by

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!