emergency management in scandinavia: lessons learned at home and abroad fema higher education...
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Emergency Management in Scandinavia:Lessons Learned at Home and Abroad
FEMA Higher Education ConferenceJune 2, 2009
Joanne Stone Wyman PhD, Director
Humanitarian & Disaster Relief Logistics Application Division
SOLE – The International Society of Logistics | Hyattsville, Maryland
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Topics
Introduction to Scandinavia Top Take-Home Messages Denmark Norway Sweden Conclusion
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Introduction to Scandinavia
No standard definition Most common usage =
Denmark + Norway +Sweden
Large geographic area of Northern Europe, extending from the Barents Sea and Arctic Ocean to the Baltic Sea
Distinct paths despite some shared history and culture, plus hazards/risks in common
Source: Kort & Matrikelstyrelsen, Denmark. From www.norden.org
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Top Take-Home Messages Describing another country’s policies and institutions
using our concepts and lexicon is a challenge Denmark, Norway, and Sweden are not as alike as some
might think. Despite similarities, each country has its own unique mix of hazards, vulnerabilities, and EM framework
Post WWII, all three considered themselves generally more secure and safe than most other countries. “EM” tended to be a combination of Civil Defense and Rescue Preparedness, with a local emphasis
But crises at home, abroad, and even globally were “wake up” calls, serving as catalysts for new perceptions of risks and vulnerabilities and self-examination of the adequacy of existing policies, programs, and institutions
Today, similarities (embracing risk assessment) and differences (varying levels of integration at the national level)
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“Mainland” (Jutland) borders Germany, North Sea, Danish Straits, and Baltic Sea
Smallest country 400+ islands, ±78 inhabited Coastline = 4,545 miles Low-lying; forests, bogs,
meadows, heath, dunes, lakes; no large rivers
Mild winters (average low of ~320F) and cool summers (average high of ~600F); rainy and windy
Source: European Union http://europa.eu/abc/maps/members/denmark_en.htm
*Faroe Islands and Greenland not included.
Denmark: Overview*
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Denmark: Overview (Cont’d) Second highest population (5.5 million),
most densely populated, highly urbanized
Economy combines services, manufacturing, design, oil & gas exports; the economic system is a blend of free market and social welfare
Government blends constitutional monarchy + parliamentary democracy
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Denmark:Hazards, Vulnerabilities, Risks
3 broad categories of hazard/risk: Natural – landslides and winter storms
with high winds and flooding Manmade – accidents (transportation,
industrial, other); infrastructure failures Security/Crime – terrorism,
international organized crimeNot all hazards are domestic. Events abroad – South Asia tsunami and Lebanon crisis, for example, have
affected Danes living, working, or traveling abroad and stressed Denmark’s emergency preparedness
capabilities and capacity.
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Denmark:Hazards, Vulnerabilities, Risks
First National Vulnerability Assessment in 2004 discussed trends altering Denmark’s threat and risk climate:
Globalization (capital, ideas, information, labor) Technological innovation (specialization, cross-sector dependency) End of Cold War, expansion of EU and NATO Militant, non-state, networks
Annual National Vulnerability Reports highlight lessons learned from recent crises and trends creating new threats or new effects from old ones.* Key concerns are:
Terrorism – at home or abroad Extreme weather – more frequent and intense – due to climate change Infrastructure – failures spread rapidly across sectors and country
borders Human, animal, and plant disease and illness outbreaks/possible
pandemic
*Anticipation of continuing vulnerabilities from incidents that affect Danes or Danish interests abroad.
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Denmark: Disaster History North Sea Car Ferry Fire (1990) Winter Storm Anatol (1999) Roskilde Music Festival (2000) Oil Tanker Accident (2001) Power Outage, from Sweden (2003) Fireworks Accident (2004) Winter Storm (2005) Bird Flu (2006) Protests in Copenhagen (2006 – 2007)Tsunami (2004) & Lebanon Crisis (2006) had big impact.
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Denmark: Policies & Institutions
Pre-1992 – focus on conventional “civil defense” and “civil protection” for war
1992 – New Danish Preparedness Act “Rescue preparedness”: prevent, reduce, and remedy
harm to people, property, and the environment from accidents or other disasters
Merged two agencies into a single Danish Emergency Management Agency (DEMA) within Ministry of Interior and Health (later moved to Defense)
2002 to 2007 – crucial policy and practice changes
Annual National Vulnerability Assessments Formal government policy on emergency management Participation in international initiatives
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Denmark: Policies & Institutions
Key Principles Sector Responsibility – authority, company or institution
responsible for a particular area or function during “normal” times is responsible during a major accident or other disaster
Local Responsibility – preparedness one community at a time; response at lowest level of government first
Three Tiers With DEMA Oversight, Coordination, Assistance
Level 1 – Local response with fire and rescue brigades; capacity based on municipal risk assessment
Level 2 – 14 Centers (9 Support Centers run by selected municipalities plus 5 DEMA Rescue Centers) augment local resources
Level 3 – DEMA’s Rescue Centers activated for comprehensive, complex accidents of disasters
Special Attention to Aid Danes in Major Crises Abroad
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Norway: Overview Europe’s most northern country “Mainland”, plus Svalbard archipelago
and Jan Mayen, a volcanic island in Arctic Ocean); 50,000 offshore islands
Borders Sweden, Finland, Russia, Arctic Ocean, Barents Sea, Danish Straits
Second largest (>149,000 square miles), least populous (4.8 million)
Long, rugged coast ~13,167 miles without islands
Spans 13 degrees of latitude, with 1/3 above Arctic Circle
Source:https://www.cia.gov/library/publications/the-world-factbook/
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Norway: Overview (Cont’d)
Terrain varies widely across four regions, with valleys, forests, deep fjords, mountains
Climate varies too, dramatically: dramatic from -620F to 860F, mild winters in some regions, “Midnight Sun”
Economy dominated by oil & gas since early 1970s; combination of capitalism and social welfare
Government blends constitutional monarchy with parliamentary democracy
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Norway:Hazards, Vulnerabilities, Risks
Natural hazards – significant, potentially catastrophic slides (rock, mud, snow); occasional earthquakes; winter storms; flooding; heat, draught, forest fires
Manmade – accidents (transportation, industrial, other), tunnel safety, offshore oil and gas hazards
Security/Crime – some concern with terrorism and crime
External incidents such as South Asia tsunami are of concern.
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Norway:Hazards, Vulnerabilities, Risks
White Paper (1998) valued risk and vulnerability assessment
Vulnerability Commission (1999) examined society-wide and sector-specific risks and institutional capability to address them
Annual National Vulnerability Assessment (since 2005) highlighting significant risks:
Climate change – extreme weather, sea level rise, changes in vegetation, infrastructure disruption, more rockfalls/tsunamis
Infrastructure vulnerability, e.g., fire at Oslo Central Station
Accidents – train crashes, shipwrecks, tank explosions
Other – CBRN, transport of dangerous goods, petroleum industry
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Norway – Disaster History
Train Crash Lillestrøm (2000)
Nordland County Storm (2002)
M/V Rocknes Sinking (2004)
Dynamite Theft (2004)
Winter Storm Narve (2006)
Vest Tank Explosion (2007)
Oslo “S” Fire (2007)
Forest Fire (2008)
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Norway: Policies & Institutions
EM historically fragmented among many public, private, and voluntary entities
1993 – Ministry of Justice assumes a coordinating role, but fragmentation persists
2000 – Report of Vulnerability Commission recommends new Ministry to integrate public roles and authorities for safety and rescue
2003 – Partial integration with establishment of Directorate for Civil Protection and Emergency Planning (DSB), reporting to Ministry of Justice and the Police
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Norway: Policies & Institutions
DSB identifies/communicates hazards; promotes and oversees emergency planning; and implements laws on preventing fire, explosion and accidents from dangerous substances; rescue operations; various products; and civilian defense
Key Principles “Liability” – an institution responsible for a function
during “normal” times retains responsibility during a crisis
“Decentralization” – crisis management should occur at the lowest possible level of government
“Conformity” – society able to function normally during a crisis
Underlying these is an expectation that each citizen has personal responsibility for his/her own safety
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Sweden: Overview Spans 14 degrees of
latitude; land borders with Norway and Finland; Gulf of Bothnia, Baltic Sea, Danish Straits
Largest (174,000 square miles), most populous (9.3 million), ~15% above Arctic Circle, 220,000 islands
Coastline ~ 7,163 miles
Source: European Union http://europa.eu/abc/maps/members/sweden_en.htm
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Sweden: Overview (Cont’d)
Terrain varies across three unofficial regions; key features include mountains, wilderness, large rivers, lakes, forests, flat coasts, sandy beaches
Climate is milder than many areas at similar latitudes, with significant variations regionally
Economy evolved from agrarian to industrial during 20th century, based on abundant natural resources (including water for hydroelectric power), design, and inventions. Blends free market and social welfare.
Government combines constitutional monarchy with parliamentary democracy.
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Sweden:Hazards, Vulnerabilities, Risks
Natural Hazards - several types of slides; chronic flooding in areas; two major winter storms in three years.
Manmade - bridge collapses, train crashes, passenger ferry accidents, electric power grid disruptions
Security/Crime - terrorism
South Asia Tsunami proved to be a physical and political catastrophe for Sweden.
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Sweden: Hazards, Vulnerabilities, Risks
Commission on Vulnerability and Security in a New Era (1999) discussed changing threats due to Cold War’s end, globalization, complex infrastructure, and climate change
National society-wide threat and risk analyses since 2005
Sector-specific analyses (e.g., Climate Change)
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Sweden - Disasters Landslide Tuve (1977) Assassination of Prime
Minister (1986) Ferry Estonia Sinking
(1994) Mount Fulufjället
Flooding (1997) Nightclub Fire (1998) Fatal Attack on
Foreign Minister (2003)
South Asian Tsunami (2004)
Hurricane Gudrun (2005)
Forest Fire Boden (2006)
E6 Landslide (2006) Winter Storm Per
(2007)
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Sweden: Policies & Institutions
Pre – 1999 – Swedish Agency for Civil Emergency Planning established in 1986, sharing responsibility with dozens of other national, regional, and local authorities
1999 – Commission on Vulnerability and Security in a New Era
2002 – Swedish Emergency Management Agency replaces Swedish Agency for Civil Emergency Planning; served as a support and coordinating agency, not an operations one
2003 – New Civil Protection Act (effective 2004), requiring municipalities to conduct annual risk assessments and send results to SEMA; but EM still fragmented
2004 – 2005 – Tsunami plus major winter storm (Gudrun) two weeks later, shocked public and rocked Sweden’s political establishment
2006 – 2007 – New commission recommends organizational and other changes which result in creation of MSB
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Sweden:Policies & Institutions
Key Principles Principle of responsibility – whoever is
responsible for an activity in normal times retains responsibility during a crisis
Principle of parity – calls for organization of authorities during a crisis to be as similar as possible to peace time structure
Principle of proximity – states that crises should be dealt with at the lowest possible level, preferably by local government
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Sweden:Policies & Institutions
New Civil Contingencies Agency (MSB) Consolidates former Swedish Emergency
Management Agency, Swedish Rescue Services Agency, and Swedish National Board of Psychological Defense
Addresses entire spectrum of risks to civilian society
Executes full range of policymaking and action
Other initiatives Crisis Management Center in Government
Offices Ministry of Foreign Affairs/Consular Services
strengthening of emergency preparedness
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Conclusion
Today, varying levels of “centralization” at national level
Drivers for EM change trends (e.g., end of Cold War, Y2K and new technology, climate change) plus specific internal and external incidents, multilateral initiatives
Reliance on risk and vulnerability analysis to keep up with trends and set priorities