MANAGING DISASTER RISK IN MEGA-CITY SHANGHAI EXPERIENCES, LESSONS LEARNED AND RECOMMENDATIONS

1. Symposium on Multi-Hazard Early Warning Systems for Integrated Disaster Risk Management MANAGING DISASTER RISK IN MEGA-CITYSHANGHAI EXPERIENCES, LESSONS LEARNED AND RECOMMENDATIONS by Prof. XU TANG Director-general, Shanghai Regional Center/CMA Member of Multi- Hazard emergency response Committee Shanghai Municipal Government, Shanghai 200030, China tangxu570512@vip.sina.com

2. 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

3. The Framework for Action/WCDR Priorities for Action: • Ensure that disaster risk reduction is a national anda local prioritywith a strong institutional basis for implementation; • Identify, assess and monitor disaster risks andenhance 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 responseat all levels. …promote regular disaster preparedness exercise,….activeparticipation…including communities….

4. 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.

5. 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.

6. Typhoon Rainstorm Squall Line Fog Heat wave Lightning Hazard Diversity in All Seasons Natural 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. Gust Wind

7. 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.

8. Responseto 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 .

9. 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., jointlydistributed by government agencies based on partnership mechanism to contribute to the seamless strategy.

10. Technology Applied to Inform the Public • TV : 7 Channels • Radio: 3 frequencies • News papers: >10 offices • Cell phone users: > 0.4 million • Internet: available • Digital TV in public(mansions, traffic tools): available • Electron screens in public:>7000 • Weather hotlines: 12121 / 969221 • Citizen email box: available • Severe weather Signal tower on Bund “Seamless” Service Four ‘Right’s: Right information to Right people at Right time at the Right place

11. Grassroots Experience: Community Participation • Residential communities forwardly take action in exercise of multi-hazard mitigation every year. people centered, target audiences • supported by multi-agenciesbackup from Weather Service, Housing Department, Civil Administration, Emergency Response Office, and NGOs:Red Cross.

12. 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.

13. Residential Community Response rehearsal

14. Residential Community Centered Response Procedure A response plan has been put into action Community manager got warning from his PDA warning and advisory massages sent by loudspeaker system, TV display system, and talkback system anti-gust wind, Lightening protection facilitiesmeasures taken Supervisors check windows, air conditioners through telescopes rescue groups check the facilities: sewer system, garage, scaling ladders, water pump system 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

15. Multi hazard Early Warning Release Platform Multi - hazard Early Warning Release Platform Cell - phone Message Cell - phone Message Real Estate Bureau officials:1000 Civil Affairs Bureau Real Estate Bureau officials:1000 Civil Affairs Bureau Enterprise managers: 3000 Enterprise managers: 3000 County - level Civil Affairs Offices: 19 County - level Civil Affairs Offices: 19 Residential area managers: 8000 Residential area managers: 8000 Sub - districts offices: 213 Sub - districts offices: 213 Real estate repair center:20 Real estate repair center:20 Housing repair technicians: 1000 Housing repair technicians: 1000 Warning release by broadcast, Rescue preparations electronicdisplaying screen, telephone Community residents SMB takes close cooperation with Civil Affairs Bureau (CAB), Real Estate Bureau Proper measures (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

16. Grassroots Experience: Community Participation, Case 2 In-situ Event Handling in Residential Community Area 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.

17. A Basic Grid Unit (BGU) Area (10,000 m2) Taken charge by a Supervisor in a District of the City

18. GIS Based Urban Information---A part of Early Warning System 317 Supervisors at 111 duty areas with 2700 Basic Grid Units in a District

19. The data bases for Integrated information of multi-hazard and related data • 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 operations • Data is maintained in both computer-aided design (CAD) and GIS file formats.

20. Information Flow of Urban BGU Management GridSupervisor Citizen Call Municipal Center Data Modem Municipal Platform DISTRICT4 DISTRICT1 DISTRICT2 DISTRICT3 DISTRICT5 District6 Operation center Response center District Platform Agencies at District Level Agency/ Department Env. Water Met.

21. The Emergency Response Center of Shanghai Emergency supervisor Classification Sub-Center for Emergency Events Hotline Emergency Response Center Met. Hazard Sub-center health traffic chemistry fire Anti-flood meteorology Membership of emergency response center

23. Multi-hazard integration, Multi-agency preparedness, Multi-phase response

24. Multi-Hazard Multi-agency Multi-phase Response Framework of Shanghai Prediction & Warning Preparedness Observations forecasts warnings Monitoring Mitigation Assistance Rescue

25. The Early Warning System in Natural Disaster Prevention and Mitigation in Shanghai >80 AWS, >200 rain gauge 12 Satellite receiving system GPS network Wind profiler ( LAP-3000) A Platform for Multi-hazard Monitoring and Warning at 122。E, 32。N Lightning positioning System (SAFIR 3000) Doppler radar (WSR-88D)

26. The Integration flow of weather products in the BGU ----Example of Early Warning Capacity Building Fined Urban Meteorological Products Information Dissemination SMB Action taken by users Information Dissemination Message Feedback Influenced Weather Headquarter Of Urban Management Message Feedback Platform of Urban Grid Management Supervisor in each grid Shanghai Emergency Response Center Information Dissemination Other disaster events

27. WSR-88D Doppler Radar 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.

28. Urban Heavy Rainfall Inundation Assessment Interface in the BGU

29. Modeling Observed

30. 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.

31. 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.

32. 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.

33. 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.

34. Thanks for your attention !Welcome to Shanghai!