report on the systematization of community-based disaster risk reduction services...

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ICCR-DRR-Funded Project Research Report

Report on the Systematization of Community-based Disaster Risk

Reduction Services at Three Levels

--- A Case Study on Shichahai sub-district of Xicheng District, Beijing, China

Drafted by Wang Dongming, Cao Shen, and Wang Ying

I． Background

Community-based disaster risk reduction (CBDRR) refers to the combination of public goods and services for communities provided by local public administration and measures taken independently by communities to ensure the safety of local residents.[1] The concept of CBDDRR is derived from "safe community" originated in Sweden in 1990s which sticks to the emphasis on community-based risk reduction.[2] The IDNDR Program Forum 1999 in Geneva called for special attention to communities as a basic unit of disaster risk reduction, in order to build up the capacity of disaster risk reduction in cities. Internationally, there have been various campaigns in CBDRR, such as "safe community", "disaster prevention community", and "demonstration community for comprehensive disaster reduction", but in essence, the campaigns are intended to improve community resilience by putting in place community-based mechanisms for disaster preparedness and emergency response and integrating all kinds of resources for disaster risk reduction.

In an international context, multiple community-based safety improvement programs launched by the US Federal Government have played a positive role in promoting the development of CBDRR. One of the earliest is the community safety demonstration project led by the Insurance Institute for Business & Home Safety (IBHS), which seeks to reduce disasters through the transformation of building structure and layout by applying new building standards.[3] In 1997, Federal Emergency Management Agency (FEMA) introduced the initiative of Project Impact (PI): Building Disaster-Resistant Communities, with an aim to "protect families, businesses, and communities by reducing the impact of natural disasters through collaborative work of communities". The initiative provided funding and full autonomy to communities, and gives full play to the bottom-up mobilization and participation mechanisms. Disaster-resistant communities are allowed to develop and implement strategies

1 Ding Shisun. Disaster Management and Safe Communities [M]. Beijing: Qunyan Press, 2006, p.257. 2 Song Yanqiong, Zhao Yong, Xu Fuhai. Comparison of Three Models of National Community-Based Disaster

Reduction [J]. Disaster Reduction in China, 2010 (19): 8-9. 3 Dennis Mileti (author), Xu Tanming (translator). Disaster by Design [M]. Wuhan: Hubei People's House, 2008, pp.

170.

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and actions for disaster reduction and capacity building according to their situations. Nearly 200 communities and over 1,000 companies joined the program within less than two years, injecting a strong impetus to community-based disaster risk reduction in the US.[4] To smooth the implementation of the program, FEMA took a three-step approach, which included: 1) setting up a pre-disaster mitigation fund to support community capacity building; 2) urging communities to develop plans and actions to reduce disaster risks and vulnerability of buildings and facilities; and 3) promoting the public-private partnerships that support and facilitate community-based disaster risk reduction. Generally, the US pattern of CBDRR combines projects and financial and technical support of the government with activities independently developed and implemented by communities within the mandate. This mechanism mobilizes the enthusiasm and initiative of communities and effectively builds up the community capacity in disaster risk reduction.

Drawing on the experience of the United States and other developed countries, China put the concept of community-based disaster risk reduction into practice in the 2010s. The 11th Five-Year Plan for Comprehensive Disaster Reduction unveiled in 2007 marks the start of CBDRR in China. It proposed "Project of CBDRR Capacity Building" and "Program of Making Demonstration Communities for Comprehensive Disaster Risk Reduction". The plan proposed establishing urban and rural working mechanisms for CBDRR, perfecting emergency plans, organizing emergency drills, improving monitoring and early warning capacity, and fostering community-based teams of workers and volunteers. From the year of 2007 to the year of 2010, up to 1,562 national demonstration communities for comprehensive disaster risk reduction were made, of which the first 284 were named by the National Disaster Reduction Committee and Ministry of Civil Affairs in 2008. As of the end of 2016, there are totally 9,568 national demonstration communities nationwide. With the implementation of national CBDRR policy, more resources have been invested into the communities for reducing disaster risks, especially in urban areas. The contingency plans have been put in place in more than half of the all communities in China. In every year, various kinds of DRR activities, such as emergency drill, DRR knowledge dissemination, self-help rescue skill training and risk assessment, are well organized and conducted. More important, basic approaches and methods of carrying out CBDRR activities have been grasped and applied by community cadres. [5]

However, community-based disaster risk reduction activities, embodied in the program of "making demonstrating communities", is unfolded in a top-down approach in China, which means the tasks are decomposed and assigned from higher to lower levels. Local governments apply for demonstration communities (depending on favorable basic conditions rather than enthusiasm) and bear all the expenses incurred.[6] Following the lead, local demonstration communities are also created. Beijing Municipal Government issued the Guidance on

4 Lv Fang. Community-Based Disaster Reduction: Theory and Practice [M]. Beijing: China Social Sciences Press,

2010, pp. 28, 31. 5 YIN Benjie. Some Thoughts on the Development of National Demonstrating Community for Comprehensive

Disaster Reduction. China Disaster Reduction, 2017(5): 34-37. 6 Feng Xijin, Wang Dongming. Policy Analysis of Community-Based Disaster Reduction [M]. Beijing: Peking

University Press, 2014, pp. 32-33.

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Strengthening Disaster Risk Reduction in Urban and Rural Communities in Beijing (BJ (2012) No.24) in 2012, in which governments (government agencies) of districts and counties were identified as the most important bodies to complete tasks set out in the Guidance. Beijing is expected to build over 1,000 national and municipal demonstration communities for comprehensive disaster risk reduction during and after the 12th Five-Year Plan period. In the context of China, central government develops standards and decomposes tasks of making demonstration communities to local governments, without providing financial support. The community-based disaster risk reduction mechanism does not include effective measures to stimulate stakeholders’ participation at local and community levels. In this case, local governments, such as sub-districts, work rigidly or require communities to undertake specific work to fulfill the commitment of "making national demonstration communities for comprehensive disaster reduction". This would give rise to a paradox that while the top-down efforts are in full swing with increasing demonstration communities, the capacity of community-based disaster risk reduction improves little in practice due to the lack of attention to the needs of residents in government-dominated disaster risk reduction services.

What’s described above is only a theoretical hypothesis. In practice, to what extent do community-based disaster risk reduction services align with the needs of community residents and what effects do the services exert? The report tries to answer the questions. The authors sort out residents’ needs on CBDRR and local government’s supply of disaster risk reduction services at the community level and evaluate the alignment through a case study on Sub-district Shichahai of Xicheng District in Beijing China, and puts forward policy suggestions to address the problems identified.

II． Methods and Data

Sub-district Shichahai is chosen mainly because of the solid work in community-based disaster risk reduction. It administers totally 25 communities including 4 national demonstration communities and 21 municipal ones, making it the only one of its kind in Beijing. The case study will, by summing up experience and analyzing problems, be implicative to disaster risk reduction in other communities and cities and conducive to identifying bottlenecks and obstacles. It will open up ideas for improving disaster risk reduction in the district, municipality and even country.

Documentary review, focus group, and questionnaire survey are employed in the research. Second-hand data include annual working reports in Shichahai sub-district from 2010 to 2016 and relevant work information provided by the Residential Committee from the Shichahai Sub-district and the affiliated communities, primary data from site questionnaire survey and focus group discussions. The questionnaire survey covers 16 communities in the Shichahai Sub-district and 30 families are randomly selected for survey in each community. The questionnaires were filled in by the respondents and each respondent was from one family who was at home and voluntary to participate in the survey. Totally 480 questionnaires were handed out, of which 402 ones were recovered and valid. Please see Table 1 about the information on demographic structure of respondents.

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Table 1: Basic Information of Community Residents Participating in the Questionnaire Survey

Demographic Structure of Respondents Percentage (%) Age: under 30 years old 15.97

30-40 years old 18.85 41-50 years old 20.94 51-60 years old 24.87 Over 60 years old 19.37

Sex: Male 42.74 Female 57.26 Identity: Massive People 70.53 Member of CPC 25 Member of Democratic Party or Non-Partisan 1.84 Others 2.63

In addition, in order to verify the results from questionnaire survey and focus group discussions, the authors also selected 2 communities to conduct disaster risk assessment. Under the support and guidance of the community cadres, the authors and 10 volunteers recruited from Beijing Normal University came to Xinghua Community and Qiantie Community to carry out the community risk assessment. The specific implementation follows the work procedures shown in Figure 1.

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Figure 1: Flow Chart for Community Risk Assessment

In two pilot communities (Xinghua Community and Qiantie Community), community disaster risk assessment was carried out by following the above procedures. Considering one of the research tasks is to make tailored disaster risk map for the vulnerable groups, such as the elderly, children and the disabled, the research team focuses on displaying the high-risk spots for the elderly and children when developing risk map for Qiantie community (see Figure 3).

By conducting community risk assessment, the hazards to the elderly’s safety in the public domain of the community are analyzed and confirmed. The hazards in the private domain, however, are still unclear. In order to reveal the potential disasters within the elderly’s houses, a household survey was carried out in the two communities, as a necessary supplementary to the community risk assessment. Because of the uniqueness of the survey, the interviewer’s task is not only to complete a questionnaire in the face-to-face way, but to identify safety hazards within the responder’s house. Thus, the interviewers should occupy certain knowledge and skills on disaster risk assessment and hazards identification. A local professional NGO registered in the Civil Affairs Bureau of Xicheng District, namely Cooperation for Disaster Reduction was entrusted to complete the job.

A convenience sampling method was employed in the survey. In total, 98 households were interviewed, and 154 old people’s information was collected7 (See Table 2 for the statistical

7 The old people are defined by age no less than 60 years old.

Prep

arat

ion

Indi

cato

r A

sses

smen

t

Mapping

Preparation for Conducting Risk Assessment

Prepare community digital map Decide assessment unit (by compound) Mark special areas and important facilities on the map

Construct Assessment Indication System

Urban

Community

Community potential disaster (d

Participatory Assessment by Community Cadres, Residents & Research Team

Assessment Team Construction

Residents Training on community risk assessment

Basic Data Collection using Self-Designed Form (See Appendix A)

Risk Assessment and Risk Grading in a participatory way

Field Verification (observation and proposing preventive measures)

Get Feedbacks from more community residents

Get feedbacks from more community residents

Community Disaster Risk Map Making

Community disaster history in the past 3 years, especially major disasters Community vulnerability status (hazard-bearing body) Disaster prevention and reduction capacities of community (human resources, equipment, Contingency Plan

and Drills, and so on)

If risk areas cannot be accessed

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information). The sample includes all the empty nester families and some other families with very old people recommended by community cadres in the two communities. See Appendix B for the questionnaire.

Table 2: Basic Information of the old people in the interviewed households

Information Percentage (%) Gender:

Male 44.4 Femal 55.6

Health: Healthy 24.0

General 42.0 Chronic Diseases 26.7 Disabled 7.3 Smoking: Yes 14.7 No 85.3 Frequency of Going out of Door Everyday 68.9 Some days per week 11.1 Less 20.0 Go upstairs/downstairs No Need 78.4 Need Help 21.6 Average Age 74.3 (years old)

II . Demand and Provision

(I) Demands from Residents for Community Based Disaster Reduction

Before the discussion on demands from residents for community-based disaster reduction, it is necessary to show the results of the questionnaire survey that reflect the understanding of residents on "community-based disaster prevention and reduction", which is also the direct expression of the demands from residents. As Table 3 shows: regarding the question of “What aspects do you think the community based disaster prevention and reduction should cover”, 62.72% of the respondents chose “community based potential disaster investigation, management and prevention”, followed by “popularization and technical training for community based disaster prevention and reduction” (54.16%); “facility construction for disaster prevention and reduction and material reserve for disaster reduction” (48.11%), “professional volunteer group building for community based disaster prevention and reduction” (45.84%), “emergency plan drafting and drills for community disaster” (42.57%), “community disaster risk mapping and protection of vulnerable people” (35.01%), and

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“strengthening disaster prevention and reduction by enterprises and public institutions in the community” (30.98%).

Table 3: Understanding of Community Residents on “Community-based Disaster Risk Reduction”

What aspects do you think the community-based disaster risk reduction should cover?

Percentage (%) Ranking

A. Community-based potential disaster risk investigation, management and reduction

62.72 1

B. Community disaster risk mapping and protection of vulnerable people

35.01 6

C. Contingency plan making and community drills for emergencies

42.57 5

D. Publicity and technical training on CBDRR 54.16 2 E. Facility construction and material reserve for disaster reduction

48.11 3

F. Professional volunteer group building 45.84 4 G. Strengthening disaster risk reduction by facilitating enterprises and public institutions engagement within community

30.98 7

H. Others 1.51 8

(Note: the average option quantity of each respondent is 3.2)

As a majority of respondents think the “community based potential disaster investigation, management and prevention” is the important content for community-based disaster prevention and reduction, so what are the demands of residents on specific potential hazard? Based on the data from questionnaire survey and the informal discussion meetings with resident representatives from communities, the demands of community residents on community-based disaster prevention and reduction are focused on the following four aspects.

1. Demand for Fire Prevention. The fire in daily life is the sudden-onset disaster most concerned by the residents of the Shichahai Sub-district and strengthening investigation and management on fire hazard is the most expected community-based disaster risk reduction service. Table 4 shows that the main potential disasters ranking first and second are all related to fire hazard. 58.59% of residents selected “Old house or scattered materials lead to potential safety hazard” and 44.44% of them chose “Aging wires or scattered wires in community lead to fire hazard”. During the discussion meetings, the resident representatives mentioned many times that in the Shichahai Sub-district, there are great numbers of old flat houses and all kinds of wires are intercrossed and severely aged on the one hand, and that the problem of material storage at yards and stairs, even in houses exists in some communities on the other, all of which will cause great fire risk. As one community cadre said,

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A widow in the community, aged more than 80, lives in a three-bedroom house by herself. All the rooms are fully filled by various garbage that she picks up from outside. One day, when she was cooking, some scattered papers were caught fire near the kitchen. Fortunately, some community cadres quickly came and put out the fire when they heard the widow’s help. However, the widow doesn’t learn from the event, still keeps much garbage in her house now.

Besides, the results from the investigation on disaster risk in the 4 communities belonging to the Shichahai Sub-district show that the quantity of the fire risk accounts for 36% of the total quantity of potential disaster risk, which occupies the highest portion.

Table 4: Judgment of Community Residents on Main Community Potential Disaster

What kinds of main potential disasters will you probably encounter in your community?

Percentage (%)

Ranking

A. Old house or scattered materials lead to potential safety hazard

58.59 1

B. Old trees or dense leaves in the community lead to potential safety hazard

25.51 4

C. Aging wires or scattered wires in community lead to fire hazard

44.44 2

D. Uneven ground and drainage difficulty lead to water waterlogging hazard

33.84 3

E. Potential safety hazard exits in production services of units in the community

10.10 5

F. Others 3.03 6

Concerning on fire hazard, residents hope that the Residential Committee is able to coordinate relevant departments to make replacement and renovation of aging wires (A1), carry out special cleaning actions on material storage at yards and stairs (A2), equip fire extinguishing boxes and fire extinguishers for buildings and yards and guide residents how to use them correctly (A3). Residents also expect the fire department should strengthen safety inspection on catering enterprises, especially some medium and small restaurants, urge them to make self-inspection on fire and explosion protection so as to prevent gas tank from leakage and explosion (A4). Considering the insufficient knowledge and capacity of fire prevention and extinguishing, residents hope that relevant training should be organized in the Shichahai Sub-district or communities on the aspects of common sense on fire prevention, knowledge of extinguishing initial fire hazard, and techniques on self and mutual escaping rescue (A5), and that emergency tools such as household fire extinguishers and fire blankets should be provided for empty-nest elderly and disabled families (A6). In addition, as to the fire hazard caused by great floating population in communities and improper management on the rent of public rental housing, residents hope that practical and effective measures should be taken timely (A7).

2. Call on Waterlogging Prevention. During the flood season every year, problems such as

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drainage difficulty of rain water and excess surface water will occur at flat houses in some communities of the Shichahai Sub-district. As Table 2 shows, 33.84% of respondents pointed out “Uneven ground and drainage difficulty lead to water accumulation hazard”. The waterlogging is caused by reasons from various aspects. Firstly, the low terrain in the yard of the flat house is inclined to waterlogging. For example, 15 yards in Community A are often encountered with water pouring back into the yard during the flood season. Secondly, the drainage channel is not smooth. For example, because of the inappropriate management on the 12 yards in Community B, the sewer has not been dredged for many years and the problem of waterlogging is severe. Thirdly, the improper daily management causes the waterlogging. Disturbed by the bad smell of the alley drainage outlet in summer, residents have blocked most of the drainage outlets. During the flood season, nobody initiatively opens the outlet, thus the rain water cannot be timely drained.

Regarding the problems mentioned above, residents hope that low-terrain yards and streets should be blocked up (B1), construction and maintenance of drainage facilities in communities should be strengthened to improve the drainage function and effects (B2), and popularization and education should be often carried out for community residents to make joint efforts to make maintenance on the drainage facilities (B3). Meanwhile, residents hope the housing management departments should regularly make maintenance and innovation on dangerous buildings (houses) in communities so as to prevent accidents from occurring during the flood season (B4).

3. Desired for Knowing About the Potential Disasters around Residents. It is obvious to see the risk of fire and waterlogging in pilot communities, and residents have urgent demands on prevention of fire and waterlogging. As for the disasters that do not occur often and some disaster risks are not easy to identify, the residents hope that a list should be made containing all kinds of potential safety hazard sites and dangerous sources which impact on residents' life and property safety through scientific assessment relying on expert force, and that the daily precaution measures and notices should be informed to residents and the warning notice can be sent timely in the dangerous period (C1). Meanwhile, measures and methods should be formulated to control potential safety hazard points and prevent dangerous sources (C2), and the public notice should be regularly made, including control progress of potential safety hazard points, investigation status on new hazard points and dangerous sources as well as information that reminds of residents to take precaution (C3).

4. Call on Ensuring Unimpeded Emergency Rescue Channel. There are great numbers of alleys with narrow roads in the Shichahai Sub-district. The fire fighting vehicles cannot access into some alleys due to the road width. And for some valleys with enough road width, due to the problem of road occupation caused by random stop of private cars, unapproved construction projects and unauthorized construction, the access of emergency rescue vehicles are blocked artificially if sudden accidents such as fire happens. Residents hope the unapproved construction projects should be removed as soon as possible to widen the alleys (D1). Meanwhile, research on building a large or stereoscopic parking area should be made to solve the road occupation of private cars (D2).

In accordance with the classification method of “hazard control before disaster——avoidance

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and protection during disaster——professional emergency tackling after disaster”, the demands of community based disaster reduction in the fours aspects mentioned above can be further concluded that the demands of residents in the Shichahai Sub-district for services of disaster prevention and reduction focus on the aspects of hazard control and risk alleviation covering 10 items, namely A1, A2, A4, A7, B1, B2, B3, B4, C2, C3, which accounts for 62.5% of the total demands (16 items).

(II) Results of Disaster Risk Assessment in 2 Polit Communities

With regarding to the definition of risk grading, in the research, the authors grade disaster risks as follows,

- Extremely high-risk areas: in which serious disasters (in the Top 4) occurred in 2016 and 2015, and hazards still existed (confirmed by community cadre, residents and research members) in 2017;

- High risk areas: in which serious disasters (in the Top 4) occurred in 2016 and 2015 and hazards were well handled (confirmed by community cadre, residents and research members) in 2017;

- Medium risk areas: in which disasters occurred in 2016 and 2015 but not serous (out of the Top 4), and no new obvious hazards appeared (confirmed by community cadre, residents and research members) in 2017

- Low risk areas: in which no any disaster occurred in 2016 and 2015, and no new hazards appeared (confirmed by community cadre, residents and research members) in 2017.

- If there are new hazards increased (confirmed by assessment team) in 2017, the risk level will jump to the next higher one till to the highest one. Similarly, if old hazards were or would be well handled (confirmed by assessment team) in 2017, the risk level will go down to the next lower one till to the lowest one.

With 3 streets and 8 alleys, and covering an area of 0.28 km2, the Xinghua Community is one of largest communities in the Shichahai Sub-district. According to the site assessment results from the research group, the comprehensive disaster risk map of the community is shown in Figure 2.

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Figure 2: Comprehensive Disaster Risk Map for Xinghua Community

The main potential disasters of Xinghua Community are distributed in some special compounds transformed from ancient buildings, which are occupied by many households. A gas station within the community is very near the residential area, which also becomes an outstanding risk source.

Table 5: Main Potential Disasters and Countermeasures in Xinghua Community

Extremely High Risk Assessed Countermeasures

Wooden Housing Conditions

The material of buildings in Prince Qing’s Mansion is wooden and the buildings are old and in bad condition. The wires in and around the buildings are aging, which can possibly cause fires.

Responsibility Clarification

Regarding the potential disaster of Prince Qing’s Mansion, communication should be made with relevant administrative departments as soon as possible and effective measures should be taken to strengthen safety precaution. Responsible bodies: Shichahai Sub-district office, fires department and

The Prince Qing’s Mansion is under control of special department of P.L.A., and the community committee does not have much administrative power.

Comprehensive Disaster Risk Map for Xinghua Community, Beijing

School

Hospital

Road

Boundary

Green Land

Extremely High Risk High Risk Area

Medium Risk Area Low Risk

Basic Situation Containing 3 streets and 8 alleys and covering an area of 0.28 km2, Xinghua Community is located in the Shichahai Area, Xicheng District, Beijing. The boundary of the community is Dongguanfang Alley to the east, Denei Street to the west, Jiaochang Alley to the south, and north side of Dingfu Street to the north. There are 1952 households with 4731 residents and also 356 migrants. Meanwhile, it contains 15 building gates, 167 yards, 12 units and 66 new economic organizations. Main Hazards The main potential hazard is the gas station. The wooden houses and random wire laying are inclined to fire. Two hospitals also can be the infection sources when significant infectious disease occurs. Vulnerable Group The most vulnerable group in the community is the elderly Emergency Shelter The playground of Furen Campus of Beijing Normal University in the community is the emergency shelter

Legend

m

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civil affairs bureau in Xicheng District

High-density population in a mixed and disorderly compound transformed from an ancient temple

As a typically mixed compound transformed from an ancient building, Baoan Temple is characterized by crowded households and narrow passage which only one person is allowed to go through.

Reasonable Planning

The migrants in the compound should be moved out and be resettled in other places. Evacuation route should be planned in the compound and emergency drills should be periodically carried out. The passages in the compound should not be allowed to park cars. Responsible bodies: Xinhua Community, Shichahai Sub-district office

Gas station

As the significant risk source, the gas station is controlled by a private enterprise.

Promote Communication and Information Open

It is difficult to move the gas station out of the community, and the reasonable way is to communicate with the owner of the gas station to improve safe management and actively reveal the measures taken in running the station. Responsible bodies: Xinhua Community, Shichahai Sub-district office

In Qiantie Community, just like Xinhua Community, the fire risk and safety accident risk mainly exist caused by aging wires, temporary housing construction and rain shelter building without approval, and narrow roads. There are great numbers of households in some alleys and the electricity demand is large, many residents make wires laying, wires connection and even circuit alteration in order to fulfill their own demand. During the peak period of electricity usage in summer, it is inclined to short circuit, wire burning and even fires. In some flat houses, some residents build color steel houses on the roofs of their own houses. The laminboard they use contain combustible material of low fire-resistance rating which is easy to flame, collapse and produce poisonous smog. Through field verification, the color steel houses are normally used for renting to migrant workers. The self-built houses have narrow building distance, and the daylight is bad at the first and second floor. The population density

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is high, and the inner part of the house is obstructive and narrow. The kitchen fire usage and the charging equipment for electro-mobiles are all set inside the house. There are no obvious evacuation signs and the fire fighting facility is not equipped under the requirements. Thus, severe fire hazard exists in those houses. The roads are narrow outside the self-built houses and maximum 2 persons can pass in parallel. There are many wires laid randomly and rain shelters with dense distribution are built without approval. In the windy days, all those are inclined to safety accidents. Based on basic data collected, group discussion and field verification, the main spots that are inclined to threats to the safety of elderly and children in the community are marked in Figure 3.

Figure 3: Spots that are Inclined to Threats to the Safety of the Elderly and Children

in Qiantie Community

As to the safety hazards faced by the elderly especially the ones in empty nester families, the

household survey to the elderly reveals that among the 98 families, 10 ones encountered home

emergencies in the past year. In summary,

- electric shock accidents happened in 3 families;

- housing safety issues (conditions of the houses are to bad) happened in 3 families;

- fires occurred in 2 families;

- flooding influenced 1 family;

- Thief broke in occurred in 1 family;

The authors conclude that safe hazards are quietly high in the elderly families because of the

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unsafe electricity use and aging gas pipes (See Figure 4).

Other meaningful findings include,

- Bungalow (house only with one floor) is the main living type in the two communities;

- The living space per capital is quietly near among the families;

- Visits to the empty nester families are less than that to other families.

-

Figure 4: Safety Hazards within the Houses of the Elderly One reason of the high existence of safety hazards within the empty nester families is their

less interaction with the outside than other old people in ordinary families, especially less

visits to their homes. The safety hazards faced by the elderly within their homes are ignored

by the public services in CBDRR, but the elderly are extensively covered by many other

public services, such as home-based care service, the elderly welfares in special festivals, and

so on.

Risk communication with local residents is embedded in the processes of carrying out

participatory disaster risk assessment at community level and conducting household safety

hazards checking for the elderly. Also, the community disaster risk maps developed by

authors have been printed and posted in the places where many residents pass by everyday in

the two communities.

(III) Contents of Services for Disaster Prevention and Reduction

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Through the comprehensive analysis on the activities of disaster prevention and reduction carried out in the Shichahai Sub-district, the services of disaster prevention and reduction cover 5 aspects, namely, popularization and education, volunteer training, potential hazard control, purchasing of emergency materials and equipment, and management capacity building (See Table 6).

Table 6: Summary of Services for Disaster Prevention and Reduction in Year of 2011-2016 in the Shichahai Sub-district, Xicheng District, Beijing

Year Risk Source Control

Vulnerability Improvement

Popularization and Education

Capacity Building

Others

2011 Strengthened the investigation and control on potential hazard of production safety and food safety in early stage

Implemented reinforcement projects for earthquake resistance on kindergartens; Carried out popularization and inspection on gas poisoning prevention in rental housing, and installed wind scoop and bend

Popularization on fire fighting

Established sub-command post for waterlogging prevention

2012 Inspected the regional production and operation safety, and discovered and renovated 80 safety potentials

Popularization activity for safely setting off fireworks and firecrackers during the Spring Festival (ahead of the Spring Festival); Carried out "Safety Emergency Drill on Fire Fighting” (fire prevention

Established leading group for area based comprehensive disaster prevention and reduction; Established community emergency rescue team and installed necessary

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station, and production-operation units in the community)

equipment

2013 Conducted potential risk investigation and production-operation safety inspection on 25 communities

Handed out propaganda materials such as pokers, desk calendars, recycle bags printed with knowledge of disaster prevention and reduction to residents (International Day for Natural Disaster Reduction) Organized emergency group to make drills for 5 times successively with the main tasks on waterlogging prevention, earthquake prevention and fire fighting

Added lines for emergency broadcasting system; installed emergency rescue facilities and equipment for communities

2014 Carried out special problem-addressing action on “potential removal, accident prevention and zero casualty” to investigate and remove various potential safety hazards

Overhauled the “group-oriented leasing houses” and basements

Carried out drills on waterlogging prevention, earthquake prevention and fire fighting for more than 10 times; Especially in the drill of 5·12 National

Developed software on potential safety hazard investigation system for the Shichahai Sub-district and realized the coverage of management

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Disaster Prevention and Reduction Day, leaders from the State Council, the Ministry of Civil Affairs and Beijing Government were present and gave guidance

on “seven small” enterprises.

2015 Overhauled the “group-oriented leasing houses” and basements; Installed smoke alarms for 950 families with over 70-year-old elderly and empty-nest elderly

Properly disposed of the collapse accident of No. 93 Yard and the gas explosion accident of Dianmenwai Street No. 34

2016 Removed 138 unapproved buildings (open walls and drill holes); Removed 5 illegal constructions on occupying gas lines

Handed out propaganda wall map to post at the showcase in various communities, and strengthen popularization of food safety

Carried out emergency skill competition for community residents in the form of sports meeting

Data Source: Compiled by the author based on the annual working reports and the annual summary of the civil affairs branch in the 6 consecutive years from 2011 to 2016 of the Shichahai Sub-district, Xicheng District, Beijing.

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The services provided by sub-district office can be divided into the following 5 types.

1. Publicity and Education on Disaster Risk Reduction. There are mainly two ways. Firstly, the large comprehensive popularization and education and the popularization of disaster prevention and reduction for single disaster at special nodes are carried out. The main service form is to hand out various propaganda materials for disaster prevention and reduction. For example, during the period of the “International Day for Natural Disaster Reduction” in 2013, more than 18,000 propaganda materials such as pokers, desk calendars, and recycle bags printed with knowledge of disaster prevention and reduction were handed out to residents; Ahead of the Spring Festival in 2012, the Safety Production Office of the Shichahai Sub-district carried out popularization activity for safely setting off fireworks and firecrackers and handed out over 8,000 propaganda materials such as the manual of safely setting off fireworks and firecrackers. The second way is to carry out the drills for disaster prevention and reduction. The Residential Committee organizes the enterprises, public institutions, social organizations and community residents to jointly carry out the drills annually. For example, in the “5·12 Comprehensive Drill for Disaster Prevention and Reduction” held in May 2014, such items as emergency evacuation and placement, fire extinguishing and water rescue were drilled; in August 2012, the Residential Committee, the Fire Prevention Station of Xicheng District and the production-operation units in the Shichahai Sub-district jointly held the “emergency drill on fire fighting”.

2. Volunteer Training. The volunteer team construction for disaster prevention and reduction is a key work carried out with great efforts in the Shichahai Sub-district in recent years and now is the model for the whole district. The Shichahai Sub-district is responsible for the management and usage of the volunteer team, and the training tasks are entrusted to and implemented by professional training institutions for disaster prevention and reduction through purchasing social services. The volunteers are composed of area cadres, community workers, office personnel and school staff. Till the end of 2016, there were totally 216 volunteers. Through training, the volunteers have learned the knowledge of disasters such as earthquake, fire and flood, grasped the emergency rescue skills such as fire distinguishing, search and rescue, cardio-pulmonary resuscitation, hemostasis and bandaging, fixing and transportation, and are equipped with rescue equipment. The volunteers are scattered in various communities at usual time and will be deployed based on requirements during the emergency period.

In addition to the volunteer training, the Residential Committee also actively carried out Red Cross first aid training, and provided emergency rescue skill training for lathe operators of “Alley Travel” companies by combining local tourism features. The Safety Work Office, the Women's Federation and the Group Work Committee also carried out knowledge and skill training on fire fighting of work safety, emergency rescue and action for the enterprise staff, personnel for community based disaster prevention and reduction, and community residents.

3. Potential Hazard Control. Based on the spontaneous investigation on community disaster potential and register of potential hazard points, the Shichahai Sub-district carried out disaster risk assessment training for community cadres and volunteers for disaster prevention and

http://youdao.com/w/CPR(cardio-pulmonary%20resuscitation)/#keyfrom=E2Ctranslation

19

reduction, invited experts to teach how to draft community disaster risk maps, made site survey on potential disaster points and proposed protection measures and potential hazard control advice. Regarding the potential disasters, a series of special actions have been carried out, such as cleaning of materials obstructed in communities, inspection and reminding of safety usage on coal/fire, and cleaning of private cars occupying the roads. For example, in order to reduce the accidents of gas poisoning and fire hazard caused by improper usage of gas and coal heating by the residents, the Residential Committee collaborated with the local police station to hand out “A Letter to the Residents” to remind the residents of usage notice on coal gas, made safety inspection on the coal gas in families, and made concentrated inspection on key objects, such as floating population households, new added coal heating household and shops during such important periods as early- and end- stage of coal heating, and back-to-Beijing stage after the Spring Festival.

4.Purchasing of Emergency Coping Materials and Equipment. Regarding the current situation of outstanding fire risks, small fire extinguishing boxes containing such tools as fire extinguishers, fire blankets, fire hoses and water guns have been equipped in more than 170 alleys in the Shichahai Sub-district. When fire occurs, it is convenient for the volunteers for disaster prevention and reduction and the community residents to use fire extinguishing tools for primary disposal. The Residential Committee has also actively strived for social fund support and stored various kinds of emergency materials, equipment and facilities (See Table 7).

Table 7: Materials, Equipment and Facilities for Disaster Prevention and Reduction Supported by Social Force

Name Description/Function

Personal Rescue Equipment

Including safety helmet, clothes, shoes, knee pad, elbow pad, goggles, belt, gloves, emergency light, waist bag containing rescue tools and etc.

Emergency Box Large draw-bar box containing such materials as emergency food and medical bag

A1 Box for Public Rescue Materials

Containing emergency food, sanitary products, breathing masks, life ring, crowbar, axe and stretcher

Community Rescue Vehicle

Small fire fighting truck equipped with tools used for fire fighting, cleaning and first aid

Wheeled Stretcher Emergency transportation for the injured

“Convenience Store” for Emergency Rescue

Shape of vehicle and function division inside. Emergency materials such as food, drinking water and rescue tools are displayed. Professional personnel who receive professional emergency training are equipped in the store to provide support for various kinds of sudden accidents.

For the convenience of emergency evacuation and temporary placement for victims when

20

sudden accidents happen, empty spaces are set as the emergency evacuation points such as school playground, parking area and green land through negotiation with schools, property management companies and parks. Meanwhile, sign boards of “Emergency Evacuation Space” and sign posts have been installed. While strengthening the reserve of various kinds of emergency materials, equipment and facilities, the Residential Committee has also actively encouraged the communities and families to purchase small rescue tool boxes and family emergency bags based on the actual demand.

5. Management Capacity Building. It contains two aspects, namely system building and technical support. As for the system building, leading group for area based comprehensive disaster reduction was founded in early 2012 and the contingency plan system with “Overall Plan on Emergency Rescue & Relief for Unexpected Events in Shichahai Sub-district” as the guidance and with 19 special plans as the main body was established. Under the guidance of the Sub-district, the emergency plans have been formulated in communities dealing with various sudden accidents such as fire, waterlogging, leakage of hazardous gas, house collapse and road collapse. In the aspect of technical support, the construction of complete response grid system was completed in 2013 and the monitoring room of sub-command center was established. Thus, the key areas can be realized for 24-hour monitoring through 150 high-definition cameras. In addition, the automotive guiding system, massive population monitoring system and emergency broadcasting system have been established in tourism areas, which can assist the managers to scientifically take control measures and effectively deal with various sudden events based on the real-time situation.

II. Alignment between Needs and Services

Two findings on the quality of disaster risk reduction services provided by grassroots government can be drawn:

(A) Services cannot effectively meet the residents’ needs. Disaster risk reduction services provided by grassroots government are task-oriented and not based on the needs of residents. The case study finds that the residents’ needs on disaster risk reduction services are focused on the management of hazards and reduction of all kinds of disaster risk in daily lives. Based on the results of data analysis, the most noticeable disaster risks that residents concern are fire risk due to old wires within buildings, flooding risk due to low-lying ground and poor drainage in community, inappropriate emergency response due to inconvenient transport within community because of the unauthorized temporary construction and lane occupation by private vehicles. In contrast, community-based disaster risk reduction services provided by grassroots government focus on capacity building of community emergency response, such as establishing community emergency response mechanisms, building community volunteer team for emergency response, setting up emergency facilities and relevant equipment, and providing first aid training for residents.

Grassroots governments have responded to the residents’ demand by inviting experts to carry out community disaster risk assessment and develop community risk maps, establishing fire alarm system, and renovating and reinforcing old houses. However, the efforts are not

21

sustainable because of the local and grassroots governments’ priority to enhancing emergency management, as well as not enough to address practical problems of concern, and therefore are unable to effectively meet the needs of residents. When more efforts are required in order to dispose community hazards or reduce disaster risk, such as coordinating various government departments, applying or integrating more funds and organizing community residents, officials of the grassroots government tend to be hesitant and halt, hindering the problem-solving process. The root cause lies in the narrow-minded emergency management which highlights emergency, preventive, and remedies services. Resource allocation and utilization are targeted at ex-post disposal and will serve as palliative only. As noted by Tong & Zhang, "emergency management does not fundamentally reduce the crisis facing the government. For China, the most fundamental question is risk rather than emergencies, and it can be tackled only through strategic management that integrates risk management, emergency management, and crisis management.” [8]

The authors fully understand the consideration of local governments in Beijing that disaster risk reduction services should aim at enhancing emergency response capacity. Given many hazards and frequent emergencies every year in Beijing, the primary responsibility facing local and grassroots governments is effective response to emergencies because the efficiency and effectiveness of emergency management is of extreme concern to the higher-level governments and the public.[9] For example, Beijing Municipal Government has been much criticized for the late and poor response to the flood on July 21, 2012.[10] In the circumstance that emergencies occur frequently and are easily enlarged by the media, the idea centering on emergency response capacity fits with the characteristics of the times in the social transition prone to a variety of social contradictions and sensitive issues. However, this makes community-based disaster reduction capacity building secondary to emergency response capacity building.

(B) Inadequate local capacity restricts service effectiveness. Local governments are deficient in capability, input and enthusiasm in providing disaster risk reduction services. This is closely related to and mutually reinforced by the reason identified above. In the circumstances that risk management and risk reduction are not well incorporated, disaster reduction services are mainly constrained by inappropriate emergency plans and insufficient inputs. Emergency plans specify arrangements for emergency response, covering organization, personnel, technology, equipment, facilities, supplies and rescue operations, as well as command and coordination, based on the identification and assessment of potential major hazards, event type, probability and process of occurrence, consequences and impact.[11] 8 Tong Xing, Zhang Haibo. China-based Disaster Management Analysis Framework [J]. Social Science in China,

2010 (1): 132-146. 9 Wang Hongwei. Emergency Management Theory and Practice [M]. Beijing: Social Sciences Academic Press,

2010, pp. 15. 10 Lv Jingsheng, Guo Xiaomo. Problems in Government Response and Management in Major Urban Crisis and

Countermeasures: A Case from July 21 Rainstorm in Beijing [J]. Journal of National School of Administration, 2012

(5): 53-60.

11 National Center of Safety Science and Technology under State Administration of Work Safety, Development of

Emergency Response System and Emergency Plan [M]. Beijing: Enterprise Management Publishing House, 2004

pp.13.

22

Generally speaking, contingency plans set the tone of emergency preparedness and their operability directly affect the results of emergency response.[12] The emergency plans of Shichahai Sub-district were found to be deficient in both content and operability. Measures and safeguards, which are supposed to be the core content, are only mentioned rather than detailed. The Emergency Plan for Workplaces in Shichahai Sub-district, for example, specifies on-site verification in the workflow, without consideration to such aspects as possible scenarios, decisions and response, cooperation of departments, and matters of attention. The plan makes a general requirement only for responsibilities, work division and safeguards -- "in the event of emergencies, the government should be on call and act timely with rational division of work and tasks to fulfill the responsibilities and ensure proper disposal and powerful protection.”

In addition to emergency plans, the lack of inputs in volunteers, tools and shelters also limits the improvement of disaster reduction services. More specifically, the team building process is hampered by insufficient investment in training, management, and use. In view of the aging structure of volunteers, it is urgent to attract young volunteers and strengthen professional training and equipping. The supply of tools also lags far behind disaster reduction needs in Shichahai Sub-district, where safety inspections and emergency services rely on motorcycles, small electric vehicles and fire engines due to large geographical area, scattered community layout and narrow lanes. What’s worse, there is little space in Shichahai Sub-district for the construction or renovation of emergency response shelters, while the facilities available for emergency evacuation and temporary arrangements, such as school playgrounds, green space, and parking, remain difficult to meet the actual needs. In terms of community-level publicity and education, the activities have not yet been normalized and are mainly carried out in special occasions, such as National Disaster Reduction Day. In short, the weak capacity in disaster reduction services can be attributed to the lack of stable financial investment by the state, municipality and district and the lack of inappropriate guidance as the neighborhood and community can rely entirely on guiding documents.

III. Conclusions and Recommendations

The primary purpose of CBDRR is to increase community disaster resilience, and the main contents of CBDRR consist of two aspects, one of which is the reduction of occurrence of emergencies by carrying out fires and safety hazards elimination, and the other is the minimization of the losses by carrying out emergency drills and skills training in order to realize organized coping actions such as orderly evacuation and effective resettlement in emergencies.

Community risk assessment and risk map making are indispensable tasks when developing and rolling out any CBDRR program. However, the authors see the two tasks in a different way, as an appropriate approach to communicate risk with the community residents and raise their risk awareness. The results of hazards handling (e.g. old electrical wire renewal, vulnerable housing reinforcement) are more visible and measurable than that of reducing disaster risk. Local government prefers to spend money on the public services that can 12 Wang Dongming. Policy Research on Relief-oriented Disaster Preparedness [J]. Disaster Reduction in China,

2013 (10): 46-47.

23

produce direct and obvious outputs. Under the constraint of financial budget, few governments are willing to spend money on potential problems. From this perspective, the authors would prefer to use “hazard analysis and handling” to replace risk assessment. Nevertheless, the role of disaster risk assessment is still very important and indispensable in CBDRR, and the process of conducting disaster risk assessment by employing a participatory approach is also a key procedure of improving residents’ risk awareness.

It is necessary to learn something from other countries’ practices on CBDRR before coming up with some specific suggestions to improving local work in Beijing. Based on the authors’ literature review, lessons learnt from Japan is as follows.

Lessons learnt from Japan:

Community-based voluntary organizations for DRR (in Kobe City, Japan, for example, the communities that sets up voluntary organizations for DRR are called “Disaster-Safe Welfare Communities”[ 13 ]), schools within communities, and local government organizations (fire department takes the lead, others include education department, city office or ward office, and so on) are the principal actors in promoting CBDRR;

DRR activities and welfare activities are combined at community level, and collaboratively planned and carried out by the stakeholders including Residents’ association, Elderly association, Women’s association, Youth association, Business entities, Volunteer fire corps and so on, which increase the participation rate of local residents;

Funds and equipment that are needed by the community-based voluntary organizations in carrying out DRR activities are provided by local governments; the emergency resettlement sites are provided by local schools in the way of sharing classrooms, playground, etc.; and

Students learn about DRR through emergency drills which prepare them for disasters and fires, together with evacuation drills which schools are REQUIRED to conduct by law in Japan.

In accordance with the Emergency Law of P.R. China, local governments (such as Shichahai Sub-district office) take the lead in reducing community disaster risks. Based on the above analysis, we can see that the sub-district office has assumed most of public services in CBDRR. Community emergency response capacities have been built based on the public services provided by the sub-district office, but little has achieved in community disaster risk reduction. In other words, with appropriate emergency response capabilities for coping with any emergency, the future disaster risk reduction services for Shichahai Sub-district should put more attention to the community risk and hidden hazards that the residents concern, e.g., replacing the aging wires and keeping the fire exist clear. Thus, the role of sub-district office can be defined,

13 BOKOMI Guidebook, available at: http://www.adrc.asia/acdr/2015/documents/ID251_3.pdf

http://www.adrc.asia/acdr/2015/documents/ID251_3.pdf

24

- to take the primary responsibility to reduce community disaster risks within the administrative region;

- the principal purchaser of CBDRR services delivered by community committee, enterprises and NGOs, which include risk assessment (e.g. flooding, fires, house collapse, pets’ hygiene, pets bite, the elderly fall), risk communications, knowledge diffusion and skill training at community level, and

- to enable the participation of other stakeholders, including community-based organizations (CBOs), entities located within community, and volunteers.

The services delivered by sub-district office, however, cannot meet the need of the residents for a safe living environment. The upper government should take its responsibilities in supplementing urgent DRR services for the elderly and making necessary policies.

The role of district government (the principal responsibility is taken by district bureau of civil affairs) can be defined:

- to aim to reduce fires risk embedded in their lonely or nearly isolated living status within the elderly group by adding raising risk awareness of the elderly as one of their duties when purchasing social workers’ home-based services in terms of daily nursing, spiritual consolation (mental support), and so on;

- to develop the standards of DRR services (scope of eligibility, content of services, frequency of delivery, monitoring of services, etc.) to ensure the quality and equality of delivered; and

- to set up some seed fund to guide sub-district government agencies to appropriate more fiscal fund for DRR services.

Based on the role definition and the reality of that Shichahai Sub-district office takes the lead in further community disaster risk reduction, some suggestions are proposed to the office as follows.

(A) Rate problems based on scientific analysis and assessment and put the handling of evident and "persistent" hazards on the work agenda. Grassroots governments at sub-district level can leverage the professional organizations’ expertise to assess and analyze disaster risk within the administrative areas and get a grasp of the hazards and main risk. On this basis, the needs of residents are graded and classified, for example, by degree of urgency (very urgent, relatively urgent, and ordinarily urgent) and the degree of difficulty (very difficult, relatively difficult, and ordinarily difficult). Coping priority is given to very urgent and ordinarily difficult problems, then relatively urgent and very difficult problems, and finally ordinarily urgent and very difficult problems. In this way, problems are addressed according to the timetable and division of work, while safeguards and public supervision are put in place.

(B) Optimize existing emergency plans based on experience and improving emergency drills to achieve scientific and operable emergency response. Governments are advised t to collect

25

emergency management cases over recent years, analyze and summarize the conditions and measures, and incorporate the successful practices and experiences into emergency plans, in order to further optimize the emergency response process and resource allocation and refine responsibilities and measures by departments and personnel. Closely related with emergency plans, emergency drills should also be carried out in a scientific manner with more emphasis on quality than quantity, to ensure maximum effectiveness. Each drill should serve the specific theme, purpose and mission and meet specific quantitative requirements. Only in this way, drills can be well planned, scientifically organized and effectively implemented, and produce the desired results. It is such drills that can really test and help to perfect the emergency plans.

(C) Increase investment and improve publicity and education on disaster risk reduction to improve community resilience. In 2014, Shichahai Sub-district allocated 2.629 million yuan for disaster reduction, ranking first among sub-districts of its kind, but the input accounted for 1.14% of its total expenditures in the full year, far from able to meet the needs and expectations of residents. It is urgent to pool more funds into sub-district-level risk investigation, equipment enhancement, and shelter construction, as well as community-based disaster reduction activities. Institutionally, national-level policy adjustment and improvement is expected.

Publicity and education on disaster risk reduction should be strengthened in a routine and agreeable manner by developing annual, quarterly and monthly work plans. Units with active and positive performance in disaster reduction will be given publicity to mobilize communities and enterprises and institutions within the administrative areas, create a self-service atmosphere for mutual promotion and common benefit and ultimately enhance disaster reduction capacity.

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Appendix A

Basic Data Collection Form for Community Disaster Risk Assessment

社区灾害风险评估基础数据采集表

一、致灾因子

2016 2015

1. 当年发生灾害的次数 ________次 ________次

2. 导致灾害发生的根源（如降雨、

大风、用火不慎、电线老旧、管道失

修等）数量

_________个（分析每次灾

害发生的根源，相同的根源

只记一次） ________个

3. 发生的次生灾害次数

二、历史灾情说明：当年灾害发生的次数不超过 4 次时，发生几次灾害就填几次，并按灾害

损失和影响大小排序填写；如果当年发生灾害超过 4 次，按照灾害损失和影响

大小填写最严重的 4 次灾害。

2016 年 2015 年

1. 当年第一严重灾害发生的具体地点

2. 这次灾害种类

3. 因灾死亡人数 ___人 ___人

4. 因灾受重伤（需住院）人数 ___人 ___人

5. 灾害影响范围（户）（受灾的家庭户数、商铺数量及其他个

数）

家庭__________ 商铺__________ 其他（）___

家庭_________ 商铺_________ 其他（）___

6. 灾害直接经济损失（万元）

7. 这次灾害在本街道（所有社区）当年所发

生的各类灾害中，社会影响程度（比如领导

关注、媒体报道等）处于怎样的水平？高——中——低高——中——低

2016 年 2015 年

1. 当年第二严重灾害发生的具体地点



27



数）

家庭__________ 商铺__________ 其他（）___

家庭_________ 商铺_________ 其他（）___





2016 年 2015 年

1. 当年第三严重灾害发生的具体地点





数）

家庭__________ 商铺__________ 其他（）___

家庭_________ 商铺_________ 其他（）___





2016 年 2015 年

1. 当年第四严重灾害发生的具体地点





数）

家庭__________ 商铺__________ 其他（）___

家庭_________ 商铺_________ 其他（）___





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三、暴露—易损性

截至 2016 年底数据

1. 社区常住人口数量（人） ______人

2. 社区 60 岁以上人口数量（人） ______人

3. 社区的家庭户数（户） ______户

4. 社区内的空巢家庭户数（户） ______户

5. 社区内学校数量（个）及学生人数（人） _____所学校，共约_____学生

6. 社区内的加油站等重点安全防范单位数量 ______个

7. 本社区的住宅楼（院）中，建于 2000 年之

前住房面积占总住房面积比例是多少？ ______%

四、抗灾恢复力

2016 年（底）

1. 本社区居民的人均收入水平（元） ______元

2. 社区用于防灾减灾的各项投入总和（万元） ______万元

3. 社区各类志愿者人数（人） ______人

4. 社区配备的应急消防栓数量（家庭和单位的不包括在内） ______个

5. 社区内可用于临时疏散安置的空旷场地面积（平方米） ______平方米

五、应急反应能力

1. 当前，社区居委会是否制定有社区灾害应急预案？ 1. 有； 2. 没有

如有，应急预案是在哪一年制定的？ ________ 年

从制定预案到现在，已对预案做过几次修订？（如果没有修订过，就填 0）

________ 次

2. 社区是否依据应急预案明确的责任和措施，组织社

区居民开展过应急演练？

1. 有； 2. 没有

如有，近 2 年平均每年组织多少次演练？ ________ 次

3. 社区在收到气象、防汛、地震等专业部门发送的灾

害预警信息后，通过什么方式告知辖区居民？（可多选） 1.应急广播； 2.手机短信； 3.手机微信； 4.电话； 5.其他_______

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Appendix B

Information Form of Collecting the Elderly Families’ Hazards

什刹海街道_______社区老年人家庭灾害风险隐患排查信息采集表（编号□□）

一、家庭成员情况

1 在家庭中常住的人员数量成员 1 成员 2 成员 3 成员 4 成员 5 2 家庭成员的年龄 _____

岁

_____

岁

_____

岁

_____

岁

_____

岁 3 家庭成员的性别男

女

男

女

男

女

男

女

男

女

4 家庭成员的健康情况

（可多选）

1.健康

2.一般

3.有慢性病

4.有残疾

1.健康

2.一般

3.有慢性病

4.有残疾

1.健康

2.一般

3.有慢性病

4.有残疾

1.健康

2.一般

3.有慢性病

4.有残疾

1.健康

2.一般

3.有慢性病

4.有残疾

5 吃饭穿衣是否需要帮助？需要不需要不需要不需要不需要不

6 上下楼梯是否需要扶持？需要不需要不需要不需要不需要不

7 平时是否抽烟？抽烟不抽烟不抽烟不抽烟不抽烟不

8 平时是否经常出门（如买菜、

遛弯、串门等）？

1.每天都

2一周几次

3.很少

1.每天都

2一周几次

3.很少

1.每天都

2一周几次

3.很少

1.每天都

2一周几次

3.很少

1.每天都

2一周几次

3.很少

二、居住环境情况

1 居住的房屋类型 1.平房 2.楼房（不超 6 层）3.高层楼房 4.其他_____

2 居住的楼层 ____层。居住的如是楼房，（有，没有）电梯

3 住房使用面积大小 ____ 平方米

4 冬季取暖方式 1.集中供暖 2.自取暖 3.使用电暖气等设备 4.其他_____

5 平时是否在家开火做饭？ 1.经常在家做饭 2.较少在家做饭 3.很少在家做饭 4.不做饭

6 孩子来家看望老人的频次 1.每天来 2.每周来 3.每月来 4.每年几次 5.更少

7 亲戚邻里是否常来家看望？ 1.经常 2.在一些重要的时间节点 3.逢年过节 4.很少

8 街道/居委会是否常来看望？ 1.经常 2.在一些重要的时间节点 3.逢年过节 4.很少

9 是否有其他人常来家看望？ 1.有，请注明：___________ 2.没有

三、现场查看情况（可当场提醒老人屋内的风险点，经老人同意，拍一些照片）

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1 过去一年家里是否遭受过（可

多选）

1.火灾险情（差点酿成火灾）或火灾事件（发生了火灾）

2.水患（雨水浸入屋里、自来水漏水浸泡等）

3.煤气/天然气泄漏

4.入室盗窃

5.食物中毒

6.在家里摔伤、磕伤或被东西砸伤

7.漏电、触电事件

8.其他突发安全事件，请注明：______________

2 用火是否存在安全隐患？描述：

3 屋里是否堆积易燃物品？描述：

4 屋里是否有易倒易坠物品？描述：

5 屋里布局是否方便紧急疏散描述：

6 家里是否备有一些应急物品描述：

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