SANS 10264-1-2009 Disaster management Part 1 Terminology and implementation《灾害管理 第1部分 术语及实施》.pdf

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1、 Collection of SANS standards in electronic format (PDF) 1. Copyright This standard is available to staff members of companies that have subscribed to the complete collection of SANS standards in accordance with a formal copyright agreement. This document may reside on a CENTRAL FILE SERVER or INTRA

2、NET SYSTEM only. Unless specific permission has been granted, this document MAY NOT be sent or given to staff members from other companies or organizations. Doing so would constitute a VIOLATION of SABS copyright rules. 2. Indemnity The South African Bureau of Standards accepts no liability for any

3、damage whatsoever than may result from the use of this material or the information contain therein, irrespective of the cause and quantum thereof. ISBN 978-0-626-22238-3 SANS 10264-1:2009Edition 2SOUTH AFRICAN NATIONAL STANDARD Disaster management Part 1: Terminology and implementation Published by

4、SABS Standards Division 1 Dr Lategan Road Groenkloof Private Bag X191 Pretoria 0001Tel: +27 12 428 7911 Fax: +27 12 344 1568 www.sabs.co.za SABS SANS 10264-1:2009 Edition 2 Table of changes Change No. Date Scope Acknowledgement The SABS Standards Division wishes to acknowledge the valuable assistanc

5、e derived from the publication, Guide for all-hazard emergency operations planning, published by FEMA, SLG 101. Washington DC. 1996. Foreword This South African standard was approved by National Committee SABS TC 223, National disaster response, in accordance with procedures of the SABS Standards Di

6、vision, in compliance with annex 3 of the WTO/TBT agreement. This document was published in August 2009. This document supersedes SABS 0264-1:2002 (edition 1). SANS 10264 consists of the following parts under the general title Disaster management: Part 1: Terminology and implementation. Part 2: All-

7、risk emergency operation planning. Part 3: Hazard-specific response planning. Annex A is for information only. SANS 10264-1:2009 Edition 2 1 Contents Page Acknowledgement Foreword 1 Scope . 3 2 Definitions and abbreviations . 3 3 Implementation of a disaster management system . 6 3.1 General 6 3.2 D

8、isaster management system 8 4 Risk assessment 16 4.1 General 16 4.2 Risk analysis . 17 4.3 Risk treatment . 19 5 Needs assessment 21 Annex A (informative) Legal requirements in South Africa . 23 Bibliography 23 SANS 10264-1:2009 Edition 2 2 This page is intentionally left blank SANS 10264-1:2009 Edi

9、tion 2 3 Disaster management Part 1: Terminology and implementation 1 Scope This standard covers the uniform international terminology to be used in written plans and in the various phases of disaster management and the implementation of a disaster management system at local government level. The st

10、andard also covers the risk assessment and needs analysis procedures required for planning. 2 Definitions and abbreviations 2.1 Definitions For the purposes of all parts of SANS 10264 and for general use in the disaster management field, the following definitions and abbreviations apply. 2.1.1 conse

11、quence outcome of an event NOTE 1 There may be one or more consequences from an event. NOTE 2 In a disaster management context the consequence will always be negative. NOTE 3 Consequences may be expressed qualitatively or quantitatively. 2.1.2 disaster situation where widespread human, material, eco

12、nomic or environmental losses have occurred which exceeded the ability of the affected organization, community or society to cope using its own resources 2.1.3 disaster management centre facility and personnel for the overall control of emergency operations in a pre-disaster, disaster and post-disas

13、ter environment and the coordination of resources 2.1.4 emergency sudden, urgent, usually unexpected incident or event requiring immediate action SANS 10264-1:2009 Edition 2 4 2.1.5 event occurrence of a particular set of circumstances NOTE 1 The event may be singular or multiple. NOTE 2 The probabi

14、lity associated with an event can be estimated for a given period of time. NOTE 3 In the context of this standard disaster and event are synonymous. 2.1.6 harm physical injury or adverse effects on the health of people, or damage to property or the environment 2.1.7 hazard behaviour, condition or ev

15、ent, which has the capacity to produce an adverse effect NOTE The term hazard can be qualified to define the origin or nature of the expected harm (for example fire hazard or drowning hazard) 2.1.8 jurisdiction area or territory under the legislative control of a local, provincial or national govern

16、ment 2.1.9 mass care temporary housing, feeding and care of a community affected by a disaster NOTE The Red Cross is an example of an organization that provides mass care. 2.1.10 mitigation limitation of any negative consequences of an event 2.1.11 needs assessment identification of resources needed

17、 to respond effectively to the consequences of a disaster and to maintain or restore vital functions 2.1.12 preparedness activity, prior to a disaster, that will contribute to the mitigation of the consequences of a disaster 2.1.13 primary function activity of initiating and maintaining specific act

18、ions in accordance with core functions of the responding agency 2.1.14 probability likelihood to which an event (disaster) is likely to occur NOTE 1 The mathematical definition of probability is a “real number in the scale 0 to 1 attached to a random event“. NOTE 2 Probability can be related to a re

19、lative frequency of occurrence or to a high degree of belief that an event (disaster) will occur. For a high degree of belief, the probability is near 1 (see SANS 3534-1). NOTE 3 Degrees of belief about probability can be chosen as classes or ranks such as “rare/unlikely/ moderate/likely/almost cert

20、ain“, or “incredible/improbable/remote/occasional/probable/frequent“. SANS 10264-1:2009 Edition 2 5 2.1.15 recovery activity of restoring the community, property or the environment to a state of normality after a disaster 2.1.16 response activity of limiting the immediate and short term consequences

21、 of a disaster 2.1.17 risk combination of the probability of the occurrence of harm and the severity of that harm 2.1.18 risk analysis systematic use of information to identify sources and to estimate the risk 2.1.19 risk assessment overall process of risk analysis and risk evaluation 2.1.20 risk es

22、timation process used to assign values to the probability and consequence of a risk 2.1.21 risk evaluation process of comparing the estimated risk against given risk criteria to determine the significance of the risk 2.1.22 risk identification process to find, list, and characterize elements of risk

23、 NOTE Elements may include source, event, consequence and probability. 2.1.23 safety freedom from unacceptable risk 2.1.24 secondary function activity in support of a primary function 2.1.25 vulnerability susceptibility of a community, property or the environment to the consequences of a disaster 2.

24、2 Abbreviations DMC Disaster Management Centre EOP Emergency Operations plan FEMA Federal Emergency Management Agency SOP Standard Operational Procedure SANDF South African Defence Force SANS 10264-1:2009 Edition 2 6 3 Implementation of a disaster management system 3.1 General 3.1.1 Disaster phases

25、A disaster management system shall provide for all the phases of a disaster, also referred to as the disaster continuum. The main phases of a disaster are the following: a) pre-disaster prevention and mitigation; b) pre-disaster preparedness; c) disaster impact (event); d) post-disaster response pha

26、se; e) post-disaster recovery phase; and f) disaster review phase. Phases (a), (e) and (f) lend themselves to the formation of an integrated development strategy for the reduction of risk and vulnerability. The diagram in figure 1 shows the relationship between the phases of a disaster. SANS 10264-1

27、:2009 Edition 2 7 IMPACT(Event)Preparedness ResponsePrevention/Mitigation RecoveryReviewPre-disaster Post-disasterFigure 1 Disaster phases (continuum) 3.1.2 Disaster impact Depending on the nature of a disaster, action in mitigation can be severely restricted during impact and it might be difficult

28、to utilize services to their full capability owing to the effects of the disaster. The success of surviving the disaster event without significant harm or damage will, to a large extent, depend on how well the disaster management system provides for the other phases, such as preparedness and the eff

29、ectiveness of response. 3.1.3 Disaster response The effectiveness of disaster response will depend on the degree of order that is kept during this phase. Order will depend on the level of coordination and communication between disaster management structures and other services and between those other

30、 services themselves. 3.1.4 Disaster recovery The first priority in a recovery phase shall be the return to a condition of safety (see 2.1.23). Restoration to a condition as it was before the disastrous event occurred may require the input of various experts, and some of the recovery actions will re

31、quire a high level of special skills, and could take place over an extended period of time. SANS 10264-1:2009 Edition 2 8 3.1.5 Post-disaster review Disaster management shall make provision for a post-disaster review process. Such a process shall critically examine all actions during the disaster ev

32、ent, response and recovery phases. In return a critical examination will provide valuable information for the disaster prevention and preparedness phases. All disaster plans should be revised to take account of the results of the disaster review. 3.1.6 Disaster preparedness The disaster preparedness

33、 phase will normally be the prime concern of a disaster management system, occupying the largest portion of time allocation. The first concern in a disaster preparedness phase shall be the development of an overall strategic plan, i.e. the EOP. 3.2 Disaster management system 3.2.1 Implementation The

34、 implementation of a disaster management system shall consist of the steps shown in figure 2. SANS 10264-1:2009 Edition 2 9 Figure 2 Steps towards implementation SANS 10264-1:2009 Edition 2 10 3.2.2 Appointment of the Head of the Disaster Management Centre (DMC) The first task in the implementation

35、of a disaster management system shall be the appointment of the Head of the DMC. At local government level this shall be a high ranking office bearer appointed by the local council. This official shall have a qualification higher than SAQA level 6 in a SAQA registered Disaster Management qualificati

36、on. The person appointed to this office shall have a thorough understanding of the provisions of this standard and shall be dedicated to the establishment of a disaster management system and its continued maintenance. Maintenance of the system means reviews (see 3.2.9) as a result of simulation exer

37、cises, experience in actual events and changes in available facilities. 3.2.3 Establishment of a Disaster Management Forum The Control group shall provide overall direction to the development of a disaster management system and shall include all the phases of disaster management, such as prevention,

38、 mitigation, preparedness, response and recovery. Members of the Control Group shall consist of Heads of Department as well as senior representatives of applicable stakeholders. 3.2.4 Establishment of a Command group The Command group shall be responsible for the direction of the resources of its me

39、mbers and its activities relating to preparedness, response and recovery. Members of the Command group shall consist of senior personnel from the following services: a) communication; b) information and planning; c) firefighting; d) hazardous material response; e) emergency medical services; f) urba

40、n search and rescue; g) public order and security; h) public works and engineering; i) transport; j) the head or nominee of any other relevant stakeholder which may make positive impact into resolution of the disaster; k) mass care; l) health and medical services; m) food supply; n) resource support

41、; o) finance; and p) cleaning services. SANS 10264-1:2009 Edition 2 11 3.2.5 The development of prevention and mitigation strategies 3.2.5.1 Prevention and mitigation actions involve long-term, or permanent, reduction of exposure to, probability of, or the consequences of an identified risk. Example

42、s are: a) the development of zoning and building codes taking vulnerable areas into account; b) floodplain buyouts; c) analysis of floodplain and historical data to determine where to build in normal times, erect shelters in emergencies, or locate temporary housing in the aftermath of a disaster; d)

43、 education of the public sector about what it can do towards mitigation of the emergency at home and at work; e) coordination with planning, zoning and development agencies to ensure that risks are considered in building plans, construction permits, building codes and design approvals; and f) creati

44、ng inventories of existing structures and their vulnerabilities, to aid mitigation planning. 3.2.5.2 Where there is a willingness towards mitigation, opportunities should be found. In the aftermath of an emergency or disaster, when risk awareness is high, advantage should be taken of opportunities a

45、nd funds that become available to reconsider the design and location of some facilities and infrastructure. The development of prevention and mitigation strategies shall be based on the outcome of risk assessment (see clause 4) and needs assessment (see clause 5) studies. Risk assessment shall resul

46、t in estimates, for each credible scenario of the consequences on an entity and its surrounding area based on the following criteria: a) health and safety of persons in the affected area at the time of the incident (injury and death); b) health and safety of personnel responding to the incident; c)

47、damage to property and infrastructure; d) breakdown of facilities and interruption of services; e) environmental impact; and f) economic impact. A credible disaster scenario is a broad description of a potential event that can impact an entity. The scenario is not a rigid sequence of events requirin

48、g a complete risk assessment for each potential sequence. The term scenario implies that the entity will consider impacts external to its area of influence that can have an impact on the capability of the entity to cope with the disaster, for example, a windstorm that impacts several neighbouring to

49、wns. The specific risk to an entity might be that of flooding, but the greater community impact in such a scenario could involve complete disruption of all emergency services. This would influence the severity of the risk as it applies to the rating of risks (see 4.2.4). SANS 10264-1:2009 Edition 2 12 3.2.6 The Emergency Operations Plan (EOP) 3.2.6.1 The necessity for an EOP When disasters threaten or strike a jurisdiction, people expect elected leaders to take immediate action to deal with the problem. Central, provincial and local governments are expected to mars