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23 June 2022 | Story Dr Olivia Kunguma | Photo Supplie
Dr Olivia Kunguma
Dr Olivia Kunguma is a lecturer in the Disaster Management Training and Education Centre for Africa (DiMTEC) at UFS.

Opinion article by Dr Olivia Kunguma, Disaster Management Training and Education Centre for Africa, University of the Free State.
On 13 April 2022, the National Disaster Management Centre (NDMC) 'classified' the KwaZulu-Natal (KZN) floods as a provincial disaster in terms of Section 23 of the Disaster Management Act, 57 of 2002 (DMA). Following the classification, the KZN provincial government 'declared' a provincial state of disaster in terms of Section 41 of the DMA. Subsequent to this declaration and after considering reports from other provinces such as Eastern Cape and North West that were also affected by floods, on 18 April 2022, the disaster was reclassified. Following a consultation with the Cabinet, the Minister of Cooperative Governance and Traditional Affairs, Dr Nkosazana Dlamini-Zuma declared a national state of disaster. The national state of disaster was in terms of Section 27(1) and Section 23(6)(a)(b), which states that a disaster is a national disaster if it affects more than one province or if a single province is unable to deal with the disaster effectively. Another primary purpose of a national declaration was because the existing legislation and contingency arrangements of the affected state organs were insufficient to handle the provincial disaster and a need to activate other extraordinary measures as and when required. Also, the provincial disaster declaration was insufficient, given the widespread magnitude of the KZN floods. Since Durban has a port on which the entire nation and the Southern African region depend, the disaster had implications beyond the province. The Department of Cooperative Governance (DCOG) is the leading government department coordinating all stakeholders and intervention measures to address the effects of the disaster. The department is following a three-phased approach to support the affected provinces. The approach includes; immediate humanitarian relief, stabilisation and recovery, and rehabilitation and reconstruction.

Before the flooding disaster the KZN community was already vulnerable to xenophobic attacks, the COVID-19 pandemic, and civil unrest. The flooding disaster exacerbated the communities’ vulnerability and had a severe social, economic and environmental impact. At least 461 people lost their lives, about 874 companies were affected, 40 000 people were displaced, more than 40 people were reported missing, and damage to infrastructure was estimated at more than R20 billion. Mindful of all these challenges, local and international organisations and local communities extended a helping hand to those affected by the disaster. 

South Africa’s general response to disasters

As stated earlier, South Africa has been exposed to various hazards, some declared disasters by the government. In the past decade alone, xenophobic attacks on foreign nationals were declared a disaster in 2015; in 2018-2020 a drought was declared a disaster. In 2021, riots and looting in KZN were declared a disaster. Now the 2022 flooding has been declared a disaster. The occurrence and effect of hazards and the capabilities of the people affected to respond determines the need for a disaster declaration. Once a disaster has been declared, the necessary resources will be released. The point in question here is, “Is South Africa’s response to disasters adequate, timely and enough to assist affected communities?” The answer is the response is 'fair'. The fact that there is good disaster legislation that guides the process makes it a positive starting point. The challenge where timeliness is affected is the lengthy process of declaring the disaster so that the response can take place quickly. The response to xenophobic attacks was slow and inadequate because the government did not know how to classify the hazard. The response to the KZN looting and recent KZN flooding was also slow and inadequate, leading to significant impacts. To improve the response to disasters the proactive involvement of all stakeholders is needed, where all organs of state have sufficient resources and are prepared to respond to hazards in their custodianship, for example, drought, is the responsibility of the Department of Agriculture. 

Procedures for handling donations and relief

Organisations and individuals come together to respond to and assist victims of the disaster. With all volunteers coming together, the duplication of efforts is anticipated. According to the South African National Disaster Management Framework (NDMF) of 2005, the Disaster Management Centres must establish appropriate protocols to clarify procedures for requesting assistance and discourage ad hoc and unsolicited appeals for relief. Any possibilities of duplication are mitigated by establishing a Joint Operating Committee (JOC). Activating a JOC helps standardise reporting protocols and improve the coordination of interventions. Specific organisations form part of the JOC with allocated roles and responsibilities based on the disaster. For example, the Department of Social Development is responsible for conducting needs assessments and distributing relief items.

Furthermore, each stakeholder forming part of the JOC should implement the existing contingency or response plans and establish standard operating protocols or procedures (SOPs) for coordinating response and recovery operations as per their mandate. Some organisations do have SOPs, response or contingency plans, but due to the magnitude of the disaster, they could not be used effectively. The NDMF mandates the development of Regulations for the Practice and Management of Relief Operations. The regulations must be gazetted and must include relief standards and the duration of relief efforts. A JOC was established at metropolitan and provincial levels regarding the KZN flood disaster. Each JOC has a Disaster Management Relief Team (DMRT). This team is responsible for receiving donations and distributing them. The donating individuals or organisations contact the DMRT to handle the donations. The DMRT also allows the donors to select where they want their donations to go. Organisations that wish to contribute financially are urged to contribute to a Disaster Relief Fund account.

The Disaster Management Training and Education Centre for Africa (DiMTEC) joined in the initiative and called on the University of the Free State (UFS) and Bloemfontein community to donate non-perishable food and non-food items to the KZN flood disaster victims. 

DiMTEC staff
Staff members from the Disaster Management Training and Education Centre for Africa (DiMTEC) at UFS
in Durban. (Photo: Supplied)

After several weeks of collecting donations, the UFS-DiMTEC personnel travelled to Durban on 29 May to deliver the goods and visited some areas affected by the floods. The eThekwini Disaster Management and Emergency Control Unit staff thanked the UFS-DiMTEC personnel and the Bloemfontein community for the donations they made. “We appreciate your effort to deliver the donations to the flood victims personally. We would also like to invite UFS-DiMTEC to form collaborations with us as we have done with the Durban University of Technology. The collaborations will help us with disaster risk reduction efforts and build resilient communities,” said Mr Vincent Ngubane, the Head of eThekwini Disaster Management and Emergency Control Unit. Following the meeting with the Head of the Centre, the UFS-DiMTEC team was escorted to three shelters (KwaNdengezi Hall, Mariannridge Hall and Eshcol Community Church), most of which housed children from as young as six years of age. The challenges faced by the shelters include possibilities of theft, limited water and sanitation access, power cuts and inadequate food. 

Conjecture of KZN flooding disaster

Several media articles have recorded possible causes of the flooding and landslides disaster in KZN, and here are some of them:
• Slope instabilities relating to the local geology and topography influenced by climate change
• Hilly areas with significant gorges and ravines that are conducive to floods
• Common ‘cut-off low’ which brings heavy rain, damaging winds and cold weather mostly in autumn and spring
• Unmaintained storm-water drainage systems
• Housing shortages due to migration and lack of affordability that lead to informal settlements
• Apartheid legacy placed the poor in the periphery along low-lying areas and floodplains
• Social production (natural hazards interacting with a vulnerable population)
• Lack of science awareness among politicians, and toxic politics
• Poor planning and governance

Building back KZN better

While the KZN disaster response is ongoing, recovery and rehabilitation talks are in place. The DMA (Section 1) defines recovery and rehabilitation as a post-disaster phase that includes efforts and developments to normalise or restore a condition caused by a disaster. The effects of the disaster are mitigated, and circumstances that will mitigate or prevent a similar disaster are created. Before this phase commences, the government and other responsible stakeholders must effectively and scientifically conduct impact and risk assessments to inform resilient reconstruction. Climate change (heavy rains), environmental change (soil), and human and societal dynamics (settlements/civil unrest) are some of the factors that should be at the core of the KZN recovery and rehabilitation planning. Building back better in KZN requires the identification of better land for rebuilding. Overly, the earlier stated possible root causes of the flood disaster need to be scientifically researched to consider the findings in the recovery and rehabilitation phase. Funding is required for all this to happen, and the funds must be properly managed. While political support is a requirement, administrative structures must not be throttled. 

Donated items for flood stricken KZN
Some of the items donated to flood stricken Durban by UFS DiMTEC (Photo: Supplied)


Relief still needed during recovery and rehabilitation 

Although the KZN province is slowly transitioning from response and relief to recovery and rehabilitation, the disaster is far from over. While relief will still be needed to assist those in need, it must be reduced to avoid dependency. Currently, the disaster managers are dealing with challenges such as community members not affected coming to settle in community halls to benefit from free meals. Some community hall members have started complaining about the food and requesting specific meals. Nonetheless, the NDMF states that the prolonged relief supply creates dependency and discourages risk ownership, which is imperative for building resiliency.

Moreover, continued provision of relief reinforces risk transfer to external support, government or humanitarian agencies. The government needs to speed up the transition from relief to resilient rehabilitation without making further development mistakes. During this process, the KZN community must participate in the building back better process at all phases. 

Meanwhile, the UFS-DiMTEC is still appealing to the UFS community and the City of Bloemfontein to continue donating. Those wishing to donate are urged to drop off the items at the following drop-off point: Agriculture Building/Landbou, DiMTEC, First Floor, Room 3.102A, Bloemfontein. For more information regarding donations, please get in touch with Dr Tlou Raphela at +27 72 108 4987 or Raphelatd@ufs.ac.za

News Archive

Volksblad: Moshoeshoe Memorial Lecture
2006-05-27

27 Mei 2006

Moshoeshoe het mense saamgebind
KONING MOSHOESHOE kon bewys dat verskeidenheid ’n bindende eienskap kan wees. Dit blyk ’n sleutelbeginsel van sy leierskap te wees – en dit is nie ’n maklike een om te begryp nie.

Jy bereik die grootste eenheid tussen onderskeidende entiteite waar jy relatief vrye ruimte aan hulle gee om hul eiesoortige kenmerke na vore te bring.

Dít blyk uit prof. Njabulo Ndebele se gedenklesing oor koning Moshoeshoe.
Lesotho; het; onder Moshoeshoe se leierskap mense van verskeie dele van die subkontinent gelok.
Dié mense het hierheen gevlug van die verwoesting wat as lifaqane bekend geword het toe Shaka sy koninkryk met militêre onderwerping verstewig het.

Ndebele het gesê daar is algemene ooreenkoms dat die oorloë wat hieruit gespruit het, die maatskaplike grondslae van talle samelewings in Suider-Afrika geskud het.

“Dit was in dié konteks dat Moshoeshoe leierskap getoon het.”
Prof. Frederick Fourie, rektor en visekanselier van die Universiteit van die Vrystaat (UV), het gesê die lesing vorm deel van ’n groter debat oor leierskapmodelle, veral die konsep van Afrika-leierskap, en die voortgesette diskoers oor nasiebou en versoening.

Die Moshoeshoe-projek is in 2004 aan die UV begin om met Suid-Afrika se eerste dekade van demokrasie saam te val.
Die projek was deel van die UV se eeufeesvieringe in 2004.
Met dié projek word geprobeer om ’n groot Afrika-leier te vereer en die UV se verbintenis tot transformasie te toon sodat ’n ware inklusiewe en nie-rassige universiteit geskep kan word.

“As die stigter van die Basoeto-nasie, word daar wyd erkenning aan koning Moshoeshoe vir sy buitengewone leierskapstyl gegee.

“Diplomasie, versoening en vreedsame naasbestaan is van die kenmerke van sy leierskap, soos getoon in sy pogings om verskillende groepe in een nasie te verenig,” sê Fourie.

KONING MOSHOESHOE, een van Afrika se eertydse groot leiers. Hy is meer as 130 jaar gelede dood. Foto: verskaf

Waarde van openbare spraak ‘nou bedreig’
AANDUIDINGS bestaan dat die waarde van openbare spraak wat hoog deur koning Moshoeshoe van Lesotho op prys gestel is, nou onder ernstige bedreiging kan wees.

Om dié rede dra hy die koning Moshoeshoe-gedenklesing op aan al dié mense in Suid-Afrika en elders wat die moed het om hul oorwoë mening uit te druk oor belangrike sake wat die samelewing in die gesig staar, het prof. Njabulo Ndebele, visekanselier van die Universiteit van Kaapstad, gesê.

Ndebele, wêreldbekende skrywer, het gesê dié lesing kom op ’n kritieke punt in Suid-Afrika se nuwe demokrasie.
Dié lesing, om die buitengewone nalatenskap van een van Afrika se groot leiers te eer, is eergisteraand op die kampus van die Universiteit van die Vrystaat (UV) gelewer en het ’n staande toejuiging deur ’n groot gehoor uitgelok.

Ndebele het gesê die mense wat hul menings uitdruk oor belangrike sake, kan rubriekskrywers, redakteurs, kommentators, alle soorte kunstenaars, akademici, koerantbriefskrywers, nie-gewelddadige optoggangers met plakkate en strokiesprentkunstenaars wees “wat ’n spieël voor ons oë sit”.

“Selfs wanneer hulle dit waag op heilige gebied, soos sommige strokiesprentkunstenaars onlangs gedoen het, herinner hulle ons net dat selfs die heilige misbruik kan word vir doeleindes wat min met heiligheid te doen het.

“Dit is hul manier om ons te help, dalk meer diepsinnig as wat ons besef, om daardie einste ruimte van heiligheid in ons lewe te bewaar.

“Hulle verdiep ons insigte deur ons begrip te verdiep.
“Dit is gepas om hul dapperheid te vier,” het Ndebele gesê.
“Hulle herinner ons dat leierskap nie al is wat ons doen wanneer ons in ’n sekere magsposisie geplaas is om ’n organisasie of ’n sekere instelling te stuur nie.”

Hy het gesê onder die mense wat gevier moet word, sluit hy nie dié in wat deur haatspraak ander aanhits om geweld te pleeg; teen; mense; wat hul andersdenkende menings lug nie.

“Dit is nie met dapperheid dat hulle aanhits nie, maar weens hul toevlug tot die narkotiese beskerming van die skare.”

Mense voel glo ál kwesbaarder
Vise-kanselier lewer Moshoeshoe-gedenklesing
’n TOENEMENDE aantal hoogs intelligente, sensitiewe en toegewyde Suid-Afrikaners oor die klas-, ras- en kulturele spektrum heen bely dat hulle – soos nog nooit tevore nie – onseker en kwesbaar voel sedert 1994.

Só het prof. Njabulo Ndebele, vise-kanselier van die Universiteit van Kaapstad, gesê in die Universiteit van die Vrystaat (UV) se eerste koning Moshoeshoe-gedenklesing.

Die onderwerp was Reflections on the leadership challenges in South Africa.
Wanneer ontembare optimiste beken hulle voel dinge is van stryk, versprei die naarheid van angs. “Dit moet iets te doen hê met ’n ophoping van gebeure wat die gevoel van dreigende inploffing oordra.”

’n Gevoel heers dat Suid-Afrika ’n baie komplekse samelewing het wat liewer eenvoudige, gesentraliseerde beheer voortbring in die hoop dat dienslewering dan beter en vinniger gedryf kan word. Die kompleksiteit van beheer word dan in ’n enkele struktuur van gesag gevestig, eerder as in die afgewentelde strukture soos wat in die Grondwet beoog word.

Dat die afgewentelde strukture nie hul grondwetlik-gedefinieerde rolle verwerklik nie, moenie toegeskryf word aan die mislukking van die beheermeganisme nie.

“Dit is te vroeg om te sê dat wat ons sedert 1994 bereik het, nie gewerk het nie,” het Ndebele gesê.
Dit lyk of ’n kombinasie van omstandighede tot die “gevoel van ontknoping” lei.
“Ek wil dit vermy om te sê: ‘Kyk na Khutsong’, asof u sal verstaan wat ek bedoel wanneer ek sê u moet na Khutsong kyk.”
Sulke kennis lei tot wanhoop, want dit roep ’n werklikheid op wat só oorweldigend is dat dit fatalisties kan wees.
Ndebele het gesê niks kon meer vreesaanjaend wees as toe ’n komplot van die Boeremag oopgevlek en sekere Boeremaglede aangekeer is nie.

Sekere Boeremaglede het van ’n maksimum-sekuriteit-tronk ontsnap. “Sover ek weet, is hulle nie weer gevang nie.
“Wat is gedoen om die gaping te oorbrug?” was een van sy vrae hieroor.
“Van só ’n belangrike saak weet die publiek nie baie nie. Die karige kommunikasie kan die gevaarlike boodskap uitdra dat óf niks gedoen word nie, óf die staat in dié saak misluk.”

Hy het gevra: “Hoekom het die kwessie van munisipale afbakening tot die situasie in Khutsong gelei? Dit lyk of die probleem voortgaan, sonder ’n oplossing in sig.”

’n Aantal soortgelyke, oënskynlik plaaslike rebellies het oor die land heen plaasgevind. “Is hier ’n patroon?”
Ndebele het na die onlangse verhoor van oud-adj.pres. Jacob Zuma, wat van verkragting aangekla was, verwys.
Dié drama blyk ver van oor te wees. Dit beloof “om ons almal sonder verligting te hou, in ’n toestand van angs”.
Die gemene draad van dié gebeure is die gevoel van ’n oneindige spiraal van probleme wat vertroue tap. Daar kan ’n sterk suggestie in al dié gebeure wees “dat ons dalk nooit sosiale samehang in Suid-Afrika gehad het nie...”

“Wat ons sekerlik oor dekades gehad het, is ’n mobiliserende visie. Kan dit wees dat die mobiliserende visie onder die gewig van die werklikheid en omvang van maatskaplike heropbouing kraak en dat die legitieme raamwerk om oor dié probleme te debatteer ineenstort?”

‘Swart mense staar hulself in die gesig’
DIE swart meerderheid staar homself nou in die gesig: dalk werklik vir die eerste keer sedert 1994.
Só het prof. Njabulo Ndebele gesê toe hy die koning Moshoeshoe-gedenklesing by die Universiteit van die Vrystaat in Bloemfontein gelewer het.

Hy het gesê dit lyk of Suid-Afrika ’n meganisme nodig het om selfvertroue te bou.
Deur dié meganisme “kan ons die situasie waarin ons is, erken, wat dit ook al is”.
“Ons het ’n meganisme nodig wat die verskillende posisies van die mededingers sal bevestig en hul eerlikheid sal bekragtig op ’n manier wat die publiek vertroue sal gee dat werklike oplossings moontlik is.”

Dit is dié soort “openheid wat nooit maklik kom nie”, wat lei tot deurbraak-oplossings.
Ndebele het gesê ’n komplekse demokrasie soos Suid-Afrika s’n kan nie oorleef met ’n enkele gesag nie.
Net veelvuldige owerhede binne ’n grondwetlike raamwerk “het ’n ware kans”.
“Kan ’n deel van die probleem wees dat ons nie in staat is om die idee van ‘opposisie’ te hanteer nie?
“Ons is verskrik dat enige van ons ‘die opposisie’ kan word.
“Dit is tyd dat ons die koms voorsien van ’n oomblik wanneer daar nie meer ’n enkele, oorweldigende, dominante politieke mag is soos wat nou die geval is nie.”

Ndebele het gesê: “Ek glo ons het dalk ’n oomblik bereik wat nie fundamenteel verskillend is nie van die ontnugterende, tóg hartversterkende nasiebourealiteite wat gelei het tot Kemptonpark in die vroeë jare negentig.”

“Die verskil tussen toe en nou is dat die swart meerderheid nie nou na wit landgenote oor die onderhandelingstafel kyk nie.

“Die swart meerderheid staar homself in die gesig: dalk werklik vir die eerste keer sedert 1994.”
Dit is weer “tyd vir visie”, het Ndebele gesê.

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