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Prof. XU TANGDirector-general, Shanghai Regional Center/CMA
Member of Multi- Hazard emergency response Committee
Shanghai Municipal Government, Shanghai 200030, China
tangxu570512@vip.sina.com
MANAGING DISASTER RISK IN MEGA-CITY
SHANGHAI EXPERIENCES, LESSONS LEARNED AND RECOMMENDATIONS
Symposium on Multi-Hazard Early Warning Systems for Integrated Disaster Risk Management
Response to the Hyogo Framework for Action 2005 - 2015: Building the Resilience of Nations and Communities to Disasters
Setting up a Framework for multi-hazard emergency response / preparedness --- action plan, organization
Shanghai Experience and Lesson learned Multi-hazard integration --- Integrated Information Centered Multi-agency preparedness --- Joint Efforts to Provide Backup Multi-phase response --- Integrating 6 Phases into One Chain Grassroots Experience --- Community Centered
Prototype approach of early warning system --- Infrastructure Building
Considerations and Recommendations --- Demo- project
The Framework for Action/WCDR Priorities for Action:
Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for implementation;
Identify, assess and monitor disaster risks and enhance early warning;
Use knowledge, innovation and education to build a culture of safety and resilience at all level;
Reduce the underlying risk factors; Strengthen disaster preparedness for effective response at
all levels. …promote regular disaster preparedness exercise,….active participation…including communities….
Area: 9,000km2
urban area: 900km2
Population Density 18 million total, urban area: 14,000 residents/km2 Built-up Constructions 20-plus-storey buildings: >1600 (>60m High)
30-plus-storey buildings: >200 (>100m High)
Economic Growth In 2005, GDP: 11.1% ; 14 years Sustained growth with a double-digit . US$ 110 billion in total.
Challenge to the Mega-city’s Sustainable
Development Posed by Disasters
Shanghai, the Mega-city is facing multi-hazard challenges. Total loses in 2005 reaches more than US $ 300 millions with about 3% of its GDP.
With its rapid urbanization and population growth, the mage-city become more vulnerable. Even a light snow can make the city traffic chaotic.
The different information from many sources makes the public confused.
Lightning
Typhoon
Squall Line
Rainstorm
Fog
Hazard Diversity in All SeasonsNatural hazards: typhoon, convective weather, torrential rain , storm surge, tornados, heat wave, lightning, heavy fog, cold wave, earthquake, etc.
Environmental hazards: Inundation, air pollution, infective diseases, pollen allergy, emission of SO2, NOX
, VOCs, O3, etc.
Man-made hazards:traffic, fire, chemical incidents, nuclear power accident risk management etc.
Heat wave
Gust Wind
Gap Analysis
The Mayor said:
What should I do, if all of you put the products on my table?
Who are heroes to take an action? Government officials or Citizens?
Residential community, and citizens need a clear, simple, and practicable message and information rather than too complicated products with high tech. to understand and to take action. Then what does information mean?
Gaps exist between agencies of government in the preparedness measures and between residential communities and governmental agencies.
Response to the Framework for Action by Shanghai
The General Action Plan for Multi-hazard Emergency Response/Preparedness under the National frameworks of legislative and institutional for disaster risk reduction has been issued by Shanghai Municipal Government on Feb. 10,2006.
The City Emergency Response/Mitigation Committee with 20 members of government agencies has been
established on March 5, 2006. The mitigation/response sub-plans for action (20)
have been developed at different levels of the City, i.e. prefecture/county level and different agencies of the government .
Action Taken by Government Agencies: to Pursue Information Distribution with Whole Coverage in the Mega-city,
Case from Met. Office of Shanghai: Up to now: Information can be distributed to residential
communities (more than 8000), factories (22,000), villages(12,000) and schools(200);
3.5 million users can receive early warning products by mobile phone.
More co-issued products, like heat wave/health warning and assessment, air quality prediction etc., jointly distributed by government agencies based on partnership mechanism to contribute to the seamless strategy.
TV : 7 ChannelsRadio: 3 frequenciesNews papers: >10 officesCell phone users: > 0.4 million Internet: availableDigital TV in public(mansions, traffic tools):
availableElectron screens in public:>7000Weather hotlines:
12121 / 969221Citizen email box: availableSevere weather Signal tower on Bund
“Seamless” Service
Four ‘Right’s:Four ‘Right’s:Right information to Right people at Right time at the Right place Right information to Right people at Right time at the Right place
Technology Applied to Inform the Public
Residential communities forwardly take action in
exercise of multi-hazard mitigation every year.
people centered, target audiences
supported by multi-agencies backup from Weather Service,
Housing Department, Civil Administration,
Emergency Response Office, and NGOs: Red Cross.
Grassroots Experience: Community Participation
Grassroots Experience: Community Participation, Case 1Emergency Response Drill in Residential Community
On 23 March 2005, In ZH-garden Community, A drill was taken
according to his response plan
Every component of multi-hazard response actions in the community have been checked. With support of government agencies, the practicability of residential community centered strategy was testified.
Residential CommunityResponse rehearsal
Residential Community Centered Response Procedure
Community manager got warning from his PDA
A response plan has been put into action
warning and advisory massages sent by loudspeaker system, TV display system, and talkback system
rescue groups check the facilities: sewer system, garage, scaling ladders, water pump system
anti-gust wind, Lightening protection facilities measures taken
Supervisors check windows, air conditioners through telescopes
response team takes an action to block the flood by stacking sand bags in front of basement garages
Residents were asked to switch off electric power to prevent electric shock in water
Warning release by broadcast,
electronic displaying screen, telephone
Community residents
Proper measures
Real Estate Bureau officials:1000Real Estate Bureau officials:1000Enterprise managers: 3000Enterprise managers: 3000
Residential area managers: 8000Residential area managers: 8000Real estate repair center:20Real estate repair center:20
Housing repair technicians: 1000Housing repair technicians: 1000
Civil Affairs Bureau Civil Affairs Bureau CountyCounty -- level Civil Affairs Offices: 19level Civil Affairs Offices: 19
SubSub-- districts offices: 213districts offices: 213
Multi Multi - hazard Early Warning Release Platformhazard Early Warning Release Platform
Rescue preparations
CellCell-- phone Messagephone Message
SMB takes close cooperation with Civil Affairs Bureau (CAB), Real Estate Bureau (REB), and other relevant departments, and has established an integrated platform for
multi- hazard early warning release.
Government Agencies Backup to Residential Communities
with Information and Advisory
Information provided by a supervisor at a grid point over a basin unit area, with 24 hr. a day on duty shift.
Information delivered from the center
to special agencies and departments.
Grassroots Experience: Community Participation, Case 2In-situ Event Handling in Residential Community Area
A Basic Grid Unit (BGU) Area (10,000 m2)
Taken charge by a Supervisor in a District of the City
GIS Based Urban Information---A part of Early Warning System
317 Supervisors at 111 duty areas with 2700 Basic Grid Units in a District
Geographic district boundaries, land type information, infrastructure systems (street network, water system, sewer system), emergency response facilities, recreational facilities, other associated data pertaining to city operationsData is maintained in both computer-aided design (CAD) and GIS file formats.
The data bases for Integrated information of multi-hazard and
related data
Information Flow of Urban BGU Management
Grid Supervisor Citizen Call
Municipal CenterMunicipal
Platform
DistrictPlatform
Agency/Department Env. Water Met.
DataModem
Response center
Operation center
District6DISTRICT1 DISTRICT2 DISTRICT3 DISTRICT4 DISTRICT5
Agencies at District Level
The Emergency Response Center of Shanghai
Emergency
Hotline
Emergency Response Center
Met. Hazard Sub-centerhealth traffic chemistry fire Anti-flood meteorology
Membership of emergency response center
supervisorClassification Sub-
Center for Emergency Events
Multi-hazard integration, Multi-agency preparedness, Multi-phase response
MonitoringMonitoring
Prediction Prediction & Warning& Warning
Multi-Hazard Multi-agency Multi-phase Response Framework of Shanghai
PreparednessPreparedness
MitigationMitigation
RescueRescueAssistanceAssistance
ObservationsObservations
forecastsforecasts
warningswarnings
Doppler radar (WSR-88D)
Wind profiler ( LAP-3000)
Lightning positioning System (SAFIR 3000)
GPS network
>80 AWS, >200 rain gauge 12 Satellite receiving system
The Early Warning System in Natural Disaster
Prevention and Mitigation in Shanghai
A Platform for Multi-hazard
Monitoring and Warning at 122 。 E, 32 。
N
Platform of Urban Grid Management
Supervisor
in each grid Headquarter
Of UrbanManagement
SMB
InfluencedWeather
Other disaster events
MessageFeedback
InformationDissemination
The Integration flow of weather products in the BGU
----Example of Early Warning Capacity Building
Shanghai EmergencyResponse Center
Action taken by users
Fined Urban Meteorological Products
InformationDissemination
MessageFeedback
InformationDissemination
Severe Weather Monitoring Product in the BGU System ---- urban inundation early warning system
Urban inundation system can present potential areas at risk of inundation and the estimate flood damages.
Meteorological input data is derived from high resolution NWP model, AWS and rain gauge acquiring system and QPE derived from radar system.
WSR-88D Doppler Radar
Urban Heavy Rainfall Inundation Assessment Interface in the BGU
Modeling
Observed
Consideration and Recommendation
Both top-down policy which reflects an approach from science/governance to action and bottom-up policy which reflects an approach from vulnerable community/people to action should be set up in multi-hazard mitigation.
However, residential community centered strategy should play a central role in multi- hazard mitigation. Residential communities should become heroes in mitigation procedure; “Grassroots” organization and force are important and can be extended and practice in many countries.
Consideration and Recommendation
Multi-agency response for multi-hazard mitigation is needed for unique, simple , and clear information to the grassroots organization.
Seamless approach in the whole procedure of implementation, which includes monitoring, warning, preparedness, mitigation, rescue and assistant might be an embodiment of “End-to-end-to-end” concept.
The current infrastructure for prediction/warning in NMHSs can play an important role in the development and implement of multi-hazard early warning system.
Consideration and Recommendation
As encouraged by Hyogo Framework for Action, a demonstration project could be a good approach to integrate joint efforts from different levels (community, local, national, regional, and international), different government agencies, and sectors to implement the Hyogo Framework for Action. Shanghai is willing to contribute to the project based upon Shanghai Experience and Lesson learned.
With response to the Hyogo Framework for Action, Shanghai’s story is developing, not only on its efforts to a sustainable economic growth but also on its effort to multi-hazard mitigation to reduce the vulnerability risk of the Mega-city. Shanghai experience, lesson learned have provided a base for improving and strengthening early warning systems.
However, Lots of work should be taken in the fields of capacity building, advocacy, standardization. We need support at regional, and international levels, especially from international organizations like WMO, World Bank, UNDP, UNESCO, IFRC OCHA, and ISDR. It is a good opportunity to develop a demonstration project to show how a Mega-city to develop a multi-hazard mitigation framework and how a early warning system become an important approach to implement the strategy.
Thanks for your attention !
Welcome to Shanghai!
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