China's Emergency Management Institutional Reform

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1/23REDUCE RISKS BUILD RESILIENCE ANNUAL CONFERENCE DISASTTER PREPAREDNESS AND RESPONSE 2019

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Mr. Shaobiao Zhang

China’s Emergency Management Institutional Reform:

Background, Progress and Challenge

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3

4

Background : 4 Strategic Paths and 4 Deficiencies

Towards the Emergency Management System

Progress : 3 Steps and 3 Accomplishments

Towards the Comprehensive Emergency Management System

Prospect ：From Safer Shenzhen to Safer Greater Bay Area

China’s Emergency Management Institutional Reform: Background, Progress and Challenge

Key

PointsChallenge : 4 Capabilities to Improve One Plan Three Systems

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Emergency

Plan

Legal

System

Institutional

System

Operation

System

One

Plan

+

Three

Systems

Background : 4 Strategic Paths and 4 Deficiencies4 Strategic Paths

As a consequence of SARS, the central government tried to solve

the problems exposed by establishing emergency management

system via 4 strategic paths named one plan three systems which

includes：

1. Creating emergency plans

2. Restructuring the institutional structure

3. Clarifying operation system in emergency management process

4. Drafting emergency management related laws and regulations

SARS in 2003: Initiation of 4 Strategic Paths Named One Plan Three Systems (“一案三制”)

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Ev

olu

tion

s

Background : 4 Strategic Paths and 4 Deficiencies4 Strategic Paths

2005

Emergency

Plan

2005

Institutional

System

2004

Operation

System

2007

Legal

System

China began to formally start the preparation of the National Overall Emergency

Plan and Specific Plans in 2005.

Since 2004, the State Council General Office issued series of documents

to establish and improve the mechanisms of emergency response and

coordination.

National Emergency Management Office (NEMO) under the General Office

of the State Council was established in September 2005.

The National Emergency Response Law (NERL) was issued on November 1st,

2007.

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1

2

3

4

Background : 4 Strategic Paths and 4 Deficiencies4 Deficiencies

Deficien

cies

China is a vast country frequently impacted by multiple transboundary

hazards that needs comprehensive emergency management system

China implemented the principle of classified management which functions

are divergent, cross-cutting and uncoordinated.

NEMO was a department to collect information and assist

coordination, Lacking of a strong authority to enforce the National

Emergency Response Law (NERL).

China's emergency rescue teams were scattered and divided into

different disaster types, departments and sub-systems.

Armed Police Fire Teams and Armed Police Forest Fire Teams were non-

professionalization.

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Ministry of Public Security

Ministry of Civil Affairs Ministry of Land and Resources

Ministry of Water Resources Ministry of Agriculture

General Office of the State Council

Emergency Management Office

State Flood Control and Drought

Relief Headquarters

National Commission for Disaster

Reduction

State Council Earthquake Relief

Headquarters

State Forest Fire

Prevention Headquarters

MEM: Ministry of Emergency Management

China Earthquake Administration ＋

State Administration of

Work Safety State Administration of

Coal Mine Safety

Safety Committee Office of

the State Council

State Forestry Administration ＋

＋

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Step1. March 17th, 2018 the National People’s Congress Approved Institutional Reform Program

3 Steps

The Ministry of Emergency Management (MEM) took over disaster management powers and resources

previously spread over 13 other ministerial departments .(1)

(2) (3)

(4) (5)

(6) (7)

(8) (9)

(10)

(11)

(12)

(13)

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Step2. April 16th , 2018, the MEM Established

3 Steps

➢ No longer retain the State Administration of Work Safety.

➢ China Earthquake Administration and the State Administration of

Coal Mine Safety are in close contact with disaster prevention and

relief, they are managed by MEM.

➢ After the transformation of the Armed Police Fire Teams and

Armed Police Forest Fire Teams , the MEM will manage the

teams. It will be used as a comprehensive standing emergency

response force together with emergency rescue teams such as

production safety.

Chinese Vice Premier Minister

Han Attended the Opening

Ceremony

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Progress : 3 Steps and 3 Accomplishments 3 Steps

Step 3. July 30th 2018, the State Council Approved MEM’s Responsibilities, Department and Staff

Main Responsibilities

Prevention

Preparation

Response and Recovery

➢ Guide the prevention and control of fires, floods and droughts, and geological disasters.

➢ Responsible for comprehensive supervision and management of safety production.

➢ Organize the preparation of national emergency overall plan , promote emergency plan systems and

pre-plan drills.

➢ Construct the emergency power , coordinate and dispatch material reserves.

➢ Establish disaster reporting system and the disasters were issued in a unified manner.

➢ Responsible for the disaster relief system and guide the emergency rescue of safety production and

natural disasters, and to undertake the work of the national headquarters for dealing with special

major disasters.

Department:22 Staff: 546

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Accomplishment 1: Establishment of Comprehensive National Fire and Rescue Team

3 Accomplishments

➢A national fire and rescue team is important for

developing a national emergency rescue network

based on China's reality, enhancing the country's

ability for disaster prevention and relief,

safeguarding public security and protecting

people's life and property.

➢ Absorbing more than 200,000 firefighters that

was once part of China’s military and Ministry of

Public Security.

President Xi conferred the

flag to the new national

fire and rescue team

on November 8th , 2018.

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Accomplishment 2: Establishment of Provincial - Municipal Levels of

Emergency Management Bureaus

By the end of 2018, 31 provincial-level

emergency management bureaus

have been established

3 Accomplishments

Shenzhen Emergency Management Bureau

established on January 31th ,2019

Guangdong Emergency Management Bureau

established on October 30th,2018

By the end of March, 2019, all municipal-level

emergency management bureaus

have been established

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Accomplishment 3:Achievment of Ministry from April 16th 2018 to April 16th 2019

3 Accomplishments

Emergency Response

➢ 1.7 million earthquake-resistant homes were built by the authorities in 2018, benefitting

about 5.4 million people.

➢ Firefighting forces and engines were mobilized 12.7 million and 2.19 million times

respectively in 2019.

➢ 8 million people were relocated away from disaster-prone areas.

Death population decline

➢ Minimize death by hastening rescue and resettlement work during typhoon Rumbia and

Mangkhut in 2018.

➢ The number of dead and missing in natural disasters last year fell 60% from the average five

years ago.

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Challenge : 4 Capabilities to Improve One Plan Three Systems

1. Capability to Improve Emergency Plans

➢ In 2020, all the related departments from nation to county should complete new

emergency plans based on new responsibilities.

➢ How to establish a scientific, effective and coordinated plan systems is still a big

challenge.

➢ Based on comprehensive risk identification ,assessment and problem orientation

➢ Clarify responsibilities of all parties

➢ Adhere comprehensive and cooperative response

➢ Involve the whole society (e.g. NGOs, communities and citizens)

4 Revision Principles

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2. Capability to Improve Institutional System

➢ 13 new functions have been integrated into the

MEM; however, not all personnel have been

transferred accordingly.

➢ The original staff need to adapt to the new

responsibilities and requirements, who faced the

challenge of learning and training in the new field

of disaster’s prevention, preparation, response and

recovery.

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Accidental Disaster Natural Disaster Public Health Social Security

Prevention/

Mitigation

Preparation

Response

Recovery


3. Capability to Improve Operation System Towards the Comprehensive Emergency

Management System in All-Hazard and All-Phase

Challenge to coordinate prevention, preparation, response and recovery of environmental disaster.

MEM is responsible for the overall emergency plan,

including public health and social security.

Challenge to coordinate for special major disasters.

All-Phase

All-Hazard

Challenge to guide other

same-level, related

departments in preparation,

prevention and mitigation.

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We will speed up the revision of emergency

management laws and regulations, promote the

construction of emergency plans and standard

systems.

—— 2019 National Emergency Management

Conference


4. Capability to Improve Legal System

➢ Laws and regulations on safety in

production

➢ Comprehensive laws on natural disaster

prevention and control

➢ Fire laws and regulations

➢ Comprehensive law of emergency

rescue organizations

Legal Framework for Emergency Management

➢ Supporting standard system

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Dec 20, 2015

73 dead, 4 missing and 17 injured

Dec 30, 2015

The executive meeting of the

municipal government decided to

establish UPSTI. 1 month later

UPSTI registered with 200 million

RMB funding.

March 1, 2016

Guangdong Province Governor

MA Xingrui ,

Former Mayor XU Qin attended

opening ceremony of UPSTI

Due to Guangming Landslide Catastrophe Shenzhen

Urban Public Safety and Technology Institute

(UPSTI) was established

Prospect：From Safer Shenzhen to Safer Greater Bay AreaSafer Shenzhen

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UPSTI Research Area Matrix

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Prospect：From to Safer Greater Bay Area

➢The only city-level application, cost 7 million RMB.

➢Early warnings are provided based on InSAR when

infrastructures or buildings suffer large subsidence.

➢Sent 5 subsidence early warnings to authorities in 3

years.

A B

UPSTI Applies Interferometric Synthetic Aperture Radar (InSAR)in Shenzhen

12,068,810 points

mm level

precision

high

observation

point density

all-weather

observation

actively

transmitting

microwave

fully

automated

observation

no ground

station

Safer Shenzhen

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• Over 1300 construction projects with over 2600

cameras in use

• The Platform is widely applied, cost 30 million RMB

In 2020 : Apply to all the building, transport and

hydraulic construction projects in Shenzhen

Construction Waste

Supervision System

Construction Worker

Real-name System

Metro Construction

Monitoring & Early

Warning System

Tunnel Construction Risk

Management System

·······


220,000 workers

UPSTI Develops Construction Safety Intelligent Platform with 4 Systems

(1) (2)

(3) (4)

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Train at least 50,000 AHA Heartsaver certificate holders in 3 year.

Donate 1,500 AEDs for the communities ,taxies and buses , 5,000 AEDs in 3 years.

Build up 4 minutes’ rescue network by means of intelligent platform in 3 years.

Guard Life

U StationALIBABA GROUP

10 cities

10000 deliver man

45 branches , 22500 brokers

bus+taxi

500AEDs

760certificate holders + AEDs

8000 drivers+ passengers

1000 certificate holders + AEDs

UPSTI Founded Shenzhen Public Safety Volunteer Association and Shenzhen Public Safety Public Welfare Foundation

Prospect：From Safer Shenzhen to Safer Greater Bay Area

Communities

+ + + +

Project in 2019

Parter

Safer Shenzhen

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Prospect：From Safer Shenzhen to Safer Greater Bay AreaSafer Greater Bay Area

➢ Improve the integrated prevention and mitigation systems for floods

and typhoons.

Improve Natural Disaster Prevention and Mitigation, and Medical Rescue

Outline Development Plan for the Guangdong-Hong Kong-Macao Greater Bay Area

➢ Jointly develop a system for disaster monitoring and warning,

collaborative prevention and control as well as emergency response,

and increase the ability to respond to disasters such as floods and

storm surges.

➢ Improve the linkage mechanism for emergency medical rescue

services.

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Prospect：From Safer Shenzhen to Safer Greater Bay AreaSafer Greater Bay Area

➢ Improve the mechanism for contingency management

➢ Set up a Greater Bay Area coordination platform for

emergency response.

➢ Jointly formulate emergency response plans for major

contingencies, such as accidental disasters, natural disasters,

public health incidents, and public security incidents.

Deepen Cooperation in Emergency Response

Outline Development Plan for the Guangdong-Hong Kong-Macao Greater Bay Area

➢ Conduct drills for emergency response from time to time, and enhance the cooperative

capability of dealing with emergencies.

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Prospect：From Safer Shenzhen to Safer Greater Bay AreaFrom Safer Shenzhen to Safer Greater Bay Area

On August 5 1993, Shenzhen Qingshuihe Chemical Warehouse exploded twice

(15 people died、101 people injured and the economic loss over 250 million yuan. )

➢ How to avoid igniting the nearby 15,000 m3 of gasoline and LPG?

➢ Wang Zhongfu, the former vice mayor and the on-site commander, ordered the

request for support from the Hong Kong firefighting helicopter.

I was on-site and experienced

the accident’s response, rescue and

investigation.

In 1993, I worked in Shenzhen Labor

Bureau and Shenzhen Safety Work

Committee.

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THANK YOU

China’s Emergency Management Institutional Reform: Background, Progress and Challenge

Date post:	21-Mar-2023
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