A Critical Analysis of Turkish Emergency Management System

1. Irmak Renda-Tanalı, D.Sc. Associate Professor, Program Director, Homeland Security Management & Emergency Management Graduate School of Management and Technology, University of Maryland University College Maryland E-mail: irenda-tanali@umuc.edu, Tel: 240-684-2435 A Critical Analysis of Turkish Emergency Management System 13th Annual Emergency Management Higher Ed Conference, 2010

2. Eastern Mediterranean sector of Alpine-Himalayan Belt Turkish Emergency Management System

3. Turkish Emergency Management System

4. Republic of Turkey • Population: ~72 million (2nd largest in Europe) • Capital: Ankara (3.4 mil) • Government: Parliamentary Republic f(declaration: 1923) • Population (largest cities) Istanbul 9.4 mil, Ankara 3.4, izmir 2.4, Bursa 1.2, Adana 1.2 • Language: Turkish (official) • Land area: ~800,000 sq km / ~300,000 sq mi • Latitude-longitude: 39° 00'N, 35° 00'E • Landforms: European side rolling hills, across Bosphorus Strait into Central Turkey: wide plains, all surrounded by high, rugged mountains (Taurus, Koroglu, Pontic) Many peaks exceed 10,000 ft, highest peak Mt Ararat 16,945 ft. Along Mediterranean coast, land is lower and fertile. Major rivers Tigris, Kizilirmak, Sakarya, Euphrates. Largest lake; Lake Van. • Land Division: 81 provinces • Neighbors: Greece, Bulgaria, Georgia, Armenia, Iran, Iraq, Syria • GDP: $880 billion (2009) • Per capita $8700 • Currency: New Turkish Lira (TRY) www.turkey.org Turkish Emergency Management System

5. Republic of Turkey Facts (cont.): • Multi-party parliamentary since 1946 • A secular democracy in predominantly Moslem population • Member of : NATO (1952), Council of EU, EU candidate • Free market economy, free and privately owned media • Strategically located: Bordering 12 nations, straddling between Europe and Asia,Outlet for Blacksea basin countries to Mediterranean, energy terminal for Caspian oil and natural gas • Contributor to UN peacekeeping ops worldwide • Supporter of the Southeast European Countries Cooperation Process and initiator of the Multinational Peace Force Southeastern Europe; participant in the Kosova International Security Force and in Afghanistan and the Lebanon. • Supporter of the Middle East Peace Process and the only regional country which participates in the Temporary International Presence in Hebron (TIPH) upon the request of both the Palestinian and Israeli sides. • www.turkey.org Turkish Emergency Management System

6. Republic of Turkey Facts (cont.): • A modern telecommunication and transportation network. • 17th largest and 4th fastest growing economy in the world. • 4th biggest donor country in the world with respect its GNP. • Donor of $3.5 billion in economic and technical assistance including credits and $500 million in humanitarian aid to several countries. • Russia alone, the investments of Turkish private enterprises amount to $10 billion. • With an average annual growth rate of 5%, the fastest growing country in the Mediterranean. • Exports to 155 countries, ranging from cable for the Channel Tunnel to cars to China. • Europe's largest supplier of textiles and apparel. • The only F-16 fighter plane factory outside the US. • A regional center for international companies such as Coca-Cola, Chase Manhattan, Philips and Siemens. • Privatization program including state enterprises active in airlines, banking, telecommunications and petroleum. • One of the 10 big emerging markets. • www.turkey.org 6/9/2010 Turkish Emergency Management System Turkish Emergency Management System 6

7. Hazards • Frequent seismic activity Earthquakes: Turkey lies on Eastern Mediterranean sector of Alpine-Himalayan earthquake belt. 90% national territory and >70% of population subject to seismic risk • Floods, Landslides • Avalanches • Fires (building, brush – deforestation) • Hazardous material spill—Environmental pollution • Traffic accidents (cars, vessels in Bosphorus straits) • Terrorism (PKK, far left, radical Islamists) Turkish Emergency Management System

8. Major events in past two decades • Avalanches killing >300 people in Eastern Anatolia • Major flooding/landslides in Western Blacksea region– dozen deaths, hundreds homeless • Nine major earthquakes measuring over 6.0 Richter magnitude, caused >20,000 deaths, >15 billion $$ • 1ncludes 1999 Marmara Earthquake that accounts for 90% of death toll, 95% financial toll – resulted in sea change in Turkish disaster management and risk perceptions. Turkish Emergency Management System

9. Policy Framework Turkish Emergency Management System • TR Emergency Management system is based on two major pillars of legislation: Disasters Law 7269:1959) and Development Law (3194:1985) • Emergency Management evolved mainly as a reaction to frequent occurrence and losses from devastating earthquakes. • First Comprehensive Relief Legislation (financial , housing, and family aid) introduced as a result of 1939 Erzincan Earthquake that caused 30,000 deaths (3773:1940) • Continued to date as a politically engrained, socially expected practice • Continuous floods in 1940s led to first flood mitigation legislation (4373:1943) • Until 1944 disaster mitigation policies not harmonious with urbanization and industrialization policies.

10. Policy Framework • At national level, separate frameworks used for dealing with natural hazards and civil conflicts/terrorist attacks • National Disaster Declaration authority vests with Cabinet (2935:1983): • “Extraordinary Situation” Law(2935:1983) --Declaration of statewide disasters is provided in the same law. (authority vested in the Cabinet) concerns natural disasters, pandemic events, economic depression, use of violence threatening free democratic regime and personal rights and freedoms. Turkish Emergency Management System

11. Policy Framework (cont.) • Disasters Law (7269:1959) • After devastating earthquakes between 1939-1944,causing over 40,000 lives lost, first EQ zoning map + seismic design code developed (4263:1944) was then comparable to Japan, US, and Italy, elevated Turkey to 4th nation having legislation on seismic risk mitigation based on scientific studies. • However Law 4263 did not address permanent settlement practices • Ministry of Public Works and Settlement formed to carry out the mandate • later led to Disasters Law (7269:1959) – still in use with many modifications Turkish Emergency Management System

12. Policy Framework (cont.) • Disasters Law (cont.) (7269:1959) • Combined discrete laws under one. • Includes disasters fund (authority previously vested with Ministry of Public Works and Settlement through its General Directorate of Disaster Affairs (GDDA) • General Directorate of Disaster Affairs (GDDA) founded (1964) –tasked with nationwide disaster management, main post-disaster reconstruction agency • task shifted to Prime Ministry in 1996 • Applies to all hazards/ includes Disasters Fund outside state budget • Deals with determining property damages and provision of shelter and housing to victims of disasters on an eligibility basis. Turkish Emergency Management System

13. Policy Framework (cont.) • Development Law (3184:1985) • Mass urbanization + rapid industrialization in 1950s resulted in hastily built structures, hazardous practices – Led to Urbanization legislation (6785:1956), led to development law with modifications to date • Authority vested with Ministry of Public Works and Settlement • Regulation instrument for physical development • One of the two pillars of emergency management • Not tied well with Disasters Law, the other pillar? Turkish Emergency Management System

14. EM Framework • Civil Defense Law (7126:1958) tasks General Directorate of Civil Defense (MOI) with response and rescue activities including all hazards • Turkish Atomic Energy Council responsible for physical security of nuclear energy production Turkish Emergency Management System Turkish Emergency Management System 14

15. EM Framework • After 1999 Marmara Earthquakes, dozens of laws, law-amending ordnances, by-laws issued to improve policies • TEMAD founded in 2000 (similar to FEMA) • Natural Disasters Insurance Administration (DASK) founded with Compulsory Earthquake Insurance (CEI) introduced (587:1999) • Emergency Management Higher Council – permanent undersecretaries of involved ministries (depts) and TRC 6/9/2010 Turkish Emergency Management System Turkish Emergency Management System Turkish Emergency Management System 15 15

16. Policy Framework • Until recently, • State level actors: • General Directorate of Disaster Affairs (under MPWS), • Civil Defense General Directorate (under MOI), • Turkish Red Crescent • Turkish Emergency Management Agency (PM) • Other Ministries: Transportation, Social Welfare, Interior, Energy and Natural Resources, Industry and Trade, Forestry etc. Turkish Emergency Management System

17. Policy Framework (cont.) • Kocaeliand Düzce earthquakes: • Resulted in sea change in attitudes, legislation, government and NGOs • General Directorate of Civil Defense for Rescue and Emergency (Ministry of Interior) • General Directorate of Emergency Management (TAY) (reporting to PM) • Compulsory Earthquake Insurance and Natural Disasters Insurance Administration (DASK) created • Commission Reports, studies, microzonation maps, building code amendments, new construction inspection standards, changes in government tender law, etc. Turkish Emergency Management System

18. Observations • No effective disaster mitigation policies or not harmonious with settlement, development, industrialization for the first 30 years of modern Republic led to haphazard settlement practices – still continues • Organized industrial regions development ignored needs, resources, geological formation – too close to population centers, or located on fertile agricultural lands etc leads to disasters • TR Emergency Management system has been based on two major pillars of legislation: Disasters Law 7269:1959) and Development Law (3194:1985) – separate Turkish Emergency Management System Turkish Emergency Management System 18

19. Observations • More emphasis on disaster relief/immediate response than mitigation and risk management policies • Risk mitigation still largely unattended • Municipalities tasked to keep maps, resources – no trusted central authority exists • Too many actors, overlapping duties – new reorganization intends to fix that (see next slide) • Clear policies for sustainable development needed • US model does not necessarily fit Turkish system!! 6/9/2010 Turkish Emergency Management System Turkish Emergency Management System Turkish Emergency Management System 19 19

20. Reorganization Recovery Office Response Office Office of Planning and Preparation GDDA A new Turkish Emergency Management Agency CDCG Civil Protection Office TEMAD Earthquake Office Administrative Services Office Turkish Emergency Management System

21. Disaster Time Line Turkish Emergency Management System

22. Event driven policy outcomes • Erzincan earthquake is also a main influence together with the earthquakes of 1940-1944 for the outcomes listed, ** No direct linkages were identified from literature between these disasters and the listed legislation outcomes. However, the disasters preceding the legislation outcomes imply indirect relationship at the very least. A more rigorous breakdown of the events and their linkages may be identified at later stages of the research. Turkish Emergency Management System

23. Turkey’s Disaster Time Line Turkish Emergency Management System

24. To be continued Renda-Tanali, I & Ozceylan, D. (2009) ‘Turkey’s disaster time line: Is the past prologue?’, Proceedings of the 16th Annual TIEMS conference. Istanbul, Turkey. Mancebo, F & Renda-Tanali, I. (2009). ‘Toward an integrated policy of risk management: A critical analysis of Turkey and France’, Int. J. Emergency Management, Vol. 6, No.1, pp.99-115. Irmak Renda-Tanalı, D.Sc. Associate Professor, Program Director, Homeland Security Management & Emergency Management (coming up Fall 2010) Graduate School of Management and Technology, University of Maryland University College Maryland E-mail: irenda-tanali@umuc.edu, Tel: 240-684-2435 Turkish Emergency Management System