DMISA President’s message 2 DMISA President’s message by Lebogang L Mosotho-Segage
DMISA EXCO Member foreword
Message from the DMISA EXCO Member for Journal and Marketing by Shadi Mlokoti
National Disaster Management Centre 4 The review of Disaster Management System of South Africa is gaining momentum by Dr Elias Sithole
G20 DRR Working Group 6 G20 DRR Working Group convenes in South Africa to advance global resilience financing
Early Warnings for All
Minister Hlabisa officially launches South Africa’s Early Warnings for All (Ew4all) Roadmap 9 Early warning systems by NDMC Directorate: Disaster Risk Assessment and Early Warnings’ (Dir: DREW)
Urban Risk-Informed Development Planning and Making Cities Resilient workshop
Capricorn District Municipality hosts workshop on Urban Risk-Informed Development Planning and Making Cities Resilient building capacity for DRR by Lebogang L Mosotho
Flood disaster response and mitigation
Wide area flood disaster response - reacting effectively to early warnings by Colin Deiner
Deciding on optimal flood mitigation measures for municipalities by Dr Herman Booysen and Tshilidzi Netshitangani
Weather stations
The importance of investing in a weather station by Kelvin Price
Sendai and sustainable development
Risk informed development and Sendai - how do we measure up? by Owen Becker
Official Journal: Disaster Management Institute of Southern Africa
Research paper
38 Local responses to global challenges: Climate Change adaptation among smallholder farmers in Lupane, Zimbabwe by Primrose Moyo and Dr Mal Reddy
Disaster Management Learning Programme
47 Western Cape Disaster Management Centre rolls out Disaster Management Learning Programme by Janine Winder
Provincial risk profile
48 Navigating complexity: The 2025 Western Cape Provincial Risk Profile 2025 Review by Awongiwe Mabutyana
Vhembe District Municipality
50 Vhembe District Municipality activities by Tshilidzi Nthambeleni
People
54 Retired Disaster Management officials reunite at coffee date, Cape Town by Dr Johan Minnie
Disaster information management and communication systems
56 The missing link in South Africa’s disaster risk management operations: The municipal disaster communication sub-centres by Dr Niel Rooi
Disaster management centre technology
60 Technology upgrade to the Western Cape Disaster Management Centre by Lavenia Nicholson
Consequence management approach to disaster management
62 A consequence management approach to disaster management: Training, exercises and drillsPart 12 by Dr Johan Minnie and Schalk Carstens
Strategic partnerships
65 KZN COGTA and DBSA forge strategic partnership to bolster disaster management
K9 Search and rescue disaster response
66 An exploration of K9-assisted approaches as a component of disaster response by Morné Mommsen
77
Mandela Day
Mandela Day through the DRR lens: building resilience, honouring legacy by Prof Alice Ncube
Events
78 Solutions Summit 2025 turns ideas into action by Dominique Binns
Wildfires
80 Catastrophic wildfires surge globally with 43 percent of worst disasters in past decade, University of Tasmania
DMISA PRESIDENT’S MESSAGE
By Ms Lebogang L Mosotho-Segage, President, Disaster Management Institute of Southern Africa (DMISA)
It is with great honour and a profound sense of responsibility that I address our members, partners and the broader disaster management fraternity through the DMISA Journal.
This edition comes at a significant moment, marking a decade since the adoption of the Sendai Framework for Disaster Risk Reduction 2015–2030. It provides an opportunity to critically reflect on the progress made, the gaps that remain and the road ahead for Southern Africa in advancing disaster risk reduction.
Over the past 10 years, Southern Africa has faced numerous disasters that have tested the resilience of our communities, economies and institutions. From devastating floods in Mozambique and Malawi, cyclones in Madagascar and prolonged droughts in South Africa, Zimbabwe and Lesotho, to emerging technological and public health risks, these events have underscored our vulnerabilities and the urgent need for proactive, coordinated disaster
management. Each incident has highlighted the importance of early warning systems, community engagement, cross-sector collaboration and preparedness planning.
This year’s journal, themed “A decade of Sendai in Southern Africa: Progress, gaps and the road ahead”, reflects on how the Sendai Framework has shaped regional disaster risk reduction efforts. While we have made notable strides in areas such as early warning systems, policy alignment, and professional development, significant gaps remain—particularly in community-level preparedness, resource mobilisation and integrating climate change adaptation into disaster risk reduction strategies.
As the professional body representing disaster management practitioners, DMISA has remained steadfast in advancing excellence within the sector. Over the past decade, we have:
• Strengthened partnerships with government, academia, and the private sector.
• Provided professional development and networking platforms through conferences, training initiatives and dialogue forums.
• Advocated for policies and practices aligned with the Sendai Framework, while ensuring relevance to our local context.
I am particularly proud of our progress in professionalising disaster management,
recognising practitioners at all levels for their expertise, dedication and leadership. DMISA remains committed to supporting our members through knowledge-sharing platforms, continuous professional development and opportunities to shape the future of the sector.
Looking ahead, our journey continues. DMISA will champion innovation, inclusivity and resilience, recognising that effective disaster risk reduction is a collective responsibility requiring strong partnerships, active community participation and sustained investment in capacity-building.
I wish to commend DMISA’s unwavering commitment to gender equity, which remains a cornerstone of our institute.
Over the years, we have seen a remarkable increase in the representation of women in leadership and decision-making positions. This progress reflects not only DMISA’s dedication to inclusivity but also serves as a model for the broader disaster management sector, demonstrating that equitable participation is essential for transformative leadership.
To the DMISA 2024–2026 Executive Committee and Board, I extend my congratulations and welcome you on this journey of advancing DMISA to new heights. I am confident that, through your commitment and dedication, the strategic objectives of our institute will be realised.
Ms Lebogang L Mosotho-Segage
MESSAGE FROM THE DMISA EXCO MEMBER FOR JOURNAL AND MARKETING
By Shadi Mlokoti, DMISA EXCO Member: Journal and Marketing
It is a privilege to share this message as part of DMISA’s continued commitment to advancing the discipline of disaster risk management. As EXCO Member responsible for the Journal and Marketing, I recognise the critical role that effective communication, knowledge exchange, and visibility play in strengthening our profession.
We live in an era where disasters are increasingly shaped by global warming, climate change, and rapid urbanisation. Extreme weather events such as heatwaves, floods, and storms are no longer distant threats but realities that affect communities daily. This makes our work as disaster management professionals even more urgent and relevant. The Disaster Management Journal serves as a platform to document these challenges, while also showcasing innovative solutions and research that guide resilience building at local, national and global levels.
The DMISA 2025 Conference will highlight these pressing
Finally, I extend my heartfelt gratitude to our members, partners and stakeholders who have supported us throughout the decade of Sendai. Your dedication and energy are the driving force behind DMISA’s enduring impact.
issues through thoughtprovoking contributions from respected leaders in our field. Among them are Prof Dewald van Niekerk, who will present on multi-hazard early warning systems for the SADC region; Dr AJ Jordaan, who will address how land degradation drives flood vulnerability; Dr Herman Booysen, on the use of artificial intelligence in disaster risk assessment; Tamara Faith Kamanga, with her analysis of flood and drought vulnerability in Malawi; Prof Christo Coetzee, exploring the importance of data in disaster risk reduction across Africa; Lum Sonita Awah, unpacking disaster risk through a systemic lens in the context of the Sendai Framework and Blessing Sibanda, whose research examines human wildlife conflict and climate change adaptation among smallholder farmers.
Through our journal and marketing activities, we aim to capture and amplify these conversations, ensuring that the lessons and strategies extend far beyond the conference itself. I encourage
Together, let us continue to build a safer, more resilient Southern Africa, learning from the past, addressing existing gaps and embracing opportunities for the future. I invite all DMISA members and readers of this journal to actively contribute, participate in DMISA initiatives
DMISA EXCO Member: Journal and Marketing
all members to contribute actively, whether through research articles, case studies or thought pieces, particularly those that speak to climate resilience, adaptation and disaster risk reduction in a changing world. By sharing our experiences and expertise, we can strengthen DMISA’s voice and continue positioning the Institute as a leading authority in disaster risk management.
"Individually we are one drop but together we are an ocean of resilience."
Shadi Mlokoti
DMISA EXCO Member: Journal and Marketing and champion disaster risk reduction in your communities.
Let us be ambassadors of change, working together to strengthen resilience in real time.
Enjoy this edition of the DMISA Journal!
THE REVIEW OF DISASTER MANAGEMENT SYSTEM OF SOUTH AFRICA IS GAINING MOMENTUM
By Dr Elias Sithole, Head: National Disaster Management Centre
The review of the Disaster Management System of South Africa took centre stage following the realisation of increasing occurrences and impact of hazard occurrences and disasters of different magnitude and severity. The COVID-19 pandemic has also demonstrated that the spheres of governments and sector departments are critically under-prepared to tackle the systemic nature of risk and are underinvesting in and underprioritising prevention.
In the South African context, although there has been substantial progress in upgrading investment into ex-ante risk reduction over the last few years, there is still bias towards ex-post response, reconstruction and rehabilitation as illustrated by the Disaster Management Fiscal Framework of the country.
Furthermore, many government departments, businesses and financial institutions hardly incorporate considerations related to their exposure and
vulnerabilities to the range of hazards they are legally responsible for managing. This makes hazard ownership an unrealised dream in dealing with disaster risk management. This exposes South Africa to an increasingly tight fiscal architecture and existential dilemmas, as it cannot continue allocating scarce public resources to immediate relief at the expense of risk informed development and disaster risk reduction for sustainability.
This therefore also calls for consideration of funding alternatives for the functioning of DRM across all sectors and spheres of government.
Key institutional and systemic challenges to address Key challenges to address are depicted hereunder titled: ‘Weaknesses in the current legal framework’.
Weak control environments and legislative deficiencies
• Fraud and procurement risks: Crises increase the risk of fraud, particularly in emergency spending, as evidenced by assessments in high-risk municipalities
• Financial and record management issues: Poor financial management and record keeping weaken overall accountability.
• Legislative shortcomings: Despite regulatory provisions, municipal planning is often inconsistent. Affecting disaster management readiness
• Insufficient oversight and
planning: Execution without adequate oversight, often due to leadership instability and poor departmental coordination.
Operational and structural deficiencies in disaster management
• Increased frequency and intensity of disasters: There has been a rise in both the frequency and severity of disasters, notably since 2018, which has stretched existing response mechanisms.
• Coordination and agility challenges: Key events, like the 2022 KwaZulu-Natal floods, have highlighted the NDMC’s limited coordination capabilities and lack of agility in disaster response
• Fire and rescue services lack in efficiency and effectiveness, reducing their reliability during emergencies.
Highlights of benchmarking processes undertaken Laying the foundation of this work saw the National Disaster Management Centre (NDMC) undertaking various strategic activities such as a desktop analysis, benchmarking and NDMC led consultations. The NDMC benchmarking analysis has revealed various lessons which will bode well for reviewing the system in South Africa as depicted in the figure below.
Disaster Management
Results Management Office Stream supporting the model refinement and process
To this end and given the
Dr Elias Sithole, Head: National Disaster Management Centre
capacity needs of the NDMC, a Disaster (Risk) Management Results Management Office (RMO) Stream comprising a multidisciplinary team of experts was established to enhance the review process. The Results Management Office team will support the NDMC in finalising the model for tabling to Cabinet through suite of skills and experience requisite for logical conclusion of the project.
The team commenced its work on 1 September 2025, led by Dr Mmaphaka Tau (strategic team leader) and will focus on the following areas:
Fire Services Review: Messrs Jackie Rikhotso and Thinus Pretorius
NGOs and Humanitarian Agencies: Mr Musa Ndlovu
Disaster Risk Management and Climate Change Adaptation: Dr Tlou Raphela-Masuku
Standardised Emergency Management System: Ms Dolly Kunene
Disaster Risk Management Research and Policy Advisory: Messrs Schalk Carstens and Marius Bartlett
Engineering Solutions for Building Back Better: Mr Dingaan Mahlangu Disaster Logistics System: Dr Clifford Ferguson and Strategic Support: Ms Nompumelelo Ekeke.
Disaster (Risk) Management Results Management Office stream delivery outcomes With this approach in mind, the following outcomes are anticipated:
• A fit-for-purpose institutional architecture that clarifies mandates across NDMC, PDMCs, MDMCs and Fire Services.
• A fiscally sustainable Disaster Risk Management system, supported by relevant fiscal frameworks and innovative financing mechanisms.
• Globally benchmarked resilience systems, aligned with Sendai priorities and ISO standards.
• An inclusive and evidencebased Disaster Risk Management approach that embeds resilience into South Africa’s long-term development trajectory.
Conclusion
The disaster management review process presents an opportunity for South Africa to enter a development era which embraces disaster risk management in all development policy and planning processes with robust political will. The system is envisaged to be founded on key development principles and practices linked to the Sendai Framework for Disaster Risk Reduction such as investment in enhancing residents capacities to understand and manage risks through advocacy and awareness programmes, forging of partnerships for cogeneration and expansion of best practices, inclusive disaster risk governance processes, while also creating capacity for effective response and building back better following unavoidable disaster occurrences and duly applying funding and financing options which are predictable, fit for purpose and promote sovereignty.
Enquiries: Ms Malerata Macheli Director: National Disaster Management Centre
Email: MalerataM@ndmc.gov.za Mobile: 060 994 5892
G20 DRR WORKING GROUP CONVENES IN SOUTH AFRICA TO ADVANCE GLOBAL RESILIENCE FINANCING
Source: United Nations Office for Disaster Risk Reduction (UNDRR)
The Hon Velenkosini Hlabisa, Minister of Cooperative Governance and Traditional Affairs (CoGTA), who presided over the G20 Disaster Risk Reduction Working Group Ministers' Meetings, with SRSG Kamal Kishore
Under the South African Presidency, the G20 Disaster Risk Reduction (DRR) Working Group held a two-part meeting in Cape Town, South Africa, culminating in a Ministerial Meeting on the International Day for Disaster Risk Reduction (IDDRR).
The meeting began with a technical segment from 8 to 11 October 2025, where experts and officials from G20 member states and invited partners negotiated outcomes, conducted site visits and discussed strategies to scale up investment in disaster risk reduction. This was followed by a ministerial segment from 12 to 13 October 2025, where Ministers gathered to share national experiences and
endorse key outcomes aimed at strengthening global resilience.
Key outcomes
The meeting concluded with three major outcomes that signal a strengthened global commitment to investing in resilience and preparedness.
First, G20 Ministers adopted a Ministerial Declaration reaffirming their shared resolve to reduce disaster risk and promote sustainable development through enhanced investment and international cooperation. Recognising the escalating human and economic costs of disasters, the Declaration called for stronger national and global action and cooperation in disaster risk reduction, especially around
expanding early warning systems, promoting resilient infrastructure and scaling up nature-based solutions.
Kamal Kishore, Special Representative of the UN Secretary-General for Disaster Risk Reduction and the Head of UNDRR, which serves as the Secretariat of the Working Group, welcomed the adoption of the Declaration, saying the G20 Ministers "sent a clear and powerful signal: that building disaster resilience is critical to protecting lives, livelihoods and economic prosperity. "
Second, Ministers endorsed the Voluntary High-Level Principles for Investing in Disaster Risk Reduction, developed under the South African Presidency.
The seven principles form a flexible framework that countries can adapt to their national contexts. They emphasize the importance of improving risk information and innovation, developing comprehensive financing strategies, integrating disaster risk into sectoral and budgetary planning, empowering local investment, arranging finance before shocks occur, engaging the private sector and strengthening international cooperation. Together, they aim to shift disaster risk management from a reactive to a proactive approach-placing prevention and preparedness at the heart of policy and financial planning.
Finally, Ministers recognised the Recovery Readiness Assessment Framework as a valuable voluntary tool to support proactive, inclusive, and sustainable recovery planning. By emphasizing early readiness and inclusive processes, the framework helps countries strengthen their ability to build back better and reduce longterm vulnerability. The Priority Actions to Enhance Readiness for Resilient Recovery, launched at the World Resilient Recovery Conference, were also acknowledged as a Presidency Document underscoring the importance of preparing for recovery before disaster strikes. Ministers further encouraged continued international collaboration to expand investment in DRR and ensure that recovery efforts are timely, risk-informed and equitable.
South Africa's Leadership and EW4All Roadmap To mark the occasion, South Africa launched its Early Warnings for All (EW4All) Roadmap, contributing to the global goal of achieving universal early warning coverage by 2027. The
roadmap underscores South Africa's commitment to innovation through the use of advanced technologies and data analytics, enabling more proactive and effective responses to environmental risks and disasters.
"The Early Warnings for All Roadmap represents a bold step towards a future where early warning systems are seamlessly integrated into disaster management practices," said Hon Velenkosini Hlabisa, Minister of Cooperative Governance and Traditional Affairs.
The Ministerial Roundtable reaffirmed the G20 DRR Working Group as a cornerstone for sustained dialogue, shared learning, and long-term investment in resilience. To maintain momentum, the Ministers called on the incoming Troika to engage the support of UNDRR to review the progress achieved and identify potential areas for future collaboration.
As disasters grow in frequency and intensity, the G20's collective action on DRR financing charts a path forward-inclusive, proactive, and grounded in solidarity.
Click image to view PDF online
MINISTER OFFICIALLY LAUNCHES SA’S EW4ALL ROADMAP
The Minister of Cooperative Governance and Traditional Affairs (CoGTA), Mr Velenkosini Hlabisa, officially launched South Africa’s Early Warnings for All (EW4All) Roadmap, on the sidelines of the G20 Disaster Risk Reduction Ministerial Meeting held in Cape Town.
Delivering his address at the launch, Min Hlabisa expressed his gratitude to fellow G20 Ministers, Members of the National House of Traditional and Khoi-San Leaders led by Chairperson Kgosi Thabo Seatlholo, the Deputy Minister of Forestry, Fisheries and the Environment, Mr Narend Singh, development partners, knowledge institutions and delegates from across the world who gathered to witness this milestone.
“It is with profound humility and a deep sense of pride that I speak to you today on behalf of the Government and the people of South Africa. We are inspired by the collaboration and solidarity shown by our G20 member countries, development partners and international organisations that have converged for this momentous occasion. Together, we aspire to foster sustainable development and create pathways for shared prosperity,” said Min Hlabisa.
The EW4All initiative is a flagship effort to ensure that every person in South Africa and, by extension, the African continent is protected by life-saving early warning systems by 2027. The Roadmap represents a bold national commitment to advance DRR and climate resilience by harnessing innovation, technology and datadriven solutions.
Minister Hlabisa emphasised that this is not merely a technical achievement but a symbol of national resolve. “Through this Roadmap, South Africa demonstrates its readiness to innovate by using advanced technologies and data analytics to enable proactive responses to environmental risks and natural disasters. It reflects our determination to build a future where early warning systems are seamlessly integrated into disaster management practices, ultimately contributing to a safer and more resilient world for all.”
Reflecting on the G20 Presidency principles of solidarity, equality and sustainability, the Minister noted that disasters do not respect borders and collaboration and inclusivity are imperative. “Solidarity calls for international cooperation and shared knowledge. Equality demands that we confront structural disparities that make some communities more vulnerable than others. Sustainability reminds us that resilience is not only about surviving the next disaster but about safeguarding future generations. No community, urban or rural, formal or informal should be left behind.”
The Minister acknowledged significant progress under previous G20 Presidencies, including India’s leadership in establishing the G20 Disaster Risk Reduction Working Group and Brazil’s current emphasis on climate justice, inclusivity and equitable financing. “South Africa will build on this foundation by ensuring that the unique voices and challenges of Africa are effectively represented within the G20 Framework.”
South Africa’s own experiences highlight the urgency of early warning systems. “The floods in KwaZulu-Natal in April 2022 claimed over 500 lives and the Eastern Cape floods two months later claimed more than 100 lives. These are painful reminders of why this initiative matters. The launch of the EW4All Roadmap is our coordinated response to such tragedies, a commitment to achieving universal early warning coverage by 2027,” he said.
He concluded by outlining a clear roadmap for the next 12 months:
• Launch the G20 DRR Continuity Taskforce, co-chaired by South Africa, India and Brazil, with UNDRR as Secretariat.
• Host the G20 Resilience Financing Dialogue in Durban, Q1 2026.
• Develop the Local Resilience Toolkit, in partnership with Singapore, Norway and the AfDB.
• Pilot the Recovery Readiness Framework in three South African municipalities.
• Convene the G20 Resilience Innovation Forum alongside the G20 Summit in Johannesburg.
• Monitor and report on EW4All implementation quarterly, with support from SAWS and the ITU.
He further called on all partners to continue working in unity and purpose. “The journey before us is not without challenges but it is filled with opportunities for progress and transformation. Together, let us uphold the spirit of solidarity, equality and sustainability, building a resilient Africa and a safer world for all. Filled with immense pride and responsibility, I am honoured to officially launch South Africa’s EW4All Roadmap,” he said.
EARLY WARNING SYSTEMS
NDMC Directorate: Disaster Risk Assessment and Early Warnings (Dir:DRAEW)
The Directorate: Disaster Risk Assessment and Early Warnings’ (Dir: DREW) primary mandate is to develop, evaluate and maintain a set of national indicative risk profiles, enhance early warning systems and manage a national spatial repository of information and data products relevant to disaster management.
Early Warnings for All
The Early Warnings for All (EW4ALL) initiative, launched by UN Secretary-General António Guterres on World Meteorological Day, 23 March 2022, aims to ensure that everyone on Earth is protected by early warning systems by 2027, with the World Meteorological Organisation (WMO) leading the effort.
In response, the South African Weather Service (SAWS), supported by WMO, convened a consultative workshop from 26 to 28 August 2024 at Diep in Die Berg, Pretoria. The event brought together
key stakeholders, including government, United Nations (UN) representatives, SAWS leadership, private sector and civic organisations. Discussions identified critical gaps and proposed solutions, forming the foundation for the South African EW4ALL Roadmap.
South Africa’s Early Warning for All (EW4ALL) Roadmap (2025-2030) is scheduled to be launched at the G20 DRR Fourth Working Group and
Ministerial meeting. It proposes a comprehensive national initiative aimed at establishing an inclusive, multi-hazard early warning system to protect all citizens from climate and disaster risks. The roadmap emphasises collaboration across four pillars: disaster risk knowledge, hazard detection and forecasting, warning dissemination and preparedness and response, supported by national and international stakeholders. It prioritises
vulnerable populations and integrates indigenous knowledge to enhance disaster risk reduction and sustainable development.
NDMC and SAWS partner to strengthen impact-based response procedures in Northern KwaZulu-Natal In August 2025, the NDMC, together with SAWS and the KwaZulu-Natal Provincial Disaster Management Centre (PDMC), hosted an ImpactBased Early Warnings and
Response Procedures Workshop in Melmoth. The workshop was part of the programme with PDMCs and Municipal Disaster Management Centres (MDMCs) to develop and/or verify districtlevel response procedures aligned to impact-based weather based early warning levels. It was aimed at equipping districts to understand impactbased early warning levels and draft response procedures, culminating in officials from King Cetshwayo and Zululand formally signing standard operating
procedures (SOPs) to guide coordinated disaster response.
NDMC Early Warnings
Technical Task Team and Seasonal Hazard Profile
The Directorate: Disaster Risk Assessment and Early Warnings (Dir: DREW) continued its decision support of the National Disaster Management Advisory Forum (NDMAF) and the Disaster Management fraternity by convening the quarterly Early Warnings Task Teams.
The Task team consists of various actors in the early warnings domain, coordinated by the NDMC, such as SAWS, Department of Water and Sanitation (DWS), Department of Forestry, Fisheries and the Environment (DFFE) and Council for Geoscience (CGS). Various items, related to the early warnings agenda were under discussion as well as reporting on early warnings initiatives. The outputs of the meeting culminate in a range of quarterly seasonal advisories, inclusive of the Seasonal Hazard Profile, related to weather and hazard development forecasts.
The findings are packaged a nd presented to a multitude of stakeholders at the NDMAF for seasonal operational planning, targeted DRR purposes and inclusion in contingency planning.
Harnessing space technology for disaster management
In September 2025, the NDMC co-hosted a Southern Africa Regional Training Course in Pretoria with South African National Space Agency (SANSA), United Nations Office for Outer Space Affairs (UNOOSA), ZFL and United Nations Platform for Spacebased Information for Disaster Management and Emergency Response (UN-SPIDER).
The course trained disaster managers from across the SADC region to use satellite technologies for disaster mapping through the COS-2 system and Charter Mapper.
Closing the Early Warnings Gap in the SADC region
At the 31st Southern African Regional Climate Outlook Forum (SARCOF-31) in Lusaka, the National Disaster Management Centre (NDMC) proudly represented South Africa under the theme ‘Closing the Early Warning Gap Together’.
The forum provided the 2024/2025 seasonal climate outlook, discussed implications for key sectors such as agriculture, water, energy and disaster management and promoted regional collaboration to strengthen climate resilience and early warning systems.
Developing drought resilience platforms in the Southern Africa Development Communities (SADC) region
The World Bank Group in partnership with SADC Secretariat and the Government of Eswatini, through its National Disaster Management Agency (NDMA), hosted the Disaster Resilience
Management (DRM) Forum 2025: SADC Platform for Disaster Risk Reduction and Regional Drought Resilience Workshop. The National Disaster Management Centre (NDMC) represented South Africa at this event.
The event brought together regional and international experts, policymakers and key stakeholders to discuss best practices, share innovative solutions and foster partnerships as well as strengthening regional collaboration on disaster risk reduction and climate resilience.
SADC INFORM Subnational Risk Model development
The Southern African Development Community (SADC), together with MapAction and The Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ), held the second regional workshop on the implementation of the INFORM Subnational Risk Model from 5 to 7 August 2025 in Windhoek, Namibia. This event followed the initial launch in South Africa in May 2025 and focused on updating technical knowledge, monitoring progress on countrylevel implementation plans and addressing issues related to adoption and institutionalisation.
The Disaster Management Institute of Southern Africa’s (DMISA) will be holding its prestigious annual Disaster Management Risk Reduction Conference from Wednesday, 22 to Thursday, 23 October 2025, which will include a pre-conference workshop on 21 October 2025 with the theme: Navigating disaster risk – Practical priorities for action in DRR, co-hosted with the National Disaster Management Centre (NDMC) in partnership with SALGA.
This highly anticipated event will convene at the renowned Sun City Resort in the picturesque Northwest Province of South Africa, bringing together practitioners, policymakers, academics and stakeholders from across the country and beyond for two days of learning, networking and collaboration.
This year, the DMISA Conference is unified under the overarching theme: ‘A decade of Sendai in Southern Africa: Progress, gaps, and the road ahead’. As we mark ten years since the adoption of the Sendai Framework for Disaster Risk Reduction, there is an opportunity not only to reflect on the strides made across the region but also to critically examine persisting challenges and chart a course for meaningful progress in the years to come.
Pre-conference workshop:
Sun City Resort on 21 October 2025, 10h00 to 13h00
The pre-conference workshop will be held on 21 October 2025 with the theme: Navigating disaster risk – Practical priorities
for action in DRR and is cohosted with the National Disaster Management Centre (NDMC) in partnership with SALGA.
Highlights include:
• Engagement and consultation on key aspects of the disaster management system review
• Strengthening disaster risk governance to manage disaster risk in rural areas
Conference venue:
Sun City Resort
Sun City Resort, located in the heart of the North West Province, is an iconic destination known for its worldclass amenities and stunning natural surroundings. The venue offers a unique blend of comfort, convenience and inspiration, making it the perfect backdrop for an engaging and productive conference experience.
Registration details
To secure your place at the conference, please refer to the attached registration form and complete all required fields. Early registration is highly recommended, as spaces are limited and demand is always high.
Day one
• Key note address: Minister Velenkosini Hlabisa, National Minister of Cooperative Governance and Traditional Affairs
• Welcome: Bojanala Platinum District Municipality’s Executive Mayor Cllr Dikeledi Suzan Nthangeni
• State of Disaster Management in South Africa from the perspective
of the National Disaster Management Centre: Dr Elias Sithole, Head: National Disaster Management Centre (NDMC), South Africa
• Community Based Early Warnings: Rudzani Malala, senior manager at the South Africa Weather Service
• Research and implementation of fire risk reduction in Cape Town and other parts of the world: Jennie Tsekwa, Danielle Antonellis, Kindling
• To what extent has the initiative to combat veldfires in the Northern Cape contributed to reducing disaster risk and building resilience in the region?: Ms Mojatsohle Kumang, Department of Agriculture, Environmental Affairs, Rural Development and Land Reform
• Bridging the protection gap: The role of insurance in advancing the Sendai Framework in Southern Africa: Nontobeko Nxumalo, University of the Free State, Disaster Management Training and Education Centre for Africa (UFS-DiMTEC)
• Assessing long-term trends and variability in precipitation patterns: A study in the Northern Cape, South Africa: Bernard Moeketsi Hlalele, Mokhantso Makoae, Caiphus Baloyi, Bathabile Nhleko, Gcina Malandela, Fefisa RwanqaMokete, Human Sciences Research Council (HSRC), Developmental, Capable and Ethical States Division
• Beyond Climate Change: How land degradation drives flood vulnerability and undermines resilience: Dr AJ Jordaan (PhD) PrSciNat;
The internationally recognised annual Disaster Management Conference for Southern Africa. Proudly presented in the scenic Bojanala Platinum District by DMISA, the Disaster Management Institute of Southern Africa, non-profit professional association and community of practice for Disaster Management in Southern Africa, and the SAQA recognised professional body for Disaster Management in South Africa, in collaboration with our esteemed partners. This biggest annual disaster management conference in Africa is a premier learning, skills development, alignment and networking opportunity for practitioners in
management and related disciplines and a platform to share the latest trends and priorities in disaster risk
CONFERENCE
22-23 OCTOBER 22-23 OCTOBER
MMM; DWD, CEO, Résilience Globale (Pty) Ltd
• Accurate forecasts, missed alerts: Improving Disaster response post-Mthatha Floods, South Africa: Olivia Kunguma, Noyise Centane, Manstoi A Ramakoloi and Sibabalwe Madikizela, UFS-DiMTEC
• Towards a gender-sensitive just energy transition: Insights from the decommissioning of the Komati Power Station: Takunda J Mathathu; Thanyani S Madzivhandila University of Limpopo and Nsizwazonke E Yende University of Mpumalanga
• A multi-hazard spatial analysis of vulnerability to floods and droughts in Karonga District, Malawi: Tamara Faith Kamanga, Lecturer in Disaster Risk Management and Climate Science at the Malawi University of Science and Technology (MUST)
• A critical assessment of early warning systems and anticipatory actions to flood disasters in KwaZulu-Natal province: a case of Durban: Prof Johannes A Belle and Mr Shame Shadreck Chauke, UFS-DiMTEC
• Disaster planning in South Africa’s local municipalities: Evidence from Integrated Development Planning (IDP) processes in Capricorn District Municipality, Limpopo Province: TS Madzivhandila, TJ Mathathu, AA Asha and MB Njoko, University of Limpopo
• Risk informed development and Sendai - how do we measure up?: Owen Becker, Immediate Past President and
• Interim Registrar, DMISA
• Collaborative disaster risk reduction in the mining sector: Integrated preparedness, response, recovery and capacity building for mine induced emergencies: A case study
at Valterra Platinum: Jaco Barnard, section manager: Business Continuity, Valterra Platinum; Francis Hoets, CEO, DMS NPC
• From awareness to action: Transforming schools into hubs of disaster preparedness – Lessons from the Capricorn District Disaster Management School Programme: Dr Phuti Rampya, Ms Lebogang L Mosotho, Mr Phuti A Mashamaite and Ms Winny Thaba, Capricorn District Municipality Disaster Management
Day two
• Exploring opportunities for abundant disaster management resources through impactful interprofessional collaboration in South Africa: Prof Mulala Danny Simatele, Environmental Management and Sustainability Science, University of the Witwatersrand
• Why data matters: Tackling data poverty to improve disaster risk reduction in Africa: Prof Christo Coetzee, Prof Livhuwani Nemakonde, Prof Djillali Benouar, Dr Wilfred Lunga, Mr PW Bredenkamp, North West University (NWU)
• A use case for integrating Earth Observations and AI to improve hazard detection over South Africa: Patience Mulovhedzi, Basanda Nondlazi, Nobuhle Majozi, Mthetho Sovara, Dedricks Morake, Shingirirai Mutanga and Nkanyiso Mbatha, Council for Scientific and Industrial Research (CSIR)
• Use of artificial intelligence (AI) in disaster risk assessment: Dr Herman Booysen, SRK Consulting
• Risk inform development (RID) and the enabling environment for RID (EE4RID): Two case
studies from the SADC Region: Professor Johannes A Belle, UFS-DiMTEC
• Beyond weather: a multisector, multi-hazard early warning system for the SADC region: Prof Dewald van Niekerk, Head of the African Centre for Disaster Studies (ACDS), Unit for Environmental Sciences and Management, NWU
• A dance between planning and disaster: Dr Mareli Hugo, Urban and Environmental Scientist
• Institutional challenges and response gaps in disaster management: A five-year assessment of the Free State Province, South Africa: Ms Zukiswa Vallery Poto, Disaster Risk Management Professional, Researcher and Academic
• A sub-national INFORM Risk Index for the SADC Region: Roelof Burger and Dewald van Niekerk (ACDSNWU) and Joerg Szarzinski, Institute for Environment and Human Security UNU-EHS, United Nations University, Bonn, Germany/Research Fellow in the Department of Geography, UFS
• Resilience and preparedness strategies of African healthcare systems during COVID-19: A systematic literature review: Dr Tlou D Raphela-Masuku, Socioecological Scientist, UFS
• The significance of capacitating firefighters with intermediate emergency medical and rescue skills to minimize injuries and fatalities is South Africa: ME Ramothwala, Head: Emergency and Disaster Management Rustenburg Local Municipality
• Food security and disaster risk reduction in South Africa: interrogating policy and institutional integration: Annegrace Zembe and
Christo Coetzee (ACDS-NWU) and Cosmas Tinashe Shoko, Department of Governance and Public Management, Midlands State University, Zimbabwe
• Understanding disaster risk through a systemic lens and its implications for the next decade of Sendai in Southern Africa: Lum Sonita Awah (PhD), UFS-DiMTEC
• From space to action: Leveraging satellite data and GeoAI for disaster risk governance in Southern Africa: Cecilia Masemola, Principal Scientist
• Lessons learnt in the process of compiling a municipal disaster management plan: Mr Gideon Wentink, Lecturer, Unit for Environmental Sciences and Management, NWU
• Human–wildlife conflict in the context of Climate Change: Risks, Impacts, and adaptation strategies among smallholder farmers in Southern Africa: Blessing Sibanda, PhD candidate, UFS
• EWS for vulnerable communities: Initial evidence from the REPRESA Project in Malawi: Kristel Fourie, Prof Dewald van Niekerk, PW van Zyl, ACDS-NWU
• Heatwave risks and impacts: Exploring community perceptions and adaptive strategies in Fetakgomo Tubatse Local Municipality, Limpopo Province: Lina Maepa, Fetakgomo Local Municipality
• Designing a regional disaster database for the SADC region: PW Bredenkamp, ACDS-NWU
• Community-based early warning systems for climaterelated hazards: An empirical assessment from Lake Kariba, Zimbabwe: D Mabumbo
• Comparison of actual flooding and the simulated flooding in Mthatha and Kwazulu-Natal: Towards the validation of the South African National Space Agency flood risk tool: Morwapula Mashalane 1,2* and Paida Mhangara 1, Abel Ramoelo 2 the national contact for the United Nations Platform for Space-based Information for Disaster Management and Emergency Response (UNSPIDER) Regional Support Office (RSO) in South Africa
• Local responses to global challenges: Climate Change adaptation among smallholder farmers in Lupane, Zimbabwe: Ms Primrose Moyo, Dr Mal Reddy, Durban University of Technology (DUT).
• GIS-based fuzzy logic SMCA for optimal flood emergency shelter siting in Chikwawa, Malawi: Japhet Khendlo, Roodheer Beeharry and Rajeshwar Goodary
• Geospatial analysis for flood hazard mapping and assessment of vulnerability of off campus university residences in the Thulamela
Local Municipality: Florence M Murungweni1*, Siphiwe G Malimba1 and Anesu D Gumbo1 Faculty of Science, Engineering and Agriculture, Department of Geography and Environmental Sciences
• An integrated drought classification and response tool (IDCRT) for enhancing drought risk governance in South Africa: Dr AJ Jordaan (PhD) PrSciNat; MMM; DWD, Résilience Globale (Pty) Ltd
• Exploring fire services monitoring and evaluation systems and their role in municipal service delivery in the district municipalities, South Africa: ME Ramothwala, Head: Emergency and Disaster Management, Rustenburg Local Municipality
• Enhancing Resilience: Strengthening Integrated Agricultural Disaster Management in the Eastern Cape: Ms Zukiswa Vallery Poto, Eastern Cape Department of Agriculture
• Vote of thanks: Moses Kotane Local Municipality’s mayor, Cllr Nketu Nkotswe.
We look forward to welcoming you!
For more information, contact the Disaster Management Institute of Southern Africa (DMISA) office on email: admin@disaster.co.za or mobile: 063 147 3411 (08h00 to 12h00 weekdays) or visit the website: www.disaster.co.za.
CAPRICORN DISTRICT MUNICIPALITY HOSTS WORKSHOP ON URBAN RISK-INFORMED DEVELOPMENT
PLANNING AND MAKING CITIES RESILIENT BUILDING CAPACITY FOR DRR
By Ms Lebogang L Mosotho, disaster management officer, Capricorn District Municipality
The Capricorn District Municipality (CDM) hosted a three-day Urban Risk-Informed Development Planning and Making Cities Resilient: Building Capacity for Disaster Risk Reduction (DRR) workshop from 17 to 19 June 2025 at the New Peter Mokaba Stadium, Polokwane. The workshop, co-hosted with the United Nations Office for Disaster Risk Reduction (UNDRR) and GIZ – Resilience Initiative Africa, brought together government officials, civil society, academia and the private sector.
The programme focused on building capacity for riskinformed urban development, aligning local planning with the Sendai Framework for DRR, the Sustainable Development Goals (SDGs) and the Making Cities Resilient 2030 initiative.
Key outcomes included stakeholder engagement strategies, preliminary resilience scorecard assessments using the Ten Essentials framework, and the proposal to establish an Intergovernmental Relations (IGR) forum to integrate
disaster management into spatial planning. The workshop highlighted that disaster resilience is both urgent and necessary, emphasising collaboration, inclusive planning and evidence-based decision-making.
The workshop was officially opened by the Member of the Mayoral Committee (MMC) for Community Services, Cllr Elizabeth Rahlana, who emphasised the importance of collaboration across sectors to mainstream disaster risk reduction into urban planning.
“Capricorn District Municipality is proud to co-host this workshop alongside our invaluable partners, the United Nations Office for Disaster Risk Reduction and GIZ – Resilience Initiative Africa. Your presence here, from various sectors and spheres of government, is a testament to the urgency and collective will needed to embed disaster risk reduction into urban planning and development,” said Cllr Rahlana.
She stressed that disasters disproportionately affect marginalised communities, including the urban poor and persons with disabilities and highlighted that urban riskinformed development is not optional but necessary.
“Through this workshop, we aim to build capacity, share practical tools and experiences, and most importantly, develop concrete pathways to embed resilience into our urban development policies and strategies. The Making Cities Resilient 2030 initiative and the Sendai Framework are blueprints for inclusive, future-proof development,” she added.
The opening underscored the diversity of stakeholders
in attendance, including representatives from government, civil society, academia, and the private sector.
Day One: Building a disaster-resilient district
The first day focused on laying the foundations for a disasterresilient district. Sessions began with a presentation by Sophia Kamau from GIZ, introducing the Resilience Initiative Africa (RIA) Project. This was followed by Dr Mmaphaka Tau, who contextualised the Sendai Framework for Disaster Risk Reduction within local priorities and its alignment with
global agendas, including the Sustainable Development Goals (SDGs).
Carolyne Mengich from the UN Office for Disaster Risk Reduction (UNDRR) provided an overview of urban resilience and the Making Cities Resilient 2030 (MCR2030) initiative, highlighting tools to support local governments in resilience-building.
A panel comprising experts from the Capricorn District Municipality Disaster Management Unit, National and Provincial Disaster Management Centres and the South African Local Government Association (SALGA) delivered presentations on national disaster policies, climate change adaptation and SDG-aligned strategies.
Participants included officials from all local municipalities in the district, representing disaster management, spatial planning and development, municipal health, fire and rescue, transport and other organized structures.
Day Two: Interactive Group Work and Stakeholder Dialogue Day two centred on group discussions and preliminary
scorecard assessments based on the Ten Essentials for Making Cities Resilient. Sessions highlighted the importance of stakeholder engagement, with participants from local government, urban planning, civil society and data science sectors contributing to meaningful dialogue.
“Risk-informed development can’t be done in isolation. Real resilience starts when those most affected are part of the planning table and their voices are heard and valued,” emphasised Carolyne Mengich, UNDRR.
The discussions reaffirmed that disaster risk-informed development is as much about people as it is about plans. Participants explored tools, frameworks and approaches to ensure inclusive, evidencebased urban development.
Day Three: Towards a New Approach for Building Resilience
The final day highlighted the urgency of integrating disaster resilience into all sectors.
Discussions focused on the Ten Essentials scorecard, guiding participants to identify gaps and
prioritise actions. A key outcome was the proposal to establish an Intergovernmental Relations (IGR) forum aligned with the District Development Model, incorporating traditional leaders and stakeholders into disaster management planning.
“It’s time for a new approach. Strengthening disaster resilience across all sectors of our district is not just necessary—it’s urgent,” said Mengich.
Participants emphasised the need for structured collaboration among infrastructure, spatial
planning, disaster management authorities and traditional leadership. This collaboration is especially critical in rural areas, where pre-planning is often overlooked, to ensure communities are better protected from potential hazards.
A dedicated task team will be established to implement the workshop outcomes, ensuring the Ten Essentials are rigorously examined and integrated into planning and development processes.
Conclusion
The Capricorn District Municipality workshop demonstrated that resilience is not a choice, it is a necessity. Through collaboration, knowledge-sharing and structured planning, the district is taking concrete steps to embed disaster risk reduction into urban and rural development. The event highlighted that building resilient communities requires collective will, strategic coordination and unwavering commitment from all stakeholders.
Source: CDM Communications
WIDE AREA FLOOD DISASTER RESPONSE
- REACTING EFFECTIVELY TO EARLY WARNINGS
By Colin Deiner, chief director, Disaster Management and Fire Brigade Services, Western Cape Government
Of all the disastrous incidents that have confronted disaster management and emergency services in southern Africa over the past five years, the most challenging must arguably have been the widespread flooding that has affected large parts of the region on a regular basis. In April 2022 heavy rains, flooding and mudslides struck KwaZuluNatal, particularly around the eThekwini Metro and led to largescale devastation described as South Africa’s worst natural disaster in recent history.
Approximately 430 people died as a result of this disaster and thousands of homes were destroyed, with over 265 homes declared unsafe in eThekwini alone. Estimated repair costs
in eThekwini have run into several billions. In September 2023 severe weather caused extensive flooding in the Western Cape, damaging public and private infrastructure, including homes, agricultural properties and roads and displacing communities.
Ongoing flooding, particularly in 2024–2025, affected KwaZulu-Natal, with significant impacts in eThekwini, King Cetshwayo, ILembe and Zululand districts. The 2025 floods were exacerbated by a wet summer, disrupting food supply chains and infrastructure. At least 22 people died in KwaZulu-Natal as of early 2025, with 12 deaths reported in eThekwini by 12 March 2025. Over 265
homes were declared unsafe in eThekwini, with widespread damage to roads, bridges and clinics Repair costs were, once again, estimated at R1 billion for eThekwini’s infrastructure.
In 2025 alone, more major flooding occurred in the Waterberg District in Limpopo following a serious drought and widespread wildfires, destroying crops, roads and bridges and isolating communities. Among the infrastructure damages community bridges, roads and food gardens supporting approximately 3 000 children were destroyed.
A particularly deadly flood also took place in the Eastern Cape in June 2025 in the Mthatha district and surrounding areas
which caused significant loss of life and property damage, exacerbating regional challenges. At least 101 people died in this disaster with over 6 869 households affected and 4 724 people left homeless.
El Niño-fuelled floods, combined with severe drought, have affected millions across Southern Africa, particularly in Zambia, Zimbabwe and Malawi. These events have led to widespread crop losses and food insecurity. Over this period between 40 to 80 percent of maize harvests were lost, implying significant livestock feed shortages and Infrastructure damage was widespread. The Southern African Development Community launched a US$5.5 billion humanitarian appeal to address the crisis, indicating massive economic impact.
Over 221 million people were affected by weather-related disasters (including floods and droughts) across Africa from 2021 to 2025, with Southern Africa significantly impacted. South Africa alone saw 12.2
million people affected, a 16fold increase from 2016 to 2020.
I have not even included the myriads of localised flooding events that occur seasonally in the many informal settlements that are found in abundance in our cities across the country or much of the riverine flooding, which causes significant damage to our agricultural infrastructure.
It has never been more obvious that the reduction and mitigation of this risk has now become more critical than ever and that top priority must be given to a national and regional strategy to reduce and mitigate these events and their impacts. If it’s not already too late!
The objective of this article is not to explore the reduction and mitigation strategies required but rather to offer some insights into the management of large-scale, wide-area flooding incidents. The experience of several major flooding disasters in the Western Cape in recent years has taught us many lessons, which we have included in our response
procedures and, in so doing, has provided valuable guidance on how to manage such incidents going forward. I also happened to be on a visit to the United States in July 2025 where I was able to closely follow the flooding disaster which affected Central Texas and the Hill Country, were a catastrophic event driven by torrential rainfall from the remnants of Tropical Storm Barry, resulted in one of the deadliest inland flooding events in the US since 1976. Some really valuable lessons were learned from this incident, which I will attempt to reflect in this article.
Strategic planning for flood disasters
Effective management requires a dual focus on long-term strategic planning to mitigate risks and short-term operational responses to minimise damage. Central to both is the timely reaction to early warnings, which can dramatically reduce losses by enabling proactive measures. This article explores these elements, drawing on established frameworks and real-world examples to provide a comprehensive overview.
The term: “early warnings” seems to have become something of a buzzword recently with several workshops and conferences in the disaster management and climate change sphere focusing on early warnings and the dissemination thereof. Unfortunately, not as much attention is given to the preparation for- and reaction to early warnings. You can only effectively react to early warnings if you have the resources and are able to deploy those resources well in advance of the incident occurring.
In the past two years, the Western Cape Province has had to deal with several large area floods and we have found that the early, impact-based, flood warnings we have received from the South African Weather Services (SAWS) have been accurate and well presented. Disseminating these warnings has become a lot easier due to the proliferation of information sources that exist in the modern world we live in. Point being: There is no problem with the receipt and dissemination of
early warnings. It is what we do with it that matters.
Preparation for early warnings must cover two components: emergency and disaster preparedness and public preparedness. When a warning is received about heavy rains and potential flooding in a specific region it is in most instances easier to prepare people living there to react timeously to the risk. Evacuation has always been the most effective way of dealing with this risk and must not be seen as an afterthought but as a first response mechanism that should be implemented without delay.
There are several risks associated with evacuations that must be considered carefully and cannot be done without taking these risks into account. Be sure not to create evacuation fatigue where people are asked to evacuate too often (and sometimes when it was not necessary) or a delayed response where people often underestimate the severity
of warnings or wait until the last minute, increasing the chance of becoming trapped. Sudden, poorly communicated information can also cause traffic jams, stampedes or unsafe shortcuts. Ensure that there are clear instructions provided which should include evacuation routes, places of safe shelter and other arrangements that may be necessary. Also ensure that vulnerable populations such as the elderly, people with disabilities, children, hospital patients and those without private transport may struggle to evacuate on their own steam are provided for. Asking someone to evacuate their properties without the guarantee that it will still be there when they return could create a fair degree of anxiety, fear of looting or reluctance to leave pets/ possessions behind and may cause non-compliance.
Understanding the “geography of the planned evacuation area” is critical to its effectiveness. The evacuation plan should take into account any potential transport bottlenecks such as limited road capacity, bridges or damaged routes that can lead to congestion or people being cut off. It is also crucial that any breakdown in communication is immediately addressed as any power and telecom failures could disrupt coordination and information flow. The pre-staging of electrical response teams was seldom executed better than when the Florida Division of Emergency Management mobilised approximately 17 000 linemen to assist powerrestoration efforts, which included a large contingent of ‘out-of-state’ resources, in preparation for the 2024/25 floods which affected the state so severely.
As important is to ensure the functioning of critical infrastructure and to ensure contingencies for any possible shutdowns: Hospitals, water supply and emergency services may be compromised during evacuation and this must be prepared for.
It will always be difficult to determine the exact number of people who might require shelter after being evacuated and this could lead to inadequate space, supplies or sanitation in evacuation centres and can lead to secondary health crises. The chaos that ensued following Hurricane Katrina in August 2005 when thousands of people sought refuge in New Orleans’ main emergency shelters, most notably the Louisiana Superdome and the Ernest N Morial Convention Centre, facilities that were never designed to house such large numbers under disaster conditions, has been used as an example of the major problems that can be encountered if a mass evacuation is done without taking the above into consideration. I can still recall the scenes of overcrowding when tens of thousands of evacuees arrived, which was far beyond the facilities’ intended capacity. Food, drinking water, medicine and baby formulas ran out quickly, leaving many people hungry and dehydrated. Toilets overflowed, garbage piled up and there was no effective waste removal, creating foul and unsafe living conditions and with the power knocked out and ventilation failing, conditions inside became stifling. Elderly people, those with chronic illnesses and infants suffered without access to adequate healthcare or refrigeration for medications creating a medical crisis on top of the flood disaster that was occurring.
Several, seemingly insignificant issues such as the need to create safe landing zones for helicopters, which were essential for evacuating injured individuals and delivering supplies during the disaster, presented additional unforeseen problems. At the Superdome the Louisiana National Guard converted the Superdome parking lot into a heliport by removing light poles and pushing parked cars over the railings to clear enough space for helicopters to land and at the Tulane University Hospital staff cut down light poles on the upper deck of a visitor parking garage to construct a makeshift heliport.
Understanding the geography of the evacuation area will assist incident commanders to pre-identify high-risk populations and transport/ shelter needs, establish multiple evacuation routes with real-time monitoring, maintain redundant communication channels (such
as radio, SMS, sirens and community runners), preposition supplies (fuel, medical kits, food and water) in safe zones and ensure law enforcement presence to deter looting and maintain order.
Evacuation plans will have a much better chance of succeeding if regular information sessions and possible community drills to reduce panic and confusion are conducted in flood prone areas.
Fast warnings – faster actions: flash flood response
In early July 2025, a storm system dumped extraordinary rainfall across Central Texas, producing catastrophic flash flooding along the Guadalupe and other Hill Country rivers. The water rose so quickly that river gauges failed while people were still asleep; by the time many realised something was wrong, opportunities to escape
had already closed. The event left hundreds rescued, dozens dead and whole communities traumatised. The heaviest and most widespread rainfall and the most severe flooding impacts occurred in the early morning hours on 4 July 2025
and continued for the next three days, especially along the Guadalupe River.
Altogether, four months' worth of rain fell, causing the Guadalupe River to rise about eight metres in 45 minutes.
Localised rainfall rates and totals were well outside normal seasonal expectations, producing the swift flash floods that overwhelmed river channels and infrastructure. Emergency responders described collapsed roads, washed-out bridges, telecommunication outages and large numbers of people suddenly stranded in trees, on roofs and in campsites. Searchand-rescue operations saved many lives but the speed of the flood outpaced the normal cycles of warning, evacuation and resource deployment.
Far from levelling any criticism of the State and Federal authorities who managed those incidents, there are a number of valuable lessons, particularly related to flash flooding, that we can learn from the disaster. We must appreciate that flash floods are not slow-moving threats. Unlike larger weather systems such as cyclones and cut-off lows that give days of notice, flash floods can develop in minutes. When gauges spike rapidly and models update with higher probabilities, response must switch from ‘monitor’ to ‘move’ almost immediately. Delays in interpreting warnings, issuing orders or funding deployment lose the critical window for evacuations and live rescues.
I have already spoken about the need to maintain communication channels and during this incident telecommunication outages and people sleeping during the early-morning surge meant many did not receive or could not act on warnings. Warning systems should always have a form of redundancy. Systems that depend on a single channel ie phones, social media and sirens, are fragile and don’t provide any redundancy.
One of the more tragic events that occurred during the Texas flood disaster was where various summer camps and outdoor events located in floodprone corridors were hit hard and the news footage of missing children and rescue teams recovering the young bodies of those who succumbed to the high waters ripped at our hearts. How many times do we see a proliferation of visitors to riverside camps and resorts with very little information provided to them on what to do in the event of a severe weather incident and associated riverine flood? People visiting these places are mostly only there for a short period of time, which creates its own challenges in providing any ongoing awareness training. You are effectively reliant on the management of the resort to ensure the safety of their visitors. The loss of lives at a riverside camp became a focal tragedy that highlighted how site selection, evacuation plans and on-site monitoring are life-anddeath decisions.
Shifting gears: When a flood rescue becomes a structural collapse rescue
As we saw during the 2022
KwaZulu-Natal floods and several other incidents, the initial fast flowing water hazard was transformed from a swift water rescue operation into a complex structural collapse search and rescue operation lasting for several weeks. These events not only involved rapidly moving water but also carried debris, dislodged trees and destabilised structures, creating life-threatening scenarios for both people and animals.
Understanding this transition from swift water to structural collapse incidents is critical for
effective emergency response and preparedness.
Where swift-water rescue operations typically focus on extracting individuals from fastmoving water, such as flooded rivers or urban waterways, rescuers use specialised equipment to navigate turbulent conditions. However, when a mudslide is involved, the scenario changes rapidly. Finding victims becomes more difficult and the equipment required to deal with tons of mud and debris swept along by the rapidly flowing waters, changes significantly and places a larger burden on your logistics people.
You are now dealing with dislodged trees and debris, which may pin victims against structures or natural barriers, requiring rescuers to address both drowning risks and physical entrapment. Buildings in the path of a mudslide may partially or completely collapse under the weight of debris and water. Homes, bridges and retaining walls can crumble, trapping occupants or animals inside. The combination of water, mud and debris may pin people inside vehicles, homes
or under natural debris like logs or rocks. Animals, such as livestock or pets, face similar risks, often requiring specialised rescue techniques to free them from mud or collapsed shelters.
Your focus will now probably change from a rapidly moving operation where swift response is required to a more focused operation lasting for several days. As the agency responsible for managing the operation, you must prepare to accommodate the inevitable assistance that may arrive from various organisations and have a plan to manage them in such a way as to ensure that they contribute to the successful conclusion of the operation and not become an added burden to an already stressed environment.
The management of many resources over a large geographic area will require a strong incident command system that ensures the following:
• Mission priorities are attended to
• Resources are tracked effectively and provided to the prioritised sectors
• Safety and accountability of personnel
• Financial accountability
• Effective communication
It is important that, at the initial phases of such a disaster, an assessment is made to determine the possible duration of the incident and to plan for the escalation thereof soon. If you know that you are going to need resources (human and
otherwise) for more than a week, start to plan where they will be coming from, where will you accommodate them, feed them and deploy them. Do you have sufficient transport to get them to where they need to be? Is the pre-hospital and definitive medical care sufficient to ensure all injured victims are properly managed or do you need to consider field hospitals?
Go big early. You can always return the things you didn’t need but it’s very difficult to get it in after the disaster has occurred.
Effective response: What works — immediate, practical steps There is still so much to cover on this topic and I hope to do so in future contributions, however, in summary, here are some important points that should be considered to be taken into consideration very soon (or even before) into a major flooding disaster:
• Heed early warnings and create a system of layered, automatic warnings: Combine real-time river-gauge telemetry, radar-derived rainfall products and satellite precipitation products into automated triggers that broadcast alerts across all channels such as cell broadcasts, sirens, radio, TV and partner platforms. Automation reduces human reaction time and ensures a consistent message.
• Evacuate; Have a plan, make it focussed and don’t hesitate to implement it.
• Redundancy of communications: Prepare for telecommunication outages by maintaining effective redundancy systems. It might be necessary to have vehicles doing loud hailing in certain areas. If that is all that will work, have a plan for it.
• Pre-authorised surge plans:
Preposition search-andrescue teams, lift mutual-aid agreements and set funding thresholds so specialised assets can be launched immediately without multilayer approvals. Time saved at the start of a rescue operation yields the highest return in lives saved.
• Site-specific mitigation: Prohibit or strictly control human settlement in identified flood corridors. I recall a system implemented by the (then) Sandton Fire Department in the mid-90s when dealing with flash flooding on the Jukskei River in Alexandra, Johannesburg, where onsite remote sensing/alarms were positioned at various strategic points down the river. When these sensors indicated that the river had reached a certain critical height, the department’s
swift-water rescue team responded and pre-staged at identified points, which enabled them to react immediately to anyone who ended up in the water and was in need of rescue.
Conclusion
There are so many other examples I can relate in this article, however, I have used these to hopefully emphasise the need for focused planning and effective rapid response to early warnings. There is no alternative!
None of the above would, however, be possible if emergency and disaster managers were not empowered to make bold decisions early and know that they have the support of their political and administrative leadership. How often don’t we see reports of delayed leadership contact and approval contribute to slower
arrivals of specialised teams during a period when every hour counts. Faster, pre-authorised deployment triggers reduce time-to-rescue. An example of good early executive decision making occurred during the floods in the Western Cape in June 2023 when an impactbased early warning received from SAWS indicated that a large scale (level 8) heavy rainfall incident would affect a large part of the province including rural areas where many schools were situated. An urgent meeting was called with the provincial leadership and a decision was made to close all potentially affected schools for the period that the warning was valid.
It is these decisions that must be made to prevent the tragedies we see all too often.
Don’t be afraid to make bold decisions!
DECIDING ON OPTIMAL FLOOD MITIGATION
MEASURES FOR MUNICIPALITIES
By Dr Herman Booysen, principal scientist and associate partner and Tshilidzi Netshitangani, principal scientist at SRK Consulting (South Africa)
Dr Herman Booysen, principal scientist and associate partner, SRK Consulting (South Africa)
Using statistical functions specifically developed for South African environments, potential flood damage in municipalities can be calculated, paving the way for a cost-benefit analysis for establishing the optimal suite of flood mitigation measures.
Such mitigation strategies could include building levees, improving drainage systems and implementing other flood control measures. The important starting point is the effective assessment of flood risk, which requires authorities to gather a range of relevant data, to identify potential flood impacts along the main rivers and stormwater conduits.
Managing the risk of floods requires careful consideration of several factors, including catchment properties such as size, topography, land use, and
Tshilidzi Netshitangani, principal scientist at SRK Consulting (South Africa)
the types and characteristics of storms that produce rainfall. It also requires accurate assessment of properties in a floodplain. Information such as the number, location and types of buildings and other assets that could be damaged are used in calculating the possible impact.
Rainfall run-off and design discharge
Lack of hazard and risk assessments can lead to poor risk management decisions, from insufficient protection to the wasting of scarce financial resources. In many situations, discharge measurements are not readily available and up to date or of insufficient quantity or quality to be able to conduct a discharge frequency analysis.
In such situations, one of a broad class of tools known as rainfall run-off models can
be used to convert estimates of extreme rainfall into design discharge estimates and design hydrographs. Rainfall runoff models are used to estimate peak discharge, which is the volume of water that passes a certain point during a flood.
Hydraulic modelling and floodplain mapping
The design discharge can be converted into an estimate of flood water level and velocity, using a hydraulic model. The Hydrologic Engineering Centre’s River Analysis System (HECRAS) model is among those that SRK uses for a flood hydraulics study. HECRAS calculates high-water levels for different steady flow conditions, considering structures and controls along the watercourse.
Key outputs of the HECRAS model are the flood depth and velocity, which are used in generating a flood hazard assessment (FHA). The flood hazard along a river can then be categorised as high, medium and low, considering the water’s velocity and depth, the flood levels and extent of flooding, and the impact of excess flow on physical developments.
Flood depth and velocity are inputs in calculating possible flood damage for urban and agricultural sectors. The principle is that a specific flood depth and velocity can cause a definable estimated damage to a property. When the estimated
damages to all properties in the floodplain are added together, they reflect the total expected damage corresponding to the flood frequency for the area; the frequency can range from 1:5 to 1:1000.
Costs and benefits
For municipalities, understanding flood risk allows effective early warning systems to be developed and implemented, to alert communities and other relevant agencies such as emergency responders. In the permitting of building or infrastructural developments, an FHA can be used to determine which areas are within the flood line, and where flood remedial measures may need to be performed.
To facilitate the implementation of cost-effective flood risk mitigation, it is vital to measure the likely impact of the proposed interventions. This can be calculated by subtracting the damage which is prevented by the mitigation, from the total estimated damage. An FHA can also identify areas where relocation of vulnerable infrastructure and communities might be necessary.
It is important to note that monetary values are not the only indicators used in the costbenefit analysis. Through a multicriteria analysis, aspects like
Managing the risk of floods requires careful consideration of several factors, including catchment properties such as size, topography, land use, and the types and characteristics of storms that produce rainfall.
social impact and environmental impact are also incorporated.
Managing disasters
Recent intense rainfall events around South Africa are a reminder that flooding presents a significant risk at district, provincial and national levels and therefore requires appropriate measures. Flood risk assessment is an essential component of disaster management plans, as part of disaster risk assessment and disaster risk reduction planning.
There is a growing demand from disaster management authorities to understand the likelihood of flooding during
the rainy season and, more critically, to identify which communities may be affected. As a result, research into flood prediction and impact assessment using advanced technologies such as Machine Learning through Neural Network Analysis and the use thereof in spatial analysis and simulation through GIS-software, has become increasingly important. SRK Consulting is dedicating substantial resources to this area of research, which is expected to significantly enhance flood risk assessment in South Africa, which will help manage and reduce the impacts of flood events.
THE IMPORTANCE OF INVESTING IN A WEATHER STATION
By Kelvin Price, managing director, CW Price and Co
Weather station installations play a critical role in wildfire prevention, detection and management. Their localised and real-time data can significantly improve response strategies and reduce the risk and impact of wildfires. A weather station can assist individuals, businesses and researchers track real-time weather conditions.
Localised monitoring of temperature, humidity, wind speed and precipitation helps identify highrisk conditions, such as low humidity and high winds that can lead to or exacerbate wildfires.
Vitalfireweather/Vitalweather stations help understand microclimates, especially in mountainous, forested or remote regions and enable more accurate fire behaviour modelling and forecasting.
Personal preparedness
Knowing the temperature, humidity, rainfall and wind speed can assist in planning your day and in the case of forestry having on the fly FDI fire danger index readings.
With our Vitalfireweather/Vitalweather stations, users can now have a three, five or 15 day forecast to make plans for harvesting, planting, plantation cleaning, fuelload reduction, firebreak burning and much more.
Agriculture
Farmers and foresters rely on weather data to monitor conditions like rainfall and soil moisture, which affect crop growth and irrigation planning.
Safety and disaster prevention
It provides early warning systems for extreme heat and extreme cold and the Fire danger Index and wind can assist in protecting lives and property. Fast and accurate weather updates support firefighting strategies, such as deciding where to deploy resources or how a fire might spread.
Aviation
Pilots of water bombers, spotter planes and helicopters use weather data to ensure safe travel and avoid dangerous working conditions.
Scientific research and climate studies
Long term data trends help scientists study
climate trends and assist in prediction of weather patterns. What would you do without predictions?
Insurance
Often insurance companies will require a weather station on your farm or plantation to access preparedness and verify actual conditions after for example a runaway fire. Weather data now becomes extremely crucial in any fire investigation, often ending up in court with cases being several years old. For example, recent cases were between five to eight years old, makes one think!
Sustainable farming
Data-driven decisions lead to responsible use of natural resources, reducing environmental impact. Weather stations are powerful tools for modern agriculture/forestry combining science and technology to improve farming efficiency.
Installing Vitalfireweather/Vitalweather stations is a smart, proactive investment in wildfire preparedness. They empower scientists, firefighters and communities with the detailed, real-time data needed to make informed decisions, ultimately saving lives, property and ecosystems.
RISK INFORMED DEVELOPMENT AND SENDAI - HOW DO WE MEASURE UP?
By Owen Becker, past president, DMISA
The Sendai Framework 2015 - 2030 is an international convention for disaster risk reduction and is based on the following four pillars:
Pillar 1: Understanding disaster risk
Pillar 2: Strengthening disaster risk governance to manage disaster risk
Pillar 3: Investing in disaster risk reduction for resilience
Pillar 4: Enhancing disaster preparedness for effective response and to “Build Back Better” in recovery, rehabilitation and reconstruction.
In South Africa the Disaster Management Policy Framework,
2005, sets out four key performance areas (KPAs):
KPA 1. Institutional capacity for disaster management
KPA 2. Risk and vulnerability assessment; new law
KPA 3. Risk reduction
KPA 4. Response and recovery.
This paper will use the Sendai Framework and Disaster Management Policy Framework to examine disasters that have occurred and the challenge that they have presented; this will be further explored by examining the factors that contributed to these disasters. The role of risk informed development in disaster resilience will be
unpacked to inform remedial action that is required to plot the way towards resilient households and livelihoods.
Sendai Framework
Each of the pillars will be briefly examined to provide a deeper understanding:
Pillar 1: Understanding disaster risk
Understanding disaster risk is the key to managing disasters. A quantified and mapped risk assessment will provide context and enhance decision making.
The components of risk that must be assessed are: Hazards, which includes the frequency, intensity and seasonality of the hazards; vulnerability and capacity which are two sides of the same coin, as capacity increases so vulnerability will decrease and vice versa. Vulnerability/capacity has 11 components, each with a number of sub- components:
• Human
• Social
• Institutional
• Legal
• Political
• Economic
• Physical - spatial
• Physical - infrastructure
• Physical - services
• Technological
• Environmental
The vulnerability/capacity of each component must be calculated to establish resilience. At community level it is also important to identify special needs vulnerability.
At national, provincial and municipal levels disaster risk is a statistic and even when mapped the scale is so great that it is only an indicator. Understanding risk at a community level is where resilience is built and lives and livelihoods are saved.
“1 000 deaths or a statistic; one death is a tragedy”, adapted from Joseph Stalin.
Pillar 2: Strengthening disaster risk governance to manage disaster risk
A disaster plan is not a piece of paper that meets compliance requirements. It is everybody's business to:
• Identify disaster risk
• Understanding risk and its consequences
• Implement measures to eliminate or reduce the consequences of that risk
• Ensure availability of resources to cope with any consequence that occurs
• Commitment of communities to manage their own risk
• Commitment of professionals, technical and other staff to work together to manage disaster risk
• Political commitment to provide direction funding and oversight.
Disaster resilience is only achieved when every stakeholder fulfils their roles and responsibilities in collaboration with all other stakeholders.
Pillar 3: Investing in disaster risk reduction for resilience
Understanding disaster risk will inform you of the risk reduction measures that are required. A benefit / cost analysis will allow for focused investment in Disaster Risk Reduction to protect communities, households and livelihoods in the most cost-effective
manner. Financial planning must include adequate budgets for operations and maintenance.
Investment saves lives and prevents loss and damage. Every R1 spent on disaster reduction, saves R4 to R10 should the disaster occur. The combination of sound capital investment supported by effective operation and maintenance will ensure resilience.
Pillar 4: Enhancing disaster preparedness for effective response …
Emphasis is often on response because what is done or not done is visible. It also means that something has happened and response is needed. It is easier to give food parcels after a disaster than to stop people from building shacks in a flood line or to provide water tankers rather than to repair and maintain pumps and pipes before a drought occurs.
Response is most effective when a risk assessment has informed preparedness. Each role player must understand the consequences that they are responsible for and plan for the deployment of the necessary resources should the disaster threaten or occur.
Preparedness includes:
• early warning systems;
• education, training and awareness;
• drills and rehearsals.
… to “Build Back Better” in recovery, rehabilitation and reconstruction
In the quest to recover, money is usually sourced to rebuild as quickly as possible. This often results in not understanding the true risk and vulnerability undermining resilience and rebuilding in the same or worse
manner than before the incident or disaster occurred.
The vulnerable are exposed to the same or even more serious losses and damage from similar occurrences in the future.
A disaster risk assessment is the key to identifying and managing the risk so that it can be eliminated or reduced during rebuilding.
Political pressure and budget constraints further hamper ‘Building Back Better’.
Disaster history
This section will examine recent events and question why they occurred and what should be done to prevent a reoccurrence.
Flooding
May 2025, flooding in the Orange and Vaal Rivers resulted in evacuations along the rivers and threats to agricultural activities, when the sluice gates of a number of dams were opened to avoid threats to the safety of the dams. Severe flooding in 1988 and 2011 was not addressed and human activity was allowed to continue within the flood lines. How can land use planning and early warning systems prevent a future disaster?
June 2025 Eastern Cape, OR Tambo and Amathole Districts 92 die after heavy rain and snow, 13 in a bus crossing a flooded bridge. 58 schools and 20 hospitals are also damaged. Worsening Climate Change is suggested as the cause. What occurred and how can future reoccurrences be prevented?
July 2025, widespread flash flooding in Texas results in 27 campers and staff losing their lives at camp Mystic and more than 40 other deaths in the State. Heavy rainfall upstream caused the river to rise 8 meters in two
hours. The flooding occurred in the early hours of the morning. In spite of a 2-hour lead time, what early warning systems could have averted the disaster?
Monsoon season Pakistan
June-August 2025, 776 deaths and 933 injuries were reported during the monsoon season. The monsoon season is an annual occurrence and the causal and exacerbating factors are further examined in this paper.
Building collapses May 2024, George, 34 deaths occur when a multi-story building under construction collapsed. Multiple control agencies fail to prevent it. April 2025, Dominican Republic nightclub roof collapses killing 184 people. At this stage the cause is unknown.
October 2025, Ethiopian church scaffolding collapses killing 30 and injuring 200.
September 2025, Indonesian boarding school suddenly collapses killing 14 and 49 missing. Construction standards are being investigated.
These examples demonstrate the importance of assessing the risk associated with structures before, during and at regular intervals after construction.
Information technology and communication September 2025, the CO-OP hack in the United Kingdom wipes out £ 80 million. September 2025, a cyber-attack on Jaguar and Land Rover causes major supply chain failures and plant shutdown for several weeks. Cybersecurity is usually not considered in disaster preparedness and business continuity is usually not considered part of disaster risk management, however for resilience to occur through risk informed development, information technology and communication are critical components that must be assessed and addressed.
Each disaster must be fully analysed quantified and mapped to inform future Disaster Risk Reduction do wards risk informed development and resilience.
Factors that exacerbate the consequences of disasters
Research conducted by Professor Ayyoob Sharifi of Hiroshima University Japan, following the 2025 monsoon flooding in Pakistan, identifies a number of factors that either cause or exacerbate the impact of disasters. The similarity to South African disasters will also be addressed for each factor:
Climate hange
There are 7, 3 billion more people on earth today than in 1800, it is therefore inevitable that emissions of carbon dioxide, methane and many other carbon substances will increase significantly. Human beings have “selective amnesia” and tend to forget the detail of events very quickly. This results in “the current situation” being perceived as the worst ever.
The best risk assessments are based on information gathered from indigenous knowledge and qualitative data such as reports, articles and photographs. This information must be quantified and mapped to provide context of location, magnitude and frequency.
The following summary of Category 5 Atlantic Hurricanes provides some context on Climate Change:
Category 5 storms are the most severe tropical storms. The Saffir-Simpson Hurricane Scale is used to categorize hurricanes according to wind speed. Category 5 is defined as recording one-minute sustained winds of 254 kilometres per hour or greater.
There were no official sightings of category 5 storms recorded before 1924. Early equipment used to measure wind speed could not withstand extreme force and often failed. The instruments to measure wind are often located on land however tropical storms weaken when they make landfall. Satellite technology has greatly contributed to the accuracy of calculating wind speeds, since the 1960s.
There have been 42 category 5 storms in the Atlantic between 1924 and 2025.
The above is an example of hurricanes which are hydrometeorological disasters. Disaster managers have to manage the full spectrum of disasters including:
Geological such as earthquakes, volcanoes and tsunamis; Biological including:
• human epidemics such as COVID-19, Ebola and cholera
• animal diseases such as foot and mouth disease and bird flu
• pests such as locusts, fall army worm, polyphagous shot borer beetles
• plant diseases such as rust and mold and
• veld and forest fires.
Technological including building collapse, transportation disasters, cyber failure and load shedding
Environmental including air, water and land degradation and pollution
Anthropogenic humans are central in all disasters.
DISASTER HISTORY
When a flood occurs in an unpopulated area it is only a natural phenomenon but when it impacts on lives and livelihoods it becomes a disaster.
A future with Climate Change
The world is facing disasters daily, but only hydro-meteorological disasters can be linked to Climate Change. Climate Change must not become the quick answer to avoid blame for inadequate investment and poor planning and maintenance. If it is climate change, why are we not building back better???
Forecasts of disasters will become more accurate and provide greater lead time as technology enhances data collection and processing. The management of disasters must be based on a quantified and mapped risk assessment and always plan for the worst-case scenario- it’s easier to scale down than to scale up.
Urbanisation and migration
In Pakistan migrants tend to move to larger cities. Lower crop yields can drive migration to the cities. Settlement is more likely to be in informal settlements. Rapid and unplanned urbanisation increases settlement in hazardous areas, on steep slopes and near water courses. Increased hardening caused by
Urbanisation in South Africa has similar outcomes.
Deforestation
Loss of forest cover increases storm water runoff and slope instability leading to flooding and landslides. In South Africa the loss of vegetation including grasslands also increases runoff. The loss of wetlands and hardened roads and paths also contribute to flooding.
Inadequate infrastructure
In Pakistan the clogging of water courses causes blockages that result in overtopping of banks and flooding. Unplanned informal areas lack infrastructure such as roads, water, sewage and storm water management. This greatly increases vulnerability. In South Africa the lack of storm water drainage on urban and rural roads causes overtopping and erosion. Water will take the shortest route causing flooding. Litter is one of the greatest causes of blocked drains and water courses and results in flooding. The erection of buildings and walls across contours results in pooling and flooding.
Poor river management Pakistan and South Africa both experience the following:
• Insufficient management of river systems causes problems with embankments and proper flood control mechanisms
• Settlement in water courses exposes structures to flooding
• Blockages caused by litter are also problematic.
Early warning system (EWS) limitations Pakistan and South Africa both experience the following challenges:
• National and Regional Early Warning do not reflect local conditions and can lead to inaccurate local forecasts
• Communities and households do not understand the impact on them nor the action that they must take
• The challenges result in misunderstanding that can lead to no or incorrect action being taken.
Poverty
Poverty being the root cause of disaster vulnerability impacts on flooding in Pakistan and South Africa by:
• Lack of availability of safe land results in unsafe settlement
• Lack of access to Early Warning Systems by vulnerable households and individuals delays response
• Lack of transport to enhance evacuation
• Lack of alternate accommodation to evacuate to forces people not to evacuate.
Inactivity in the informal sector
There is a reluctance and/or inability to manage the informal sector. The reasons can include:
• Lack of political will
• Lack of funding and resources
• Corruption.
South Africa has a highly regulated formal sector but the same standards, especially
relating to safety, do not apply in the informal sector.
Activities in the informal sector include:
• Planning and settlements
• Transport including taxis
• Trading
• Alcohol sales and consumption
• Food handling
• Building occupation (Hijack.
• Mining.
Incidents in this sector often result in major media coverage, political points scoring and “over response” including unrealistic and unenforceable laws and regulations.
Risk informed development (RID)
All developments must be based on a comprehensive assessment of the disaster risks associated with hazards, vulnerability and capacity relevant to a specific development in a
GEORGE-MAY 2024
INDONESIA –SEPT 2025
DOMINICAN REPUBLIC - APRIL 2025
ETHIOPIA- OCTOBER2025
specific location. The findings and recommendations of the assessment must be converted into prevention, mitigation and preparedness actions to manage the identified risks.
The future occupant is usually not the developer or even the first occupant or operator of the development. This emphasises the need to ensure that all current and future occupants and operators are aware of the risks and the measures to reduce them. Occupants or operators may fill a storm water retention pond or pave a rain water garden if they are unaware of their purpose. There are arguments for and against endorsing the title deeds with this information. There is also merit in mapping and marking the information and communicating this to the public.
What is important is that municipalities and developers must generate, develop and communicate risk assessments and risk reduction information.
What next
This paper has demonstrated that with five years of Sendai remaining a lot of work is still required to build risk informed resilient communities.
The following key issues still require a concerted effort:
• Disaster risk, vulnerability and capacity assessments with spatial context must be mandatory for all new development, similar to the Environmental Impact Assessment (EIA) Regulations
• All new developments must have a disaster risk management plan that is transferred to each new owner or occupier
• Municipalities must conduct and map disaster risk, vulnerability and capacity assessments for municipal
areas including informal and rural areas. Existing disaster risk must be identified and Disaster Risk Reduction measures must be integrated into the Integrated Development Plan (IDP)
• Municipalities must strengthen Disaster Risk Reduction and sustainable development through bylaws that address stormwater management, building and fire safety and health. These must include ongoing operation and maintenance plans with emphasis on Disaster Risk Reduction
• Municipalities must develop early warning systems (EWS) that focus on communities and households identified in the disaster risk, vulnerability and capacity assessments
• Disaster risk, vulnerability and capacity assessments must be based on sound scientific research obtained from indigenous knowledge and qualitative sources and underpinned by sector experts including:
• Water Research Council
• Agricultural Research Council
• South African national space agency
• South African Weather Service
• Council for Scientific and
Industrial Research CSIRGreen Book
• Academic Institutions
• Technology must be embraced to enhance the speed and accuracy of data collection, processing and dissemination. This must include:
• Satellite imagery
• Artificial intelligence
• Drones
• 3D scanning and models and
• the use of social media and online platforms
• Nature-based solutions including:
• Preservation of grasslands and wetlands
• Rainwater harvesting
• Rooftop gardens
• Rain water gardens
• Retention ponds
• Landscaping/gabions and
• Swales must be incorporated into risk reduction and sustainable development.
• Human capacity must be developed to enhance the competence of disaster managers, sector specialists, decision makers and communities in risk identification and management for sustainable development.
BBB should not only mean “Build Back Better” but must also start with “Begin Building Better”.
Hijack
LOCAL RESPONSES TO GLOBAL CHALLENGES:
CLIMATE CHANGE ADAPTATION AMONG SMALLHOLDER
FARMERS
IN LUPANE, ZIMBABWE
By Ms Primrose Moyo and Dr Mal Reddy, Durban University of Technology
Abstract
Climate change continues to adversely affect the livelihoods of communities in semi-arid regions. Recent studies show a 15 percent increase in droughts and a 20 percent decline in agricultural production across sub-Saharan Africa, directly impacting food security and economic stability of rural communities (Addis and Abirdew, 2021; GAR, 2025).
Climate change increases their vulnerability exposing them to climate shocks and stresses
like droughts and floods. This necessitates farmers in semi-arid regions to adapt to climate change and minimise their vulnerability.
The study investigates climate change adaptation strategies currently employed by smallholder farmers and their effectiveness in Lupane, a predominantly rural and semi-arid district in western Zimbabwe. The research reviewed literature using a rigorous and systematic methodology in selecting,
evaluating and synthesising relevant research studies on climate change adaptation strategies. Thematic analysis was used to collate and organise empirical findings of the study. The findings are relatively linked with Sustainable Development Goal (SDG) 13 focusing on climate action and SDG 2- Zero hunger.
The paper uncovered that smallholder farmers in Lupane district are diversifying crop varieties to include droughtresistant or early-maturing
options, adjusting planting and harvesting times to align with altered rainfall patterns (Khumalo and Sibanda, 2024). Some smallholder farmers integrate crop production with livestock management to create more resilient farming systems. Additionally, a significant number of farmers are progressively engaging in practices like conservation agriculture (Svodziwa, 2022). Access to extension services and credit facilities also plays a vital role in enabling farmers to adopt new technologies and strategies, demonstrating that a multi-faceted approach encompassing both technical and socio-economic interventions is important for effective climate change adaptation among smallholders.
In doing this, the study bridges the knowledge gap between farmer’s needs and policy interventions, ultimately empowering smallholder farmers in semi-arid regions who are predominantly vulnerable to the adverse effects of climate change.
Climate variability and change are major challenges for smallholder farmers in many semi-regions across the world. The impacts of these phenomena are becoming more pronounced with accelerated incidences of droughts, floods, hailstorms and heat waves worldwide (Hossain et al., 2022). Climate change is anticipated to reduce the production of key staple crops like maize, millet, sorghum, groundnut and cassava especially in rainfall dependent farming
systems of Africa (Hounnou et al., 2023; Guja and Bedeke, 2024). The timing and amount of rainfall received are becoming increasingly uncertain (Mwalusepo et al., 2016). There has been a notable increase in the frequency and length of dry spells in the time of rainy season while the frequency of rain days has gone down (Olum et al., 2020; Shittu et al., 2021). Generally, this adversely affects many economies in the developing world which predominantly rely primarily on agriculture. Over 70 percent of the population in developing countries live in rural areas and depend on climate-sensitive livelihoods like livestock rearing and arable farming (Mwalusepo et al., 2016; Odikor, 2023; Shittu et al., 2021). Contemporary evidence in the literature projects a negative impact of climate change and variability on livestock, fisheries and crop production. This implies that without adequate mitigation and adaptation measures, the negative implications will continue even in the future (Shittu et al., 2021). Consequently, food security and income opportunities for household dependent on farming may be threatened.
An increase in global average temperature presents an indication of climate change, which is largely caused by human activities in several ways. Agricultural practices that include intensive livestock farming and the use of fertilisers which release methane and nitrous oxide (Guja and Bedeke, 2024). While human activity is the overwhelming driver, natural factors also play a role, the sun’s energy output fluctuates slightly over time. Periods of increased solar activity can cause slight warming, whilst periods of decreased activity can
lead to a cooling effect (Anugwa et al., 2022). There is need to prioritise the development of adaptive mechanisms in dealing with negative effects of climate change. Anugwa et al. (2022); Shittu and Kehinde (2018) reiterate that the promotion of Agricultural Practices with Climate-Smart Agriculture potentials (AP-CSAPs) is one major opportunity to mitigate climate change at the same time sustaining agricultural system productivity. AP-CSAPs emanate from building adaptive capacity of farmers, enabling producers, service providers to farmers and key organisations to respond to long-term climate change effectively. This should be done while also managing the risks associated with increased climate variability. Shittu and Kehinde (2018) notes three core pillars needed to achieve AP-CSAPs, namely, increasing agricultural productivity and income sustainably, adapting to and building resilience to climate change and reducing greenhouse gas emissions where possible.
Scientific evidence project global temperatures to keep rising irrespective of human interventions (Hossain et al., 2022). The effect is consequently projected to be higher among developing countries where smallholder farmer’s livelihoods are heavily dependent on the use of natural resources (Shittu et al., 2021). Generally, Africa remains vulnerable to climate variability and change because of multiple stresses and low adaptive capacity (Mwalusepo et al., 2016; Guja and Bedeke, 2024). Therefore, the need for robust climate variability and change adaptation strategies for semi-arid regions and African countries is warranted. In the context of Zimbabwe, the
poverty rate is approximately 76 percent, while 70 percent of the population depends on rain-fed farming for livelihood (Hossain et al., 2022). Climate change adaptation to climate change would improve the resilience of agricultural systems, protect the livelihoods of the poor and ensure food security (Mwalusepo et al., 2016; Olum et al., 2020).
This research will investigate this phenomenon and contribute towards sustainable smallholder farming and promote both livelihoods and food security using a case study of a semiarid region in Matabeleland North, Zimbabwe.
2. Research problem
Agricultural production remains the backbone of Zimbabwe’s economy, providing a livelihood for over 70 percent of its population (Mavhura et al., 2017; Odikor, 2023). However, smallholder farmers are increasingly facing the consequences of climate variability and climate change. Increasing temperatures, erratic rainfall patterns and extreme weather patterns presents a problem for farmers to produce enough food to meet their needs and those of their communities (Akinyi, Karanja Ng’ang’a and Girvetz, 2021a). Climate change is exacerbating existing vulnerabilities in Zimbabwe, where poverty, inequality and food security are predominant. This is as a result of limited access to resources, technologies and information to help smallholder farmers adapt to climate change (Mburu et al., 2015). The case is even worse in the context of semi-arid regions of the country where erratic rainfalls and changes in weather patterns continue to expose households to poverty and food insecurity.
Although significant research has been conducted on climate change adaptation strategies in sub-Saharan Africa, there remains a notable gap in understanding the effective adaptation strategies. Most current studies on climate change adaptation primarily concentrate on impact assessment on several sectors such as agriculture, health and water resources (Akinyi, Karanja Ng’ang’a and Girvetz, 2021a; Hossain et al., 2022; Guja and Bedeke, 2024). While these aspects are so crucial, there is dearth of research on delving into the specific, localised adaptation strategies. Some studies are focusing on analysing existing adaptation policies and identifying policy gaps (Al-Amin et al., 2020). Empirical evidence has shown that, although, there are some researches which have focused on identifying adaptation strategies there are often at a broad scale (Thinda et al., 2020; Addis and Abirdew, 2021; Guja and Bedeke, 2024). These aspects are often overlooked in the current research yet they inform the development of sustainable financing mechanisms and aid in prioritisation of adaptation needs thus channeling resources to where they are needed most (Johnson and Geisendorf, 2022). Research has revealed that there is a gap in identifying and addressing barriers that hinder farmers from adopting adaptation strategies (Masud et al., 2017; Myeni and Moeletsi, 2020).
Climate change adaptation in Lupane district agriculture is a crucial issue due to the district’s vulnerability and low adaptive capacity (Ndlovu, 2021a). The agricultural sector which is the main livelihood for the majority of the population is left at risk
(Kibuka Sebitosi, 2021). Lupane smallholder farmers are faced with significant challenges from rising temperatures, erratic rainfall patterns and increased frequency and intensity of droughts (Mukungurutse et al., 2018; Mutume, 2023). Despite sustained efforts by various organisations in developing and disseminating climate mitigation strategies, climate adaptation remains low in sub-Saharan Africa (Akinyi et al., 2021b; Odikor, 2023). This has been majorly attributed to limited coordination amongst formal research institutions, non-governmental organisations (NGOs) and government entities. As a result, very little is known about smallholder farmers’ practices to adapt to climate change and climate variability. Understanding farmer strategies for climate adaptability is essential for public policy making. Such policy will promote both agricultural production and productivity, improving food security and rural livelihoods while mitigating the prevalence of poverty (Akinyi et al., 2021). Therefore, the overarching aim of this study is to investigate the strategies for climate change adaptability among smallholder farmers in the Lupane District, a predominantly rural and semiarid region in western Zimbabwe. In doing this, the study will serve to bridge the knowledge gap between smallholder farmer’s needs and public policy interventions that promote sustainability and food security.
3. Significance of the study
Climate change denotes an escalating global crisis, posing profound threats to the agricultural sector, food security and the livelihoods of communities globally (Akinyi et al., 2021b; Phiri et al., 2021; Toromade et al., 2024). Its manifestations, including floods,
droughts, severe winds and rising global temperatures, disrupt natural ecosystems, changing crop cycles, lessening resource efficiency and increasing the proliferation of pests and diseases (Nciizah et al., 2022). The African continent, in particular, stands as one of the most susceptible regions worldwide, characterised by pervasive poverty, constrained coping capacities and a highly unpredictable climate (Phiri et al., 2021). Projections indicate that climate change will exacerbate water scarcity, reduce yields from rain-fed agriculture, intensify food insecurity and lead to the expansion of arid and semiarid lands across the continent (Hlatshwayo and Mpundu, 2024). Furthermore, extreme weather events such as floods, droughts and tropical storms are anticipated to increase in both frequency and intensity (Gyimah and Gibba, 2020; Hlatshwayo and Mpundu, 2024; Nciizah et al., 2022).
Without substantial adaptation, yields from rain-fed agriculture in Zimbabwe could decline by as much as 50 percent by 2030 (Makaita et al., 2024). This situation highlights that climate change is not merely an environmental challenge but a profound developmental imperative, deeply intertwined with efforts to alleviate poverty and ensure livelihood security (Makaita et al., 2024; Phiri et al., 2021). The existing vulnerabilities of these communities are not new but are being worsened by the changing climate, pushing already fragile systems beyond their traditional coping thresholds. This demands proactive, planned adaptation informed by accurate, localised data, as historical coping mechanisms are proving insufficient for the
emergent climate conditions (Hlatshwayo and Mpundu, 2024; Nciizah et al., 2022).
While literature identifies various adaptation strategies eg, crop diversification, water harvesting, livelihood diversification, there is a notable absence of detailed research into the specific preferences of smallholder farmers for these strategies (Makaita et al., 2024). Existing studies tend to prescribe strategies which can be adopted by farmers without exploring why certain strategies are prioritised by farmers over others. The intricate factors shaping their choices beyond general observations like a preference for low cost and short-term benefits are not explored (Nciizah et al., 2022). The research catalogues adaptation strategies employed by smallholder farmers in the face of climate change disasters. This aids to bridge the gap between farmer’s conceptual agreement with adaptation measures and their actual adoption.
3.1 Sustainable development goals
This research directly promotes SDG 13: Climate Action by identifying preferred and economically viable adaptation strategies that are sustainable and widely adopted. It strengthens community resilience, reducing vulnerability to climate hazards by promoting proven and preferred approaches (Nyathi et al., 2022a). The study output provides actionable insights for policymakers to formulate and implement effective farmercentric climate response strategies that promote sustainability and food security in semi-arid regions. The study also aligns with SDG 2: Zero Hunger by focusing on how
smallholder farmers in Lupane, a semi-arid region, can adapt to climate change to secure their food supply. The research aligns with the key targets of SDG2. Target 2.3: Double the agricultural productivity and incomes of small-scale food producers (Anderson et al., 2022; Erin, Bamigboye and Oyewo, 2022). By exploring famer’s adaptation strategies, the study provides valuable insights for developing effective interventions by policy makers and development organisations in creating programmes that are high likely to be adopted by farmers. This leads to increased productivity and, consequently higher incomes for smallholder farmers. Target 2.4: Sustainable food production and resilient agriculture (Erin, Bamigboye and Oyewo, 2022; Guo et al., 2022). The study addresses this by investigating the strategies farmers use to adapt to climate change which is crucial for promoting resilient agricultural practices that can withstand environmental shocks like droughts and floods. This strengthens the smallholder famer’s capacity for adaptation to climate change and other natural disasters that progressively compromise land and soil quality.
4. Review of relevant literature
4.1
Empirical literature
Climate variability refers to temporary fluctuations of weather patterns that occur from year after year. It is characterised by seasonal changes in rainfall and temperatures of varying severity and length that has resulted in increased incidences of pest and diseases in both crops and livestock reducing agricultural productivity and production. Over the past years, the nation has been faced with hunger and malnutrition prevalences
and therefore compromising the availability of food for the fast growing population (Kimathi et al., 2022). As a result, the arid and semi-arid areas experience poverty and food insecurity. Increasing temperatures and frequent droughts have deteriorated the state of smallholder farmers who largely depend on rain-fed agriculture (Anugwa et al., 2022). These challenges pose the urgent need for adaptation strategies.
Adaptation, as defined by Akinyi et al. (2021) refers to the process of developing and implementing strategies to reduce the impact of climate variability. It is a comprehensive approach that involves adjusting farming practices, managing risks (economic, social, political, cultural and environmental) and ultimately reducing vulnerability. To counteract the effects of climate variability, numerous agricultural sectors are promoting climatesmart agriculture (CSA) as a key tool for coping with changing weather patterns. CSA encompasses a range of practices and technologies which include crop rotation, Agro-forestry, intercropping, maintenance of soil cover, minimum ploughing, conserving water, improved livestock management, climate resilient crop varieties and livestock breeds to adapt to future harsh conditions (Anugwa et al., 2022). Compared to traditional farming methods, CSA has been documented to lead to steadier and higher yields, resulting in more stable income for farmers and increased resilience in some areas. These practices are being adopted by various communities as a way to adapt and cope in the face of climate change and variability. As started by Anugwa et al. (2022), CSA can be described as a sustainable
approach to agriculture that boosts productivity, resilience and farm income.
4.2 Impact of Climate Change
and variability in agriculture
Climate change and variability pose a significant global challenge to agricultural productivity and food security affecting both global north and global south nations (Farooq et al., 2022). Rising temperatures, unpredictable rainfall patterns and recurring droughts have led to substantial losses in food production across different regions (Toromade et al., 2024). These climatic shifts disrupt traditional farming calendars, alter growing seasons and intensify the vulnerability of agricultural systems, particularly in regions heavily reliant on rain-fed agriculture. The consequences are farreaching, impacting crop yields, livestock health and the overall socio-economic stability of farming communities worldwide (Farooq et al., 2022). Recent studies show the widespread and diverse impacts of climate change on agriculture (Muluneh, 2021; Farooq et al., 2022; Hossain et al., 2022; Toromade et al., 2024). Increased frequency and intensity of extreme weather events that include floods and heatwaves, directly reduce crop yields and can lead to significant dilapidation of infrastructure in agricultural areas (Muluneh, 2021).
Extended dry spells contribute to soil degradation and desertification, which further diminishes arable land and water availability for irrigation (Nhemachena et al ., 2020). Contrariwise, excessive rainfall can cause waterlogging, nutrient leaching and increased commonness of pests and diseases, all of
which compromise agricultural productivity (Kogo, Kumar and Koech, 2021). The intricate relationship between climate variability and agricultural systems necessitates a comprehensive understanding of localised climate change impacts. Understanding that specific effects vary greatly depending on geographical location is very crucial for developing targeted interventions and adaptation strategies that would effectively mitigate the adverse effects of climate change on global food production.
4.3 Common strategies adopted by smallholder farmers to adapt to climate variabilities
Smallholder farmers throughout the world are constantly adopting diverse strategies to cope in the presence of adverse effects of climate change and variability, driven by their reliance on agriculture and vulnerability to climatic shocks (Thinda et al., 2020). These strategies often combine traditional knowledge with modern agricultural practices, reflecting localised needs and available resources (Etana et al., 2021). Common approaches include diversifying crop varieties to include drought-resistant or earlymaturing options, adjusting planting and harvesting times to align with altered rainfall patterns (Ngetich et al., 2022). Some smallholder farmers integrate crop production with livestock management to create more resilient farming systems (Ngetich et al., 2022). Additionally, a significant number of farmers implement improved water management techniques, such as rainwater harvesting and efficient irrigation methods, to guarantee water availability during dry spells (Addis and Abirdew, 2021).
Studies from several regions indicate that farmers are progressively engaging in practices like conservation agriculture (Myeni and Moeletsi, 2020). This includes minimum tillage, crop residue retention and crop rotation, to improve water retention and soil health (Nyberg et al., 2021). The use of improved seeds and organic fertilisers similarly contributes to building resilience against climate impacts. These practices not only enhance productivity but also contribute to environmental sustainability by reducing greenhouse gas emissions and conserving natural resources (Atube et al., 2021). Small-scale farmers are engaging in broader adaptative practices. They participate in farmer groups, sharing knowledge on climatic issues, they also diversify their income sources through offfarm activities and accessing climate information services to reduce their dependence on climate-sensitive agriculture (Myeni and Moeletsi, 2020; Asante, Guodaar and Arimiyaw, 2021; Atube et al., 2021). Access to extension services and credit facilities also plays
a vital role in enabling farmers to adopt new technologies and strategies, demonstrating that a multi-faceted approach encompassing both technical and socio-economic interventions is important for effective climate change adaptation among smallholders.
5. Methodology
The literature review process employed a rigorous and systematic methodology in selecting, evaluating and synthesising relevant research studies on climate change adaptation. The paper also identifies the main knowledge gaps through systematic literature review. A comprehensive search strategy was used to identify published literature from academic databases. Thematic analysis was then used to collate and organise empirical findings, identifying key adaptation strategies and their effectiveness.
Figure 1, provides an objective snapshot of the state of knowledge on climate change adaptation strategies. It illustrates the steps carried
out in developing the literature review of this study. Literature review was carried out, based on peer-reviewed research articles, published in the English language, during the period between 2020 and 2024 and referenced on the Scopus database. This literature review did not include other sources, even if technical reports, governmental publications and other documents may be important and recognised as valuable sources of information. This is to ensure the academic rigor, consistency and replicability of the findings of the study. The corresponding results were then screened through increasingly detailed analysis processes, until a final selection of the most representative articles was identified.
6. Findings
The findings from the literature reviewed highlight the practical and multifaceted strategies employed by smallholder farmers in Lupane District to manage the pervasive impacts of climate change and variability. These strategies, which range from agricultural practices to livelihood
Figure 1: Literature review process (Main steps)- (Loza and Veloso, 2023)
diversification, are a direct response to the recurring threats of drought and erratic rainfall.
6.1 Adaptation strategies in response to drought and rainfall variability
Smallholder farmers in Lupane have developed a series of on-farm strategies to cope with and adapt to the unpredictable nature of rainfall. When faced with periods of drought, farmers are found to adopt conservation farming methods, with a particular emphasis on the construction of contours to retain water during heavy rains (Ndlovu, 2021b).
A core agricultural adaptation is the shift towards droughttolerant crops and varieties, which are better suited to the semi-arid conditions of the region. Farmers commonly plant crops such as sorghum, millet, watermelon (amajodo) and cow peas. These are often planted late in the season, around January, in an effort to take advantage of the anticipated late rains (Mubaya, 2010). Furthermore, farmers are observed to diversify their crop portfolio by including sorghum and groundnuts and they also make use of early-maturing varieties from commercial seed producers like Pannar and SeedCo (Nyathi et al ., 2022b).
6.2 Diversification of livelihoods
Beyond crop management, farmers in Lupane actively engage in livelihood diversification as a critical strategy to enhance their resilience. When they anticipate a season with less water than normal, farmers shift their focus to alternative income streams and activities, including offfarm work and livestock rearing (Svodziwa, 2022).
The literature also reveals that farmers, particularly in the Daluka area, have embraced gardening as a common strategy. They cultivate horticultural crops by taking advantage of wetlands, which retain water for extended periods, allowing for year-round production (Khumalo and Sibanda, 2024). Other prevalent livelihood diversification strategies include livestock sales, renting out land and the sale of firewood (Mubaya, 2010). These diversification strategies become even more critical when farmers are hit with multiple stressors, a common occurrence in the region (Makuvaro et al ., 2017).
6.3 Food security and coping mechanisms
A key finding from the literature is the direct link between climate variability and a prevailing state of food insecurity among smallholder farmers. In response to regular episodes of food insecurity, households have been found to develop complex coping strategies. These are the immediate, short-term responses which farmers use to deal with a severe shock to prevent hunger like a severe drought or flood. They often involve risk management and consumption adjustments (Mubaya, 2010; Kunene, 2024). Some farmers tend to reduce the number of meals per day, attentively reducing the size of portions for adults to prioritise children (Kunene, 2024). Smallholders change their diets from preferred, nutrientrich foods like vegetables or animal products to cheaper, starchy staples like increased reliance on wild foods or maize meal to maximize calories over nutrition (Makuvaro et al., 2017; Khumalo and Sibanda, 2024).
These farmer’s livelihoods are highly vulnerable to production shocks but they have access to multiple coping strategies to manage these events (Ndlovu, 2021b). Addressing food insecurity requires shifting from the short-term coping mechanisms which often erode long-term resilience, to longterm adaptation strategies (Hlatshwayo and Mpundu, 2024). Therefore, there is a group of famers who adopt droughtresistant crops and short-season varieties of crops like sorghum, millet and certain legumes (Makuvaro, 2014). Additionally, famers Implement practices like water harvesting, improved soil moisture conservation techniques and better tilling practices (Makuvaro, 2014; Kunene, 2024).
7. Conclusions
The analysis presented in this paper confirms that climate change adaptation among smallholder farmers in semiarid regions of Zimbabwe is a complex challenge that requires a nuanced, multi-faceted response. The effectiveness of on-the-ground strategies such as crop diversification and improved water management is linked to the socio-economic and institutional environment that enables or constrains their adoption.
Evidence from Lupane District firmly establishes that Climate Change is the dominant and most critical stressor affecting smallholder livelihoods, compounded significantly by domestic economic and structural failures like hyperinflation, late input supply. Farmers in the region possess high awareness of these climatic changes, notably increased temperatures, extended heat seasons and erratic rainfall, underscoring the
local realization of a global challenge.
In response, the local strategy is shifting from short-term coping to proactive adaptation, primarily through the adoption of ClimateSmart Agriculture (CSA) practices such as conservation farming (intercropping), small grain production and water harvesting.
However, the transition to full adaptive capacity is severely constrained by two fundamental barriers: a chronic lack of access to financial credit and persistent gaps in information and awareness. Until these constraints are addressed, a substantial portion of the community will continue to rely on unsustainable, highrisk coping mechanisms like withdrawing children from school and dependence on external food aid, effectively locking them into a cycle of vulnerability. Lupane's experience highlights that successful adaptation is not merely a technological challenge but a socio-economic and institutional one.
8. Recommendations and policy implications
Addressing the structural and financial barriers faced by smallholder farmers in Lupane requires a coordinated approach that combines practical, on-the-ground interventions with supportive national policy reforms. The following section integrates recommendations with their corresponding policy implications, aiming to transition farmers from shortterm coping to sustainable, long-term adaptation.
8.1 Financial empowerment and market stability
To directly tackle the primary constraints of limited access
to finance and unstable agricultural markets, action must be taken on both the local and national levels.
Recommendation: Local financial institutions and NGOs should design specialised, flexible micro-credit and microinsurance products targeted specifically at smallholder farmers. These facilities should cover the high initial costs associated with CSA techniques, such as purchasing water-harvesting materials or conservation farming equipment. Furthermore, to overcome late market input supply and inflation, implement a voucher system that is redeemable for CSA-specific inputs (like, drought-tolerant small grain seeds, fertilisers for conservation agriculture) at the critical onset of the planting season.
Policy implication: Regulatory bodies, such as the Reserve Bank of Zimbabwe, should create incentives for commercial and microfinance banks to treat climate adaptation technologies as collateral-free, highpriority investments, thereby lowering the capital barriers for smallholders (financial Inclusion policy). Concurrently, national policy must focus on stabilising the input market and controlling inflationary pressures that dismantle household savings. Government and agricultural stakeholders must address the root causes of late supply and unavailability of agricultural inputs to reduce reliance on inefficient supply chains, moving beyond simply controlling inflation to ensuring predictable market functionality.
8.2 Strengthening extension, information and capacity building Bridging the knowledge gap
requires a targeted and efficient revamp of agricultural extension services and information delivery.
Recommendation: There is a need for extension workers to move beyond generic awareness campaigns to deliver intensive, on-site training focusing on the practical application of the most successful local strategies, intercropping and water harvesting. Concurrently, enhance collaboration between meteorological services and local mobile network operators to provide timely, localised and easily understandable weather forecasts to farmers via SMS or a dedicated application, enabling them to make timely decisions on planting and soil management. Given the findings, extension efforts must deliberately target older and male-headed households to ensure the benefits of adaptation strategies are integrated across all community demographics.
Policy implication: The Ministry of Agriculture should formally recognise and explicitly fund the widespread adoption of the identified local CSA practices (Conservation Agriculture, small grains, water harvesting) within national agricultural policy documents, tying this directly to SDG 2 (Zero Hunger) and SDG 13 (Climate Action) targets (Climate and Agricultural Policy Alignment). The government should also establish national protocols that ensure meteorological data is translated into actionable, local-language advisories and disseminated free of charge to smallholder farmers.
8.3 Institutional support and transformative social protection Addressing institutional failures and integrating social welfare
with climate resilience building is essential for long-term viability.
Recommendation: There is a need for prioritizing investment in the maintenance of rural infrastructure, particularly roads and bridges, to reduce transaction costs for farmers and improve the delivery of aid and inputs. This physical investment supports the reliability of all other market and information interventions.
Policy implication: Social protection programmes should
be shifted from solely offering food relief to implementing conditional cash transfers (CCTs). These transfers would be conditional on households investing in proven adaptive assets, which include, constructing a water harvesting trench or enrolling children in school, thereby addressing both poverty (SDG 1) and long-term resilience- social protection policy. Furthermore, to empower local climate action, decentralise decisionmaking and funding for climate adaptation to the Lupane
Rural District Council and local traditional authorities. This ensures that adaptation funds are directed toward the most locally accepted and proven strategies, such as the community-led water harvesting initiatives already being practiced (decentralisation and local governance). Policy must also implement measures to discourage the use of education withdrawal as a coping strategy, such as school feeding programmes or temporary fee waivers during declared drought periods.
About the authors
Ms Primrose Moyo
Durban University of Technology
Email: primmoyo12@gmail.com
Ms Primrose Moyo is an accomplished academic and researcher currently pursuing a PhD in Management Sciences-Disaster Risk with Durban University of Technology (DUT). She holds a Master's degree in Agricultural and Applied Economics. Her professional history includes extensive experience as a lecturer, six years of experience in household surveys and econometric analysis, with a particular focus on climate change adaptation and development economics. She has a strong publication record and a demonstrated ability to lead and facilitate. Primrose also volunteers as the Zimbabwe representative for the Global Youth Agri Tech Network (GYANT) Foundation, a UK-based initiative promoting agricultural innovation.
Dr Mal Reddy
Durban University of Technology (DUT)
Email: reddy@dut.ac.za
Dr Mal Reddy is a Senior Academic and Associate Director in the Department of Public Management and Economics at the Durban University of Technology. With extensive experience in her field, Dr. Reddy plays a pivotal role in representing the university across various national, provincial and local government platforms. Her academic and professional expertise spans Disaster and Risk Management, Public Management and Leadership, Local Government and Development Management. She has made significant contributions to public sector training and development, underscoring her dedication to capacity building, the promotion of good governance and the advancement of transformative practices within society.
WESTERN CAPE DISASTER MANAGEMENT CENTRE
ROLLS OUT DISASTER MANAGEMENT LEARNING PROGRAMME
The Western Cape Disaster Management Centre is rolling out a Disaster Management Learning Programme aimed at capacitating municipal officials in all aspects of Disaster Management. This three-year project to develop and facilitate a capacity building project is in its second year. This Disaster Management Learning Programme comprises of 16 short courses designed to educate the officials on both the theory of Disaster Management and provide practical tools to be able to implement the lessons that they have learnt.
The Learning Programme was designed with the cost constraints facing municipalities in mind. All theory is completed via e-Learning allowing the officials to work through the content at their own pace over a three-week period. Only where necessary, attendees are required to attend in person training where concepts need to be practically taught such as Multi-Agency Coordination, Risk Assessments and Geographic Information System (GIS).
The short courses include:
• Introduction to Disaster Management (completed)
• Disaster Management Legislation and Policies (completed)
• Strategic Disaster Management (completed)
• Institutional Capacity (completed)
• Education, Training and Awareness (completed)
• Early Warnings (completed)
• Coordination of Multi-sectoral
Entities (completed)
• Geographic Information System (GIS)
• Disaster Risk Assessment
• Disaster Risk Reduction Planning
• Preparedness planning
• Response Plans
• Relief, Rehabilitation and Recovery
• Event Safety
• Media Relations and Communications
• Simulation Planning
209 municipal officials registered to enrol in the various short courses with 151 officials completing the compulsory Introduction to Disaster Management course. The courses will run until March 2027.
NAVIGATING COMPLEXITY: THE 2025 WESTERN CAPE PROVINCIAL RISK PROFILE 2025 REVIEW
By Awongiwe Mabutyana, Western Cape Disaster Management Centre
The Western Cape Province is no stranger to disasters. From crippling droughts and devastating wildfires to the socioeconomic shocks of the COVID-19 pandemic, the province’s risk landscape reflects the growing volatility of a climate-stressed and highly unequal society. Against this backdrop, the Western Cape has undertaken an initiative to reassess its disaster risk environment.
The 2025 Western Cape Provincial Risk Profile (WCPRP) represents the secondgeneration review of the provincial risk assessment. It builds on the 2019 baseline profile but advances it by focusing on hazard prioritisation, integrating climate change projections and
applying a stronger focus on systemic vulnerabilities.
At the time of submission of this article, the 2025 WCPRP remains in draft form and is undergoing a provincial commenting period prior to its finalisation. This process is essential to ensure that the findings are technically robust, locally relevant and widely supported by stakeholders across government, civil society and the private sector.
The review and update of the WCPRP was commissioned in alignment with the Disaster Management Act (No. 57 of 2002), the National Disaster Management Framework (2005) as well as the Western Cape Provincial Disaster Management Framework (2010: under review). It applies
the Western Cape Standardised Risk Assessment Methodology (WC: SRAM), which combines qualitative and quantitative approaches to assess risk.
The methodology drew on available spatial data, historical incident data, municipal-level risk registers, and climate change projections, complemented by extensive stakeholder engagement at both municipal and sectoral levels. A multicriteria analysis framework guided the prioritisation of hazards, assessing them in terms of probability, severity, systemic disruption and sensitivity to climate change. The process included validation through technical peer review and iterative consultation with municipal and provincial stakeholders. This dual approach ensured both scientific rigor and policy legitimacy, aligning the profile with real-world experiences of risk.
The assessment highlights three interlinked drivers that intensify disaster risk in the province: climate change, rapid urbanisation and socioeconomic inequality. Projections indicate that the Western Cape will become significantly warmer and drier by 2050, with the western regions experiencing drought as frequently as six years per decade.
More intense wildfires, heatwaves and coastal flooding
Stakeholder engagement
due to sea-level rise pose escalating risks to agriculture, biodiversity, infrastructure, and public health. At the same time, urban expansion and the proliferation of informal settlements, concentrated largely in the Cape Flats, increase exposure to hazards such as flooding, fires and disease outbreaks. Limited access to emergency services compounds these vulnerabilities.
Socio-economic inequality remains an underlying driver, reducing adaptive capacity and resilience. Despite being one of the most economically active provinces in South Africa, the Western Cape still has elevated unemployment rates (up to 28.6 percent in some urban areas) and poverty headcounts exceeding 60 percent in some districts. These disparities magnify the impacts of disasters, particularly in informal and peri-urban settlements.
The 2025 review of the WCPRP reaffirms the prominence of climate-related hazards, with droughts, floods, wildfires and coastal storms emerging as the top-priority risks. Hydrometeorological hazards dominate the provincial risk landscape, with over 12 000 wildfire incidents recorded in 2024 and increasingly severe urban, coastal and riverine flooding. Heatwaves and droughts remain particularly acute in the Cape Winelands and West Coast Districts.
Biological and health hazards are also of increasing concern. The province continues to grapple with high-priority animal diseases such as Foot and Mouth Disease, Avian Influenza, Rabies, and African Swine Fever. The 2024–2025 rabies outbreak in Cape Fur Seals
marked a novel zoonotic threat with implications for coastal communities and tourism. On the human health front, the legacy of COVID-19 and the rise of non-communicable diseases underscore the importance of integrated health surveillance, especially for vulnerable groups such as the elderly, children, and informal settlement residents.
Technological hazards extend beyond traditional concerns. Electricity disruptions, including the cost of load shedding estimated at R12.8 billion in 2023, highlight the fragility of critical infrastructure. Risks associated with petrochemical transport and nuclear facilities such as Koeberg remain pressing. Importantly, the 2025 WCPRP identifies emerging cyber-attacks as a growing threat to critical infrastructure and public services. Vulnerabilities in municipal systems, healthcare networks and energy grids (exacerbated by outdated software, limited cybersecurity capacity and increasing reliance on digital platforms) create opportunities for disruption. The report warns of ransomware, data breaches and coordinated cyber intrusions targeting government and service delivery systems, emphasising the urgent need for robust cyber resilience strategies, interdepartmental coordination and investment in secure digital infrastructure.
Social hazards, particularly civil unrest linked to service delivery challenges, housing and education, persist as destabilising risks with cascading impacts on governance and development.
Institutionally, the Western Cape benefits from relatively
strong governance structures, anchored by the Provincial Disaster Management Centre, district and municipal Disaster Management Centres, advisory forums and Heads of Centres networks. These platforms enable coordination across scales but also face challenges. Data sharing, integration between health and disaster systems and cross-sectoral coordination remain uneven. The COVID-19 pandemic revealed the need for more agile, integrated systems capable of addressing compound risks.
The WCPRP positions itself not only as an assessment but as a strategic framework for action. Key priorities include strengthening early warning systems, enhancing ecological infrastructure such as wetlands and catchments, expanding public health surveillance, investing in renewable energy and smart mobility and embedding inclusive urban planning practices. These measures reflect the shift from reactive disaster response to proactive risk reduction, aligning provincial strategy with the Sendai Framework for Disaster Risk Reduction (2015–2030).
Ultimately, the WCPRP is more than a technical document. It is a blueprint for collaborative action in a context of compounding risks. By highlighting the interplay between climate, socioeconomic and technological drivers, it equips decisionmakers with the tools to target resources where they are most needed. As climate change accelerates and inequalities deepen, the Western Cape’s proactive approach provides a model for other regions grappling with complex disaster risk landscapes.
VHEMBE DISTRICT MUNICIPALITY ACTIVITIES
By DMISA Exco Member: Ms Tshilidzi Nthambeleni, Limpopo Regional Chairperson
Public awareness programmes
Historically, disaster management has primarily focused on the immediate response to disasters, addressing the urgent needs that arise during these events. However, in recent years, there has been a significant shift towards disaster risk reduction, with a strong focus on enhancing public awareness and preparedness. In light of this evolving approach, the Vhembe District Municipality Disaster Management
Centre has developed public awareness programmes to educate communities on various critical issues related to disaster management. These programmes cover essential topics such as fire prevention, emergency medical services, electricity safety, social crime prevention, environmental health, pollution, flood and thunderstorm disaster risk reduction. The importance of these programmes cannot be overstated, as they play a vital
role in helping communities become more resilient and capable of effectively responding to potential emergencies and disasters. Each public awareness session comprises informative presentations, interactive discussions and potentially hands-on activities designed to engage children, youth and adults in enhancing their understanding of disaster risk reduction issues. The success of these initiatives was bolstered by strong partnerships with various stakeholders, including local municipalities, fire and rescue services, environmental health departments, the South African Police Service (SAPS) and the Vhembe Biosphere, all of which work collaboratively to create safer and more informed communities.
Simulation exercises
The significance of conducting emergency simulation exercises cannot be overstated, especially in the context of South Africa's diverse and often challenging environment. The Occupational Health and Safety Act (OHS Act 85 of 1993) requires all
District Awareness Campaign held at Makuya Sports ground on 23 May 2025 attended by Traditional Leaders
Disaster management official teaching crèche learners at Growing up Community crèche during an awareness campaign
businesses, public sector entities and organisations to conduct emergency simulations to prepare proactively for emergencies and disasters. This legal obligation not only aims to protect employees and the public but also to minimise damage to property and infrastructure. Failure to comply with this Act can lead to severe consequences, including hefty fines, legal liabilities and, most critically, the potential loss of life during emergencies. Recognising the urgency of this issue, the Vhembe District Municipality takes the initiative to conduct emergency simulation exercises periodically. These exercises are designed to assess and enhance the preparedness of various stakeholders, including local government officials, SAPS, Traffic management, emergency responders and community members. By simulating real-life scenarios, these exercises provide valuable training opportunities, allowing participants to practice coordination, communication, and decision-making under pressure. Ultimately, these efforts aim to foster a culture of safety and readiness within the community, ensuring that all individuals are equipped to respond effectively in the face of actual emergencies or disasters.
Vhembe District Municipality
2025 commemoration of the International Day for Disaster Risk Reduction
Vhembe District Municipality commemorated the International Day for Disaster Risk Reduction on 25 September 2025. Countries around the globe are increasingly grappling with a surge in disasters. This trend can be attributed to a combination of rising extreme weather events and development choices that lack
Awareness campaign for Grade R to Grade 3 learners at Little Flower Learning Centre
A group photo of stakeholders and learners at University of Venda Model preschool
Davhana Traditional Council awareness campaign
an understanding of associated disaster risks. This oversight heightens the vulnerability of both people and economic assets, exposing them to a diverse array of hazards. The financial toll of these disasters is escalating dramatically, placing a significant burden on developing nations, which often have smaller, more fragile economies. In contrast, while developed countries may face disasters that result in higher monetary losses in absolute terms, it is developing nations
that experience the most severe societal impacts. Compounding this crisis is the worrisome fact that investments in disaster risk reduction (DRR) have not kept pace with the growing risks posed by disasters. This discrepancy was highlighted as a critical finding in the Midterm Review of the Sendai Framework for Disaster Risk Reduction. Consequently, many countries find themselves ill-equipped to mitigate the devastating consequences of disasters, facing challenges that
undermine their resilience and recovery efforts.
Vhembe District Disaster Management Easter Season Operation awareness campaign The Executive Mayor of Vhembe District Municipality launched Easter Road Safety Awareness Campaign on the 15 April 2025 at Maila Sports Ground under Ward 18 and 19 at Makhado Local Municipality. The awareness campaign addressed matters related to overspeeding, drinking and driving, texting
Crowd gathered at the assembly point during a simulation exercise at Tshakhuma Mall
A firefighter addressing the crowd at the assembly point at Madombidzha Mall during a simulation exercise
through cell phones while driving, stray animals, which always lead to accidents.
Structures such as Traditional Leaders, Traditional Healers, CONTRALESA, SANCO, structures falling under special programmes, livestock farmers, bus and taxi councils, Sector Departments, Road Agency Limpopo, SANRAL, Ha Nthabalala Traditional Council, Emergency Medical Services, South African Police, Correctional Services, Disaster
management officials, Fire and Rescue Services and various community structures.
Limpopo Provincial Disaster Risk Reduction Seminar Vhembe District Municipality experiences weather related hazards such as floods, thunderstorms, severe tropical storms, rampant veld fires, heatwaves, disease outbreak and land degradation. The aftermath of such disasters leads to disruption of service delivery in the district.
Vhembe District Municipality in collaboration with DMISA and SALGA hosted the Provincial Disaster Risk Reduction Seminar from 12 to 13 June 2025 at Nandoni Riverview. The seminar was hosted under the theme: “Empowering young generation for a resilient future”.
About 30 UNIVEN fourth year students studying towards Disaster Management qualification were part of attendees where they also given opportunity to take part in presenting.
2025 Easter Operations Awareness Campaign at Maila Sports Ground on 15 April 2025
A group photo of stakeholders who participated in the commemoration of the International Day of Disaster Risk Reduction
RETIRED DISASTER MANAGEMENT
OFFICIALS REUNITE AT COFFEE DATE, CAPE TOWN
Cape Town Disaster Management and DMISA Western Cape organised a small Veterans’ coffee date with retired Disaster Management officials on 23 May 2025. The event was held at the Cape Town Disaster Operations Centre.
A number of the Disaster Management officials attended including Mark Pluke, Peter Daniels, Greg Pillay, John Brown, Billy Keeves, Schalk Carstens, Franz Schlaphoff, Johan Minnie, Elizabeth Adonis, Suretha Visser, Dot
Mann, Mickey Snyman and Deserea Bruintjies.
“It was great to see everyone again and recall all the adventures of the past,” said Dr Johan Minnie.
Back: Mark Pluke, Peter Daniels, Greg Pillay, John Brown, Billy Keeves, Schalk Carstens, Franz Schlaphoff, Johan Minnie (DMISA EXCO, Cape Town Disaster Management) Front: Elizabeth Adonis, Suretha Visser, Dot Mann, Mickey Snyman (ex SANDF)
Johan Minnie with Greg Pillay and Franz Schlaphoff
Elizabeth Adonis, Mark Pluke, Suretha Visser, Greg Pillay, Peter Daniels
Franz Schlaphoff, Schalk Carstens and Billy Keeves at the scale model Billy procured many years ago.
Deserea Bruintjies, Elizabeth Adonis, Charlotte Powell (Cape Town DRMC), Suretha Visser (previous DMISA Western Cape chair, Cape Town Public Emergency Communications Centre)
THE MISSING LINK IN SOUTH AFRICA’S DISASTER RISK MANAGEMENT OPERATIONS:
THE MUNICIPAL DISASTER COMMUNICATION SUB-CENTRES
By Dr Niel Rooi, City of Johannesburg
In preparation for writing this article, I came across various recent media-reported events from the last two years that featured municipal disaster information management and communication failures. If these failures had been handled differently based on the preliminary analysis, they potentially could have yielded different results or outcomes.
Ultimately, I deliberately chose not to introduce those findings as reported through media sources, as a critical prerequisite of disaster information management and communication’s value chain is reliable and verifiable data sources. My decision was also based on the consciousness that social media is often flooded with misinformation and official updates from the affected municipalities during
the same period lagged behind the pace of the crisis.
However, what was evident from the findings is that across South Africa, municipalities are grappling with the consequences of fragmented disaster information management and communication systems. And yet, the solution may lie in a legislative mandate that has been in place for over two decades. Sections 16 and 17 of the Disaster Management Act 57 of 2002, as amended in 2016 (DMA 2002), its implementation roadmap set by the National Disaster Risk Management Policy Framework 2005, as reviewed in 2023 (NDRMPF 2005), and amplification by the Sendai Framework for Disaster Risk Reduction 2015-2030 (SFDRR 2015-2030).
What the South African law already requires (PIC 2)
Sections 16 and 17 must be read with Sections 32(1) (a-b), 44(1)(c) and 46(1)(ab) and the requirements of Enabler 1 in the NDRMPF 2005. Section 16 of the DMA 2002 mandates that every sphere of government establish communication links with disaster stakeholders and intergovernmental roleplayers to ensure an integrated and coordinated disaster management policy and implementation. In addition,
all disaster centres must act as interlinking repositories of and conduits for information concerning disasters.
Section 17 outlines the functions of these centres, including the requirement that they must be able to collect information on all aspects of disasters and disaster management, source data and analyse it, and take steps to disseminate such information, especially to vulnerable communities. Key to the above institutionalisation is the missing link, the disaster communication sub-centre as envisaged in the South African Disaster Risk Management Handbook Series, Handbook 2: Establishing Foundational Institutional Arrangements for Disaster Risk Management, which states that: “The Central [Disaster] Communications Centre serves a crucial purpose. It is the heart of the disaster risk management centre, as all incoming and outgoing information and communication are channelled and recorded by it. It must be suitably equipped to serve its purpose” (p. 21):
In theory, these legal provisions should guarantee that every municipality and province is equipped to manage disaster information and communication effectively. However, in practice, many centres are under-resourced, understaffed or non-functional1/2/3
Disaster communication sub-centres as value-drivers and not value-adders
Able to localise communication
Can provide real-time updates
Enhance stakeholder and intergovernmental relations
Build public trust and compliance
Disaster communication subcentres: the missing link
A disaster communication sub-centre is a dedicated unit within the municipal disaster management centre structure, focused solely on information flow, data sourcing, records management and building stakeholder and intergovernmental relations. Information management and communication is a specialised function key to disaster governance (Key Performance Area 1) and the operational function (Key Performance Areas 2-4) and is more than just a value-adding function; it’s a value-driver4, essential for enhancing public trust, transparency, accountability and building disaster knowledge and wisdom5
What the world is doing right, according to the WHO6
The World Health Organisation (WHO) Emergency Medical Teams Coordination Cell recorded its information management and communication practices during different major disasters. This analysis focuses on Cyclone Idai (2019), the Moldova Refugee Crisis (2022), the Türkiye Earthquake (2023) and the
Communication sub-centres can tailor messages to specific communities, using local languages and socio-economic and culturally appropriate formats.
When equipped with digital dashboards, SMS alert systems and social media integration, disaster communication sub-centres can disseminate information instantly.
The disaster communication sub-centre serves as a key liaison point between various stakeholders and intergovernmental sectors, and is crucial in identifying, analysing and categorising stakeholders to develop strategies that influence, update or engage them.
A disaster communication sub-centre in a municipality that enables real-time alerts and messaging during major incidents is a valuedriver. It enhances public trust, reduces risk and fulfils its legislative mandates, directly contributing to resilience and service excellence.
Palestinian humanitarian crisis (2024). The section summarises key findings and outlines key insights to provide practical and scalable recommendations for South Africa to enhance the capacity of its municipal disaster communication sub-centres.
1. Establish unified and automated disaster information management systems
In Mozambique during Cyclone Idai, fragmented data collection and poor real-time updates severely hampered coordination. The lack of an automated and interoperable platform led to duplication and delays. This underscores the known reality that South African disaster management centres should invest in disaster communication sub-centres
to, in turn, develop centralised digital platforms that integrate data from various departments or sectors, build knowledge and enable real-time situational awareness and decision-making in municipalities.
2. Standardise data collection protocols
The Moldova refugee crisis revealed the importance of pre-registration systems and standardised data formats. The use of the WHO Minimum Data
Set (MDS) allowed for consistent reporting across multiple teams. Disaster Communication sub-centres should adopt standardised templates and protocols for data collection and reporting, ensuring interoperability/connectedness across departments and with provincial and national systems.
3. Prioritise real-time communication infrastructure
During the Türkiye earthquake, although data tools were used effectively, the absence of robust real-time communication systems and limited data from the domestic emergency management team hindered responsiveness. This experience re-emphasises that South African disaster communication centres should ensure redundant, multi-channel communication systems eg, social media, radio and SMS, are in place and tested regularly.
4. Enhance multi-stakeholder coordination
All four case studies highlighted the challenge of effectively coordinating multi-national or multi-agency teams. Türkiye and Moldova demonstrated the need for regular coordination meetings, shared dashboards and clear role definitions. South African disaster management centres should formalise inter-agency coordination protocols, including scheduled briefings and shared access to communication platforms that could translate briefing notes into different languages.
5. Secure and contextsensitive information sharing The Palestine humanitarian crisis underscored the need for secure, confidential, and context-sensitive information sharing, especially in politically sensitive or highsecurity environments. Disaster communication sub-centres, as part of ICT security protocols, must implement data and records protection protocols and train their records and communication officers in the ethical handling of information, particularly when dealing with vulnerable populations.
6. Build local capacity and redundancy
Across all events, the need for
trained and specialised local information management and communication personnel, as well as backup systems, was evident. South Africa, based on these lessons, should prioritise capacity building, including training in information management, crisis communication and digital tools, while ensuring redundancy in staffing and systems to maintain business continuity during prolonged incidents.
Lastly, by adopting or adapting these WHO-informed practices, South African municipal disaster communication centres can significantly enhance their capacity to manage crises, foster public trust and fulfil the mandates of the DMA 2002 and the NDRMPF 2005.
Conclusion: a matter of hope Despite having a robust legislative framework, South Africa has yet to institutionalise the disaster communication sub-centres as standard practice. The NDRMPF 2015-2030 calls for an integrated information management and communication system; however, nearly 20 years in, its implementation among disaster management centres across all spheres of government is uneven.
Disaster information management and communication are not a luxury; they are a lifeline. In a country as diverse and disaster-prone as South Africa, the establishment of municipal disaster communication subcentres is not just a policy imperative; it’s a moral one. It provides hope of well-being.
Sections 16 and 17 of the DMA 2002 provide the legal foundation for this hope. In addition, international best practices illustrate that there is hope, as well as the consequences of both action and inaction, for what, in some of the findings, is already known to South Africa.
Now, it’s up to South Africa’s Disaster Management Centres to build the necessary infrastructure and employ suitably qualified personnel at the Disaster Communication Sub-centres to attain the legislative disaster information management and communication vision, give hope that they are ready and earn the trust of the communities they serve.
Because in the face of a disaster, information and communication could save lives.
References
1 Van Niekerk, D. 2014. A critical analysis of the South African Disaster Management Act and Policy Framework. Disasters, 38(4), pp. 860–877
2 Kunguma, O. 2020. South African Disaster Management Framework: Assessing the Status and Dynamics of Establishing Information Management and Communication Systems in Provinces. University of the Free State
3 Kunguma, O. 2022. A South African disaster legislative perspective of information management and communication systems. South African Journal of Information Management, 24(1), pp. 3–8.
4 L.E.K. Consulting. (2023). Identifying and Managing Key Value Drivers. Executive Insights, Vol. XIX, Issue 36.
5 Bratianu, C. and Bejinaru, R., 2023. From knowledge to wisdom: Looking beyond the knowledge hierarchy. Knowledge, 3(2), pp.196-214.
6 Toyokuni, Y., Kubo, T., Habano, Y., Oba, J., Nakamori, T., Natsukawa, T. and Igarashi, Y., 2025. Comparative Analysis of Information Management Practices by WHO EMTCC During Major Disasters: Cyclone Idai (2019), Moldova Refugee Crisis (2022), Türkiye Earthquake (2023), and Palestine Humanitarian Crisis (2024). London: Cambridge University Press.
TECHNOLOGY UPGRADE TO THE WESTERN CAPE DISASTER MANAGEMENT CENTRE
By Lavenia Nicholson, Western Cape Disaster Management Centre
The Western Cape Disaster Management Centre (WC: PDMC) is proud to announce the successful completion of its upgraded audio-visual system.
The project was first planned in 2020, but its implementation was delayed due to the COVID-19 pandemic. It was revived during the 2022/23 financial year, and
following a competitive tender process, a service provider was appointed in March 2025. The Centre for E-Innovation, based in the Department of the Premier, provided essential technical expertise in developing the specialised specifications required for this project. The previous audio-visual system, originally installed in 2010, has now been fully replaced.
The R10.7 million contract covers the decommissioning of the old system, installation of new equipment, user training and a three-year maintenance and support plan demonstrating the province’s ongoing commitment to strengthening disaster management capabilities.
Key upgrades include:
• Enhanced video wall: Larger in size with significantly improved feed quality.
• Wireless presentations and casting: The decision-making room now allows easy accessibility from anywhere in the room.
• Upgraded sound system: Ceiling-mounted speakers, integrated with the microphone system, deliver clearer sound in challenging acoustic environments, featuring an added recording function. In addition, two lapel microphones are connected wirelessly to the sound system, ensuring the venue is conducive for training purposes. Additionally, a 360-degree standalone camera for Digi conferences.
• Interactive media room: Installation of a Clevertouch interactive whiteboard that functions as a fully internetconnected computer.
• This upgrade ensures that the Centre is equipped with state-of-the-art tools to support effective coordination and decision-making during disaster response operations.
Installation in progress
A CONSEQUENCE MANAGEMENT APPROACH TO DISASTER MANAGEMENT: TRAINING, EXERCISES AND DRILLS
By Dr Johan Minnie PrDM and Schalk Carstens PrDM
PART 12
This article is the twelfth article within this series of articles on consequence management.
In the previous article, Part 11, we discussed incident site layout - what to think about when setting up an incident scene in terms of control of the site, effective intervention and coordination.
In this article, Part 12, we take a look at training, exercises and drills because in order to know and understand what must be done when it must be done, training and exercises and drills are essential.
The next article, Part 13, will move on to document control.
The function and importance of training, exercises and drills This effectively deals with the emergency incident consequences of the interaction between hazards, vulnerability and capacity/resilience.
Training
Training provides a foundation for effective functioning in emergency incident management. Training will provide an understanding of the theory and practice of emergency response management in general as
well as specific roles and responsibilities.
Training to support consequence management should include an understanding of emergency management principles, an overview of different incident management systems and case studies that reflect on lessons learned regarding response management. The content of this series of articles and the topics covered in each article will of course also provide content for training on this subject.
The need for interoperability, all-hazard response principles
and multi-agency coordination should also be addressed.
Exercises
Exercises can be considered part of training, and importantly it provides experience in expected roles, responsibilities, conditions and challenges of a specific position. Exercises can range from table-top exercises where the response group only talks through the implementation of emergency response management, to partial deployment, to a full real-life and real-time simulation of an emergency situation with the full required activation and deployment of resources. Exercises also provide opportunity to test plans and procedures and make adjustments based on experience.
The United States Federal Emergency Management Agency (FEMA) differentiates between discussion-based exercises and operations-based exercises.
Discussion-based exercises include:
• Seminars: Low-cost, informational sessions that introduce participants to plans, policies and procedures through lectures and discussions.
• Workshops: Interactive sessions where participants collaborate to develop new or updated plans, policies or procedures.
• Table top exercises: Facilitated discussions in an informal setting to walk through a scenario, identify strengths and refine operational plans.
• Games: Competitive or non-competitive simulations designed to reinforce training, build teams or enhance capabilities through clear rules and data.
Operations-based exercises include:
• Drills: Supervised activities that test a single, specific operation or function, like a particular equipment test or a new procedure validation.
• Functional exercises: Evaluate and assess multiple capabilities and functions in a simulated, real-time environment. Movement of resources and personnel is typically simulated.
• Full-scale exercises: The most complex and resourceintensive type. They involve the real-time, physical deployment of personnel and
resources across multiple agencies and jurisdictions to mirror a real incident response as closely as possible.
It is important to recognise that no exercise can be done without planning and preparation and that the planning horizon for a major exercise can be several months. It is also important to note that a proper debrief is necessary after each exercise to make sure that learnings are noted and actioned.
The United Kingdom
Joint Emergency Services Interoperability Principles (JESIP) programme recognises that
attendance at exercises, which offer the opportunity to apply the knowledge and skills required to undertake a key role or function is an essential part of developing commanders, responders and control room staff.
JESIP materials suggest that exercises planners should ensure that specific interoperability objectives are included in their multiagency exercises and to assist organisations, an Exercise Assurance Framework was developed to help with the planning of a one day multiagency live play exercise allowing multiple staff to take part. Other forms and templates which may be useful include umpire evaluation sheets and multi-agency debrief templates. It can also be useful for organisations to share their exercise scenarios with others.
Drills
In an emergency situation, knowing exactly what to do and how to do it in response to a rapidly changing situation and environment without much time for the consideration of options is important, therefore the development, use and drilling of pre-modelled response that apply in different situations is important.
Examples of this can be drilling an evacuation procedure, which results in rapid response not requiring thought when the situation requiring evacuation arises. Other examples would be the drilling of using mnemonics such as METHANE for reporting initial assessments (addressed elsewhere in this article series), or principles of first actions when arriving on scene or at an incident command post or when briefing at hand-over. The use of forms and templates and standard operating procedures
can be drilled as well as proper use of equipment, vehicles, plant and equipment, vehicles and facilities. Once a specific action has been drilled enough, it becomes part of ‘muscle memory’, which in turn enables rapid and effective response.
Conclusion
Training, exercises and drills support effective on-scene consequence management. The leadership of all responders must ensure the proper training, exercising and drilling of the known incident response roles and responsibilities of their staff to ensure their effective functioning in protect life, property and the environment.
In this article we covered training, exercises and drills and this concludes this twelfth article in this series of articles about the wider consequence management practice.
In the next article, part thirteen, we will be moving on to document control, a key requirement for effective consequence management.
KZN COGTA AND DBSA FORGE STRATEGIC PARTNERSHIP TO BOLSTER DISASTER MANAGEMENT
In a landmark move to enhance provincial resilience against natural disasters, the KwaZulu-Natal Department of Cooperative Governance and Traditional Affairs (KZN COGTA) and the Development Bank of Southern Africa (DBSA) signed a Memorandum of Agreement (MOA) on 16 September 2025. This strategic partnership formalises a collaborative effort to fund, develop and implement a comprehensive, multi-year disaster management enhancement programme across the province.
The agreement was officially signed by the KZN MEC for Cooperative Governance and Traditional Affairs and Mr Chuene Ramphele, group executive for the Infrastructure Delivery Division at the DBSA, at a ceremony held in Durban.
The MEC for COGTA hailed the agreement as a pivotal moment for the province. “This partnership with the DBSA is a gamechanger. It combines our on-theground expertise and legislative mandate with the DBSA’s immense technical capacity and financial acumen. Together, we are building a robust shield of preparedness and resilience for the people of KwaZulu-Natal, ensuring that our response to future climate shocks is swift, effective and sustainable.”
Echoing this sentiment, Mr Chuene Ramphele remarked, “As a development finance institution, our mandate is to support the development
of sustainable and climateresilient infrastructure. This MOA with KZN COGTA is a direct investment in the safety and economic stability of the province. We are committed to providing the necessary technical and financial support to ensure this programme’s success, creating a model of disaster resilience that can be replicated across the continent.”
The MOA outlines a clear framework for cooperation, focusing on the following critical areas:
Key focus areas of the KZN COGTA-DBSA Partnership:
• Advanced technological integration: The partnership will co-fund a significant upgrade of the CSIR CMORE data collection system. This includes the procurement of data collection tools (tablets and GPS units) to enable the real-time capturing of disaster data. It will also support the enhancement of COGTA’s GIS environment, creating an integrated platform for managing data from partners like DWS, SAWS and SANRAL.
• Proactive infrastructure planning: The DBSA will provide technical expertise and financial support for a province-wide review of municipal stormwater management plans and infrastructure. The goal is to develop and implement new guidelines for sustainable drainage solutions to mitigate future flood risks.
• Expert technical support and project oversight: The agreement facilitates the deployment of specialist technical teams to support municipalities with post-disaster damage verification and recovery planning. Furthermore, the DBSA will lend its project management expertise to ensure rigorous monitoring and effective implementation of projects funded through Municipal Disaster Grants.
• Capacity building and resource enhancement: A joint focus will be placed on human capital development through specialised training for Disaster Management, Fire, and Rescue personnel. The partnership will also support efforts to build the capacity of community leaders and Amakhosi and will facilitate the procurement of critical Fire and Rescue equipment, including specialised snow rescue assets, for underresourced municipalities.
• Modernisation of command infrastructure: The MOA includes provisions for the refurbishment and upgrading of District Disaster Management Centres, transforming them into state-of-the-art command hubs for emergency operations.
This landmark agreement signals a new era of proactive and collaborative governance aimed at securing the wellbeing and prosperity of KwaZulu-Natal’s communities in the face of increasing climate-related challenges.
AN EXPLORATION OF K9-ASSISTED APPROACHES AS A COMPONENT OF DISASTER RESPONSE
By Morné Mommsen, North West University, Potchefstroom, South Africa
Abstract
Disaster response teams increasingly rely on trained dogs in Urban Search and Rescue (USAR) operations, particularly in South Africa, where disasters are frequent and diverse. This study examines the roles, training, deployment and effectiveness of disaster dogs within South African search and rescue operations, aiming to address existing knowledge gaps and identify areas for further research.
Key findings emphasise the critical role of canine units in enhancing South Africa’s disaster response capabilities. They demonstrate the potential for international deployment through standardised training and classification but highlight the current lack of legislative
mandates and national protocols for integrating canine units into disaster response frameworks.
The study recommends that the National Disaster Management Centre (NDMC) and the South African Police Service (SAPS) lead efforts to establish and manage dedicated canine units at both provincial and national levels.
Despite the proven effectiveness of K9 Search and Rescue teams, challenges such as inadequate funding and training persist. Comparisons with international best practices reveal opportunities for improvement in South Africa’s programmes. The study concludes that K9 Search and Rescue is a vital asset to disaster response in South Africa, capable of improving search outcomes and response times. Recommendations include the development of enhanced training programmes, increased funding and further research into their long-term impact. Future studies should focus on creating standardised training protocols and bolstering governmental support to optimise the role of K9 units in disaster management.
Keywords: K9 search and rescue, South Africa, disaster response, canine training.
I. Introduction
This study addresses the critical need for incorporating canine units into South Africa’s disaster management systems, particularly focusing on human-
animal interactions (HAIs). Canine units offer invaluable contributions to urban search and rescue operations through their highly developed olfactory abilities, which allow them to locate survivors more quickly than human teams alone. By advocating for the formal integration of these units, the study aims to improve the overall effectiveness of disaster response, directly benefiting communities by reducing rescue times and increasing survival rates. It also highlights the importance of fostering public awareness and support for canine-assisted disaster response, which can strengthen community resilience during emergencies and disasters.
The research contributes to the scientific understanding of the role and potential of canine units in disaster response, particularly within the context of South Africa. By assessing the unique capabilities of canines in search and rescue operations and emphasising the need for specialised training and health management of both dogs and handlers, the study sets a foundation for further empirical research in this field. It identifies a gap in the current legislative framework, specifically the lack of formal protocols for canine units under the Disaster Management Act (2002). Addressing this gap through standardised training and certification can lead to more data-driven assessments of canine effectiveness in various disaster scenarios,
contributing to global best practices and enriching the body of knowledge in disaster risk reduction strategies.
This research is crucial because it addresses a key deficiency in South Africa's disaster response infrastructure namely, the lack of formal legislative and regulatory support for canine search and rescue units. While the 2017 certification of the South African Urban Search and Rescue Team marked progress, the study highlights that a comprehensive legislative framework is still missing. Such a framework would align South African practices with the international search and rescue advisory Group (INSARAG) guidelines and other international standards, ensuring that canine units are not only effective but also properly trained and deployed. The integration of these units has the potential to make disaster response efforts faster, more adaptable and costeffective, ultimately saving more lives and reducing the overall impact of disasters on affected communities. Therefore, the study makes a compelling case for the inclusion of canine units in national and provincial disaster management plans, filling a critical gap in the current system and offering a pathway toward a more robust and resilient disaster response strategy.
II. Literature review
Disaster Risk Management involves using strategies and resources to reduce the impacts of hazards (UNISDR, 2009).
Researchers like Cvetković (2023a, 2024) highlight the severe threats disasters pose to lives, property and infrastructure, from natural hazard events like earthquakes and floods to human-made incidents such as industrial accidents (Cvetković et al., 2022).
Immediate response is critical once an event escalates into an emergency, as emphasised by Haddow et al. (2017). The initial hours are crucial for saving lives (Islam, 2023), with search and rescue teams using diverse methods to overcome challenges like adverse weather and limited resources (Ice et al., 2015). Despite obstacles, international efforts aim to improve response through training and technology (Cvetković & Miljković, 2024). The study of methods, including canine-assisted search and rescue, is key to building resilient communities.
2.1 Background and benefit of canine search and rescue Cvetković & Jovanović (2021) emphasise the importance of effective rescue operations to minimise disaster impact. Alvarez and Hunt (2005), Eaton-Stull et al. (2023) and Meyers (2014) advocate for canine units in disaster response due to their speed and precision in detecting survivors and hazards. According to Grandjean (2007), search and rescue (SAR) dogs are critical due to their superior detection skills, which allow them to locate survivors in inaccessible areas. Alvarez and Hunt (2005), EatonStull et al. (2023) and Meyers (2014) advocate for canine units in disaster response due to their speed and precision in detecting survivors and hazards. That is to say that SAR dogs are vital for enhancing the success of rescue missions (Fischer et al., 2020). However, the key to this would be, according to Bryson et al. (2019), training both dogs and handlers for effective collaboration.
Despite international endorsements from FEMA and IRO, South Africa's disaster management lacks canine units, highlighting a need to align with global standards (FEMA,
1999, 2021; IRO, 2019). Morris (2007) argues that adopting these standards could enhance disaster response efficiency.
2.2 History of canine in disaster response
Dogs have a long history in search and rescue, dating back to before World War I (Greatbach, 2015). In ancient Egypt, dogs served in military roles, carrying messages and locating injured soldiers, with their roles evolving during the World Wars and beyond (Gordan, 2018).
Edwin Richardson, a pioneer of modern war dog training, highlighted their use for carrying messages and finding wounded soldiers during WWI. The use of search dogs continued in WWII, with the British training dogs to find people buried under rubble. Despite initial reluctance from the USA, nearly 10,000 dogs served in WWII (Gordan, 2018). Furthermore, American doges as scouts, detecting enemies and assisting in various rescue missions during the Korean and Vietnam Wars. Although dogs have been used for mountain rescues since the 1700s (Fenton, 1992), the first modern rescue in the United States was in 1969 when a German Shepherd located a buried skier (Gordan, 2018). According to Fenton (1992), modern SAR dogs are trained for diverse tasks like locating bombs, bodies and lost persons. The 1995 Oklahoma City bombing was a turning point, as therapy dogs were used to support trauma victims and responders (Tedeschi & Jenkins, 2019). During 9/11, about 500 therapy animalhandler teams provided comfort to those affected, leading to the establishment of national standards for their deployment (Tedeschi & Jenkins, 2019). This history illustrates the
longstanding recognition of the value of dogs in high-stress crisis situations.
2.3 The different roles of dogs in search and rescue response environments
Authors such as Fenton (1992), Gordan (2018), Greatbach (2015) and Tedeschi and Jenkins (2019) have highlighted the significant role of dogs throughout history in various capacities, especially in detection and search and rescue (SAR) operations. Beyond emergencies, dogs have also proven valuable in settings like schools, where they aid in lockdown and evacuations, as well as by providing emotional support (Bosque, 2023). Further, their roles have expanded to include airport security, law enforcement and disease detection, with their ability to identify volatile organic compounds (VOCs) even used during the COVID-19 pandemic for detecting SARS-CoV-2 in human samples (Otto et al., 2021).
In modern disaster response, dogs are classified into three main groups, namely tracking, air-scenting and water search dogs (Milojević, 2023; Cvetković & Miljković, 2024). These specialised skills make SAR dogs essential in urban search and rescue missions, such as in structural collapses (AFAC, 2019; Gwaltney-Brant et al., 2003). Notable deployments include the Oklahoma City bombing (1995), 9/11 attack and natural disasters like the Haiti Earthquake (2010) and the Japan Tsunami (2011), showcasing their unmatched ability to detect human scent (Gordan, 2018). However, the contributions of these dogs extend beyond physical search efforts as they also provide psychological support. They help lower stress levels and offer emotional comfort to disaster victims, as well as first
responders (Gordan, 2018; Eaton-Stull, 2023). Thus, animalassisted crisis response (AACR) teams, including therapy dogs, play a crucial role in multiple aspects. These historical and contemporary roles underscore the importance of dogs in enhancing disaster response, making them indispensable in preparedness and crisis management strategies.
2.4 Canine as a search and rescue tool
Search and rescue (SAR) dogs, also referred to as "disaster dogs", play an essential role in locating survivors during disaster events, with unique capabilities that surpass other SAR techniques, particularly in identifying unconscious or deceased victims in areas inaccessible through conventional methods (Statheropoulos et al., 2015). Their remarkable sense of smell, with about 200 million olfactory receptors, 20 to 40 times more than humans, enables them to detect faint and complex scents, making them invaluable in search operations, especially over large areas (Bäckström & Christoffersson, 2006; Morris, 2007).
These capabilities make SAR dogs effective in various environments, from urban settings with structural collapses to wilderness areas (INSARAG, 2006; Cvetković & Miljković, 2024). Trained to detect both living and deceased individuals, SAR dogs can identify scent trails and mark locations for faster rescue operations. Their efficiency is often supplemented by electronic search devices and using two canine teams to verify findings enhances reliability despite challenges like humidity and heat (Wong & Robinson, 2004).
The practical applications of SAR dogs are well-documented across diverse disaster scenarios, including fires, explosions, hurricanes, earthquakes and floods (Gwaltney-Brant et al., 2003). Their training begins from a young age, progressing from basic obedience to real-life disaster simulations, preparing them for the complexities of actual rescue missions (Otto et al., 2019; Cvetković & Miljković, 2024).
2.5 Legislation and minimum standards guiding Canine utilisation in Search and Rescue operations. Establishing effective search and rescue (SAR) canine services requires adherence to global standards and legislation. In 2014, the Australian Government introduced a framework for accrediting volunteer SAR dogs, emphasising alignment with state or territory emergency service standards (AFAC, 2019). SAR operations demand physical fitness and mental resilience from both dogs and handlers, as they work in challenging environments. Therefore, the South Australian Urban Search and Rescue Taskforce (SAUSARTF) mandates that canine handlers pass rigorous physical assessments and medical evaluations to ensure their suitability for these demanding roles (AFAC, 2019).
The selection of SAR dogs focuses on temperament, physical structure and fitness, typically choosing candidates between 12 and 24 months old. Training and screening for both dogs and handlers include evaluations such as navigating rubble and confined spaces, performing ladder climbs and managing stress (AFAC, 2019). INSARAG contributes to these efforts by establishing guidelines
aimed at enhancing emergency preparedness and response (Okita & Shaw, 2020).
In the United States, dogs are certified for specialised roles, including live find, human remains recovery and specific environments like wilderness, rubble and water (Gordon, 2018). Certifications ensure that dogs are prepared for the unique challenges each setting presents. Beyond SAR, the standards for Animal-Assisted Crisis Response (AACR) in the US require AACR teams to be affiliated with recognised therapy dog organisations and have experience working with diverse populations (Eaton-Stull et al., 2010; Stewart et al., 2016).
AACR dogs must possess traits such as friendliness, obedience and the ability to remain calm in stressful situations (Chandler, 2012; Stewart et al., 2016). Handlers are responsible for monitoring their dogs' wellbeing and recognising signs of stress or fatigue (Lackey & Haberstock, 2019; Eaton-Stull, 2023). The development of effective SAR services hinges on following proper methods and maintaining high standards in both training and practice (Mommsen, 2022).
2.6 South African Acts and Legislation governing canine activities and challenges Current South African legislation, such as the Animal Protection Act 71 of 1962 and the Private Security Industry Regulation Amendment Act 4 of 2016, focus primarily on security dogs rather than canine search and rescue (SAR) (South African Government, 2016). Developing effective SAR services in South Africa requires aligning with local qualification authorities and understanding relevant legislation, particularly
the Disaster Management Act 57 of 2002, which emphasises integrated disaster management strategies (Sithole, 2023). This alignment will help guide the industry's growth and integrate canine services into disaster response efforts (AFAC, 2019).
Current training programmes, like those offered by the Genesis K9 Group, focus mainly on handler training rather than canine training, with levels dedicated to handling service and detection dogs. FEMA recommends training dogs to prevent aggressive behaviours, emphasising the need for standardisation in training (FEMA, 1999; FEMA, 2021). Proper training and a strong handler-dog relationship are critical, as environmental stressors can affect the accuracy of scent detection during search missions (Bäckström & Christoffersson, 2006).
Within the broader context of disaster response, the South African Police Service's Canine Search and Rescue Unit faces challenges like personnel shortages and insufficient financial resources (Moodley, 2022). These constraints, along with a lack of specialised resources such as helicopters, hinder the effectiveness of SAR operations (Moodley, 2022). Addressing these issues requires standardising training protocols to enhance the reliability and efficiency of SAR operations (AFAC, 2019).
Globally, collaboration and adherence to international standards, such as those established by INSARAG, are crucial for enhancing disaster response (Okita & Shaw, 2020). Additionally, research highlights the physiological and psychological benefits of interactions with canines during
crises, such as reduced stress and increased oxytocin release (Gordon, 2018; Donadon et al., 2018). This emphasises the value of incorporating trained canines into disaster response to bolster human resilience and well-being.
In summary, effective SAR services in South Africa hinge on understanding legislative frameworks, addressing resource challenges and standardising training protocols. By fostering integrated policies and aligning with international standards, South Africa can enhance its disaster management capabilities and ensure the efficient use of SAR dogs, ultimately improving outcomes during crises.
III. Research methods and design
This study adopts an exploratory qualitative approach, which Creswell et al. (2016:84) describes as being primarily inductive and operating within an interpretive framework. The rationale for this qualitative approach is to gain a deeper understanding of K9-assisted methods in disaster risk assessment, preparedness and response. Data collection, as well as the results will be discussed further below.
3.1 Data collection and sampling
3.1.1
Data collection
Data collection will be conducted through a qualitative, semistructured online questionnaire, with follow-up interviews on digital platforms such as Teams and Zoom. This approach was chosen due to the geographical spread of respondents across the country, as well as time and financial constraints. Due to a physical injury limiting the interviewer's mobility, this approach was chosen to accommodate the interviewer's needs. It also allowed for better accommodation of any physical limitations that participants might have. According to Creswell et al. (2016:93), semi-structured interviews involve specific open-ended
IV. Results
Enhancing Disaster Response Efficiency: The Role of Canine Units in Provincial and National Preparedness and Contingency Planning.
International Classification and Deployment Potential of Canine Teams in Disaster Response: Pathways to Global Recognition
Legislative Frameworks and Standardization Protocols for Canine Search and Rescue in South Africa: Assessing Current Mandates and Gaps
Building Capacity: Strategies for Establishing Dedicated Canine Units in South Africa's National and Provincial Disaster Response Frameworks
questions, complemented by probing questions to seek further clarification. An interview guide will be developed based on insights from the literature review to ensure a focused and consistent approach during the interviews.
3.1.2 Sampling
Purposive sampling was employed to select interview candidates, meaning that the sample was based on the researcher's judgment to include elements that represent the most relevant characteristics of the population (De Vos et al., 2011:232) Four respondents from South African Police Service (SAPS), Volunteer Emergency Services, Private Industry and USAR-SA who have knowledge and experience in the canine
environment and disaster risk management field, were selected for participation in this study. They were asked to conceptualise the development of K9-assisted initiatives and their governance concerning disaster preparedness and response in South Africa, as well as other probing questions. Data collected through the semistructured interview process were transcribed and analysed using thematic content analysis methods. This approach enables the researcher to uncover rich insights, understandings and perspectives related to the case study, allowing for a nuanced exploration of complex phenomena and providing valuable insights for theory-building, practice, or policy development.
The functions of canines within the Provincial and National Disaster Risk Preparedness and Response Contingency planning are important.
The functions of canines within the Provincial and National Disaster Risk Preparedness and Response Contingency planning are not important.
International classification or standardisation is important for potential deployment of canine teams in disaster response.
It is not important for any type of classification or standardisation for canine teams to deploy nationally or internationally.
Current legislative frameworks or standardization protocols for canine search and rescue, which assess mandates and address gaps, are not widely known or clearly defined.
There are legislative frameworks and standardized protocols for canine search and rescue which assess mandates and gaps.
What would be the recommended strategies for establishing dedicated canine units in South Africa's National and Provincial Disaster Response Frameworks?
Have no idea or recommendations towards the establishment of a dedicated canine units in South Africa's National and Provincial Disaster Response Frameworks
Stakeholder Roles and Responsibilities in Implementing Canine Unit Initiatives for Disaster Response in South Africa
In my opinion as a respondent, I would state that stakeholder roles and responsibilities in implementing canine unit initiatives for Disaster Response in South Africa can be allocated.
Have limited knowledge regarding any stakeholder, their roles or their responsibilities in implementing canine unit initiatives for Disaster Response in South Africa
4.1 What is the importance and function of including canine units within the provincial and national disaster risk preparedness and response contingency planning.
4.1.1 Enhancing disaster response efficiency: The role of canine units in provincial and national preparedness and contingency planning.
• The functions of canines within the provincial and national disaster risk preparedness and response contingency planning are important.
In discussing the role of canine units in disaster response, the responses from various stakeholders reflect a strong consensus on their importance. SAPS perspective emphasised that “it is of utmost importance to include search and rescue dogs,” highlighting the critical need for these units within disaster response frameworks. This view is shared from the private/volunteer EMS sector, who described K9s as “an imperative part of a disaster search and rescue operation,” suggesting that their presence is not just beneficial but essential for effective response efforts.
Similarly, a representative from the private industry, stressed that “canine units are essential for enhancing search and rescue operations in South Africa.” This perspective highlights the added value that canine units bring in terms of improving efficiency and effectiveness in rescue missions. USAR-SA, perspective further reinforced this sentiment by noting that “K9 units play a crucial role in the location of victims in a disaster response situation,” pointing to their specific capabilities in locating individuals during critical situations. Together, these insights underline the
widespread acknowledgment of the vital role that canine units play in strengthening South Africa’s disaster response capabilities.
• The functions of canines within the provincial and national disaster risk preparedness and response contingency planning are not important.
When posed questions pertaining if functions of canine within the provincial and national disaster risk preparation and response contingency planning are important, all of the respondents agreed that it is important.
The data indicates that canine units are crucial in provincial and national disaster risk preparedness and response contingency planning. Literature supports this, highlighting that incorporating canine units can significantly enhance disaster response efforts (Alvarez & Hunt, 2005; Eaton-Stull et al., 2023; Meyers, 2014; FEMA, 2012; FEMA, 2013; SDF, 2017; Weir & Buzhardt, 2023). Their effectiveness is well-documented, with proven abilities to locate survivors trapped under rubble, detect hazardous materials and identify human remains in various emergencies. Canine units’ enhanced speed and accuracy allow teams to cover large areas quickly and to precisely pinpoint the locations of survivors or hazards, thus reducing response times and increasing the likelihood of successful rescue operations. Additionally, their versatility and adaptability make them valuable assets in a wide range of disaster scenarios, including earthquakes, hurricanes, floods and terrorist attacks.
4.2 What do you think is the possibility of such canine teams being classified by various international entities for deployment?
4.2.1 International classification and deployment potential of canine teams in disaster response: Pathways to global recognition
• International classification or standardisation is important for potential deployment of canine teams in disaster response.
The discussion around the classification and standardisation of canine units for international deployment revealed several key insights from the respondents.
The perspective of SAPS, emphasised the need for standardisation, stating that “for classification on an international or even national level, there should be a standardisation of assessing the K9 as well as the handler.” This highlights the importance of consistent criteria for evaluating both the dogs and their handlers to ensure they meet global standards.
Private/volunteer EMS sector, noted that “K9s are currently recognised as essential to the search operation by FEMA in the USA and INSARAG among others.” This indicates that there is already an established precedent for the international recognition of canine units, reinforcing the value of aligning South African units with such standards.
The private industry, viewed the potential for international classification as “quite feasible, given their proven effectiveness in search and rescue operations globally.” This perspective suggests optimism about the ability of South African canine units to meet international benchmarks based on their track record of effectiveness.
Whereby, USAR-SA, underscored the necessity of these standards, stating that “a K9 team is a must
for any internationally accredited team.” This emphasises the integral role that properly trained and classified canine units play in achieving recognition and readiness for international deployment. Together, these responses highlight the need for standardised training and assessment protocols to align South African canine units with global best practices and facilitate their participation in international disaster response efforts.
• It is not important for any type of classification or standardisation for canine teams to deploy nationally or internationally.
• From the view of the respondent, no one indicated that it is not important for any type of classification or standardisation for canine teams to deploy nationally or internationally.
This data highlights the need for standardisation or classification of canine units to enhance their deployment potential in disaster response. Literature stresses the importance of national organs of State actively implementing pre-approved contingency plans for various hazard scenarios in collaboration with the National Disaster Management
Centre (NDMC) and relevant stakeholders. These plans must be supported by national and departmental treasuries and decision-makers (The South African Government, 2023:33). Key stakeholders in disaster risk reduction, such as the Departments of Health (DOH), Human Settlements, Agriculture, Environment, Social Development, the South African National Defence Force (SANDF) and the South African Police Service (SAPS), should establish dedicated sections to improve disaster response and recovery efforts (The South African Government, 2023).
4.3 What are current legislative mandates and national standardisation protocols regarding canine search and rescue within South Africa, if any legislation exists?
4.3.1 Legislative frameworks and standardisation protocols for canine search and rescue in South Africa: assessing current mandates and gaps
• Current legislative frameworks or standardisation protocols for canine search and rescue, which assess mandates and address gaps, are not widely known or clearly defined.
The discussion regarding the existence of legislative guidelines or standard operating procedures (SOPs) for search and rescue K9 units in South Africa revealed a consistent theme of uncertainty and gaps in knowledge among the respondents. Representing SAPS, the evaluation expressed a clear lack of awareness, stating, “No legislation guidelines regarding search and rescue K9 exist to my knowledge.” This suggests a significant gap in official regulations from a governmental perspective.
Similarly, the private/volunteer EMS sector, highlighted the unregulated nature of this field, noting that “there are a number of NPOs and private citizens who are well-meaning but frankly are not properly trained or certified.” This points to the challenges of ensuring uniform training standards without formal legislative frameworks.
Whereby, the private industry, admitted to having “no idea” about existing legislation, indicating a broader lack of knowledge within the sector regarding formal regulations or standards.
The perspective of USAR-SA, echoed this sentiment, stating, “I am currently not aware of any legislation that exists or SOPs regarding K9 units.” This further reinforces the consensus among stakeholders that there is a notable absence of formal legislative guidance or standardised protocols for K9 units in disaster response within South Africa. The overall discussion underscores the need for a structured regulatory framework to guide the training, certification and deployment of K9 units in search and rescue operations.
• There are legislative frameworks and standardised protocols for canine search and rescue, which assess mandates and gaps.
From the view of the respondent no one indicated that it is not important for any type of classification or standardisation for canine teams to deploy nationally or internationally.
The data indicates a significant lack of legislative mandates and national standardisation protocols for canine search and rescue in South Africa. Current literature shows that
South African legislation and animal acts focus predominantly on security dogs for crime prevention rather than on canine search and rescue (South African Government, Animal Protection Act 71 of 1962; South African Government, Private Security Industry Regulation Amendment Act 4 of 2016; South African Government, Performing Animal Protection Amendment Act 4 of 2016). To advance this field and develop new curricula in South Africa, it is essential to comply with South African qualification authorities to address these gaps and guide effective industry development.
Understanding local legislation, particularly related to disaster management, security, police and military dog services, is crucial for establishing effective canine search and rescue services. A thorough comprehension of these regulations will enable more informed and effective recommendations regarding the roles of search and rescue dogs in disaster response efforts.
4.4 What do you think should be implemented to establish dedicated canine units within South Africa as a function on the national and provincial disaster response capacity?
4.4.1 Building capacity: Strategies for establishing dedicated canine units in South Africa's national and provincial disaster response frameworks
● What would be the recommended strategies for establishing dedicated canine units in South Africa's National and Provincial Disaster Response Frameworks?
The discussion on strategies for establishing and integrating
dedicated K9 units into South Africa’s disaster response framework reveals various perspectives from the respondents, each emphasising the importance of structured agreements, standardised training and clear deployment protocols.
SAPS, perspectives highlight the need for formal agreements among key stakeholders, stating, “Between SAPS, Provincial and National disaster management, there must be an agreement for deployment from SAPS S&R K9... the Disaster Management Act should be proclaimed.” This suggests a need for legislative backing and coordination among different levels of disaster management to ensure effective deployment of K9 units.
The private/volunteer EMS sector, focused on establishing clear training standards, asserting that “there should be a qualification in place for civilians and search and rescue professionals to achieve a clear minimum standard that is repeatable and reliable.” This response underscores the importance of having standardised qualifications to maintain the quality and effectiveness of canine search and rescue operations.
From the perspective of the private industry, the focus is on training and protocol development, suggesting that stakeholders should “develop comprehensive training programmes for both dogs and handlers based on internationally recognised standards” and “create clear protocols for the deployment of canine units in various disaster scenarios.” This highlights the importance of aligning local training efforts with international best practices to enhance the effectiveness of the units.
USAR-SA emphasised the need for specialised training, stating, “A fully functional K9 unit should be established based on specialised training for the handler as well as for the K9 to locate victims in disaster zones and remote areas.” This view stresses the importance of targeted, advanced training programmes to ensure that both handlers and dogs are equipped to perform effectively in diverse and challenging environments.
• Have no idea or recommendations towards the establishment of a dedicated canine units in South Africa's national and provincial disaster response frameworks.
From the view of the respondent no one indicated that they don’t recommend any framework to establishment of dedicated canine units in South Africa's national and provincial disaster response.
The data highlights these responses suggest a comprehensive approach is needed, combining legislative support, standardised training, inter-agency agreements and the development of clear protocols to enhance the role of K9 units in disaster response across South Africa to establish Dedicated Canine Units for National and Provincial Disaster Response in South Africa. Understanding the Disaster Management Act 57 of 2002 (DMA) is crucial, as it governs disaster management policies focused on prevention, preparedness and response (Sithole, 2023).
Van Niekerk (2007) emphasises the government's responsibility for citizen safety, noting that canine services are invaluable in disaster scenarios such as fires and earthquakes (Gwaltney-Brant et al., 2003).
Current challenges in the South African Police Service's Canine Search and Rescue Unit include personnel shortages and inadequate funding (Moodley, 2022). Additionally, standardised training is critical to improve operations, as current deficiencies impact effectiveness (Moodley, 2022). Training methods must be standardised to enhance operational efficiency and reliability (AFAC, 2019; FEMA, 1999).
4.5 By whom do you think these initiatives should be implemented and why?
4.5.1 Stakeholder roles and responsibilities in implementing canine unit initiatives for disaster Response in South Africa
• In my opinion as a respondent, I would state that stakeholder roles and responsibilities in implementing canine unit initiatives for disaster response in South Africa can be allocated.
The discussion on which entities should be responsible for implementing initiatives to establish dedicated K9 units in South Africa's disaster response system reveals differing opinions among respondents, reflecting the need for coordination across various sectors.
SAPS, perspectives emphasised the role of centralised leadership, stating, “This legislation should be implemented by national disaster management.” This perspective suggests that a top-down approach, driven by national-level decision-makers, could ensure consistency and alignment across the country in the integration of K9 units.
In contrast, the private/volunteer EMS sector suggested a more
diversified approach, indicating that “these initiatives should be implemented by QCTO and the private sector.” This view implies that leveraging expertise from both training authorities like the Quality Council for Trades and Occupations (QCTO) and private entities could provide specialised training and resources for K9 units.
The private industry, advocated for a broad, collaborative effort, stating that “the initiatives to establish dedicated canine units within South Africa's national and provincial disaster response capacity should be implemented by a collaborative effort among various stakeholders, including government agencies, local municipalities, non-governmental organisations (NGOs) and private sector partners.” This highlights the importance of a multi-stakeholder approach, emphasising cooperation across different sectors to create a robust disaster response system.
USAR-SA, perspectives proposed a more regional focus, suggesting, “At this stage I think it should be implemented by the Gauteng provincial disaster centre as well as the National Disaster Management Centre.” This perspective underscores the potential benefits of involving both provincial and national disaster centres to ensure localised coordination while maintaining alignment with national priorities.
Overall, the responses illustrate diverse viewpoints on the ideal leadership for implementing K9 initiatives, ranging from centralised national control to collaborative and regional approaches, each emphasising different aspects of coordination and expertise needed for successful integration.
• Have limited knowledge regarding any stakeholder, their roles or their responsibilities in implementing canine unit initiatives for disaster response in South Africa.
From the view of the respondents, everyone showed some kind of knowledge component regarding the stakeholders, as well as their roles or their responsibilities in implementing canine unit initiatives for Disaster Response in South Africa. The data indicates that all four respondents believe government involvement is crucial for implementing canine unit initiatives in disaster response in South Africa. National organs of State must actively engage in executing preapproved contingency plans, collaborating with the National Disaster Management Centre (NDMC) and stakeholders, while ensuring robust support from relevant treasuries (The South African Government, 2023). Key stakeholders, including various government departments and agencies, should establish dedicated sections to enhance disaster risk reduction and response efforts (The South African Government, 2023).
Adherence to international guidelines for deploying volunteers is essential (The South African Government, 2023) and the NDMC's regulations will help standardise operations (The South African Government, 2023). Integrated policies are necessary for efficient disaster response, clarifying roles and funding arrangements (COGTA, 2023).
Canine units or “disaster dogs” (Lit et al., 2010), enhance search and rescue efforts due to their unique skills and training, contributing significantly to
human safety. These teams have adapted to meet the challenges of post-disaster scenarios, categorised into sub-types like “crisis-response canines” (Eaton-Stull et al., 2019) and Disease Detection Dogs (Otto et al., 2021).
Research highlights the physiological benefits of human-dog interactions, such as lowering heart rates and regulating stress responses (Gordon, 2018; Donadon et al., 2018). This underscores the vital role canine units play in improving resilience and wellbeing during crises.
V.
Discussion
The findings of this study, which are presented in the section above, will be discussed.
5.1 Enhancing disaster response efficiency: The role of canine units in provincial and national preparedness and contingency planning
It was stressed that “it is of utmost importance to include search and rescue dogs,” highlighting the critical role of canine units in disaster response. K9s were described as “an imperative part of a disaster search and rescue operation,” emphasising their essential role in effective disaster response. Canine units were further noted as “essential for enhancing search and rescue operations in South Africa,” underscoring their ability to improve efficiency. Additionally, K9 units were identified as playing a “crucial role in the location of victims in a disaster response situation,” emphasising their specific capabilities in locating individuals.
Supporting literature highlights the critical role of canine units in improving disaster response efforts. Studies indicate that
these units can significantly boost efficiency by locating survivors, detecting hazardous materials and identifying remains (Alvarez & Hunt, 2005; Eaton-Stull et al., 2023; FEMA, 2012). Their speed and accuracy allow for rapid coverage of large areas, reducing response times and increasing the likelihood of successful rescue outcomes.
The integration of canine units is widely viewed as crucial to disaster risk preparedness and response. Both the practical insights and literature emphasise the importance of these units in enhancing search and rescue efforts, suggesting their indispensable role in effective disaster response.
5.2 International classification and deployment potential of canine teams in disaster response: Pathways to global recognition The need for “standardisation of assessing the K9 as well as the handler” for classification on national or international levels was emphasised. It was also pointed out that K9s “are currently recognised as essential” by entities such as FEMA and INSARAG, highlighting the importance of existing international standards. The feasibility of international classification for South African units was suggested, emphasising that these units could align with global standards. Furthermore, it was stressed that “a K9 team is a must for any internationally accredited team,” indicating the importance of standardisation for international recognition.
Literature underscores the role of national disaster management agencies in implementing contingency plans and aligning with international standards (South African Government,
2023). Adhering to global protocols ensures readiness for international deployment, with proper training and assessment processes being critical (Weir & Buzhardt, 2023). There is a strong consensus among practical insights and literature regarding the importance of international classification for K9 units. Standardised training and assessment protocols are necessary to align South African units with global standards, facilitating their participation in international disaster response efforts.
5.3 Legislative frameworks and standardisation protocols for canine search and rescue in South Africa: Assessing current mandates and gaps
It was noted that “no legislation guidelines regarding search and rescue K9 exist to my knowledge,” pointing to a lack of formal regulations. Challenges were observed due to unregulated training, with mentions that some NPOs “are not properly trained or certified.” A gap in knowledge about existing legislation was also highlighted. Additionally, it was noted that there is a lack of awareness of any legislation or SOPs concerning K9 units.
Literature reveals a similar lack of legislative frameworks specifically for canine search and rescue in South Africa, with existing laws more
focused on security rather than disaster response (South African Government, Animal Protection Act 71 of 1962). The absence of clear regulations emphasises the need for new policies and standardised training (Moodley, 2022; Van Niekerk, 2007).
The absence of legislative mandates and standardisation protocols for canine search and rescue is a significant gap in South Africa. Structured regulations are needed to guide training and deployment, which could enhance the effectiveness of canine units in disaster response.
5.4 Building capacity:
Strategies for establishing dedicated canine units in South Africa's national and provincial disaster response frameworks The need for agreements among key stakeholders and the importance of the Disaster Management Act were highlighted. Emphasis was placed on the need for standardised qualifications, noting that “there should be a qualification in place... that is repeatable and reliable. Recommendations were made for “comprehensive training programmes” and “clear protocols for the deployment” of K9 units. Additionally, specialised training was advocated to ensure “a fully functional K9 unit.”
The Disaster Management Act 57 of 2002 outlines the Government's role in disaster preparedness (Sithole, 2023). Effective integration of K9 units requires clear training standards and legislative support, aligned with international best practices (AFAC, 2019; FEMA, 1999).
Establishing dedicated K9 units requires legislative backing,
standardised training and inter-agency coordination. The insights provided underscore the need for a comprehensive approach to ensure the effectiveness of these units within South Africa's disaster response framework.
5.5 Stakeholder
roles
and responsibilities in implementing canine unit initiatives for disaster Response in South Africa
A centralised approach was advocated, suggesting that national disaster management should take the lead. Recommendations included the involvement of QCTO and the private sector for specialised training. Support was also expressed for a collaborative effort involving government agencies, NGOs and private partners. Emphasis was placed on the role of both provincial and national disaster centres in implementation.
Literature emphasises the necessity of collaboration among various stakeholders, including the National Disaster Management Centre (NDMC) and relevant government departments, to ensure effective disaster response planning (South African Government, 2023). Coordination between national and provincial levels is critical for robust disaster management (COGTA, 2023).
There is broad agreement on the importance of government involvement, with varying opinions on the extent of private sector participation. A multi-stakeholder approach is necessary, involving both national and provincial authorities alongside private and non-governmental partners to establish effective K9 units for disaster response.
Vi. Conclusion
The evidence gathered from respondents underscore the critical importance of integrating canine units into South Africa's disaster risk preparedness and response frameworks. While there is a clear recognition of the effectiveness of these units in search and rescue operations, significant gaps remain in legislative support and standardised protocols. To address these gaps, respondents recommend strategic initiatives such as developing comprehensive training programmes, establishing formal agreements between key agencies and fostering collaboration among government, private sector and community stakeholders. The integration of these canine units could ultimately enhance South Africa's ability to respond to disasters more effectively, aligning with international standards and practices.
This study highlights a significant gap in the integration of canine search and rescue units within South Africa's disaster risk management framework. Specifically, there is a lack of clear legislative and regulatory guidelines, standardised training programmes and national policies defining the role and deployment of these units. While the benefits of international classification and alignment with global standards are acknowledged, the necessary structures for achieving this alignment remain underdeveloped. Further research is recommended to address these gaps, as doing so is essential for enhancing the effectiveness, coordination and international recognition of South Africa’s disaster response capabilities.
References: A complete list of references may be obtained from the author and/or publisher.
MANDELA DAY THROUGH THE DRR LENS:
BUILDING RESILIENCE, HONOURING LEGACY
By Prof Alice Ncube, programme director/associate professor, UFS DiMTEC, executive secretary to the African Union Commission, Science and Technology Advisory Board on Disaster Risk Reduction (AfSTAG- DRR)
Mandela Day, which is commemorated on 18 July each year, though not being a holiday or internationally observed, it has a pivotal significance globally. The United Nations declared 18 July Nelson Mandela International Day in 2009, not as a public holiday but a day dedicated to service and community action, whereby people are encouraged to devote 67 minutes of their time to helping others as an inspiration from Mandela’s 67 years of public service.
As a member of the African Union, Science and Technology Advisory Group, it is befitting that as part of the work dedicated to disaster risk reduction initiatives in the African continent, the day is a reminder that we promote community service, resilience and social justice in our Africa we want.
When observing Mandela Day through the disaster risk reduction lens (DRR), mention is made of raising awareness about reducing vulnerability to natural and human-induced hazards, particularly among marginalised and at-risk communities. Given South Africa’s exposure to one, floods, a stuck reminder of the June 2025 Eastern Cape and KwaZulu-Natal flood emergencies, the recurrent droughts all over the country where the country almost experienced a zero day water scarcity phenomenon, the seasonal informal settlement fires
and urban vulnerability resulting from near institutionalised informality, Madela Day activities align with the Sendai Framework of Disaster Risk Reduction (SFDRR)’s priorities of understanding risks and strengthening disaster governance at all levels.
As we embark on various community-based initiatives on this year’s Mandela Day, such as tree planting to combat erosion and climate change, cleaning stormwater drainages to avoid urban flooding and flash floods and public awareness campaigns, be it at schools or community-based emergency preparedness, we should take this as a contribution towards long-term risk reduction.
We can align these 67-minute acts of service to strategically build local resilience and promote public-private participation (PPP) in disaster preparedness. As such, we will not only honour Nelson Rolihlahla Mandela’s ethos of active citizenry but also foster collective responsibility in reducing exposure to hazards and protecting lives and livelihoods.
Mandela Day offers a vital collaborative platform between governments, civil society and the private sector in advancing the DRR goals. Integrating DRR calls into the Mandela Day Programmes enhances public understanding of climate change adaptation, sustainable development and
emergency response systems. This integration underscores Mandela’s vision of equity and dignity by ensuring that vulnerable populations, such as informal dwellers, the elderly, marginalised, minority groups and women and children, are not left behind in disaster planning and recovery efforts.
Utilising Mandela Day to promote DRR deepens its impact and contributes meaningfully to building a safer, more resilient South Africa. Not only South Africa but also “the Africa we want” (AUC- Agenda 2063) and the 2030 global sustainable development goals (SDGs).
Finally, as part of the University of the Free State (UFS) Vision, Mandela Day reminds us that everyone has the power to make a difference. In the spirit of Madiba’s legacy, we can commit to fostering social justice, human dignity and sustainable development through academic excellence and meaningful community engagement.
SOLUTIONS SUMMIT 2025 TURNS IDEAS INTO ACTION
By Dominique Binns, DMS NPC
Noticing a gap in the Disaster Risk Management (DRM) space for a solutions-oriented meeting-of-the-minds, DMS NPC and Disaster Nomad hosted an in-person Solutions Summit at the Helderberg Nature Reserve in Cape Town, from 20 to 21 August 2025. This brought together disaster risk reduction (DRR) professionals, emergency responders, community leaders, government representatives, academia, non-governmental organisations (NGOs) and the often-overlooked private sector.
With generous sponsorship from the Al-Imdaad Foundation and attendance from important role-players in the space, including the National Disaster Management Centre (NDMC), South African Local Government
Association (SALGA), Santam, Valterra Platinum, SibanyeStillwater, Baotree, Somali Resilience Programme, UNICEF, Fairpicture, ICLEI and many more, this two-day workshop explored two primary themes.
One important focal point was Community-Based Disaster Risk Reduction, where attendees looked at how communities can and do take ownership of their resilience by leveraging local knowledge. International best practices in our space are increasingly drawing on naturebased solutions, as well as the fact that communities, and not state or NGO bodies, know what they need to prevent, prepare for, respond to and recover from disasters.
Another focus was how the private sector can and does
get involved in DRR for both their own and others’ resilience and benefit. Multi-nationals and small, micro and medium enterprises (SMMEs) have ample opportunity and interest in getting involved in DRR for the sake of compliance, business continuity, environmental, social and governance (ESG) or corporate social responsibility/ investment (CSR/I) purposes and reputational reasons.
The Summit itself was attended by over 50 hand-picked representatives who, after checking-in, were shown to their pre-determined seat locations. We purposefully tried to mixand-match attendees with similar interests, who would not otherwise meet and connect.
Attendees were introduced to several topics by a panel
of experts before diving into practical group work that helped them explore each other’s priorities and views. Participants involved in conversation and exercises were encouraged to be solution-oriented, with attendees identifying challenges, ideas and solutions, which were stuck onto the ‘Needs and Leads’ board. Localisation, DRR in industry and DRR for SMMEs and supply chains were explored on the first day. Networking and drinks capped off a highly participatory first day that left everyone buzzing and exchanging contact details.
On the second day, sessions on ‘Technology in DRR’ and ‘Community ownership in DRR’ were followed by the Summit’s penultimate session, which required the participants to turn the insights and themes from the two days into action.
Participants worked in groups to identify key priorities, determine who should be involved in moving them forward and explore the most effective approaches for implementation. Michael Davies, vice president of Business Continuity Institute’s Southern Africa Chapter and managing director of Pax Resilience, provided the closing address.
Overall, the Summit reinforced that resilience depends on collaboration across sectors, proactive investment in DRR and maintaining momentum through sustained collective action.
As part of our ongoing commitment to solving some of the biggest challenges in DRM, we have formed The Solutions Collective. This invite-only LinkedIn group is where we post about quarterly virtual fireside chats that bring together representation from multiple spaces and places.
This is a safe space to network, ask questions, pose solutions and work together with other stakeholders who care just as much as you do, but just work on the issue from a different angle.
Should you wish to join in our efforts, please email dominique@dms-online.co.za with a motivation as to how you feel you could contribute to or benefit from this group.
CATASTROPHIC WILDFIRES
SURGE GLOBALLY WITH 43 PERCENT OF WORST DISASTERS IN PAST DECADE
Source: University of Tasmania
Catastrophic wildfire disasters have surged globally with 43 percent of the world's worst fires striking in just the past decade, University of Tasmania research published in the journal Science reveals.
Analysing 44 years of disaster data, researchers found economic disasters increased more than four times and fatal disasters causing 10 or more deaths tripled since 1980, with particularly sharp increases in recent years. “We're witnessing a fundamental shift in how wildfires impact society,” said lead author Dr Calum Cunningham from the University of Tasmania's Fire Centre.
“These aren't just bigger fires, they're fires occurring under increasingly extreme weather conditions that make them unstoppable.”
The study examined wildfire events that either killed 10 or more people or ranked among the 200 most economically damaging relative to a country's wealth.
This escalation has occurred despite massive increases in firefighting investment. US federal fire suppression spending increased 3.6-fold to US$4.4 billion (AUD$7 billion) by 2021, yet disasters continued accelerating.
Damage peaked catastrophically in 2018 at five times the 44-year average, totalling US$28.3 billion (AUD$45.2 billion) globally. Half
of all 43-billion-dollar fire events since 1980 occurred in the last decade alone.
The researchers found disasters occur where three factors converge: intense daily fire activity, populated areas, and valuable infrastructure. Mediterranean-type forests found in southern Europe, California, southern Australia and Chile, along with temperate conifer forests in places like western North America, experience disasters at rates far exceeding their land area.
Critically, half of all disasters struck during the most extreme weather conditions on record: the worst 0.1 percent of days that occur only once every three years. These extreme ‘disaster weather’ conditions have become dramatically more common, with severe fire weather increasing more than twice, atmospheric dryness increasing 2.4 times and severe droughts increasing 3.4 times since 1980.
“We're dealing with fires under weather conditions fundamentally more dangerous than previous generations experienced,” said co-author Professor David Bowman from the University of Tasmania.
This predictive capability proved tragically accurate when the research team's risk model successfully forecast major disasters that occurred after the study period, including the
devastating Los Angeles fires in January 2025, estimated at US$65 billion (AUD$104 billion) and likely the costliest fire disaster in history. Chile's deadly Valparaíso fires in 2024, which killed 135 people, also struck in an area the model identified as extremely high risk.
"This provides a roadmap for where the next catastrophic disasters are most likely to occur," Professor Bowman said. "But climate change has fundamentally altered the game. We need to adapt how we live with fire, not just fight it."
The true impact extends far beyond recorded direct losses. While Indonesia's 2015 fires caused US$1.2 billion (AUD$1.9 billion) in direct damage, the World Bank estimated total economic costs at US$19.9 billion (AUD$31.8 billion).
Smoke from landscape fires kills an estimated 1.5 million people annually worldwide, yet these deaths are absent from disaster databases.
Australia sits prominently among global disaster hotspots, with Mediterranean and temperate forest regions identified as among the world's highest risk areas. The study calls for urgent comprehensive adaptation strategies combining Indigenous fire management with modern approaches including fuel reduction, building standards and evacuation planning.
THE DISASTER MANAGEMENT INSTITUTE OF SOUTHERN AFRICA (DMISA)
Founded in 1985, the Disaster Management Institute of Southern Africa (DMISA) advances the disaster management discipline through learning and networking. DMISA collaborates closely with the South African National Disaster Management Centre (NDMC), ensuring a direct flow of information between government sectors, enhancing cooperation.
As a self-governing body focused on standardisation, DMISA hosts Africa's largest annual Disaster Risk Management conference, attracting over 350 delegates.
