The
Development Planning Unit
Government of the British Virgin Islands

DISASTER PREPAREDNESS AND EMERGENCIES SERVICES.

1.0. INTRODUCTION:

Since time in memorial history has indicated that disasters have caused heavy cost in human, material, physical resources and present potentially significant obstacle to economic growth and development. Thus the public should be well advised of the precautions to be taken before, during and after any disasters. Adequate procedures to deal with disaster situations and effect relief measures should be planned prior to the event, with strong effective legislation to empower or compel those responsible to carry out essential tasks. Careful planning must be put in place to coordinate the use of resources, both human and man-made within the effected areas, for saving and sustenance of life and property and for return to a normal life as soon as possible. 

1.1. DEFINITIONS:

Disaster can be defined as the occurrence of a sudden or major misfortune which disrupts the basic fabric and normal functioning of a society or community. An event or series of events which gives rise to casualties and or damage or loss of property, infrastructure, essential services or means of livelihood on a scale which is beyond the normal capacity of the affected community’s ability to cope with unaided.1 ( e.g. earthquake, flood, hurricane, volcanic eruption and man made which includes wars, civil disturbance etc.) 
Preparedness means administrative, individual and community action to minimise loss of life and damage and facilitate effective rescue, relief and rehabilitation. Preparedness deal with the following; First, Forecasting and disseminating warnings of imminent potentially damaging phenomena. Second, developing testing plans for responding to both warning and impact of such phenomena. Third, Assuring the rapid availability of appropriate material resources, transport and other equipment, and funds when and where needed.

1.2. PAST EXPERIENCE:

For a long time disasters were seen in the context of emergency response not as part of long term development programming. When a disaster did occur, the response was directed to emergency needs and cleaning up. Communities under disaster distress were seen as unlikely places to institute development. The post-disaster environment was seen as too turbulent to promote institutional changes aimed at promoting long term development.
Like many developing countries, Caribbean countries did not include disaster planning/management in their national development planning until in the 1980’s. Since then disaster management has been a priority in almost in every country. The rise in prominence of disaster management has been due to the frequency and variety of disaster events which have occurred in the last two decades which have had a negative effect on the environmental, social and economic sectors of many countries. Example of such, includes, the floods which hit Western Jamaica in 1979, Hurricanes Allen 1980, David 1980, Fredric 1986, Gilbert 1988, Hugo 1989, Andrew 1992, Marilyn and Luis in 1995, Bertha 1996, Bonnie, George and Mitch 1998, and many other types of natural and man made disasters throughout the Caribbean region have all been costly in billions of dollars. Because of this, governments could no longer afford to plan for national development without having due regard for the likely effects of disaster. Basic disaster preparedness structures were established throughout the region, with entities such as the Pan Caribbean Disaster Preparedness and Prevention Project (PCDPPP) and more recently the Caribbean Disaster Emergency Response Agency (CDERA) pushing for the issue to be placed on the political agenda. Also the declaration of the 1990’s by the United Nations as the International Decade for Natural Disaster Reduction (IDNDR) has helped to accelerate the process of institutionalising disaster preparedness throughout the region especially in the areas of training and contingency planning. The World Conference on Natural Disaster Reduction was held in Yokohama, 23 – 27, May 1994. This conference was an important milestone in IDNDR’s aware-building process. IDNDR works through IDNDR National Committees and Focal points which exist in 138 countries. The IDNDR secretariat, located in Geneva, is part of the UN Department of Humanitarian Affairs. The IDNDR Scientific and Technical Committee is an advisory body with experts in economics, social science, engineering, public health, industry, geology, meteology, etc. A group of well-known personalities, the special High-Level Council, promotes global awareness of disaster reduction. A UN inter agency group works regularly with the IDNDR secretariat, as well as a contact group of Geneva based diplomatic missions. IDNDR publishes a quarterly magazine , STOP Disasters, and conducts a promotional campaign on the second Wednesday of each October, designated as the International Day for Natural Disaster Reduction. 

2.0. IMPACT OF DISASTERS:

Disasters are costly to all countries. Studies shows that the impact of disasters is disproportionately high on the developing countries, with the losses to GDP due to disasters being about twenty times greater in the developing countries than in those which are more developed. Assessments of the costs of disasters include consideration of both the actual immediate impact on physical assets, employment and output as well as the impact on future economic prospects. The costs of disasters are assessed in three categories, i.e. direct costs, indirect costs and secondary costs. The study summarise that ;

• Disaster happen more often and have a proportionately greater impact on poor countries than rich countries.
  
• Development programmes and projects can themselves actually increase disaster proneness if care is not taken to prevent this.
  
• Development resources and investments are frequently wasted through failure to consider disaster proneness of countries where these resources are invested. 
  
• The waste occurs both when infrastructure is unnecessarily wiped out, it also occurs when plans and priorities must be changed to respond to preventable disaster.

The study continued to show that the costs of disaster recovery are higher in developing countries than in developed countries. These are;

• Losses to disasters as a percentage of national wealth are higher in developing countries than developed countries.
  
• Disasters and poverty are mutually reinforcing.
  
• Disasters, especially repeated ones, have a negative impact on investment and entrepreneurial incentives which are necessary for development.
  
• Disasters have special negative impacts on the non-formal economic sector, and in countries where this is an important sector, estimates of disasters are consistently underestimated. 

3.0. DISASTER MANAGEMENT IN THE BVI:

The National Emergency Advisory Council (NEAC) is the policy making body for Disaster Management in the British Virgin Islands. It is chaired by the deputy governor whose portfolio includes responsibility for the Office of Disaster Preparedness which coordinates all matters related to disaster, which includes monitoring of hazards, arrangements for emergency and implementation of disaster reduction programmes. Office of Disaster Preparedness works in collaboration with relevant agencies of government and Non Governmental Organisations to fulfil its roles.
The Government through the Deputy Governor’s Office, started to pursue disaster management activities locally in 1983 after consultations with PCDPPP. An officer within the Deputy Governor’s Office was given the responsibility to coordinate disaster related activities on a part time basis. Later the Government in collaboration with PCDPPP organized a workshop on Disaster Preparedness and Emergency Management between 27 February and 2 March 1984. The workshop featured presentations from PCDPPP consultants and local resource persons. Later the government convened a group of resource persons drawn from government departments, NGOs and the private sector to draft a National Disaster Plan. In an effort to decentralise disaster planning into the communities, a network of District Emergency Committees were established. District Chairmen whose terms of reference made them responsible for disaster planning, coordinating and guiding this process within their community. The Disaster Management in this territory has evolved from those early days to the present situation where by the government has decided to incorporate Disaster Preparedness issues in The National Integrated Development Plan (NIDP).

3.1. DISASTER AND EMERGENCIES;

The British Virgin Islands like the rest of the Caribbean, have been an area prone to natural disaster for the past decades, which resulted in economic and social destruction. With rapid economic development, like everywhere, emergencies related to protection of property and individuals have become more significant. As population increases and more visitors come to the territory and the economy expands, preparation and recovery related to disasters and emergencies becomes more significant. In recent years the government have made tremendous strides in mitigation and preparedness related to disasters, there remains a considerable amount of effort to bring the systems up to expectations of the residents and visitors alike. For example, institutional arrangements for dealing with disasters, although relatively adequate, there is a need to integrate this system or process with other national institutions which are related to ensure quick response in case of disaster. The national system for emergency response which includes medical, police, fire and rescue, VISAR and OPD, while shows some improvement in certain areas like infrastructural facilities quality and location coverage but they have inadequate trained human resources. Also the operating equipment in most areas needs to be upgraded and maintained to ensure quick response. For a quick assistance from police, fire and rescue and medical / ambulance services the telephone numbers to contact are 999 and 911.

3.2. NATIONAL DISASTER PLAN:

The British Virgin Island’s National Disaster Plan was passed by the Executive Council in November,1997. The Plan seeks to assign responsibilities and to provide coordination of emergency activities connected with major disasters, in general and specific ways. It also encourages a process of learning to adequately cope with the recovery from a disaster, from both local and other experiences.
The plan addresses the short and long term objectives of the National Emergency Organisational ( NEO), it is subjected to continuous scrutiny, review and upgrading on annual basis, based on operating and other experiences. Which means, it will be continuously strengthened and expanded in its scope, content, membership composition, administrative and policy guidelines, rescue, relief and recovery procedures, and in regional and International relationships with similar organisations.
These reviews will be conducted at all levels of the NEO, and will affect all participating agencies identified in the plan. All agencies, departments and organisations are therefore expected to provide full co-operation during such exercise.

3.3. THE EMERGENCY POWERS ( DISASTER ACT 1984 ):

The authority for declaring a state of emergency under this law , is vested in the Governor in Council. When a state of emergency exists, the Governor in Council may make orders under the provisions of the Ordinance to secure the essentials of life to the zone and for the preservation of the health, welfare and safety of the public. Orders so made may inter-alia, provide;

1. For the requisitioning of all forms of transport and communications,
   
2. For requisitioning and regulating the supply and distribution of food, clothing, water, fuel, light and other necessities of life and for fixing maximum wholesale and retail prices in respect thereof,
   
3. For the requisitioning of private lands, buildings and premises,
   
4. For conferring on any person the right to entry on or passage through or over any private lands, buildings and premises,
   
5. For the demolition of any building or other structure deemed to be dangerous,
   
6. For the disposal of the dead and for dispensing with enquiries under the Coroners Act, and from the Ordnance.

The chairman of the National Emergency Advisory Council (Deputy Governor), shall have the power to activate the National Plan. The National Disaster Coordinator (NDC) shall coordinate during a state of emergency, all personnel, medical and emergency services made available by departments, organisations and local authorities, and any other person who may be so determined.
The NDC shall be responsible for the plan upon its activation and shall have the statutory authority as prescribed under the Emergency Powers (Disaster) Ordnance, to carry out such functions as prescribes by the National Disaster Plan, 1997 edition.
The British Virgin Islands National Emergency Organization (NEO) comprises of the following;

• The Executive Council
  
• The National Emergency Advisory Council (NEAC) and its sub-committees
  
• The Office of Disaster Preparedness (OPD)
  
• Zonal Committees (ZC’s)
  
• Governmental Organisations (GO’s)
  
• Non Governmental Organisations (NGO’s)

3.4. NATIONAL EMERGENCY ADVISORY COUNCIL (NEAC):

The NEAC is composed of heads of government organization, private sector heads, Non Governmental Organisations and other professional and technical officers as required by the chairman from time to time. 
Their responsibilities ( pre-disaster) are;

1. Meet twice annually (once prior to the start of hurricane season and once after) to provide policy directives for the NEO aimed at saving lives and protecting property in the event of a disaster.
   
2. Review and monitor the national strategy for dealing with disasters.
   
3. Formulate guidelines for the organisation and operation of the NEO.
   
4. Assign responsibilities to the NEO.
   
5. Ensure adequate manpower and physical resources for emergency operations before, during and after a national disaster.
   
6. Review and evaluate national emergency operations contingency plans.
   
7. Promote Public awareness programme on disaster preparedness.
   
8. Ensure that potential disaster areas are properly mapped and that a data base exists for effective management action.

3.5. NEAC STANDING SUB-COMMITEES:

The NEAC has the following sub-committees;

(1) Emergency Operations and Telecommunications.

The purpose of the committee is to review existing and future policies which relate to planning for disaster s and responding to them and to advise on measures and strategies that can be implemented to reduce response time following major disasters. The function of this committee is to develop a communications plan to ensure that an adequate communications system to serve the communication needs of the NEO before, throughout and after a disaster situation

(2) Public Education, Information and Training .

The purpose of the committee is to review existing and future policies for Information Management and advising on training needs. Provide advise on measures and strategies that can be implemented to achieve and sustain a high level of disaster awareness throughout the territory.

(3) Transport, Road Clearance and Logistics.

The purpose of this sub committee is to develop and administer procedures for the efficient use of the territory’s transport resources, procedures for road clearance in a timely manner based on priorities and to provide logistics support for the NEO in preparedness and Response activities. 

(4) Health Disaster.

The purpose of this sub committee is to review existing policies for the management of health related disasters and to advise on measures and strategies that can be implemented to enhance the programme. 

(5) Welfare Services and Food Distribution.

The purpose of this sub committee is to review existing policies for the management and delivery of welfare services and to advice on measures and strategies that can be implemented to enhance the services provided to the public.

(6) Damage Assessment and Mitigation.

The purpose of the sub committee is to review existing and future policies and methodologies for conducting damage assessment and recovery, and to advise on measures and strategies that can be implemented to enhance this activity.

(7) Administration and Finance.

The purpose of this sub committee is to review the existing administrative and financial policies that relate to the effective functioning of the National Disaster Organisation and to advise on measures and strategies that can result in their enhancement.

(8) Marine Pollution Action Group.

The Marine Pollution Action Group is the established body which is activated when there is a threat of pollution e.g. oil spill in the BVI’s territorial waters.


3.6. DISASTER RECOVERY PLAN:

The aim of disaster recovery is to restore the fabric of the effected zone to allow the return to normal social and economic activity as quickly as possible, at the same time taking additional action which may mitigate against future occurrences, and noting opportunities which may arise to make both qualitative and quantitative improvements with the effected area.
The recovery plan details the framework and responsibilities of disaster recovery operations designed to assist a zone to recover from a natural disaster. This plan is not all encompassing in the sense that it provides a blue print for action which can not be applied without regard to the prevailing circumstances. There will be a need to assess the situation and obtain as much information and advise as possible before action is taken. Once a decision is taken action is made, the principles of this plan should be applied with flexibility to ensure that the needs of the affected zone are satisfied in the recovery process. Effective and rapid recovery from disasters will require the following;

• A well planned disaster recovery mechanism in place before any disaster occurs
  
• A clear set of policies and directions based on equity, and speed of implementation
  
• Collective motivation of affected zone
  
• A flow of timely and relevant information to all involved with the recovery
  
• The maintenance of an appropriate economic base which supports the rapid achievement of zone recovery
  
• Appropriate competent technical advice to all levels of recovery activities 

4.0. OFFICE OF DISASTER PREPAREDNESS:

The Office of Disaster Preparedness (ODP) operates under the Deputy’s Governor’s Office. Its overall responsibility is to coordinates all matters related to disaster and disaster preparedness in the territory. Its mission is to seek to reduce loss of life and property within the territory of the British Virgin Islands by ensuring that adequate preparedness measures and response mechanisms are established to counteract the impact of natural and man-made disasters. The operational objectives or functions of the OPD are to achieve these responsibilities and to;

• Formulate a comprehensive programme for disaster mitigation, preparedness and response.
  
• Reduce response time following major disasters.
  
• Design and implement a sustained programme of public education to sensitise the population to the threats they face and the need to be prepared.
  
• Co-ordinate all official and voluntary resources engaged in achieving the overall mission.

4.1. ESTABLISHMENT:

The Office of Disaster Preparedness has progressed from being managed by part-time coordinator in government department to a full-time coordinator with support of seven members of staff. The full establishment is as follows;

• National Disaster Coordinator
  
• Disaster Preparedness Officer
  
• Programme Assistant
  
• Emergency Telecommunications Officer
  
• Senior Executive Officer
  
• Clerical Officer and,

Non established staff as follows;

• Office Cleaner
  
• Gardener

The OPD has requested a need to establish the post of a Senior Technical Planning Officer to oversee the department’s hazard mitigation programme. This post is under consideration by the government.

4.2. PUBLIC EDUCATION AND TRAINING:

The OPD has been organising workshops, seminars, radio and TV programmes that provides training for the public and private sector to enhance emergency planning efforts and the level of preparedness by the government organisations, community based agencies, individuals and families. These programmes includes the following areas;

• Mitigation; Programmes that provides services which enable individuals and organisations to make physical preparations prior to disaster or emergency which will prevent loss of life, personal injury and destruction of property when an incident occurs.
  
• Preparedness; Activities, programmes and systems developed prior to an emergency that support development and dissemination of information and or training about how individuals and organisations can prepare for a major disaster or large scale emergency.
  
• Recovery; Programmes that provides long-term assistance for people who have suffered injuries or incurred losses due to a major disaster with the objective of facilitating the return of these communities to their pre-disaster condition.
  
• Relief; Programmes that facilitates the exchange of information and or provides short-term assistance, usually in the form of food, clothing, blankets, temporary shelter, etc. for people who have suffered injuries or incurred losses due to major disaster.
  
• Response; Organisations that are responsible for taking actions before, during and after the onset of a major disaster or large-scale emergency that will end the emergency, preserve lives, and limit damage.
  
• Warnings; Programmes that issues alerts, advisories and warnings to inform the public of an impending event such as a major fire, flood, hurricane or tornado which has the potential to cause of life, personal injury, and property destruction. etc.

4.3.0. PROJECTS / PROGRAMMES UNDER OPD:

4.3.1. HAZARD AND RISK ASSESSMENT PROJECT;

Project Description;

The project is intended to focus on determining the hazard risks and vulnerability of the public and private sector, capital stock and of areas dedicated to housing and economic activity from effects of natural and man-induced hazards. Appropriate mitigative measures that are meant to compliment other measures of a more short term nature to be identified for incorporation in the planning and development process. The completed project will involve an assessment of the risk posed by natural hazards to the BVI’s development, the formulation of Loss Reduction Programme and the implementation of Loss Reduction Mitigation Strategies.

Project Goal;

To fully integrate natural hazard assessments and the result of vulnerability studies to the development planning process in order to promote the achievement of sustained future development. 
Project objectives;

1. To identify areas at risk to destruction from natural and man-induced hazards by carrying out a complete hazard assessment of BVI, completed with information on intensity, frequency and areas of impact from hurricanes, flooding, landslides, storm surges, earthquakes, tsumanis, coastal erosion, oil spills and fires, taking into consideration sea level rise not as a separate hazard, but rather as a compounding factor in assessing the storm surges and coastal erosion hazards.
   
2. To compile a systematic inventory of elements at risk including;

1. Major infrastructural elements, i.e. airports and ports facilities.
   
2. The life line networks i.e. roads, water, sewerage, electricity and telecommunications.
   
3. Public facilities housing essential services, i.e. health, education, police, fire protection, community services and shelter.
   
4. Settlement areas.
   
5. Areas of economy activities, i.e. tourism, commerce, manufacturing and agriculture.

3. To carry out a vulnerability analysis of elements at risk where the structured integrity as well as the functional capabilities of the various elements will be reviewed in relation to the potential impact of the identified hazard.
   
4. To formulate a Loss Reduction Programme for the BVI aimed at reducing vulnerability of critical elements identified, targeting the elements most at risk.

Project implementation:

The final report was submitted to the Executive Council for endorsement in 1998 prior to its distribution to the technical agencies.

4.3.2. SHELTER PROGRAMME:

Project Description;

The project was launched in 1993 in order to encourage non-governmental organisations and private firms in the BVI to adopt emergency shelters of their choice and to up grade them to acceptable structural standards. The response was favorable, with one shelter being adopted and commitments being received from private firms and NGO’s. Today there are over forty buildings consisting of schools, churches and community centers as emergency shelters.

Project Objectives:

Apart from encouraging NGO’s and private firm to adopt emergency shelter and upgrade them to acceptable structural standards, the project objectives also aimed at training of personnel who will provide proper care for homeless victims of a major disaster.

Shelter Manual:

The OPD initiated a programme in 1993 to provide a manual for use by shelter managers, defining their roles and responsibilities and guidelines to follow for the efficient management of the emergency shelters. This approach provides a well coordinated and standardized procedure, with a high level of consistency, for the management of the territory’s emergency shelters. 

Feature Prospects;

Providing care and a safe refuge for victims of disaster will always be a priority of the BVI’s government, therefore the Shelter Programme is expected to remain a permanent feature of its yearly work programme. With an ever increasing population, the need of more shelters is necessary. The OPD will continue to train persons in shelter management, pursue a national-wide shelter Retrofitting Programme and seek to procure a sufficient stock of emergency supplies to effectively cope with the victims of disaster. The success of Shelter Programme will depend on the proper management and functioning of the new zonal structure. Each zone has to form its committee members. In order to facilitate the management of these committees a handbook was prepared which will assist in setting up of committees and their sub committees. The handbook outlines the roles and responsibilities of the various offices and groups. It includes a list of shelter managers, the revised shelter list, a list of key holders, list of supplies stored in emergency kits and information on contingency planning.

4.3.3. INTEGRATED EMERGENCY COMMUNICATION SYSTEM PROJECT:

Project Objective;
An Integrated Emergency Communication System Project Proposal is aimed at integrating the Fire, Police and Emergency Medical Services into one communication system, sole for the purpose of increasing their response time for emergencies. This system will be a three digit telephone number, namely 9 1 1, that you can call 24 hours a day for police, fire or emergency medical services for both locals and visitors alike. Such a system would be an asset to the British Virgin Islands due to the fact that the economy of the territory’s economy relies solely on tourism. An integrated communication system will also eliminate the need for having three different telephone numbers for the Police, Fire and Emergency Medical Services. A situation presently experienced by visitors as well as locals.

Project Justifications;
The current system, at present is one that warrants major concerns. At present, the response time for emergency in the territory ranges somewhere between 15 and 30 minutes inland, 1 to 2 hours overseas (outer islands) and may even be more in some instances. As we are all aware, timing is critical in a emergency. Therefore, a service-system such as this will eliminate the need for having three different telephone numbers. An integrated emergency communication system might further improve the British Virgin Islands as a tourist destination, as they may feel safe to know that such a service exist in the BVI. It will also save valuable time in an emergency for both locals and tourist alike.

Project Description and Scope of Work;
The integrated Communication System will include a computerised central dispatching unit with the appropriate trained personnel located in the Fire Department, that will have access to police, fire and emergency medical services at their finger tips. It will also involved the re-construction of the existing building to accommodate the system, the installation of lighting fixtures and communication and emergency equipment.

Project Benefits;
Upon completion of the project, the British Virgin Islands is expected to benefits in various ways as follows;

• A decrease in the response time in an emergency by approximately 15 to 20 minutes.
  
• An increase in the level of employment due to the availability of additional jobs, such as central dispatchers, EMS personnel etc.
  
• An increase in tourism expenditure, resulting from an increase in tourism arrivals. 

4.4. DEVELOPMENT PROSPECTS:

As we approach a new century the OPD should embark on activities which seek to implement National Disaster Plan and strengthen the territory’s ability to plan, prepare, respond and recover from disasters. Also the OPD in collaboration with the government administration should address the problems / issues which have been identified over the past years regarding the following;

1. Administrative Procedure and Coordination:
   
   Issues related to the operations of other agencies like the Conservation and Fisheries Department, the Ministry of health, Solid Waste Department and the Town and Country Planning Department, close collaboration has to take place to resolve them. The National Disaster Plan prescribes some of the procedures that these agencies have to follow during the pre and post impact phases of a disaster. As an added insurance to ensure that the desired level of consultation and collaboration take place, the role and function of the Development Control Authority (DCA) should be looked at an expanded to include the OPD which currently does not sit on the Authority’s meetings. In this review of coordinating structures, the Building Authority should be looked at with a view to amalgamating it with the DCA to minimise duplication of efforts and to achieve a reduction in the time it takes to navigate the overall approval process. 
   
2. Legislation:

The government should consider strengthening the administrative structure of the National Disaster Organisation by enacting Disaster Management legislation. The legislation will empower the OPD to;

• Review and evaluate various government programmes for the purpose of determining the extent to which such programmes are contributing to the achievement of governments stated policies.
  
• Conducting investigations, studies, surveys, research and analyses relating to development proposals as these relate to the likelihood o disasters.
  
• Provide technical advise and make recommendations on matters related to the mitigation of preparedness for response to recovery from disasters. The OPD’s mandate does not extend too far into recovery as during this phase, the line agencies and departments with those responsibilities for longer term rehabilitation and reconstruction, implement the activities. In this case legislation does not make provision for regulating recovery activities as these fall under the respective laws of the line agencies. 

The Act will require the heads of other departments / agencies to consult with the OPD with respect to any disaster preparedness and response related actions that they may wish to carry out. With respect to the National Disaster structure and its functioning, the legislation makes provision for a National Advisory Committee, policy review and the preparation of National and Agency Disaster Response Plans. Another significant feature of the legislation is the provision it makes for designating certain areas as ‘Specially Vulnerable Areas’ for the purposes of mitigation of preparedness for response to and recovery from emergencies and disasters.
In summary the OPD in the immediate future is to substantially increase public awareness of natural and technological hazards and to significantly reduce the risk of loss of life, injuries, economic costs and property that result from these potential disasters. To achieve these goals, department will commence work on a three year development plan which will have its main component in the implementation of the Hazard Mitigation Strategy. This strategy will feature activities such as public education, information and training, applied research and the transfer of technology and ongoing hazard identification and assessment. In order to achieve planned goals / objectives, the public and private sector must accept responsibility for and act upon programmes or projects and policies described in the National Integrated Development Plan.

5.0. FIRE AND RESCUE SERVICE:

5.1. INTRODUCTION:

The Fire and Rescue Service Department was formally constituted in January 1986, when an Act to provide for the establishment was passed in the Legislative Council. Prior to 1986, the Fire Brigade was under the control of the Royal Virgin Island Police Force. The Department now is an independent entity under the control of Chief Fire Officer who is also head of the Department.

5.2. OBJECTIVE:

The overall objective of the Fire and Rescue Service Department is to provide a fire and rescue service which will protect life and property from the effects of fire and all other man-made accidents and disasters. The Department also responds to special service calls from the public which are categorised as chargeable and non-chargeable and may be emergency or non emergency in nature. These special service calls includes, road accidents, buildings collapses, industrial accidents, water and hill rescue, pumping water, etc. The Departments also with the Town and Country Planning Department in surveying buildings and other installations and recommends improvements, but of course they have no way of enforcing these. 

5.3. ESTABLISHMENT:

The authorised establishment and strength on 31stDecember 1998 was as follows;

NB. Auxiliary firemen are part-time firemen who have regular jobs, they carry pagers, when required they have to respond immediately and they normally attend fire drills every week.

5.4. AREA OF OPERATION AND EQUIPMENT:

The Fire and Rescue Department has its headquarters in Road Town. The station was opened and became operational on March, 1990. There are four ancillary stations in East End, Cappoons Bay, Virgin Gorda and Jost Van Dyke. With the exception of the Road Town Station, which is full time shift manned. The remaining stations operates from 8.00 am to 4.00 pm system, from Monday to Friday, but the stations can be in operations any time in case of emergency. All stations are backed up by part timers ( auxiliary firemen) and off duty full timers.

Road Town Station.

The station serves the area from Paraquita Bay to Pockwood Pond and can be made available for any major fire throughout Tortola. The station houses major water tenders, a Land Rover water carrier and a 75 gallons pump, with the capacity of attending to fires in 3-4 storey buildings. Presently, the facility is sufficient to accommodate four appliances, however , the department envisages that two more appliances may be required and this would necessitate an expansion of the existing compound. The station has training facilities in a form of recture rooms and a drill yard and a tower. It also domestic facilities to cater for approximately a dozen residential recruits in additional to the on duty personnel. What it lacks is a smoke chamber for breathing apparatus training and vehicles and equipment to be used solely for training.

East End Station.

Located at Long Look, this station serves the area from Paraquita Bay to Brewers Bay with a Land Rover water carrier 75 gallons and a pump.

Capoons Bay.

This station is located on a portion of the playing field next to the Leonora Delville Primary School and serves area from Brewers Bay to Pockwood Pond.

Virgin Gorda.

Located in the Valley, the Virgin Gorda fire station operates with one water carrier and one pump, and a staff of three full time and three part time men. This station serves the entire island of Virgin Gorda. In additional, the private air strip on Virgin Gorda has a light crash truck with part time crew.

Jost Van Dyke.

This station serves the entire island of Jost Van Dyke. A Land Rover pump of 90 gallons together with a portable pump are the only equipment used by the officers on this island.

Anegada.

The Anegada Fire Station is under construction and the government has already approved the fire tender on the 1999 budget. If things goes as planned the operation of this station is expected to start at the end of this year.

Beef Island Airport Fire Station.

The fire station at Beef Is land Airport is managed by the Civil Aviation Department and is entirely separate from Fire and Rescue Service Department. The station has recently obtain a new T- 1500 airport crash fire tender which started operation in June 1996. The fire tender is the most sophisticated fire- fighting equipment in the country and can carry some 1500 gallons of foam. The huge vehicle was purchased and paid for by the Government. The vehicle which adds to the older fire fighting truck is fully operational and fire officers have been trained to use it. The fire tender carry a crew of five.

5.5. FIRE HYDRANTS AND COMMUNICATIONS:

By the end of December,1998, there were 200 fire hydrants in the BVI, more than 160 on Tortola and the rest on Virgin Gorda, each of which is inspected regularly by fire crew. In additional, the fire services Act the department the right to use any source of water including private cisterns to fight fir when needed. 
When it comes to mobilising resources, the department has a sophisticated system to contact stations, with pocket alerters to mobilise personnel who are not on duty, and radios to control the appliances. In addition, 999 and 911 call facilities are available and the department provides call-out facilities for Water and Sewerage Department, VISAR, Civil Aviation Department and the Royal Virgin Island Police Force. 

5.6. PUBLIC AWARENESS:

Public education has been part of the department’s programmes for many years. This programme has been successful in reaching and educating the general public and the school children on fire safety issues. No doubt the department recognise that fire safety education and prevention plays a vital role within the community of BVI. The department continued to carryout several education campaigns to educate the public the importance of having fire extinguishers and smoke detectors in working places, homes and other public places. Each year the department organise ‘ Fire Safety Awareness Week’ to educate the public on all issues related to fire safety.

5.7. FEATURE DEVELOPMENT STRATEGY:

Feature development of the department will depend on how the government will address the following issues and suggestion made by head of department and other officials and institutions.

• Fire Service Act: There is a need to re examine this act to cope with the current Development. For example, the department operates under the Fire Services Act, this Act is deficient in terms of fire safety requirements for buildings, as adequate safety requirements are not observed in both public and residential buildings. It is suggested that the fire safety sections of the Building Code be re-written to cover matters such as internal fire spread and access and facilities for the fire services and made more explicit and logical along lines of the United Kingdom Building Regulations. Also comprehensive fire legislation be introduced to cover life and fire safety buildings and fuel installations. It is emphasised that a survey be carried out on all existing buildings, other than private dwellings, on a priority basis in order to improve fire precautions to a reasonable level.
   
• Merge of Beef Island Airport Fire Service with Fire Rescue Service. In small country like the BVI it was suggested by Hanson’s report recommended the merging of two fire services and pointed the benefit of doing so; “Ideally, all fire fighters would be well experienced in all aspects of fire fighting and rescue, including aircraft crashes. In practice, air crashes are infrequent but a high standard of proficiency is required to deal with them. This is gained by a combination of training, day to day familiarity with a craft and air port procedures, and occasional involvement with aircraft incidents. This will largely be denied to fire fighters engaged solely in domestic duties. A combined service would allow gradual rotation of personnel so that all would be trained and experienced to a similar standard in all aspects of fire and rescue service work The domestic and airport fire services have an obvious common purpose. The domestic fire service will have to back up the airport service at fire involving aircraft. Similarly, the airport service may be called on to support the domestic service in many cases. There should be a good operational liaison between domestic and airport services to allow fire fighters to work together effectively and handle each other’s equipment with confidence. This can only be achieved with constant training which can occur even if they are separate services”.
  
• Additional Fire Stations ; The existing fire stations in the territory are not in need of immediate expansion however, there is a need for an additional station on Tortola. One station is being considered for Cane Garden Bay / Meyers area. The possible location is in the Meyers area or close to Rhymer’s Hotel at Cane Garden Bay. 
  
• Fire Hydrants; A major concern for the department is the expansion of the pipe borne water to all developed areas of Tortola so that more hydrants can be provided. This is especially important in the Ridge Road area where it could be difficult to obtain water if major fire occurs. The Water and Sewerage Department has plans to remove all old cast iron pipes in the Road Town area, replacing them with PVC pipes, which would allow for more hydrants in areas where they are needed.
  
• Marine Fire Services; At present the department has no fire fighting capabilities for marine fires. This is partly due to the fact that equipment is expensive and also because the number of fires at sea has not been many. It is recommended that the department acquire a fire boat in order to effectively cover the marine risk and outer island properties. This idea was forwarded to the government for consideration in the past but this proposal was turned down but the need is still very real.
  
• Training in Medical Emergency; There is a need to have medical technicians and an ambulance stationed at all fire stations in the territory. Firemen need to be trained in medical emergency procedures.

6.0. VIRGIN ISLANDS SEARCH AND RESCUE ( VISAR ).

VISAR is a Non Governmental Organisation dedicated to the saving of life at sea. This organisation provides a permanent 24 hours search and rescue service in the British Virgin Islands waters. The organisation was founded in 1978 and worked in collaboration with the US Coast Guard station in ST. Thomas. In 1988 the US Coastal Guard station closed in the BVI and VISAR assumed responsibility for search and rescue in the territory’s waters.

6.1. OPERATIONS:

The operations of VISAR depends on its members. Members of this organisation work on volunteer basis. Volunteers come from all walks of life and occupations. They have been trained in search and rescue techniques and are prepared to be called anytime of the day or night. These Volunteers are prepared to exchange leisure, comfort and sleep for cold, wet, fatigue and danger. The range of situations they are required to handle will test their strength and nerve. Distress calls can come at any time of the year, day or night. They come in all kinds of weather, good and bad, and they are always answered.

6.2. OPERATION COSTS:

VISAR is supported by memberships, fundraising and sponsored events, and donations. The Government of the British Virgin Islands contributes only $ 5,000 annually to the organisation out of the Disaster preparedness expenditure head. In addition, the Government has leased a portion of land to VISAR for a period of 25 years to construct a base station next to the Police Marine shore base. 

6.3. EQUIPMENT:

The organisation has one boat called “Spirit of Tortola II”. The boat is 24 ft rigid bottom inflatable custom built in the United Kingdom by Atlantic23. It is equipped with oxygen, CPR equipment, stretcher and First Aid Kit, as well as flares, searchlights, VHF, night vision binoculars, and GPS ( direction finding equipment). 

6.4. TRAINING:

The crews of VISAR undergo six week training both in the classroom and on the water. The Royal National Lifeboat Institution of Great Britain has also trained crews in RNLI search and rescue techniques. Crews are also trained with the US Coastal Guard annually. They also trained in CPR and First Aid.

7.0. ROYAL VIRGIN ISLANDS POLICE FORCE:

7.1. INTRODUCTION;

The Royal Virgin Islands Police is responsible for maintaining law and 
order while ensuring full and complete respect for the rule of law and the civil liberties of the individual in the British Virgin Islands.

7.2. ESTABLISHMENT;

The Royal Virgin Islands Police Force is headed by Commissioner of Police and is assisted by Deputy Commissioner of Police and two superintendents, one is in charge of Operations and the other one in charge of Administration. Each superintendent is reported to by three division heads. The Royal Virgin Islands Police Force has increased from 55 Police Officers in 1973 to over 170 in 1998, an increase of 309 percent. The number of cases and emergency calls has also increased tremendously.

7.3. POLICE FACILITIES:

Police Headquarters is located in Road Town, Water Front Road. The Road Town Station is located near Botanical Garden. Other stations are located in Virgin Gorda both in the Valley and North Sound, the Officer In charge of that Island is responsible for policing nearby islands. Jost Van Dyke also have a sub station, as well as Anegada and regional stations exists at the East End Police Station, the West End Station and the Cane Garden Bay Police Station. A small Police Post has been established at Beef Islands Airport. Also the police force has a Marine Base. The facility is located on the outskirts of Road Town, it accommodates the Royal Virgin Islands Police Force Marine Branch. 

7.4. OPERATIONS AND RESPONSIBILITIES;

The police have primary responsibility for enforcing the laws and protect the people and people’s property. For greater efficiency and productivity the police force has been restructured with with greater emphasis on modernisation. This has been done primarily to enhance its response capability due to increase in crime, especially drug-related crimes. The force is divided into division / departments as follows;

• Beat and Patrol; There are four beat and patrol shifts providing foot and mobile patrol around Road Town and Virgin Gorda. During the exercise officers checks business places, keep on look for suspicious persons and their behavior and deal with a wide array of calls and complaints from the public, such as domestic disputes, lost and found property, missing persons, etc. 
  
• Traffic Investigations; The Traffic Police patrols the streets of Tortola with the police vehicle fitted with a vascar computer which is capable of checking the speed of any motor vehicle exceeding the speed limit. They are also equipped with a radar gun for this purpose. In addition, they do investigate traffic accidents and report traffic violators.
  
• The Drug Squad: it is responsible for the investigation of all drug offenses committed within the territory. The unit consists of three sub-divisions i.e. Drug Unit, Aircraft and Drug Intelligence.
  
• Prosecution; The Prosecution Department is responsible for prosecuting all summary cases taken before the Magistrate’s Court, conducting preliminary inquiries, juvenile courts and liquor license applications.
  
• Crime Prevention and Community Relations: The Department deals with public relation issues, it goes to schools and civic organisations and gives lectures on wide array of police subjects. They also presents scenarios on local radio stations explaining how the members of the public can discharge their duties as citizens in providing information to the police without becoming involved in crimes.
  
• Police Marine Branch; They are responsible for patrolling BVI waters, transporting police officers and other authorised persons, conducting rescue missions and ant drug trafficking activities, assisting in preventing illegal aliens from entering the BVI and helping to protect water-based resources from illegal and unauthorised activities. The police boat ( St. Ursula ) is the only police boat that is used to carry out these operations. This boat experiences frequent breakdowns and this affects the operational effectiveness of the department. There is a need for a second larger boat and small reliable fast craft.

7.5. THE ROLE OF POLICE IN DISASTERS AND EMERGENCY SERVICES:

General responsibilities:

• Security and law enforcement.
  
• Crowd and traffic control.
  
• Protection of property and prevention of vandalism.
  
• Evacuation.
  
• Transport accidents (land, sea and air ).

The specific responsibilities (pre-disaster) is as follows;

1. To ensure that adequate arrangements exist for maintaining law and order during and after disasters.
   
2. To develop and test procedures for mass evacuations.
   
3. To develop procedures for dealing with cases involving missing persons and identification and handling of dead, including the collection and protection of their property.
   
4. To participate in training activities and simulations organised by the OPD.
   
5. To provide liaison officers as request to sit on NEAC sub-committees.

All government departments / agencies / ministries Liaison Officers are supposed to report immediately after the disaster to the NEOC to be assigned tasks expedient to the response and recovery process. In this case The Commissioner of Police reports to NEOC. The tasks of the Commissioner of Police as far as recovery plan and disaster response is as follows.

• To maintain a state of readiness to respond to requests from NEOC for assistance.
  
• To ensure all police officers are on alert 24 hours before the emergency, if sufficient warning is given.
  
• To ensure all police officers report for duty immediately after the disaster.
  
• To provide support to authorities when such assistance is requested through the NEOC, except in cases where immediate action is necessary to save lives or to prevent extensive loss or damage to property.
  
• To provide crowd and traffic control services.
  
• To provide resources for maintaining security during and after disasters to include the NEOC, shelter, hospital, evacuated areas and the homes of response personnel.
  
• To coordinate evacuation activities in association with the NEOC and Evacuation sub-committee.
  
• To assist with the location and tracing of missing persons.
  
• To assist with communications as necessary.
  
• To provide the on scene commander for transport accidents and crowd control situations.

8.0. MEDICAL SERVICES:

8.1. EMERGENCY MEDICAL CARE:

The Emergency Medical Care will be provided by Peebles Hospital, Private Clinics, Red Cross, Private Volunteers in collaboration with the Ministry of Health. Immediately following a disaster, the Ministry is supposed to activates its disaster plan. It will have responsibility for all medical care and triage procedures for victims. In such a circumstances pre-designated Casualty Collection Points (CCP’s) shall be determined for each island by the Island Zone Officer. The CCP’s should have adequate space for vehicular access and turn-around as well as adequate landing area for helicopters. In designated CCP’s, care should be taken to see that these areas are free from hazards such as poles, fencing, walls, unsuitable slopes, buildings, power lines, water mains or other obstacles.
The number of persons requiring medical treatment following a major disaster in the territory is very difficult to predict, but will depend largely, apart from the severity of the disaster it self, on the time of the day, and the day of the week that the disaster occurs.
It is however possible that hospital resources from outside of the disaster area will be called upon to assist in the provisional of field hospitals. Medical assistance from over seas, whether requested or offered , will comprise either large groups or small teams of medical specialists. Request for medical assistance are initiated by the NEOC and channeled through Government or Red Cross as appropriate. Offer of assistance are to handled similarly.

8.2. HEALTH DISASTER COMMITTEE;

The purpose of the committee is to review existing policies for the management of health related disasters and to advise on measures and strategies that can be implemented to enhance the programme.

Composition of the committee includes the following;

• Chief Medical Officer,
  
• Chief Nursing Officer
  
• Hospital Administrator,
  
• Director of Primary Health Care
  
• President-Nurses Assoc.,
  
• PS, Min of Health & Welfare
  
• Env. Health Officer,
  
• Private Doctors
  
• Rep. Solid Waste,
  
• Rep. Red Cross
  
• Rep. Police Dept., 
  
• Rep. Fire & Rescue Services
  
• ODP (Ex Officio),
  
• Private Pharmacists.

The functions of this committee is as follows;

• To develop mass casualty management pans, training programmes and simulations to satisfy all aspects relating to health matters in the event of a national disaster.
  
• To assist in preparing, participating in and assessing joint annual exercises with all response services of the NEO and OPD, and submit after action reports to the Chairman of the NEAC.
  
• Monitoring the implementation of the Health Service Disaster Plan.
  
• Advise on the availability, development and control of medical personnel.
  
• Monitor the stockpiling and distribution of medical supplies.
  
• Advise on the availability of mass care facilities on and off island.
  
• Ensure inventory of physical and human medical resources is established and maintained.

8.3. HEALTH DISASTER RECOVERY PLAN.

The Ministry of Health and related sectors / organizations have to develop recovery procedure as follows;

1. Assess long term health and welfare considerations and report to the recovery coordinator.
   
2. Certify food supplies as fit for distribution and consumption.
   
3. Organise a health team to inspect private buildings and water supplies as a public health measure.
   
4. Distribute medical supplies to zone and health clinics and emergency shelters.
   
5. Deploy and control health personnel.
   
6. Assist zone coordinators with staffing and establishment of first aid stations and with medical supplies and sanitary services where necessary.
   
7. Maintain strict epidemiological surveillance of radiation, water, food supplies, refuse, unburied human or animal remains or dangerous chemicals and initiate mass immunisation as required.

9.0. GENERAL POLICIES AND STRATEGIES:

The government’s role should address the current issues and problems highlighted by each institution / department. Feature policies and strategies should cover reshaping national objectives regarding disaster preparedness, mitigation, and recovery. This can be accomplished by implementing the following;

1. The government should take measure to prevent disasters rather than to recover from them, if the national goal is to achieve sustainable development, indeed it is imperative that disaster proneness considerations be incorporated into all development programming and planning.
   
2. Review legal framework under which disasters and emergencies are managed and update all areas falling under this subject.
   
3. Any development investment should include in its design measures to ensure that it does not, itself, increase disaster vulnerability as well as measures that support and improve the territory’s capacity to cope with disasters.
   
4. Physical planning should always be based on analysis of disaster vulnerability in order to avoid increasing the potential for disasters and to realise opportunities for reducing environmental and other vulnerabilities.
   
5. Increase knowledge and awareness of disaster, disaster preparedness and mitigation among politicians, administrators, development planners, community readers, and above all the ordinary people. Community involvement is critical to the design and implementation of mitigation programmes.
   
6. Encourage the widest possible perspective on a national mitigation strategy. The government should encourage to develop an overall country-wide disaster plan with supportive policies. The constituency for this need to extend beyond government. Collaborating constituencies for mitigation must be built among NGOs, the banking, finance and insurance sector, private industry, and supporting bodies ranging from economic policy groups to safety councils, etc. Each constituency will need to have a unique strategy.
   
7. Demonstrate ways to reduce disaster risks through better decision- making and planning. The aim is to encourage disaster mitigation planning at different levels of public administration, based on risks assessment and analysis of vulnerability. This will only be possible if there is a clear awareness national planners of the benefits of including disaster mitigation measures in national development plans, land-use planning proposals and in project appraisal in hazard prone areas.
   
8. Encourage and promote cooperation among UN agency, regional agency and NGOs. These can play a vital role in helping the territory to utilise the expertise from scientific institutions and the private sector in the government planning process. They can also encourage exchanges of staff and information with other countries where similar problems have been encountered. 

10.0. SUMMARY AND CONCLUSION;

For a long time the cause and the effect relationship between disasters and social and economic development was ignored by developing countries. Politicians and national planners did not concern themselves with disasters. At best they hoped that disasters would not occur and, if they did, were most effectively handled by relief from donor countries and relief organisations. For the past two decades now most developing countries have recognised the importance of incorporating disasters and emergency services in their national development planning process. The Government of British Virgin Islands has even gone a step further by preparing its own National Disaster Plan which was passed by Executive Council in 1997 and including disaster and emergency services in their long term strategy of National Integrated Development Plan ( NIDP ). With this move, the government has clearly signaled its intention to incorporate disaster preparedness matters in developmental issues and by doing so has accorded Disaster Management a very high priority at the highest political level. The BVI like most of it’s Caribbean neighbours, is vulnerable to the negative impacts of both natural and man-made disasters. Disaster impacts are negative on national economy in particularly because of the diversion of funds from normal development of social and economic programmes to disaster recovery. By nature of BVI’s economy, which is based on tourism and financial services, if a big disaster can occur can seriously retard national development as was demonstrated by hurricane Hugo and others which followed. Events like these has heightened the recognition of the linkages between development planning and disaster management, and the linkages between ODP and other related departments e.g. Fire and Rescue Service, VISAR, Medical Services, Police Department, Town and Country Planning Department, Conservation and Fisheries Department, Development Planning Unit, etc. In other words, the government has realised that sustainable development can not be achieved unless disaster management becomes an integral part of development planning.
Because of this recognition the future government policies should be directed towards improving national system for emergency response, which includes medical, police, and fire and rescue service, by providing them adequate tools, infrastructure facilities and trained human resources. Also there is a need to ensure that operating equipment and other facilities are upgraded and maintained to ensure quick response. Finally the government should review and update legislation and legal framework under which disasters, disaster preparedness and emergency services are managed. By implementing the above the government will have fulfilled it’s commitment as stipulated in the IDNDR. 


REFERENCES / BIBLIOGRAPHY.

1. UNDP / UNDRO , Disaster and Development, Management Training Programme. Published by UNDP. New York 1991.

2. Mary, B. Anderson; Analysing the costs and Benefits of Natural Disaster Response in Context of Development. World Bank, May 1990.

3. British Virgin Islands, Recent Economic Development (1992- 1997) Published by Development Planning Unit, 1998.

4. BVI Disaster Preparedness Annual Report 1997. Published By Office Of Disaster Preparedness, 1998.

5. BVI Work Programme For the OPD 1998, Published By the Office of Disaster Preparedness 1998.

6. BVI, Public Order and Safety, The sector paper by NIDS- Project 1998. 

7. BVI Government, Disaster Act 1984.

8. BVI, Fire and Rescue Services Annual Reports (1996 and 1997). Published by Fire and Rescue Service Department 1998.

9. BVI, Health and Social Welfare, a sector paper By NIDS- Project 1998.

10. BVI, National Disaster Plan, By OPD 1997.

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