Disaster Management Bill includes risk assessment

The SA Disaster Management Amendment Bill 2015 expands disaster management plans, to disaster risk assessments, and risk mapping.

The Bill was introduced in parliament by the Department of Cooperative Governance and Traditional Affairs (Bill 10 of 2015, ISBN 978-1-4850-0217-8)

[ ] Words in square brackets indicate omissions from existing enactments.
Words underlined with a solid line indicate insertions in existing enactments.
Definitions follow at the end of this post.

(See a summary of this Bill in the middle of this post)

BILL
To amend the Disaster Management Act, 2002, so as to;
[] substitute and insert certain definitions;
[] to clarify policy focus on rehabilitation and functioning of disaster management centres;
[] to align the functions of the National Disaster Management Advisory Forum to accommodate the South African National Platform for Disaster Risk Reduction;
[] to provide for the South African National Defence Force, South African Police Service and any other organ of state to assist the disaster management structures;
[]to provide for an extended reporting system by organs of state on information regarding occurrences leading to the declarations of disasters, expenditure on response and recovery, actions pertaining to risk reduction and particular problems experienced in dealing with disasters;
[] to strengthen reporting on implementation of policy and legislation relating to disaster risk reduction and management of allocated funding to municipal and provincial intergovernmental forums established in terms of the Intergovernmental Relations Framework Act, 2005;
[] to strengthen the representation of traditional leaders in national, provincial and municipal disaster management advisory forums;
[] to expand the contents of disaster management plans to include the conducting of disaster risk assessments for functional areas and the mapping of risks, areas and communities that are vulnerable to disasters;
[] to provide measures to reduce the risk of disaster through adaptation to climate change and developing of early warning mechanisms;
[] to provide for regulations on disaster management education, training and research matters and declaration and classification of disasters; and to provide for matters incidental thereto.

Amendment of section 5 of Act 57 of 2002

2. Section 5 of the principal Act is hereby amended—
(a) by the substitution for subparagraph (vi) of paragraph (e) of subsection (1) of the following subparagraph:
‘‘(vi) traditional leaders as recommended by the National House of
Traditional Leaders established by section 2 of the National
House of Traditional Leaders Act, 2009 (Act No. 22 of 2009);’’; and
(b) by the addition of the following subsection:
‘‘(4) The Forum serves as the South African National Platform for
Disaster Risk Reduction.’’.

Substitution of section 8 of Act 57 of 2002
3. The following section is hereby substituted for section 8 of the principal Act:
‘‘Establishment

8. [(1)] A National Disaster Management Centre is established as an
institution within the public service.
[(2) The National Centre forms part of, and functions within, a
department of state for which the Minister is responsible.]’’.

Amendment of section 10 of Act 57 of 2002
4. Section 10 of the principal Act is hereby amended by the substitution for subsection
(2) of the following subsection:
‘‘(2) A person appointed as the Head of the National Centre holds office [in the
Department] on terms and conditions set out in a written employment contract
which must include terms and conditions setting performance standards.’’.
Substitution of section 11 of Act 57 of 2002

5. The following section is hereby substituted for section 11 of the principal Act:

“Acting Head

11. When the Head of the National Centre is absent or otherwise unable
to perform the functions of office, or during a vacancy in the office of Head
of the National Centre, the [Director-General of the Department]
Minister may designate another person in the service of, or seconded to, the
Department to act as Head of the National Centre.’’.

Amendment of section 13 of Act 57 of 2002
6. Section 13 of the principal Act is hereby amended by the substitution for subsection
(2) of the following subsection:
‘‘(2) An employee of an organ of state or other organisation may be seconded to the National Centre by agreement between the [Director-General of the Department] Head of the National Centre and that organ of state or organisation.’’

Amendment of section 15 of Act 57 of 2002
7. Section 15 of the principal Act is hereby amended—
(a) by the insertion after paragraph (a) of subsection (2) of the following
paragraph:
‘‘(aA) in any event of a disaster, or a potential disaster, call on the South
African National Defence Force, South African Police Service
and any other organ of state to assist the disaster management
structures;’’; and
(b) by the addition of the word ‘‘and’’ at the end of paragraph (b) of subsection (3) and the deletion of paragraph (c) of that subsection.
Amendment of section 22 of Act 57 of 2002

8. Section 22 of the principal Act is hereby amended by the substitution for paragraph (f) of the following paragraph:
‘‘(f) acting in any other way approved by the [Director-General of the
Department] Minister.’’.

Amendment of section 23 of Act 57 of 2002
9. Section 23 of the principal Act is hereby amended—
(a) by the deletion in subsection (1) of the word ‘‘and’’ at the end of paragraph (b), and the insertion after that paragraph of the following paragraph:
‘‘(bA) inform the relevant provincial disaster management centre of the
decision on the classification of the disaster made in terms of paragraph (b); and’’; and
(b) by the substitution for paragraph (a) of subsection (5) of the following
paragraph:
‘‘(a) it affects—
(i) more than one metropolitan or district municipality in the same
province; or
(ii) a single metropolitan or district municipality in the province
and that metropolitan municipality, or that district municipality
with the assistance of the local municipalities within its area, is
unable to deal with it effectively; [or] and
[(iii) a cross-boundary municipality in respect of which only one
province exercises executive authority as envisaged by
section 90(3)(a) of the Local Government: Municipal
Structures Act, 1998 (Act No. 117 of 1998); and]’’.

Amendment of section 24 of Act 57 of 2002
10. Section 24 of the principal Act is hereby amended—
(a) by the substitution for the heading of the following heading:
‘‘[Annual reports] Reporting’’; and
(b) by the addition of the following subsections:
‘‘(4) Each organ of state must, on any occurrence leading to the
declaration of a disaster, report on a quarterly basis to the National
Centre on—
(a) information reflecting the type, severity, loss in terms of lives,
damage to property, crop and other goods;
(b) the spatial attributes of the areas, communities and households
affected by the disaster;
(c) information on the expenditure incurred on response and postdisaster
recovery and rehabilitation;
(d) listing of any actions in terms of risk reduction;
(e) particular problems that were experienced in dealing with the
disasters; and
(f) any other information that may be prescribed.

(5) Progress reports on the implementation of policy and legislation
relating to disaster risk reduction and management in municipalities and
provinces must be submitted on a quarterly basis to the municipal and
provincial intergovernmental forums established in terms of the Intergovernmental
Relations Framework Act, 2005 (Act No. 13 of 2005).

(6) If money has been allocated to a national department, province or
municipality from the national revenue for purposes of disaster
mitigation, relief and post-disaster recovery and rehabilitation, whether
in the form of new funding or from current institutional funds, a progress
report on the spending of that money must be submitted on a quarterly
basis to the municipal, provincial and national intergovernmental forums
established in terms of the Intergovernmental Relations Framework Act,
2005.

(7) Expenditure and performance reports for all funds received must
be compiled by each organ of state and submitted to the transferring
national officers and the National Treasury in accordance with the annual
Division of Revenue Act.

(8) Copies of reports referred to in subsections (4), (5) and (6) must be
submitted simultaneously to the National Treasury and the relevant
disaster management centres in the respective spheres of government.’’.

Amendment of section 25 of Act 57 of 2002
11. Section 25 of the principal Act is hereby amended—
(a) by the substitution for subsection (1) of the following subsection:
‘‘(1) Each national organ of state must—
(a) conduct a disaster risk assessment for its functional area;
(b) identify and map risks, areas, ecosystems, communities and
households that are exposed or vulnerable to physical and humaninduced
threats;
(c) prepare a disaster management plan setting out—
(i) the way in which the concept and principles of disaster
management are to be applied in its functional area, including
expected climate change impacts and risks for the organ of
state;
(ii) its role and responsibilities in terms of the national or
provincial disaster management framework;
(iii) its role and responsibilities regarding emergency response and
post-disaster recovery and rehabilitation;
(iv) its capacity to fulfil its role and responsibilities;
(v) particulars of its disaster management strategies; and
(vi) contingency strategies and emergency procedures in the event
of a disaster, including measures to finance these strategies;
(d) co-ordinate and align the implementation of its plan with those of
other organs of state and institutional role-players;
(e) provide measures and indicate how it will invest in disaster risk
reduction and climate change adaptation, including ecosystem and
community-based adaptation approaches;
(f) develop early warning mechanisms and procedures for risks
identified in its functional area; and
(g) regularly review and update its plan.’’;
(b) by the substitution for paragraph (a) of subsection (3) of the following
paragraph:
‘‘(a) A national organ of state must submit a copy of its disaster
management plan and of any amendment to the plan to the National
Centre, provided a copy of a disaster management plan by a major
public entity listed in Schedule 2 to the Public Finance Management Act,
1999 (Act No. 1 of 1999), submitted to a national organ of state, must
also be submitted to the National Centre.’’; and
(c) by the addition to subsection (3) of the following paragraph:
‘‘(c) The National Centre must make available applicable disaster
management plans of organs of state to relevant provincial and municipal
disaster management centres.’’.

Amendment of section 37 of Act 57 of 2002
12. Section 37 of the principal Act is hereby amended by the substitution for
subparagraph (v) of paragraph (e) of subsection (1) of the following subparagraph:
‘‘(v) traditional leaders as recommended by the National House of Traditional
Leaders established by section 2 of the National House of Traditional Leaders
Act, 2009 (Act No. 22 of 2009);’’.

Amendment of section 38 of Act 57 of 2002
13. Section 38 of the principal Act is hereby amended by the substitution for
subsection (1) of the following subsection:
‘‘(1) Each provincial organ of state must—
(a) conduct a disaster risk assessment for its functional area;
(b) identify and map risks, areas, ecosystems, communities and households that
are exposed or vulnerable to physical and human-induced threats;
(c) prepare a disaster management plan setting out—
(i) the way in which the concept and principles of disaster management are
to be applied in its functional area, including expected climate change
impacts and risks for the organ of state;
(ii) its role and responsibilities in terms of the national or provincial disaster
management framework;
(iii) its role and responsibilities regarding emergency response and postdisaster
recovery and rehabilitation;
(iv) its capacity to fulfil its role and responsibilities;
(v) particulars of its disaster management strategies; and
(vi) contingency strategies and emergency procedures in the event of a
disaster, including measures to finance these strategies;
(d) co-ordinate and align the implementation of its plan with those of other organs of state and institutional role-players;
(e) provide measures and indicate how it will invest in disaster risk reduction and
climate change adaptation, including ecosystem and community-based
adaptation approaches;
(f) develop early warning mechanisms and procedures for risks identified in its
functional area; and
(g) regularly review and update its plan.’’.

Amendment of section 43 of Act 57 of 2002
14. Section 43 of the principal Act is hereby amended by the addition of the following
subsections:
‘‘(3) A local municipality must establish capacity for the development and
co-ordination of a disaster management plan and the implementation of a disaster
management function for the municipality which forms part of the disaster
management plan as approved by the relevant municipal disaster management
centre.

(4) A local municipality may establish a disaster management centre in consultation with the relevant district municipality in accordance with the terms set out in a service level agreement between the two parties, in alignment with national norms and standards.’’.

Substitution of heading to Part 3 of Chapter 5 of Act 57 of 2002
15. The following heading is hereby substituted for the heading to Part 3 of Chapter
5 of the principal Act:
‘‘Powers and duties of [municipalities and municipal entities] municipal organs
of state’’.

Amendment of section 51 of Act 57 of 2002
16. Section 51 of the principal Act is hereby amended by the substitution for
subparagraph (iv) of paragraph (d) of subsection (1) of the following subparagraph:
‘‘(iv) traditional leaders as recommended by the National House of Traditional
Leaders established by section 2 of the National House of Traditional Leaders
Act, 2009 (Act No. 22 of 2009);’’.

Amendment of section 52 of Act 57 of 2002
17. Section 52 of the principal Act is hereby amended—
(a) by the substitution for the heading of the following heading:

‘‘Preparation of disaster management plans by municipal [entities]
organs of state other than municipalities’’;
(b) by the substitution for subsection (1) of the following subsection:
‘‘(1) Each municipal organ of state other than a municipality must—
(a) conduct a disaster risk assessment for its functional area;
(b) identify and map risks, areas, ecosystems, communities and
households that are exposed or vulnerable to physical and human-induced
threats;
(c) prepare a disaster management plan setting out—
(i) the way in which the concept and principles of disaster
management are to be applied in its functional area, including
expected climate change impacts and risks for that municipal
entity or administrative unit;
(ii) its role and responsibilities in terms of the national, provincial
or municipal disaster management framework;
(iii) its role and responsibilities regarding emergency response and
post-disaster recovery and rehabilitation;
(iv) its capacity to fulfil its role and responsibilities;
(v) particulars of its disaster management strategies; and
(vi) contingency strategies and emergency procedures in the event
of a disaster, including measures to finance these strategies;
(d) co-ordinate and align the implementation of its plan with those of
other organs of state and institutional role-players;
(e) provide measures and indicate how it will invest in disaster risk
reduction and climate change adaptation, including ecosystem and
community-based adaptation approaches;
(f) develop early warning mechanisms and procedures for risks
identified in its functional area; and
(g) regularly review and update its plan.’’; and
(c) by the substitution for subsection (2) of the following subsection:
‘‘(2) (a) A municipal [entity] organ of state referred to in subsection
(1) must submit a copy of its disaster management plan, and of any
amendment to the plan, to the [National Centre and the] relevant
[provincial and] municipal disaster management [centres] centre.
(b) If a municipal [entity] organ of state fails to submit a copy of its
disaster management plan or of any amendment to the plan in terms of
paragraph (a), the [National Centre or] relevant [provincial or]
municipal disaster management centre must report the failure to the
executive mayor or mayor, as the case may be, of the municipality
concerned, who must take such steps as may be necessary to secure
compliance with that paragraph, including reporting the failure to the
municipal council.’’.

Amendment of section 53 of Act 57 of 2002
18. Section 53 of the principal Act is hereby amended by the substitution for
subsection (1) of the following subsection:
‘‘(1) Each municipality must—
(a) conduct a disaster risk assessment for its municipal area;
(b) identify and map risks, areas, ecosystems, communities and households that
are exposed or vulnerable to physical and human-induced threats;
(c) prepare a disaster management plan setting out—
(i) the way in which the concept and principles of disaster management are
to be applied in its municipal area, including expected climate change
impacts and risks for the municipality;
(ii) its role and responsibilities in terms of the national, provincial or
municipal disaster management framework;
(iii) its role and responsibilities regarding emergency response and postdisaster
recovery and rehabilitation;
(iv) its capacity to fulfil its role and responsibilities;
(v) particulars of its disaster management strategies; and
(vi) contingency strategies and emergency procedures in the event of a
disaster, including measures to finance these strategies;
(d) co-ordinate and align the implementation of its plan with those of other organs of state and institutional role-players;
(e) provide measures and indicate how it will invest in disaster risk reduction and climate change adaptation, including ecosystem and community-based adaptation approaches;
(f) develop early warning mechanisms and procedures for risks identified in the
municipal area; and
(g) regularly review and update its plan.’’.
Amendment of section 59 of Act 57 of 2002

19. Section 59 of the principal Act is hereby amended by the substitution for
subsection (1) of the following subsection:
‘‘(1) The Minister may make regulations not inconsistent with this Act—
(a) concerning any matter that—
(i) may or must be prescribed in terms of a provision of this Act; or
(ii) is necessary to prescribe for the effective carrying out of the objects of
this Act; [and]
(b) providing for the payment, out of moneys appropriated by Parliament for this
purpose, of compensation to any person, or the dependants of any person,
whose death, bodily injury or disablement results from any event occurring in
the course of the performance of any function entrusted to such person in
terms of this Act;
(c) concerning the focus areas of the national disaster management education,
training and research frameworks; and
(d) concerning the declaration and classification of disasters.’’.
Substitution of long title of Act 57 of 2002

20. The following long title is hereby substituted for the long title of the principal Act:

‘‘ACT, To provide for—
• an integrated and co-ordinated disaster management policy that focuses on
preventing or reducing the risk of disasters, mitigating the severity of
disasters, emergency preparedness, rapid and effective response to disasters
and post-disaster recovery and rehabilitation;
• the establishment and functioning of national, provincial and municipal
disaster management centres;
• disaster management volunteers; and
• matters incidental thereto.’’.
Short title and commencement

21. This Act is called the Disaster Management Amendment Act, 2015, and comes into operation on a date determined by the President by proclamation in the Gazette.

MEMORANDUM ON OBJECTS OF THE DISASTER
MANAGEMENT AMENDMENT BILL, 2015

1. BACKGROUND
1.1 Since the promulgation of the Disaster Management Act, 2002 (Act No. 57 of 2002) (‘‘principal Act’’), in 2003 and during the subsequent commencement of the legislation in the various spheres of government, some challenges were experienced to a varying extent in implementing all aspects of the legislation effectively.

1.2 During 2010 practitioners and stakeholders in the field of disaster management,
as well as research undertaken by the South African Local Government
Association (SALGA), and the African Centre for Disaster Studies (ACDS)
amongst others, highlighted some areas which were identified either as gaps in
the principal Act or as issues which are impeding or hampering the effective
implementation of the Act. In addition, an analysis by a National Interdepartmental
Legislative Review Committee (NILRC) on legislation which has an
impact on service delivery also highlighted the principal Act as an example of
legislation requiring review.

1.3 Considering some of the views that have been expressed by the political
leadership, SALGA, the Disaster Management Institute of Southern Africa
(DMISA), the National Disaster Management Advisory Forum (NDMAF),
practitioners, academics and others in the disaster management fraternity, the
need was acknowledged to call for a review of the principal Act.

1.4 The main thrust of the principal Act and the National Disaster Management
Framework, 2005 (NDMF), centres around the creation of appropriate
institutional arrangements for disaster management. It is argued that the ideals
of disaster management cannot be achieved without structures to support its
myriad of actions.

1.5 Essentially, the focus of the principal Act is four-fold:
● it establishes an elaborate institutional framework for disaster management;
● it entrenches a detailed policy development and strategic planning
framework for disaster management;
● it provides for the classification and declaration of disasters; and
● it deals provisionally with the funding of post-disaster recovery and
rehabilitation.

1.6 The principal Act also deals with disaster management volunteers and a few
other ancillary matters. Through the process of reviewing the principal Act,
the National Disaster Management Centre (NDMC) also intends to confirm
the Priority Action 1 of the International Hyogo Framework of Action (IHFA)
to ensure that disaster risk reduction is a national and a local priority with a
strong institutional basis for implementation.

1.7 Contact was also made with the Global Facility for Disaster Reduction and
Recovery (GFDRR) of the World Bank as well as the International Federation
of Red Cross and Red Crescent Societies (IFRC) to obtain input on
international good practice, more specifically on legislating issues of disaster
risk reduction. A study was also undertaken by the research unit in the
Department of Cooperative Governance and Traditional Affairs to analyse
international good practice models.

2. OBJECTS OF THE BILL

The main object of the amendment Bill is to address the problems that have been experienced in the implementation of the principal Act since its promulgation in 2003 and to promote the effective and efficient implementation of the principal Act.

3. SUMMARY OF THE BILL

3.1 Clause 1 of the Bill seeks to amend some of the definitions of the principal Act to be in line with the generally accepted definitions used in the international context and across sectors nationally so as to make the principal Act simpler and easier to understand. To this end, the definitions for department, disaster,
emergency preparedness, mitigation, organ of state, post disaster recovery and rehabilitation, and vulnerability are substituted. Clause 1 of the Bill also seeks to insert definitions in the principal Act to define adaptation, climate change, disaster risk reduction, ecosystem, municipality and risk assessment.

3.2 Clause 2 of the Bill seeks to amend section 5 of the principal Act to make
provision for the National House of Traditional Leaders to recommend
traditional leaders to serve on the National Disaster Management Advisory
Forum (NDMAF). Clause 2 (b) of the Bill also amends section 5 of the
principal Act to provide for the NDMAF to serve as the South African
National Platform for Disaster Risk Reduction, thereby fulfilling its obligations
in terms of the Hyogo Framework of Action adopted by the United
Nations in 2005.

3.3 Clause 3 of the Bill seeks to amend section 8 of the principal Act to provide
for the legal consequences of the establishment of the NDMC as a government
component in terms of the Public Service Act, should this take place by
deleting the reference to the National Centre forming part of, and functioning
within a department of state for which the Minister is responsible.

3.4 Clause 4 of the Bill seeks to amend section 10 of the principal Act to provide
for the legal consequences of the establishment of the NDMC as a government
component in terms of the Public Service Act, should this take place.

3.5 Clause 5 of the Bill seeks to amend section 11 of the principal Act to provide
for the legal consequences of the establishment of the NDMC as a government
component in terms of the Public Service Act, should this take place.

3.6 Clause 6 of the Bill seeks to amend section 13 of the principal Act to provide
for the legal consequences of the establishment of the NDMC as a government
component in terms of the Public Service Act, should this take place.

3.7 Clause 7 of the Bill seeks to amend section 15 of the principal Act to make
provision for the NDMC to call on the South African National Defence Force
(SANDF), the South African Police Service (SAPS) and any organ of state to
assist the disaster management structures in any event of a disaster or a
potential disaster.

3.8 Clause 8 of the Bill seeks to amend section 22 of the principal Act to provide
for the legal consequences of the establishment of the NDMC as a government
component in terms of the Public Service Act, should this take place.

3.9 Clause 9 of the Bill seeks to amend section 23 of the principal Act by
providing for the National Centre to inform the relevant provincial disaster
management centre of the decision on the classification of a disaster. Clause 9
also seeks to repeal subparagraph (iii) of paragraph (a) of subsection (5) of
section 23 of the principal Act which refers to a cross-boundary municipality
as those have been abolished since the promulgation of the Cross-Boundary
Municipalities Laws Repeal and Related Matters Act, 2005 (Act No. 23 of
2005).

3.10 Clause 10 of the Bill seeks to amend section 24 of the principal Act to provide for an extended reporting system by organs of state to the National Centre on progress on the implementation of policy and legislation. On any occurrence leading to the declaration of a disaster, reports must reflect information relating to the losses and damages, spatial attributes of the affected area, information on expenditure incurred on response and post disaster recovery and rehabilitation, disaster risk reduction actions performed, particular problems experienced in dealing with disasters and other relevant information.

3.11 Clause 10 of the Bill also seeks to amend section 24 of the principal Act so as
to provide for progress reports on the implementation of policy and legislation
as well as expenditure and performance reports for all funds received from the
national revenue for purposes of disaster mitigation, relief and post-disaster
recovery and rehabilitation to intergovernmental forums established in terms
of the Intergovernmental Relations Framework Act, 2005 (Act No. 13 of
2005).

3.12 Clause 11 of the Bill seeks to amend section 25 of the principal Act by
providing for the logical sequence of events, i.e. conducting a risk assessment
prior to planning and to ensure that disaster management plans of national
organs of state indicate the way in which the concept and principles of disaster
management are to be applied in its functional area, including expected
climate change impacts and risks for the organ of state. National organs of
state should also identify and map risks, areas, ecosystems, communities and
households that are exposed and vulnerable to physical and human-induced
threats. It also provides for national organs of state to indicate how it will
invest in disaster risk reduction and climate change adaptation, including
ecosystem and community—based approaches and develop early warning
mechanisms and procedures for risks identified in its functional area.

3.13 Clause 11 of the Bill also seeks to amend section 25 of the principal Act so as to clarify the responsibility of national public entities such as Eskom, Telkom, etc. in terms of disaster management planning and communication with the National Centre and makes provision for the sharing of disaster management plans between the national centre and relevant provincial and municipal
disaster management centres.

3.14 Clause 12 of the Bill seeks to amend section 37 of the principal Act to make
provision for the National House of Traditional Leaders to recommend
traditional leaders to serve on the Provincial Disaster Management Advisory
Forums (PDMAFs).

3.15 Clause 13 of the Bill seeks to amend section 38 of the principal Act by
providing for the logical sequence of events, i.e. conducting a risk assessment
prior to planning and to ensure that disaster management plans of provincial
organs of state indicate the way in which the concept and principles of disaster
management are to be applied in its functional area, including expected
climate change impacts and risks for the organ of state. Provincial organs of
state should also identify and map risks, areas, ecosystems, communities and
households that are exposed and vulnerable to physical and human-induced
threats. It also provides for provincial organs of state to indicate how it will
invest in disaster risk reduction and climate change adaptation, including
ecosystem and community-based approaches and develop early warning
mechanisms and procedures for risks identified in its functional area.

3.16 Clause 14 of the Bill seeks to amend section 43 of the principal Act by making
provision for a local municipality to establish capacity for the development
and coordination of a disaster management plan and the implementation of a
disaster management function for the municipality which forms part of the
disaster management plan as approved by the relevant district municipality.
The clause also provides for a mechanism whereby a local municipality may
establish a disaster management centre in consultation with the relevant
district municipality and in accordance with a suitable service level
agreement.

3.17 Clauses 15 of the Bill deals with an amendment which is consequential to the amendment of section 52 of the principal Act by referring to the preparation of disaster management plans by municipal organs of state other than municipalities.

3.18 Clause 16 of the Bill seeks to amend section 51 of the principal Act to make
provision for the National House of Traditional Leaders to recommend
traditional leaders to serve on the Municipal Disaster Management Advisory
Forums (MDMAFs).

3.19 Clause 17 of the Bill seeks to deal with the amendment of section 52 of the
principal Act by providing for the logical sequence of events, i.e. conducting
a risk assessment prior to planning and to ensure that disaster management
plans of municipal organs of state other than municipalities (i.e. municipal
entities, functional units and departments within a municipality) indicate the
way in which the concept and principles of disaster management are to be
applied in its functional area, including expected climate change impacts and
risks for the organ of state. They should also identify and map risks, areas,
ecosystems, communities and households that are exposed and vulnerable to
physical and human-induced threats. It also provides for these organs of state
to indicate how it will invest in disaster risk reduction and climate change
adaptation, including ecosystem and community-based approaches and
develop early warning mechanisms and procedures for risks identified in its
functional area.

3.20 Clause 18 of the Bill seeks to amend section 53 of the principal Act by
providing for the logical sequence of events, i.e. conducting a risk assessment
prior to planning and to ensure that a disaster management plan of a
municipality indicate the way in which the concept and principles of disaster
management are to be applied in its municipal area, including expected
climate change impacts and risks for the municipality. It should also identify
and map risks, areas, ecosystems, communities and households that are
exposed and vulnerable to physical and human-induced threats. It also
provides for the municipality to indicate how it will invest in disaster risk
reduction and climate change adaptation, including ecosystem and community-
based approaches and develop early warning mechanisms and procedures
for risks identified in its municipal area.

3.21 Clause 19 of the Bill seeks to amend section 59 of the principal Act to provide for additional regulations to be made by the Minister concerning the focus areas of the national disaster management education and training framework and concerning the declaration and classification of disasters.

3.22 Clause 20 of the Bill seeks to provide for the substitution of the long title of
the principal Act.

3.23 Clause 21 of the Bill introduces the short title of the Amendment Act and
provides for the date of the Amendment Act coming into operation.

4. PARTIES CONSULTED

4.1 The National Disaster Management Advisory Forum (NDMAF) which serves
as the multi-disciplinary stakeholder platform in which national, provincial
and local government as well as other disaster management role-players
consult one another and coordinate their actions on matters relating to disaster
management, supports the amendments contained in the draft Disaster
Management Amendment Bill. In the process of amending the principal Act,
each sphere of government, sector departments as well as other stakeholders
such as relevant public entities were consulted and had the opportunity to
comment and give their inputs.
4.2 The Departments of Justice and Constitutional Development and the National Treasury were also consulted on the proposed amendments to the draft Amendment Bill.

5. FINANCIAL IMPLICATIONS FOR THE STATE

5.1 None currently envisaged that cannot be covered by existing provisions.
5.2 In terms of current legislative provisions, each national organ of state already has a responsibility to develop a disaster management plan for its area of responsibility in terms of section 25 of the existing Disaster Management Act,
2002. One of the requirements of the plan is to set out its capacity to fulfil its role and responsibilities. Furthermore, it is stipulated that the disaster management plan must form an integral part of the planning of respective
organs of state.
5.3 The proposed amendments in relation to these functions could therefore be
incorporated into the existing financial arrangements of organs of state. There
is therefore no immediate need for an increase in financial expenditure as the
proposed amendments can be addressed within the current fiscal framework.

6. FINANCIAL IMPLICATIONS FOR PROVINCES

None envisaged that cannot be covered by existing provisions for these functions. Funds for disaster management activities in provinces are currently allocated through a number of conditional grants, the equitable share and own budgets of provinces.

7. FINANCIAL IMPLICATIONS FOR MUNICIPALITIES

7.1 Funds for disaster management activities in municipalities are currently
allocated through a number of conditional grants, the equitable share and own
budgets of municipalities.
7.2 The amendment of section 43 of the principal Act will re-affirm the function
of district municipalities regarding the responsibility to establish capacity for
the development and coordination of a disaster management plan and the
implementation of a disaster management function for the municipal area. The
capacity building will be done in accordance with the municipality’s existing
human resources skills development plans and Integrated Development Plans.
7.3 Local municipalities may also establish a Disaster Management Centre in
consultation with the District Municipality which is primarily responsible for
the Disaster Management Centre. This provision of services will be aligned
with other disaster management activities in the district. Service level
agreements should be entered into to support such arrangements. The Minister
of Cooperative Governance and Traditional Affairs can issue norms and
standards in this regard. This assignment of a function, must be done in
accordance with the processes outlined in the Local Government: Municipal
Systems Act, 2000 (Act No. 32 of 2000) and Local Government: Municipal
Structures Act, 1998 (Act No. 117 of 1998) and will include a financial impact
study and approval from the Financial and Fiscal Commission and the
Minister of Finance.

8. PARLIAMENTARY PROCEDURE

8.1 The State Law Advisers and the Department of Co-operative Governance are of the opinion that this Amendment Bill must be dealt with in accordance with the procedure prescribed by section 76 of the Constitution. The Bill falls within the functional areas listed in Schedule 4 to the Constitution.

8.2 The State Law Advisers are of the opinion that it is not necessary to refer this Bill to the National House of Traditional Leaders in terms of section 18(1)(a) of the Traditional Leadership and Governance Framework Act, 2003 (Act No. 41 of 2003), since it does not contain provisions pertaining to customary law or customs of traditional communities.

Amendment of section 1 of Act 57 of 2002
1. Section 1 of the Disaster Management Act, 2002 (hereinafter referred to as the principal Act), is hereby amended—
(a) by the insertion before the definition of ‘‘Department’’ of the following definitions:
‘‘ ‘adaptation’ means—
(a) in relation to human systems, the process of adjustment to actual or
expected climate and its effects, in order to moderate harm or
exploit beneficial opportunities; and
(b) in relation to natural systems, the process of adjustment to actual
climate and its effects;
‘climate change’ means a change in the state of the climate that can be
identified by changes in the variability of its properties and that persists
for an extended period, typically decades or longer;’’;
(b) by the substitution for the definition of ‘‘Department’’ of the following
definition:
‘‘ ‘Department’ means the principal department that supports the
Cabinet member referred to in section 3;’’;
(c) by the substitution for subparagraph (iii) of paragraph (a) of the definition of
‘‘disaster’’ of the following subparagraph:
‘‘(iii) significant disruption of the life of a community; and’’;
(d) by the insertion after the definition of ‘‘disaster management‘‘ of the
following definition:
‘‘ ‘disaster risk reduction’ means either a policy goal or objective, and
the strategic and instrumental measures employed for—
(a) anticipating future disaster risk;
(b) reducing existing exposure, hazard or vulnerability; and
(c) improving resilience;’’;
(e) by the insertion after the definition of ‘‘district municipality‘‘ of the following
definition:
‘‘ ‘ecosystem’ means a system of relationships between animals and
plants and their environment;’’;
(f) by the substitution for the definition of ‘‘emergency preparedness’’ of the
following definition:
‘‘ ‘emergency preparedness’ means—
(a) a state of readiness which enables organs of state and other
institutions involved in disaster management, the private sector,
communities and individuals to mobilise, organise and provide
relief measures to deal with an impending or current disaster or the
effects of a disaster; and
(b) the knowledge and capacities developed by governments, professional
response and recovery organisations, communities and
individuals to effectively anticipate, respond to and recover from
the impacts of likely, imminent or current hazard events or
conditions;’’;
(g) by the substitution for the definition of ‘‘mitigation’’ of the following
definition:
‘‘ ‘mitigation’, in relation to—
(a) a disaster or disaster risk, means the lessening of the potential
adverse impacts of physical hazards, including those that are
human-induced, through actions that reduce hazard, exposure and
vulnerability; or
(b) climate change, means a human intervention to reduce the sources
or enhance the sinks of greenhouse gases;’’;
(h) by the insertion after the definition of ‘‘municipal entity’’ of the following
definition:
‘‘ ‘municipality’ means a municipality as contemplated in section 2 of
the Local Government: Municipal Systems Act, 2000 (Act No. 32 of
2000);’’;
(i) by the substitution for the definition of ‘‘organ of state’’ of the following
definition:
‘‘ ‘organ of state’ means [a national, provincial or municipal organ of
state] any organ of state referred to in section 239 of the Constitution of
the Republic of South Africa, 1996;’’;
(j) by the substitution for the definition of ‘‘post-disaster recovery and
rehabilitation’’ of the following definition:
‘‘ ‘post-disaster recovery and rehabilitation’ means efforts, including
development, aimed at creating a situation where—
(a) normality in conditions caused by a disaster is restored by the
restoration, and improvement, where appropriate, of facilities,
livelihoods and living conditions of disaster-affected communities,
including efforts to reduce disaster risk factors;
(b) the effects of a disaster are mitigated; or
(c) circumstances are created that will reduce the risk of a similar
disaster occurring;’’;
(k) by the insertion after the definition of ‘‘response’’ of the following definition:
‘‘ ‘risk assessment’ means a methodology to determine the nature and
extent of risk by analysing potential hazards and evaluating existing
conditions of vulnerability that together could potentially harm exposed
people, property, services, livelihoods and the environment on which
they depend;’’; and
(l) by the substitution for the definition of ‘‘vulnerability’’ of the following
definition:
‘‘ ‘vulnerability’ means the conditions determined by physical, social,
economic and environmental factors or processes, which increase the
susceptibility of a community to the impact of hazards.’’

* Source; PMG

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