Improving Public Safety During Tsunami Emergencies - Case Study Example

TSUNAMI EMERGENCY MANAGEMENT SYSTEM 1. Introduction Tsunami incidents have been around for thousands of years and during the last century, around 500,000 people were killed by tsunamis (Spilsbury & Spilsbury 2008, p.44). Similar to earthquakes, hurricane, typhoon, and so on, tsunamis are forces of nature that cannot be prevented and because people are increasingly dwelling in coastal areas, the likelihood of casualties from tsunamis would increase. The occurrence of tsunami caused by an earthquake under the sea near the coast of Sumatra, Indonesia in December 26, 2004, is one example of how a tsunami can bring destruction coastal communities. The 8.9 magnitude earthquake generated a gigantic tsunami that hit Indonesia’s beachfront and other Asian countries at high speed killing 150,000. The water penetrated and swept 800 kilometres of Aceh coast washing away and displacing 700,000 people from their homes. The destruction and loss have been estimated at around 4.5 billion dollars and immense social, economic, and environmental devastations to an area that was already living in poverty people (Amin & Goldstein 2008, p.144). Since the occurrence of tsunamis cannot be predicted precisely, government and scientist are trying ways to monitor and gather information about earthquakes occurring under the sea in order to at least warn people of the possibility tsunami. Lessons from previous disasters had reminded the global community of the need for global cooperation and coordination of emergency management efforts that include mitigation, preparedness, response, and recovery. The following discusses tsunami occurrences and effects, recommendations made by various agencies to reduce the impact of such disaster, and tsunami emergency management systems implementation. Moreover, this report will also comment and recommend how government and local communities can further enhance their tsunami preparedness. 2. Tsunami Emergencies and Recent Recommendations The 2004 tsunami that destroyed a large part of the Banda Aceh region of Indonesia and devastated coastal regions in 11 countries including East Africa was due to the absence of tsunami warning systems in the Indian Ocean. There was no advance warning system to advice people in the coastal area. According to Haddow et al. (2008, p.43), the difference between Indian Ocean and Pacific Ocean in terms of tsunami incident is the presence of tsunami warning system in the Pacific Ocean operated by National Oceanic and Atmospheric Administration or NOAA. Another is tsunami awareness campaign being implemented by FEMA to help states and local communities to establish their own local warning systems and evacuation plans. For instance, the National Tsunami Hazard Mitigation Program or NTHMP formed in 1996 include development of Tsunami-ready communities that understand the nature of tsunami hazard, equipped with tools that they can use to mitigate risks posed by tsunami, effectively disseminate information about the hazard, and can institutionalize planning of a tsunami disaster (Bernard 2003, p.123). Since the damages brought by the 2004 Indian Ocean tsunami is unquantifiable, the disaster created significant awareness in the region and opened-up the need for establishing a tsunami warning system in the Indian Ocean (Ciottone 2006, p.495) The 2004 Indian Ocean Tsunami prompted some 50 countries to join hands and work together to facilitate exchange of information between tsunami warning centres and ocean buoy networks. Moreover, they work together to facilitate sharing of information through Global Earth Observation System of Systems or GEOSS which is generally consists of data gathered from all over the world. The sharing enables rapid warnings and responses to natural disasters possible and with the help of computer 3D models; scientist can predict the possible effects of a certain tsunami on various coastlines. Governments are installing more seismometers under the sea so they can measure the location, depth, and intensity of the earthquake occurring. Aside from seismometers, special buoys were placed on the surface of the ocean to detect unusual wave movement. The information produced by these measuring devices enable scientist to send important details to tsunami warning centres around the world via satellites. If the centre found the data sufficient enough to trigger a tsunami, it will send out warning to regions that may be affected (Spilsbury & Spilsbury 2008, p.44). In the Caribbean, several earthquakes and tsunami warning centres, emergency management agencies, and weather offices that are involved in tsunami awareness. For instance, the Puerto Rico State Emergency Management and Disaster Administration Agency or PRSN, National Weather Service Weather Forecasting Office, and the Pacific Tsunami Warning Centre. The PRSN is link with Virgin Island Territorial Emergency Management Agency or VITEMA and the Department of Disaster Management of the British Virgin Islands. These agencies are manned 24 hours a day/ 7 days a week monitoring and gathering information about seismic and tsunami events (Mercado-Inzarry & Liu 2006, p.237). Lessons learned from previous disasters also changed perceptions of the risk and improvements to existing disaster mitigation plans were made. For instance, some countries began to establish global communication network that can be use to warn people in high-risk areas about possible tsunami occurrence in their region. Another is global warning system that can accurately detect ground shaking and sense an approaching tsunami. Enhancement of mitigation plan that would include identification of high-risk areas such as lands between lagoon and the ocean in order to avoid further habitation and building construction in the area. Moreover, enable identification of sources of floating debris such as mangroves that are causing more physical damage to inland structures. Finally, enhancement in the mitigation plan that include training the local population in handling immediate disaster needs when a tsunami occurred (Ciottone 2006, p.495). During the Indian Ocean tsunami emergency in 2004, government and foreign agencies immediately assist in the early recovery, rehabilitation, and restoration of food security and livelihoods (Hoffmeister et al. 2006, p.76). In 2005, various concerns the China-ASEAN conducted a workshop to formulate an action plan and some of the recommendations made were to put in place a tsunami warning system as soon as possible through utilization of existing regional and international capabilities in and earthquake and tsunami. Moreover, recommended the establishment of region wide warning and response system through the support of UNESCO-IOC, UN-ISDR, and WMO. Since the group recognizes that earthquakes in the major source of tsunami, the recommendation include establishment of a sustainable warning system that can fulfil various purposes, and built with long-term use in mind. For this reason, establishment of Asian Regional Seismographic Network or ARSN was proposed. The ARSN at the minimum will be composed of seismographs, data processing and data transmission system that include utilization of existing telecommunication facilities such as GTS or Global Telecommunication System of WMO (China-ASEAN Workshop 2005, p.1-4). Other recommendations were made by various concern agencies such as the CRS Report for Congress in the United States. Recognizing the impact of the December 26, 2004 Indian Ocean Tsunami, the United States government was concern about the possible vulnerability of their coastal areas. Similar to the United Nations proposal in January 6, 2005, the report recommended an international effort to develop a tsunami early warning capability that include communication of tsunami warnings and network monitoring (Morrissey 2007, p.1-30). In Australia, the government saw the need to develop an NSW Tsunami Emergency Sub Plan prior to the Asian tsunami in December of 2004 and the Solomon Island Tsunami in 2007. The plan intends to deal with preparedness, responses, and initiation of recovery. Similarly, it was recommended that tsunami response operation should include multi-agency coordination that includes pre-impact precautionary task, operation readiness, and warning and evacuation processes. Like other government, the Australian government recognises that both marine and land based elements are exposed to tsunami hazard thus it is necessary to conduct tsunami risk assessment, warning system, and community education (Gissing et al., 2008, p.1-9). 3. Tsunami Emergency Management Systems Implementation Emergency management is generally a continuous process where individuals and communities manage and reduce the impact of disasters resulting from a certain hazard (Singh 2007, p.195). After the 2004 tsunami disaster, the Indian Ocean Tsunami Warning and Mitigation System or IOTWS was developed by UNESCO-IOC which is the same organization responsible for the Pacific Tsunami Warning and Mitigation System or PTWS. The main objective of IOTWS is to effectively identify and mitigate the hazards created by local and distant tsunamis. For this reason, a complete tsunami warning was created that include detection of hazard, forecasting, evaluation of threat, formulation of appropriate alert, dissemination of messages to the public, preparedness, and response. This strategy include regional and national hazard detection network, awareness and preparedness campaign to sustain vigilance against a rare but devastating natural force. Since a rapid warning system is the most suitable solution to tsunami threat, an international network consists of significant number of observation stations were gradually implemented. Countries involved made efforts to support the creation and maintenance of technical monitoring systems while IOTWS coordinates national and regional monitoring systems. The implementation plan aims to secure an optimal end-to-end tsunami and mitigation system by detailing an action plan and training of people that will be involve in operating the system at all levels (Intergovernmental Oceanographic Commission Technical Series 2006, p.71-88). Since the establishment of IOTWS in 2005, 26 countries have already established their Tsunami Warning Focal Points or TWFP. These countries include Australia, Indonesia, France, India, Iran, Malaysia, UAE, and other countries around the Indian Ocean. The WMO’s Global Telecommunication Systems facility is the backbone for distributing Tsunami Warning System bulletins around the region. Some part of the implementation includes sea level and seismic station upgrades while the ICG/IOWTS Working Groups are establishing goals and plans of action. More importantly, local response mechanisms are currently being developed in most coastal regions. By 2010, instrumentation and operational requirements the regional core network of coastal sea level stations and deep ocean stations will be complete including the strengthening of national meteorological and geophysical services. Along with technical developments, hazard risk assessment through hazard mapping continues as well as analysis of critical lifeline, infrastructure, marine port facilities, population demographics, and land use designations. The result of the risk assessment will help decision makers’ identity and implement a range of mitigation measures that would ensure reduction of vulnerability and impact of tsunamis (Intergovernmental Oceanographic Commission Technical Series 2006, p.71-88). Key activities of the action plan include preparation of guidelines for tsunami risk assessment, guidance to emergency response managers when preparing risk assessment, application and utilization of model outputs, data sharing and access to databases, capacity building and knowledge transfer through workshops and training programs, development of cost-effective and practical mitigation options and measures, and coordination with other hazard modelling groups. The implementation and action plan expect to achieve the most important results such as completion of hazard maps that would show areas with high probability for tsunami inundation, risk maps that would show the most likely impact of tsunami on the population, local and regional economy, and the built environment. The implementation and action also include maps the clearly shows the evacuation and safe areas and shelters, the way to get to these safe places, and where to go in case of unavailability (Intergovernmental Oceanographic Commission Technical Series 2006, p.71-88). Since tsunami warning system is the heart of the end-to-end tsunami warning and mitigation system, the capabilities of Regional Tsunami Watch Providers and National Tsunami Warning Centres include operating as 24 hours a day, 7 days a week multi hazard centre. These agencies are expected to have their own contingency plan, reliable infrastructure, and continuous power supply. Each agency should be capable of backing-up another RTWP in case of failure. In general, all RTWP must be at a minimum should have the capacity to collect seismic and oceanographic data in real time, analyse and interpret these data, and individually perform numerical modelling. More importantly, it must have a reliable communication infrastructure to ensure that all information are disseminated effectively to all concerns (Intergovernmental Oceanographic Commission Technical Series 2006, p.71-88). As mentioned earlier, tsunami is a force of nature that cannot be prevented but its impact can be mitigated through appropriate responses. For instance, the IOTWS intends to mitigate tsunami impact within the region through public education, timely warnings, community and emergency preparedness, and sufficient response to post tsunami situations. Current mitigating recommendation includes structural mitigation measures such as strategic site selection, design, and construction. These may include coastal buffer zones, installation and regularly testing of tsunami alert facilities along the coastline, regular drills to ensure that the public is always ready to respond, and regular evaluation and assessments of critical infrastructures and lifeline support facilities, rescue equipment, and medical assistance. As part of public education, emergency management implementation include promotion, sharing, and development of tsunami good practice examples, tools, and best practices in mitigation, preparation, responses, and recovery actions. More importantly, development of institutional policies concerning risk mitigation and recovery processes, interagency coordination in the Indian Ocean region, national and local emergency response plans for coastal regions, sustained efforts from coastal communities, and educational outreach programmes particularly in high-risk coastal regions (Intergovernmental Oceanographic Commission Technical Series 2006, p.71-88). 4. Recommendation The initiative and recommendations made by UNESCO-IOC, the China-ASEAN Workshop, the NSW government, and the United States Congress were all satisfactory. However, although formal training, regular exercises, and formal public education may undoubtedly bring significant awareness to tsunami threat, imparting non-formal education about the hazard may also bring more awareness to the community particularly those that are reluctant to participate in formal approaches. These can be in the form of posters containing safety rules and recommended actions. Additional information about previous tsunami disasters, importance of tsunami warning system, and clear explanation of appropriate response to warning may be best implemented through distribution of booklets. If available, people living in high-risk areas may be invited to view some documentaries about safety and preparedness (Tsuchiya & Shuto 1995, p.283). Non-formal public education can help penetrate those busy coastal communities particularly during reconstruction. Formal public education may be more effective in non-affected regions since the population will have more time attending scheduled programmes and regular emergency exercises. Moreover, since early warning is the key to minimize the impact of tsunami, public education, whether formal or informal, may prioritize on appropriate early warning responses such as evacuation procedures and location of nearest and safe shelters. Aside from streamlining emergency communication, coordination, and procedures, government may include actions that can mitigate future devastation and large losses by implementing a strong coastal management policy. For instance, government may implement zoning and planning for tsunami-prone coastal areas. Identifying these areas and coordination with media can lead to more awareness of the danger and reduction on the number of structures being built at coastal zones (Tsuchiya & Shuto 1995, p.283). Reconstruction of structures particularly those that are being use to do businesses in coastlines is unavoidable but it can be designed with warning or monitoring systems to enable immediate evacuation. 5. Conclusion Tsunamis are forces of nature that cannot be prevented but there are a number ways which individuals and government can do to minimize the impact of such destructive force. The 2006 Indian Ocean tsunami killed hundreds of people particularly Indonesia and Sri Lanka because there was no existing tsunami warning system in the region. The United Nation and countries around the Indian Ocean made some significant effort to address the problem and some of the major recommendations include public education and installation of tsunami early warning system that is linked to global observation system. In general, current improvements in tsunami emergency management are focused on awareness, warnings, and appropriate responses. 6. 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