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I
f natural disasters (earthquakes, cyclones, etc.) regularly French policy on managing major hazards aims to make persons
cause large numbers of casualties throughout the world, and property less exposed and less vulnerable and has three
their strength and consequences are not so severe in main objectives:
France. However, those events that have taken place yy to prevent damage, reduce its impact and then make good;
recently (the Xynthia storm of February 2010, that of yy to inform citizens in order for them to play a part in this mana-
Christmas 1999, flooding in the Pyrnes, Somme, Languedoc- gement;
Roussillon and Var regions, forest fires in the South and the yy to manage crises and disasters effectively when they occur.
explosion at the AZF factory in Toulouse) show that in these sorts
of situations human and material damage can be considerable. Planning taking account of hazards is necessary at all levels of
Two thirds of the 36000 towns and villages in France are at government and local authority decision making.
risk from at least one natural disaster and 15,000 of them
are at risk of flooding, the main hazard in France for the Frances experience in the areas of understanding and preven-
number of victims and the economic cost of the disaster. ting hazards and in the management of disasters has allowed
In the Antilles, the sismic hazard is the most feared risk for it, for a number of years now, to consider a number of ways
the forseable number of victims. in which it can cooperate internationally in order to respond to
requests for support and help from foreign partners.
a b c d e f
be careful informations flood sea flood dam flood refuge
downstream
g h i j k l
highest known landslides underground, earthquake plan earthquake volcanic activity
water position cavities marl pit
m n o p q r
nuclear plant industrial underground pipe of shelter storm
activity storage toxic materials
s t u v w
cyclone avalanche, wildfire ground movement toxic materials
snowstorm due to drought transportation
MinistreMinistry
de lcologie,
of Ecology,
du Dveloppement
Sustainable Development
durable et de
and
lnergie
Energy
What constitutes a major hazard?
The various types of hazards can be divided into five main Society as well as the individual needs to organise to cope. A scale
categories: showing the seriousness of damage has been drawn up by the
yy natural hazards: flooding, forest fires, earthquakes, volcanic Ministry of Sustainable Development. The table below classifies
eruptions, landslides, avalanches, cyclones and storms; natural events into 6 main categories, from an incident to a major
yy man-made technological hazards: industrial, nuclear, bio- disaster.
logical accidents, dams failures etc.;
yy transportation hazards (persons, dangerous substances) In France, all these hazards could be forecast.
are technological hazards but they are included as a separate Planning for major hazards implies research into:
category because the risks they pose vary depending on where yy what might happen;
the accident takes place; yy the threats that are present;
yy hazards associated with daily life, domestic accidents, road yy the preventative measures to be put in place;
accidents etc.; yy how the various levels of management should act;
yy hazards linked to war1. yy procedures for informing persons concerned.
Major hazards have two main criteria: The management of hazards works on two levels:
yy infrequency: because they do not happen very often society yy preventative measures designed to remove or reduce the
is more inclined to ignore them; effects of a possible event on persons or property; these mea-
yy serious consequences: large numbers of victims, large-scale sures are part and parcel of sustainable development since pre-
damage to property and the environment. vention tries to reduce the economic, social and environmental
consequences of an imprudent development as opposed to
A major hazard is therefore the combination of an unexpected restoration which, obviously, follows on from a crisis;
event and a major challenge. For example, an earthquake in the yy intervention when the damaging event occurs.
middle of the desert is not a hazard, but an earthquake in San The two levels are complementary; for if not enough preven-
Francisco is a major hazard. tative measures are taken then society will need to agree to
In a general way, a major hazard is characterised by large numbers large-scale spending to ensure the management and then the
of victims, a high cost in terms of material damage and impact on restoration of damage that may be severe and might include
the environment and heritage - it is vulnerability that measures mourning the loss of human life.
its consequences.
1 Only the first three categories count as what we call major hazards and are examined in this present work. Hazards linked to conflicts are related to major hazards.
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FRENCH POLIC Y for disa ster risk prevention Summary
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FRENCH POLIC Y for disa ster risk prevention Summary
The measures in the ORSEC plans also anticipate those mea- Feedback
sures that need to be taken and the rescue plans to be imple-
mented to counter threats from particular hazards or that are After the crisis, there should be time for analysis. Every
linked to the existence and operation of specific installations natural disaster and each technological accident means
and works. Special Intervention Plans (PPI) particularly for looking again at practices and certainties. It is a time to
those sites classified as Seveso, hydroelectric dams and nuclear examine what went wrong and to find out how to create
sites might also be drawn up. the conditions necessary for the lessening the risk in the
future. At national level in France, the Department of Ecology,
Local Disaster Plan (PCS) Sustainable development, Transport and Housing has the
Within their area the Mayor is responsible for providing a staff and organisational structure to analyse this feedback.
first response. A Local Disaster Plan (PCS) is mandatory in
local authority areas where there is a Plan for the Prevention a The list of the main bodies dealing with the preven-
of Foreseeable Natural Disasters that has been approved, tion of major hazards can be consulted on www.prim.net
or where it falls within an area where there is a particular and in particular annex 3 of the document La dmarche
intervention plan. If there is a disaster it will list the means franaise de prvention des risques majeurs which can be
available to a local authority for use alongside other bodies downloaded under the heading catalogue. This document
intervening, rescue services, charities etc. introduces the objectives, methodological principles, the
means and bodies associated with the prevention of major
Particular Safeguarding Plan (PPMS) hazards in France. A glossary and a directory of the actors of
In educational institutions that might be exposed to one or more knowledge, management end prevention of natural hazards
major hazard the head of the establishment is obliged to in France are available at www.onrn.fr at Annuaire and
draw up, in the name of (and in cooperation with the local Glossaire pages.
mayor and the rescue services) a Particular Safeguarding
Plan (PPMS). This plan should take into account each of the Each year the Director in Charge of Major Risks publishes
major hazards to which the establishment might be exposed. an annual report which is submitted to the Advisory Board
Regular simulation exercises should then take place. on the Prevention of Major Natural Hazards (COPRNM) for
their comments.This report is online on the website of the
Department of Ecology, Sustainable Development, Transport
and Housing: www.developpement-durable.gouv.fr
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FRENCH POLIC Y for disa ster risk prevention Summary
The different stages of decision the operationnal center og interministerial crisis manage-
and intervention ment (COGIC). Moreover, the orientation council for natural
disasters risks prevention (COPRNM), founded the 30th August
The french public policy for the management of natural an 2003, associates parliamentaries, local elected and qualified
technological disasters includes different stages of decision and experts to enrich the reflexions of makers.
intervention.
The defense zone level
The national level The zonal operations center (COZ) has the same rle as the
Three ministries take a major role: interministerial crisis center (CIC) in each defense zones of the
yy Ministry of sustainable development for the prevention, national territory.
protection and disaster risk reduction and preventing information;
yy Ministry of interior for preparedness and crisis management; The local level
yy Ministry of economy supervises the insurances2 in charge The city mayor and prefet are in charged of the risks mana-
of the compensation for disasters. gement, but the local authorities are increasingly involved in
this management.
Aside from these three main ministries, the ministries of
research, agriculture, health, foreign affairs and education contri- The role of the city mayor
bute in their area of expertise to the disasters risks prevention. As the manager of his city urban planning and security, the
mayor has to informed his population about he disaster
Directorate-General for Risk Prevention (DGPR) department risks and to organized the emergency actions. He could
of ministry of sustainable development, lead by the delegate use several tools:
for hazard risks, linked four departments: yy The general code of local authorities (CGCT);
yy department of technological risks; yy The county information file about hazard risks (DICRIM);
yy department of nuisance prevention and environmental quality; yy The local disaster plan (PCS);
yy department of natural and hydrological disasters; yy The plan for the prevention of forseeable environmental
yy desk of general affairs and information systems. hazards (PPR);
yy The local development framework (PLU).
The ministry of sustainable development implements actions
in legislative, regulatory, technical and organizational areas to The role of the county prefet
enhance the didasters risks prevention and mitigation and the As the government representative, the prefet leads the local
information and protection of populations. It is an important pro- government politics establishement, receives and oversees
gram with technical, economical and regulatory crucial issues applications for authorization. He has an inter-ministeries service
for the government, local authorities, industries and population. for defense and cicil protection (SIDPC). He relies on files for clas-
sified buildings inspection and advices from the departemental
Directorate for Civil Security department of the ministry of council for hygiene. The prefet is the leader of the emergency
interior prepares and implements the emergency rules needed organisation under the operation center of the county (COD) for
for the populations protection at national level. Its director is a civil security if the disaster concerned more than one city. For
member of the executive comittee of the national council for the disaster risks management, the prefet:
civil security. yy Heads the departemental comittee of natural disasters
(CDRNM). As such, he uses tools like the departemental file for
A cross and coherent approach involving different administra- hazard risks (DDRM) which informed the cities about the existing
tion was needed. It leads the government to established an risks, the specific plan for intervention (PPI) for industries and
interministerial crisis center (CIC) connected to the ministry the plan for the prevention of forseeable environmental and
of interior. His charge is to organise the emergency intervention technological hazards (PPR) which is a complement of the local
in case of disaster and to support the action from the prefet development framework;
authority in each county. Since february 2010, this center replace yy establish and leads the ORSEC emergency organisation.
2 The French federation of insurance societies (FFSA) and the Group of mutual insurance companies (GEMA) created in 2000, a mission about natural disasters for the knowledge
and prevention of disaster risks. This mission (MRN) represents the insurance profession from the partners of disasters risks management in France (public authorities, local
authorities, associations...). This mission leads the working group of natural events of the European comittee of insurances.
International cooperation
for the reduction of natural disasters -
Frances contribution
to develop partnerships that bring together government depart-
Acknowledged and shared expertise ments, public bodies as well as non-governmental and private
operators in order to offer global and transparent cooperation,
France is active in a number of areas around the world and its expertise and engineering skills.
international activity is wide ranging in the fields of climate,
water, biodiversity, civil defence, heritage and environmental These partnerships would take into consideration the particular
protection, meteorological knowledge, seismic, geophysical nature of a partner country and adapt to local conditions in order
and spatial observation. to encourage the appropriation and acculturalisation of skills
and thereby achieve a true shared approach to hazards and the
a French experts actively participate in several international projects: reduction of risk from disasters. Disaster risks reduction has to
yyUNESCOs Intergovernmental Oceanographic Commission (IOC) be integrated to all the strategies and policies of sustainable
tsunami warning systems; development at the national, european and global levels.
yyThe World Meteorological Organization (WMO) forecasting, moni-
toring and early warning systems, part of the natural disaster Frances scientific and operational expertise allows it to
prevention programme; cooperate in a number of fields:
yyseismic activity monitoring; yy understanding events and the challenges and techniques
yyheritage protection, to extend to natural disasters those objec- available for the reduction of major hazards;
tives of the Hague Convention (1954) that apply to the protection yy planning and urban development;
of cultural property. yy construction;
yy informing populations;
Concerned about responding to the expectations of other yy training, research and scientific education;
countries, especially developing countries, France is anxious yy education in schools;
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FRENCH POLIC Y for disa ster risk prevention Summary
Rf. DICOM-DGPR/BRO/11008-3 - November 2013 Design and editing: METL-MEDDE/DICOM Writing: J.-M. Dedeyan - DAEI - DGPR - DICOM Photo credits: cover: METL-
MEDDE/L. Mignaux (x2) - Emag - IPR - Mike Page/Flickr - 1 suisse/Flickr Page 3: L. Mignaux (x2) - Fotolia/R. Villalon Pages 4-5: METL-MEDDE/A. Bouissou (x2) - L. Mignaux
(x3) - NASA Earth Observatory Collection Pages 6-7: A. Bouissou (x2) - L. Mignaux (x3) - B. Suard Pages 8-9: A. Bouissou - METL-MEDDE/Edheline Bourguemestre - METL-
MEDDE/G. Crossay - METL-MEDDE/T. Degen - L. Mignaux (X2) - Page 10: A. Bouissou - Pressmaster/Fotolia - UN/ISDR Printing: SG/SPSSI/ATL2 - Leaflet printed on European
eco-label certified paper - www.eco-label.com
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Ministre de lcologie,
du Dveloppement durable et de lnergie
Direction gnrale de la Prvention des risques
Arche paroi nord
92055 La Dfense cedex
Tl. 01 40 81 21 22
www.developpement-durable.gouv.fr