Street in the Cape Town CBD, him a fresh arrival out of Gauteng at Provincial Disaster Management and me two years into working at the Cape Metropolitan Council. Those were the days when Disaster Management for the province was run by a deputy director.
I got to know Schalk as a big, friendly guy with a ready smile, a ready hug and even a ready dance move at DMISA conferences. He has always been a passionate guy with very clear ideas about how things should be done to achieve maximum benefit and would consistently take every available opportunity to push for what he believed to be the right course of action in solving problems.
Schalk is a man of big ideas, big projects and an unrelenting focus on implementation and getting the job done. The projects I associate with him is TEAM: Training Education and Awareness that he transplanted from Gauteng. RAVA, the risk and vulnerability assessment conducted in the Western Cape. His considerable role in the Fire Investigation Task Team (FITT) after the 2000 South Peninsula Fires. The establishment of the Western Cape Provincial Disaster Management Centre at Tygerberg Hospital, combined with the Information Management System that included satellite connectivity for all districts. His “Generic plan”, building out the concept of standardised disaster preparedness, response and relief activities and assigned hazard ownership.
The development of the Western Cape Disaster
Management Framework: Schalk played a massive role in the implementation of Disaster Management in the Western Cape Province and is still recognised at a national level as an authority on disaster management.
Schalk is also a pictures guy; there are some famous diagrams and tables he has used consistently over the years, such as the Mays and the Musts, the parallel disaster management and safety and security structures and his diagrams of the layout of a disaster management centre.
Being a sociable but hardworking guy, Schalk also made a massive contribution to DMISA as Councillor, deputy President and eventually President. He was one of the first registered disaster management professionals and wears the badge with pride and is an active assessor of professional designation applications.
What I admire about Schalk is his obvious interest and pride in the academic and professional development of the people that worked for him and around him. He made opportunities for people and he took real pleasure out of seeing them grow and progress. I wish Schalk all of the very best with his retirement but I know he will still play an important role in Disaster Management in at least South Africa for years to come and look forward to an ongoing friendship and more opportunities to learn from his experience and insight. Mooi loop, Broer Schalk.
Message from Anthony Kesten Schalk Carstens, my brother from another mother. We have been friends since about
1988/89. Schalk worked in the Provincial Civil Defence and I worked at Johannesburg Civil Defence. We would meet up doing emergency planning at various sites including Lenasia South Hospital. Soon we became firm friends and enjoyed many good working hours together as well as many fun filled times over a few or more, refreshments.
Schalk and I worked on the Masakhane Project, giving up our free time on a Saturday to bring Civil Defence and Disaster Management to communities through the live televised project. We served on the Council and Executive Committee of the Disaster Management Institute of Southern Africa for many years and always had similar, if not the same ideas on the way forward for the Institute and the function.
Schalk and I together with some other colleagues, Erika Swart, Billy Keeves, Thinus Rabbe, Deidre Barnard, Maryna Strydom, Elias Sithole and others, were the first intake of the University of the Free State Master’s in Disaster Management. We studied together and shared accommodation when we had to be in Bloemfontein for lectures. When he and his family relocated to the Western Cape it was difficult to not share ideas as readily as before, but, we have been able to have long conversations which has ensured that our connection never waned.
Schalk, now that you reach your retirement, you will find that you have so much work to do. There is work at home and work within the field you so love, be it outside normal channels. You will always remain my brother and God willing, we will see each other more regularly.
CITY OF JOHANNESBURG DELEGATION
PARTICIPATED IN THE CFF TECHNICAL EXCHANGE WORKSHOP
IN CAPE TOWN
By Dr Niel Rooi, City of Johannesburg Disaster Management Centre
The workshop followed the training session held by C40 City Finance Facility (CFF) partner cities in South Africa, which was held in Durban from 9 to 22 February 2024. The consequent workshop in Cape Town took place on 8, 9, and 10 October 2024, to exchange experiences and lessons on their projects focusing on urban river management, climate change adaptation, sustainable development and financing options.
The rationale for selecting the City of Cape Town as the meeting point was that the Western Cape had started its project development phase. The exchange visit was attended by the City of Johannesburg, eThekwini Municipality,
uMlathuze Municipality, Drakenstein Municipality, City of Mbombela and George Municipality and was hosted by CFF and The Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ).
The workshop sessions can be summarised into three categories: the most effective governance mechanisms, how to build and maintain capacity and lastly, how to ensure medium- and long-term funding for adaptation projects.
The team then went on onsite walkabouts at various sites to visualise the workshop discussion points on some of the projects already started by the City of Cape Town and the progress made.
The workshop underscored the urgent need for integrated governance in tackling climate change-induced disasters. The most effective governance mechanism for building and maintaining support for climate change is to onboard all stakeholders, especially those who can play a tangible role and those affected by climate-related events. The eThekwini Total River Management Programme (TRMP) successfully integrated various departments and resources to achieve a shared vision. This integrated governance approach created jobs, community buy-in and stewardship.
From the discussions, it was evident that capacity must be built internally and externally. Externally, it ensures buy-in from key
stakeholders in the design phase of a project to ensure ownership and sustainability. Internally, all cities express the need to build human capacity in the climate adaptation and mitigation value chain and appropriate resource allocation for effective watercourse management. Key to the discussions was climate change funding.
The workshop identified two entities accredited for climate change financing: the South African National Biodiversity Institute (SANBI) and the Development Bank of Southern Africa (DBSA). These entities are crucial in securing funding for climate resilience projects, enabling cities to implement necessary adaptation measures. In addition, to ensure mediumand long-term funding for adaptation projects, the City of Johannesburg’s example of a close working relationship between various legislative custodian departments, such as Disaster Management, the Climate Change office and the finance department, was underscored as an example
to foster closer cooperation to leverage the different funding opportunities available internationally for disaster risk reduction and climate change adaptation interventions.
The workshop agreed that the competing demand for housing while also maintaining or developing spaces for flood mitigation in flood management designs remains a challenge across the municipalities. Despite this, on the walkabouts, there were examples of areas where these competing priorities were overcome, as well as future projects where communities would see tangible benefits from flooding by forgoing land for introducing or rehabilitating artificial wetlands.
Realities of climate-related disastrous events in South Africa
Climate-induced extreme weather events and disasters have become increasingly frequent and severe, significantly impacting communities worldwide. Some of the emerging extreme weather events in South Africa are:
• Frequent heatwaves: Rising global temperatures have led to frequent, more intense, and prolonged heat wave episodes in South Africa, which can cause health crises and agricultural stress.
• Increased damaging flooding: Frequent heavy rainfall has resulted in devastating floods, displacing populations and causing extensive damage to infrastructure across South Africa.
• Urban and rural droughts: Poor water management and prolonged dry spells affect water supply and food production, particularly in vulnerable provinces in South Africa.
• Storm surges: Cyclones are becoming more frequent and powerful, leading to increased wind damage to property and infrastructure and storm surges.
Impact of climate change on disaster risk management
Studies show climate change has made many extreme weather events and disasters more likely. For instance, the World Weather Attribution group
reported that human-induced climate change worsened the deadliest disasters over the past two decades.
Similarly, the economic toll from these disasters has surged, with losses reaching trillions of dollars globally. According to the United Nations, between 1970 and 2019, weather-related storms alone accounted for 11 000 reported disasters, with just over two million deaths and $3,64 trillion in disaster-related losses. Beyond the physical property and infrastructure damage, these extreme weather events and disasters contribute to mental health issues as communities recover from their impacts and face the stress of recovery and loss.
Insights for disaster management
One of the key insights for disaster management from the workshop was the function's pivotal role in championing closer collaboration among disaster role players, stakeholders and actors on climate risks. This leadership can be exercised by enforcing its existing legislative mandate to integrate climate adaptation measures into risk reduction strategies.
Emanating from the information session discussions, it can be concluded that Disaster Management’s role in climate adaptation could include:
• Policy and governance: A recurring theme in the discussions was the urgent and immediate need for enhanced collaboration between disaster risk reduction interventions and climate change adaptation. This includes the development of national and local government strategies that can effectively address common causal factors.
• Integrated disaster risk assessment: This involves overlaying climate change data with results of assessed disaster risks associated with climate change, such as increased frequency and intensity of natural disasters. This information could improve the development of comprehensive disaster risk management plans that include short-term and longterm strategies.
• Integration with disaster risk reduction: The workshop underscores that in tackling the root causes and impacts of climate change, greater cooperation among role-players, actors, and stakeholders must be attained. Similarly, the workshop agreed that a mechanism must be found for greater integration of various strategic climatical risk reduction interventions. This could mean using climate data and projections to inform disaster planning and decisionmaking processes. Although the potential causal factors of weather events could be directly related to climate change and dealt with through long-term climate adaptation actions, the immediate humanitarian impact must be dealt with by disaster management interventions.
• Community engagement: A significant aspect of disaster management is empowering communities and enhancing their capacity to respond to human-induced environmental degradation. This involves educating communities and the public about climate-related disaster risks and involving them in redress planning and decision-making processes.
• Sustainable development: Disaster management
contributes to sustainable development by ensuring infrastructure and development projects are resilient to climate impacts. Based on the various breakaway discussions and walkabouts, this could minimise economic losses, protect livelihoods and give communities a greater sense of ownership, contributing to the sustained upkeep of interventions.
• Rehabilitation: The various site visits and information exchange demonstrated that with an integrated effort, previously unliveable or unusable habitats at or near waterbodies can be rehabilitated, restored or repurposed for animal and human use, offering a hopeful vision for the future.
By integrating these workshop observation approaches, disaster management can significantly enhance resilience to climate change and reduce communities' vulnerability to its impacts.
Collaborative future outlook
The trend of increasing extreme weather events is expected to continue unless significant action is taken to mitigate climate change. Internationally, improved early warning systems, disaster risk reduction and management strategies and climate adaptation interventions have reduced mortality rates related to extreme climate-related disasters. Notwithstanding, there is still a need for local, provincial and international multisectoral cooperation, and sustainable practices are more critical now than ever before. This workshop was one initiative to start and strengthen collaboration interventions to improve the outlook and preserve a better world for posterity.
BUS CRASH SIMULATION EXERCISE
HELD IN VHEMBE DISTRICT MUNICIPALITY, LIMPOPO
By Tshilidzi Nthambeleni, chairperson, Vhembe RIMS
Vhembe District Municipality in Limpopo experiences major accidents that results in loss of lives, more especially along N1 North. The accidents occurring along this N1 route involve local and cross border busses and trucks transporting dangerous goods.
The office of local and cross border transport of the Minister of the Department of Transport, Barbara Creecy, took a decision to raise awareness through the Cross Alive Ministerial Event.
The event was attended by Ministers from Zimbabwe and Zambia as some of the busses and vehicles involved in accidents are from the neighbouring countries. The MEC for Transport in Limpopo was also present.
The event was held at the Musina Traffic Control Centre and requested that an accident simulation be staged involving a bus and a light motor vehicle. Vhembe Road Incident Management System (RIMS) Limpopo Provincial RIMS, South African National Roads Agency (SANRAL), CBRTA engaged in preparation.
The services that participated in the simulation exercise include the Emergency Medical Services, Fire and Rescue, Venetia Mine Fire and Rescue, the South African Police Service (SAPS), traffic officials, the Road Traffic Management Corporation (RTMC), the SANRAL Routine Road Maintenance. The simulation was staged along N1 in Musina. Vehicles were being screened and searched at the road block.
GRDM Disaster management officials alongside second-year students from Stenden South Africa during their visit to the GRDM Disaster Management Centre
STENDEN SOUTH AFRICA
SECOND-YEAR STUDENTS TOUR GARDEN ROUTE DISTRICT MUNICIPALITY’S DISASTER MANAGEMENT CENTRE
The Garden Route District Municipality’s (GRDM) Disaster Management Centre welcomed a group of second-year students from Stenden South Africa as part of their educational tour in October 2024. This visit marked an important stop on the students’ Cape Town-bound journey, which began in the Eastern Cape at the Sarah Baartman District Centre. Along their route, the students are scheduled
to visit various disaster management centres (DM centres) and important sites, including the Koeberg Nuclear Power Station.
Stenden South Africa is an international university that offers a Bachelor of Business Administration (BBA) Honours degree in Disaster Management. The institution is renowned for its approach, combining theoretical knowledge with practical experiences,
The inclusion of GRDM interns in this year’s programme offered the students peer-level insights and further emphasised GRDM’s commitment to developing the next generation of disaster management professionals
equipping students to manage real-world disaster scenarios and global development challenges. Their four-year programme builds expertise in key areas such as disaster response, humanitarian security and global social development.
Among the key modules covered during their studies are:
• Conflict management and humanitarian security law
• Disaster response, role players and relationships
• Introduction to accounting
• Logistics and business communication 2
• Research methodology and field research 1
The programme’s structure is designed to progressively cover foundational topics in the first year, such as Disaster Management Planning, Project Management and Economics. By the third year, students engage in more advanced subjects like Climate Variability and Strategic Management. Furthermore, specialised international modules in Thailand, such as Global Social Development and International Relations, enhance the students’ global perspective.
The GRDM Disaster Management Centre was one of the major highlights of the trip, providing students with a first-hand look at operational disaster management processes. During the visit, the current GRDM interns were invited to share their experiences, offering the students valuable insights into the day-to-day realities of disaster management. These exchanges provided practical context to their studies and gave them a glimpse into potential career paths.
In addition to the intern presentations, a Stenden South Africa alumna, now working as a disaster management officer at GRDM, shared her personal career journey. Her reflections on transitioning from student to professional provided inspiration and guidance for the visiting students, showing how their studies could shape their future roles in the field.
This visit is one of many ongoing collaborations between GRDM and Stenden South Africa, nurturing a dynamic exchange of knowledge and mentorship. Each year, such engagements provide students with practical exposure to disaster management, enhancing their academic experiences. The inclusion of GRDM interns in this year’s programme offered the students peerlevel insights and further emphasised GRDM’s commitment to developing the next generation of disaster management professionals.
Gaining hands-on experience and real-world insights, they are stepping closer to becoming the leaders of tomorrow in managing crises and creating safer communities
CAPRICORN DISTRICT MUNICIPALITY
DISASTER RADIO AWARENESS CAMPAIGN
By Lebogang Mosotho, deputy president, DMISA
The Capricorn District Municipality, represented by Member of the Mayoral Committee (MMC) for Community Services Cllr Elizabeth Rahlana was at the Disaster Management Centre, Ladanna, for the Disaster Management Community Radio Awareness Campaign on Tuesday, 5 November 2024.
The campaign aimed to increase public awareness
about measures that can be taken to reduce the risk and vulnerabilities of communities during disasters, the negative impacts of natural hazards in the rainy season, as well as the food safety and preventative methods.
The campaign was brought to listeners in partnership with Santam and Red Cross. Emergency Services,
Disaster Management and Municipal Health Services led the campaign and shared information with listeners from Energy FM SA, Radio Turf 103.8FM, Moletsi FM, Mohodi FM, Mphahlele FM 90.9, Botlokwa FM, Zebediela FM and Blouberg FM.
Source: Capricorn District Municipality
THE NATIONAL DISASTER RESEARCH AGENDA SEMINAR HELD IN PRETORIA
By Koketso Mpshane: Assistant Director: Education, training and Research
The National Disaster Research Agenda
Seminar was held on 3 to 4 September 2024, at the Letaba House MISA boardroom, Centurion, Pretoria.
Background
Disaster Risk Management is a multi-stakeholder and multidisciplinary terrain where stakeholders likely to engage in disaster situations must develop their capacity to prepare, mitigate, respond and recover from disasters. While the NDMC has the responsibility to promote disaster risk management
research, promotion of research is not limited to the NDMC only, but Sections 30(1) (i) and 44 (1)(i) in the DMA allocates the responsibility for research promotion at provincial and municipal levels to the Provincial and Municipal Disaster Management Centres. Furthermore, Sections 31(2)(g) and 53(2)(g) also call for ongoing research in the provinces and in the municipal areas to be actively promoted in their respective disaster management plans.
As per section 6.6.4 of the National Disaster Management
Framework, the NDMC must create an organised national research programme and establish an information and advisory service. All national organs of state must gather and provide information relating to disaster risk management in their respective functional areas for inclusion in a national information management system. Through consultation, the NDMC must develop a strategic disaster risk reduction research agenda that will effectively inform disaster risk management planning and implementation in South Africa.
Ms Jennifer Kolokoto:
Acting Chief Director Disaster Risk Reduction and Capacity Development
Research initiatives should also be linked to the IDP processes of municipalities.
As a result, continuous consultation and engagement between the communities of disaster risk scientists and disaster risk reduction professionals in South Africa to identify priorities for collaborative research and development, as well as mechanisms for implementing such initiatives is essential to reach the desired goals. Consultation can further be regarded as an auditing tool for existing research initiatives and programmes and to further identify what adds value to an understanding of disaster risk management processes and trends. It will also assist in providing insights into effective disaster risk reduction strategies and measures.
It is in this regard that the NDMC Education, Training, Awareness and Research unit held a twoday seminar. The seminar was an indispensable platform that saw various stakeholders interacting and sharing knowledge concerning research and, more importantly, the gaps that exist within the fraternity. The seminar further established a clear roadmap for the future
Koketso Mpshane:
Assistant Director: Education, training and Research
Mr Owen Becker, president, DMISA
of disaster risk management research in South Africa that will ensure that research outputs contribute to effective policy planning, decision-making, and resilience building. Additionally, the seminar emphasised the need for ongoing and future research initiatives to be aligned with the national priorities and objectives outlined in the Research Agenda.
Presentations and discussion (day 1)
The day 1 of the programme was facilitated by Mr Owen Becker from DMISA.
Ms J Kolokoto, Acting Chief Director: of Disaster Risk Reduction and Capacity Development, on behalf of the HOC: NDMC, gave opening remarks and welcomed the delegates.
Ms Kolokoto explained the importance of the seminar as a platform that is bound to address the growing challenges of climate change, technological hazards and other risks that we are faced with in the country. As a result, it is therefore crucial that our research efforts are aligned with the realities that we find ourselves in as a country. She further explained that the goal of the seminar was to further discuss ways that can
be explored to stay ahead of the existing challenges. She also emphasised the importance of developing proactive approaches that will assist in mitigating the existing risk. Also, the importance of collaboration between different sectors ie researchers, practitioners and policymakers to enhance research efforts in the country.
Ms C Nonjola, Director: Education, Training, Awareness and Research, gave a brief purpose of the meeting and further highlighted the objectives of the seminar and the expected outcomes after the two days. She furthermore encouraged robust engagements throughout the two days as that will ensure that we get as much output as we possibly can from the seminar.
Mr Owen Becker(DMISA): Indigenous knowledge Indigenous knowledge emanates from thousands of years and holds valuable insights. However, we often prioritise recent information and forget the most significant events and wisdom from past occurrences that document the crucial way of preserving history, culture and lessons learned from past disasters and experiences. This helps ensure valuable information isn't lost over time.
The importance of recording incidents for data collection was also emphasised.
Ms Koketso Mpshane (NDMC): Overview of the National Disaster Research Agenda
Ms Mpshane gave an update that aimed to provide a brief overview of the current national research agenda status, particularly for new participants. The presentation covered the purpose, background and rationale behind the development of the national research agenda, as well as its objectives and thematic areas for 2022-2030. It also discussed the progress made so far, alignment with the National Disaster Management Centre's bursary programmes, collaboration efforts and funding. Ultimately, the presentation seeks to answer the fundamental question: "Why are we here?" by providing a comprehensive understanding of the national research agenda's current state and its future directions, culminating in recommendations for moving forward. The thematic areas were also read out to the participants to provide more insights on the agenda. The importance of creating a research hub where all
research conducted will be stored was also mentioned.
Since the establishment of the NDRA, the NDMC has been compiling quarterly databases that consist of research topics conducted by different institutions of higher learning as well as other national departments and provincial disaster management centres. The developed database also reflects all the thematic areas that respective traffic topics fall under, as this will assist in identifying the gaps that exist. Matching the topics against the thematic areas assists in identifying the relevance of the research topics and weighs against what we need to achieve by the year 2030.
So far the finding is that there is very little research that focuses on the response, which is KPA, 4 and most of the research conducted focused on KPA 1-2 and three which is a step in the right direction as it indicates that we are focusing on a more proactive approach instead of a reactive approach.
The database will be continuously updated based on the information received from various institutions until such time the final document
that is the National Research agenda is developed and the identified gaps will also be incorporated into the agenda's existing thematic areas instead of developing new thematic areas. Also, emphasis was directed to developing a national disaster management research agenda that will be beneficial to the national priorities. The NRA needs to build a financial capacity that will assist in financing research that has to be conducted and also to build internal capacity and collaboration for research, analysis, dissemination and sharing.
At the end of the presentation, the North West University also made a brief presentation on the developed research portal. They gave an overview of how the portal works and all the other features that are on the portal, as well as how to navigate through the portal.
Ms Malerata Macheli, Director: Policy Development, Institutional Structures and Compliance Management, NDMC: Overhaul of the Disaster Management System in South Africa
The NDMC has been tasked by cabinet to rectify the loopholes in terms of Disaster Management Policy and
Dr Mal Reddy, Durban University of Technology
Miss Cynthia Nonjola: Director: Education, Training, Awareness and Research
Ms Janine Winder: Western Cape Provincial Disaster Management Centre
Ms Malerata Macheli Director: Policy Development, Institutional Structures and ComplianceManagement
some dissatisfaction on the how disaster management is currently run in the country. As a result, a project was initiated to review the whole system of disaster management in the country and the presentation is intended to give the progress of where it started and where it is now and prospects.
The assignment was handed over to the NDMC in July 2022, where an academic approach was adopted thus leading to the appointment of a service provider to conduct a desktop analysis. The consultant was tasked to analyse the problem, quantify solutions and make recommendations on how the system could be improved. The analysis was made on existing literature, reports, and documentation available and from structures such as DMISA reports and that culminated in the compilation of an annotated bibliography that had 75 specific references that aligned with the best international practices. After that, 12 strategic objectives were identified and from those 12, seven were identified as priorities, meaning those are things that should be given immediate attention. Consultative sessions were also held with different stakeholders
Dr Takalani Makananisa Head Limpopo Provincial Disaster Management Centre
to improve the outcome of the system.
In April 2023, a report was received and suggested improving the existing NDMF based on the seven priority KSOs:
• Mainstream disaster management in development planning
• Enhance disaster management capacity
• Implement an integrated information and communication system
• Explore innovative funding and risk management solutions
• Improve coordination and responsibility in disaster management
• Strengthen institutional arrangements
• Enhance disaster resilience through risk assessment, capacity building and publicprivate partnerships
Weaknesses in the current legal Framework were identified as follows:
• The concurrent responsibility of national and provincial governments muddles how boundaries of functions are defined and how supervision is assumed because the DMA does not differentiate powers and functions.
Mr Harold Kgwetiane Deputy Director Education, Training and Research
• The Act requires of head to report to the minister but is currently a DDG because the NDMC is a branch within a department. Level of authority is assigned haphazardly, particularly in provinces and municipalities
• The Constitution does not explicitly recognise disaster management as a function of LG, complicating the application of laws related to powers and functions and funding mechanisms e.g. (sections 154, 100 and 139).
• The system relies on cooperative government principles and IGRF, assuming a stable and responsive governance system across the spheres of government. However, it lacks effective measures for enforcing compliance, as the Disaster Management Act (DMA) does not provide for sanctions in case of noncompliance.
• The absence of financial and fiscal implications assessment before assigning functions leads to unfunded mandates. Disaster risk reduction is often underfunded, and there is a constant need for the National Disaster Management Centre (NDMC) to classify avoidable disasters
due to inadequate planning and resourcing. Financial and Fiscal Commission Act enacted in 1997 and DMA in 2002
• While the DMA was updated in 2015 to address emerging issues like climate change adaptation and global disaster risk reduction commitments, fundamental issues such as coordination, mainstreaming, funding and emergency management provisions remain unaddressed. The review of the National Disaster Management Framework (NDMF) and the overall legislative system may bring further changes.
The following countries were engaged/visited for benchmarking purposes: Mozambique, New Zealand, Russia, Australia, California and Brazil.
Below is the proposed model for disaster management in South Africa
• The envisaged disaster management model for South Africa emphasises risk reduction over response, recovery, and rehabilitation.
• It should be integrated into government planning at all levels and adequately
funded throughout the disaster management phases, including planning, preparedness, early warning, response, recovery and rehabilitation, with a focus on building resilience.
• To improve coordination, a move away from intergovernmental relations (IGR) towards a legally strengthened approach is proposed, emphasising compliance management and a clear executiveadministration interface. This change addresses challenges such as red tape, noncompliance, accountability, resource disparities and role ambiguity.
• The model also shifts from the current concurrent system to a centralized, top-down approach inspired by Mozambique, California, New Zealand and Russia. Russia and California's decentralisation approach, with regional offices in provinces and municipalities, will be adopted to enhance emergency management, response and fire services.
• This model aligns with the Disaster Management Act's Section 9, which tasks the National Disaster Management Centre (NDMC) with coordinating all aspects
of disaster management. However, it acknowledges the current shortcomings in intergovernmental relations.
• Some other proposed models for disaster management in South Africa include Controls, Integrated planning, climate change adaptation, Data and information management, Emergency planning and response, State Operations Centre (SOC), Fire and Rescue and the Law Enforcement Unit.
Inputs from SALGA were also received and included the following:
• Key structures are not established and where they are, they are dysfunctional
• DMA assigns function to local government without funding which implies contradiction with the MSA
• South Africa can strategically enhance the capacity of its DRM programmes by developing an integrated disaster risk financing and insurance strategy, such as the case of Mexico’s FONDEN.
• Early warning systems for different types of disasters should be, when possible, coordinated by a national authority, having close coordination with different
Dr Phindile Sabela-Rikhotso University of the Western Cape
Mr Michael Nxumalo: National Research Foundation
actors including a network of actors at a community level
• Improved communication and information management can also be facilitated through the use of apps, like the case of the Weather Alarms developed in Germany and the existing telecommunications infrastructure in Switzerland.
• South Africa should invest in the development of intelligence systems that use data analytics to support decision-making and promote transparency of risks and disaster management. While this can be managed at a national level, it should be coordinated and funded at a district level.
• Communities must be empowered as a priority. When communities are informed well in advance on what they must do, and where they must go during disasters, they are more likely to be safe during disasters. This will reduce the number of fatalities. This necessitates Ward-based disaster management committees/ structures.
• A volunteer system with differentiation between specialised and generic support must be developed. This can be achieved in
combination with other programmes such as the Expanded Public Works Programme (EPWP).
• Integration of the role of NGOs and international donor agencies to play a meaningful role in disaster management at all levels of government.
• Prioritise and allocate dedicated funding from the fiscus on disaster management throughout the entire value chain with a priority on risk reduction.
• Policy review to ensure rebuilding is better in line with anticipated climate change impacts. Risk transfer schemes and mechanisms to support the poor through index insurance must be prioritised.
The presenter concluded by emphasising the need for communities to be empowered as a priority. When communities are informed well in advance on what they must do and where they must go during disasters, they are more likely to be safe during disasters and this will reduce the number of fatalities. This necessitates wardbased disaster management committees/structures. Further emphasis was placed on establishing a volunteer system with a differentiation of
specialised and generic support must be developed. This can be achieved in combination with other programmes such as the Expanded Public Works Programme (EPWP). Integration of the role of NGOs and international donor agencies to play a meaningful role in disaster management at all levels of government. Prioritise and allocate dedicated funding from the fiscus on disaster management throughout the entire value chain with a priority on risk reduction. A need for a policy review that will ensure rebuilding is better in line with anticipated climate change impacts. Risk transfer schemes and mechanisms to support the poor through index insurance must also be prioritised.
Other presentations for the day were as follows:
• Limpopo PDMC, Dr T Makananisa, Philosophy of disaster risk management
• Gauteng PDMC, Mr T Mothlale: Impact evaluation on disaster risk reduction (DRR) programmes in the Gauteng Province
• Western Cape PDMC, Ms J Winder: 2023 Flood debriefings: Collaboration with Stellenbosch University
• Mr KIB Phungula, KwaZuluNatal PDMC: Integrated
Dr Wilfred Lunga Human Science Research Council
Ms Zukiswa Poto University of Free State
Mr Morwapula Mashalane South African National Space Agency
disaster response and recovery: Lessons learned from Tongaat tornado.
• Human Science Research Council, Dr W Lunga: Research gaps in disaster risk reduction in South Africa
• SANSA, Mr Morwapula Mashalane: Contribution towards building climateresilient communities.
• University of Free State, Ms Z Poto: Mainstreaming business continuity into disaster risk reduction
• Durban University of Technology, Dr Mal Reddy/ Dr Pillay: Socio-economic variables and disaster incidents in KwaZulu-Natal, South Africa in challenges, strategies and resiliency in disaster and risk management
• Tshwane University of Technology, Prof JKO Asante: Fire technology research
The programme for day 1 was closed off by Mr Kgwetiane: Deputy Director of Education, Training, Awareness and Research (NDMC), who gave a brief overview of the day. He gave the summary of the day by touching on the proceedings from a point of presentation done on the day. He further emphasised the importance of continuous learning as that nurtures one's mind to be forever young.
Presentations and discussion (day 2)
The programme for day 2 was facilitated by Prof Christo Coetzee of the North-West University.
Ms J Kolokoto, Acting Chief Director: of Disaster Risk Reduction and Capacity Development, gave opening remarks and welcomed the delegates explained once more the importance of the seminar and highlighted the important points from the previous day. The programme for Day 2 also consisted of presentations which included presentations by Masters students funded by the NDMC bursary. The Masters and PhD students presented their current research studies and also outlined the objectives of their studies as well as highlighted what they need to achieve. The programme was designed in such a way that both Masters and PhD candidates can be guided and supported by those who are already far off in the research fraternity. The NDMC-funded Master's candidates were chosen to present their research studies so there can be a clear understanding of their research and how it aligns with the NRA.
Presentations for day 2 were as follows:
• NWU, Prof Dewald van Niekerk (online): Improving messaging for Early warning and Resilience (IMERS)
• CSIR, Ms Kathryn Arnold and Ms Chantel Ludick: Greenbook Vulnerability Update
• HSRC, Mr Caiphus Baloyi, PhD candidate: Navigating climate change: Women’s adaptation and decision-making strategies in Moretele Municipality, North West Province
• HSRC, Ms Fanelesibonge Masinga, PhD Candidate (online): Exploring climate
change adaptation strategies among subsistence farmers in KwaZulu-Natal: A KwaNgwanase, South Africa case study
• UFS, Mr Sandiseni Mbatha, Masters student: Exploring post-flood disaster challenges: A case study of Umkhanyakude District, South Africa
• SUN, Mr Lowabo Luthango, Masters student (online): Lack of integration between disaster risk and urban planning
• DUT, Ms Fundi Kheswa, Masters student (online): Urban land invasion within the eThekwini metropolitan area: A case of selected informal settlements
• African Development Bank (AFD), Dr Eric Mariga: Building Capacities for Resilient Recovery
• National Research Foundation (NRF), Mr Michael Nxumalo: Partnership and funding opportunities for sustainability research
During the deliberations, a suggestion was brought forward of the need to conduct a thorough needs assessment of the current NRA. This will assist in determining if the NRA is thoroughly addressing the needs of the country as well as showcase new research opportunities that exist. The importance of the review of the Sendai Framework in 2025 was also mentioned. This will assist the committee in aligning the NRA properly with the global trends and global models that will assist in the effective implementation of the NRA.
The NDMC acknowledged that there is still much to be done regarding stakeholders' involvement. For instance, the National Department of Health
Prof Christo Coetzee, North West University
is not represented yet it plays a significant role in the Disaster Management fraternity. At some point, there has to be engagements with the sectors to grow the NRA and ensure that all sectors are represented and
there is full participation. Most of the sectors were intrigued by funding models from both the NRF and AFD. A proposal was put forward for both agencies (NRF and AFD) to work with municipalities and PDMCs
Resolutions and way forward
directly without involving the National Treasury. A suggestion was further brought forward for the committee to consider workshops where the research agenda can be unpacked and further gaps analysed.
Ms Nonjola, Director: Education, Training, Awareness, and Research, made the following points as resolutions and way forward from the past two days:
• The NDMC notes a need to consult further and allow more inputs/comments for the proper review of the DM system.
• The concept document will be shared with the participants; colleagues are urged to submit the inputs to the NDMC. The input for a community-based approach to review the system is needed to be engaged further for more input.
• The need to continue to collaborate and partner to advance the DM research agenda, as funding is still very limited. As a result, the need for further engagements is important. NDMC is working towards securing more funds to assist more Masters students in the future.
• Data availability and accessibility to be looked into; we acknowledge that it’s not just about generating knowledge; it’s about ensuring that this knowledge is accessible and can be used by all stakeholders to improve disaster resilience across the board.
• Research analysis to identify the gaps and take stock of what we have to ensure that future research becomes more focussed on where there’s a need and a lack.
• NDMC to look into developing clear deliverables and indicators to measure and monitor progress.
• Develop a monitoring tool to track the progress and impact of the research projects.
• Conduct an annual evaluation to assess the effectiveness of the DRM research agenda and refine it.
• Continue to gather feedback from the stakeholders and refine the research priorities and strategies.
• DRR Task Team to be established with the hope of improving governance issues within the DM fraternity. The task team will be launched soon with the hope that it will bring the NDMC a step closer to winning the challenge of DM mainstreaming.
Closure
In closing Ms Nonjola: Director of Education, Training, Awareness and Research: Acknowledged the following people:
• The two facilitators: Mr Owen Becker and Professor Christo Coetzee for a stellar job of steering the ship for the past two days.
• The different presenters, for their time and valuable input and the immeasurable knowledge that they have imparted to the attendees.
• Students/researchers, we appreciate the work that you are doing in contributing to the body of knowledge within the DM space. We are hopeful that your findings will provide solutions and contribute to the development of sound policies, plans and strategies within the disaster management fraternity.
• To all the participants; those that were in the board room and online, your valuable engagements and inputs are appreciated.
• To the team for organising the seminar under the resource constraints that existed.
HEAVY EQUIPMENT: THE SILENT WORKFORCE OF NATURAL DISASTER RELIEF
By Harshvardhan Singh, senior service engineer, Zawar Mines, Udaipur, India
This article focusses on the vital role that heavy equipment play post disasters and during disaster relief efforts.
Winter storms/snowstorms/ blizzards
Winter storms can be incredibly dangerous, ranging from brief periods of moderate snowfall to blizzards lasting
for days. These storms bring a combination of hazards including low temperatures, high winds and heavy snowfall that significantly reduces visibility. Such conditions pose significant dangers, leading to road accidents due to poor visibility and infrastructure damage from toppling power lines, leaving homes without heat.
Intense snowstorms pose significant dangers on transportation as high snow depth can make roads impassable, potentially leading to vehicles becoming trapped in the snow.
Heavy equipment plays a crucial role in snow removal
operations, especially during major snowstorms or in clearing large areas.
Some of the notable points summarising their importance are:
• Efficiency and speed: Heavy machinery can clear snow much faster outpacing manual labour, swiftly clearing snow during storms to keep roads and walkways accessible
• Power handling: They tackle hefty snow loads and drifts that shovels or ploughs alone couldn't manage
• Versatility: Various equipment types cater to diverse tasks, from loaders scooping snow to graders levelling surfaces and snow blowers clearing walkways
• Accessibility: Skid steers and compact tractors adeptly navigate confined areas like parking lots and sidewalks, ensuring thorough snow removal.
Some of the best snow removal equipment includes:
Skid steer loaders
Skid steer loaders are essential machines for snow removal, known for their compact design, versatility and outstanding manoeuvrability. With four wheels or tracks operating independently on each side, these loaders boast the unique ability to turn within
Image 1. A skid steer loader clearing snow
their own length, enabling them to effortlessly navigate through tight spaces and narrow pathways. Fitted with attachments like bucket loaders or snow blowers, skid steers efficiently clear snow from various surfaces, including asphalt and paved areas. While wheeled skid steers excel in providing traction in cold and icy conditions, tracked versions cater to more demanding terrains.
Wheel loaders
Wheel loaders stand out as top choice in the arsenal of snow removal equipment, offering an array of functionalities surpassing even those of skid steer loaders. Equipped with snow removal accessories like snow buckets, pushers, blades and blowers, wheel loaders demonstrate their effectiveness in swiftly removing snow from roads and parking lots throughout the winter season. Their formidable power ensures efficient snow displacement, whether through pushing or lifting, rendering them an ideal selection for a multitude of snow removal operations.
Backhoe loaders
Utilising a backhoe loader for snow removal proves to be a highly effective strategy, particularly in confronting severe weather conditions and substantial snow accumulations. Outfitted with specialized attachments like snow blowers, pushers or blades, the articulated arm and robust torque capabilities of the backhoe loader render it a formidable asset in the task of clearing snow from
driveways, walkways, roads and parking lots. Its capacity to elevate and compress snow provides adaptability, while its seamless operation in icy and snowy conditions guarantees dependability even amidst demanding circumstances.
Motor graders
Motor graders play a vital role in efficiently clearing snow, especially in regions with heavy snowfall. Equipped with snowplough blades, motor graders can quickly and efficiently address the challenges posed by winter weather. Their strong blades and articulation enable them to effectively push and remove snow, ensuring that roads and highways remain safe and accessible even during the most severe snowstorms.
Earthquakes
Earthquakes strike with terrifying suddenness, unleashing violent tremors that shred buildings and rupture the earth. These catastrophic events leave a trail of destruction in their wake, claiming thousands of lives and reducing entire neighbourhoods to rubble. The economic impact is equally staggering, with billions of dollars
Image 3. A backhoe loader loading gravel
Image 2. Loader parked on snow covered ground
lost in damaged infrastructure and ruined property.
Heavy equipment plays a vital role in earthquake relief efforts. These machines help with various tasks, including search and rescue, debris removal, demolition, infrastructure repair and reconstruction.
Some of the primarily equipment used in earthquake relief are mentioned below.
Excavators primarily facilitate debris clearance and rubble removal from collapsed structures, swiftly opening up areas for rescue teams to access potential survivor locations. Additionally, they carve out pathways for emergency vehicles and personnel to navigate through affected zones.
Bulldozers are indispensable for tackling substantial debris
and terrain levelling tasks. They adeptly push aside heavy wreckage, clear obstructed roads and establish temporary access routes critical for rescue and relief operations, particularly in areas where the earthquake may have rendered the terrain precarious.
Cranes play a vital role in heavy lifting operations, capable of hoisting sizable objects such as collapsed structures and debris. They are instrumental in extricating survivors from confined spaces and clearing thoroughfares in densely populated regions.
Floods and cyclones
During floods, heavy equipment plays a crucial role in various aspects of emergency response and recovery efforts. Flood control Levees/embankments and walls can be built or reinforced with heavy equipment to divert floodwaters away from populated areas.
Shoreline stabilisation
Heavy equipment can be used to repair or rebuild levees and embankments and to place
Image 5. An excavator in action in relief efforts
Image 4. A motor grader
as excavators and bulldozers are quickly deployed to move massive amounts of soil, rocks and rubble to create safe access routes for rescue teams. Loaders and bulldozers are then employed to stabilise affected slopes and prevent further landslides. Drilling rigs and cranes facilitate the installation of soil nails, rock bolts and ground anchors, which reinforce the slope and provide additional stability. Graders ensure that the landscape is properly contoured, enhancing drainage and minimising erosion.
Conclusion
riprap (large rocks) along shorelines to prevent erosion.
Floods make the earth soft thereby necessitating machinery with exceptionally low ground pressure and the capability to navigate without risk of sinking or becoming trapped. The amphibious excavator is purpose-built for traversing soft, swampy terrain and shallow water, offering unparalleled manoeuvrability in such conditions. The pontoon undercarriage, with its ample width and height, effortlessly navigates through the changing water depths. Additionally, its substantial floating capacity ensures it can support the entire machine's weight, serving as a safety measure in its design.
Landslides
Landslides are rapid, destructive collapses of soil and rock down the slopes, often triggered by a combination of natural forces like heavy rain or earthquakes, as well as human activities such as construction. Gravity is the primary force driving landslides but factors like intense rainfall, seismic
activity, volcanic eruptions and human-induced changes to the landscape can significantly increase the risk of these events. These disasters can swiftly bury entire communities, causing widespread damage to buildings, infrastructure and transportation networks. As a result, immediate rescue and relief efforts are crucial.
In the initial hours of landslide relief, heavy equipment such
In conclusion, the vital role of heavy equipment in disaster relief cannot be overstated. As technology continues to advance, the efficiency and effectiveness of these machines will only improve, ensuring that communities can rebuild faster and more resiliently in the face of future disasters. Not to forget that the success of disaster relief efforts depends on the collaboration between skilled operators, advanced heavy machinery and coordinated response teams.
Image 6. River revetment work being done by amphibious excavator
Image 7. Debris removal carried out by an excavator after landslide (Photo by Sarah Macmillan/Road Block - Lake Rotoma /Flickr)
THE ROLE OF CONSULTING ENGINEERS IN DISASTER PREPAREDNESS
By Chalmers Pagiwa, CEO, Lubisi Consulting Engineers
The escalating frequency and intensity of natural disasters underscores a growing need for consulting engineering in disaster management planning and preparedness. By employing diverse mitigation strategies and technologies, consulting engineers can significantly enhance infrastructure resilience against natural disasters.
This year has certainly seen its fair share of disasters, from flooding in the West of Africa, to earthquakes in the Middle East, to hurricanes in the United States. Across South Africa, we have seen the impact of flooding, droughts, tornadoes and snowfall.
According to the United Nations Environment Programme, a recent report found that climate change is affecting the hydrological cycle and increasing the frequency and intensity of storms, with over 90 percent of natural disasters being weather-water-related.
Considering these facts, the expertise of consulting engineers becomes increasingly vital in mitigating the impacts of such disasters on communities and infrastructure. These disasters always have a devastating impact on people, infrastructure and local economies and with the increasing the intensity of storms or droughts, being prepared for disasters is no longer just advised, it is necessary.
In our experience, we have seen the outcomes of flood-damaged infrastructure. Recently, in Mpumalanga, where inclement
weather destroyed properties and infrastructure such as roads, bridges and other crossings in a number of areas, we were appointed by the Department of Public Works and Cooperative Governance and Traditional Affairs to repair infrastructure. This experience highlights the importance of not only repairing damaged infrastructure but also implementing proactive strategies that enhance resilience against future disasters.
To effectively implement these proactive strategies, consulting engineers employ rigorous risk assessment and analysis techniques that identify vulnerabilities within essential infrastructure. Consulting engineers therefore play a pivotal role in developing mitigation strategies, undertaking inspections and proposing maintenance plans, aimed at reducing the risk of structural failure and damage.
Building on this foundation, advanced modeling techniques further empower consulting engineers to simulate potential disaster scenarios and enhance predictive capabilities. Through risk assessment and analysis, consulting engineers can identify vulnerabilities in essential infrastructure, forecast the probability and effects of natural disaster on these environments and identify high-risk areas.
Using advanced flood modelling techniques, such as integrated hydrological models, consulting engineers can simulate complex interactions between surface
and groundwater systems, allowing for improved predictions of flood behaviour in a number of scenarios, while geographic information systems technology allows engineers to visualise flood risk areas by analysing topography, land use and historical flood data.
Effective collaboration between the private sector and municipalities, as well as local and national government, is therefore essential for planning and fostering community engagement, ensuring that residents are prepared for emergencies.
Prior to a disastrous event, consulting engineers can develop community engagement and evacuations plans, as well as emergency response procedures and designs, and are key in assessing damage following a disaster, providing temporary and permanent solutions to ensure the restoration and availability of essential services like water.
Now, more than ever, the integration of advanced modelling techniques, sustainable design principles, community engagement and innovative solutions are essential for effective disaster preparedness and risk management.
CONTACT DETAILS
Office administrator
Ronelle Pieters
Email: admin@disaster.co.za
Mobile number: 063 147 3411 (08:00 - 12:00 weekdays)
