OECD reviews of risk management policies Mexico 2013 ; review of the Mexican National Civil Protection System

226 Pages·2013·3.696 MB·English

by  OECD

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Chapter 3. Risk assessment in the National Civil Protection System e CIVIL PROTECTION SYSTEM
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42 2013 05 1 P

OECD Reviews of Risk
Management Policies:
Mexico
2013
REVIEW OF THE MEXICAN NATIONAL CIVIL
PROTECTION SYSTEM
This work is published on the responsibility of the Secretary-General of the OECD.The
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3
FOREWORD –

Foreword
Civil protection plays a key role in ensuring the safety and well-being of citizens and
in building economic and social resilience to disasters. Good civil protection can literally
make the difference between lives saved or lost, and in the time it takes for society and
the economy to recover after major events. Mexico, a country exposed to frequent
tropical storms, powerful earthquakes and devastating floods, has been a frontrunner in
this area. The National Civil Protection System is a core public service which relies on a
unique mix of institutional capacities and the co-ordination of resources at all levels of
government.
This Review of the Mexican National Civil Protection System is the first country
review under the newly established OECD High-Level Risk Forum. The report offers a
unique review and analysis of the system since its inception in 1986. It provides
evidence-based policy advice on how to move risk management policy forward, and
highlights priority areas to translate objectives into action, prevention in particular. It
builds on a thorough process of policy dialogue with Mexican stakeholders drawing on
state-of-the-art expertise from other countries exposed to disasters, including Chile, Italy
and the United States.
According to the review, the Mexican National Civil Protection System has made
much progress over the years. Although extreme events continue to disrupt economic
activities, they now result in relatively few human casualties. This, in itself, is an
impressive sign of Mexico’s progress, reflecting both technological advancements, such
as sophisticated early warning systems and modern building codes, and the wide sharing
of a culture of safety. Mexico has also established itself as one of the leading countries in
the financial management of disasters, through the Fund for Natural Disasters (FONDEN)
and the Fund for the Prevention of Natural Disasters (FOPREDEN).
Despite progress, our study underlines that improving prevention policy should
remain a priority. Improper land use and territorial and urban planning contribute heavily
to the vulnerability of Mexico’s population and economy to natural hazards. These issues
need to be addressed in a broader framework for prevention to contribute to sustainable
long-term economic development, while at the same time addressing the most pressing
policy challenge for disaster risk reduction.
Risk management policy is about leadership and governance. The OECD Review of
the Mexican National Civil Protection System can help build further momentum for
policy implementation as a new General Law for Civil Protection was recently passed.
Maintaining engagement with citizens and businesses will be essential. Further
international co-operation, an area where Mexico has demonstrated that it can take the
lead, will also be fundamental to sharing lessons and pooling best practices.

OECD REVIEWS OF RISK MANAGEMENT POLICIES: MEXICO 2013 © OECD 2013
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– FOREWORD

This report highlights a number of options that the current administration may wish to
consider for setting up an ambitious, cohesive and inclusive strategy for risk management
for civil protection. The OECD stands ready to continue to support Mexico in this
important policy area for promoting better policies for better lives.

Angel Gurría
Secretary-General
OECD REVIEWS OF RISK MANAGEMENT POLICIES: MEXICO 2013 © OECD 2013
5
ACKNOWLEDGEMENTS –

Acknowledgements
The OECD Review of the Mexican National Civil Protection System was prepared by
the OECD Directorate of Public Governance and Territorial Development (GOV), with
the support of the General Co-ordination of Civil Protection in the Mexican Ministry of
the Interior (SEGOB). The OECD Secretariat is especially grateful to the local team from
SEGOB for providing valuable comments on drafts of the report, and especially for co-
ordinating the finalisation of the report: Luis Felipe Puente Espinosa (General Co-
ordinator of Civil Protection), José María Tapia Franco (General Director of FONDEN),
Enrique Guevara Ortiz (General Director of the National Centre for Prevention of
Disasters), Ricardo de la Cruz Musalem (General Director of Civil Protection), Mariano
González Aguirre (Deputy General Director of FONDEN), and Claudia Núñez Peredo
(Director of Ordinance and Preventive Financial Instruments (DG FONDEN). The OECD
Secretariat is also grateful for the openness to participate and willingness to provide
information of the numerous civil protection stakeholders active in SINAPROC (see
Annex L) at the federal, state and municipal levels of government, as well as from
industry, civil society and the scientific research community in the data collection efforts
and panel interviews.
The review team benefited from the expertise and insights of three international
experts (peers) in disaster risk management, from OECD countries that are highly
exposed to some of the same extreme natural hazards as Mexico: Alejandro de la Campa
(Federal Emergency Management Agency, United States), Luigi D’Angelo (Department
of Civil Protection, Italy) and Pablo Ivelic (Ministry of Housing and Urban Development,
Chile). The peer review team also benefitted greatly from the participation of Pierre-Alain
Schieb (Counsellor, OECD), who designed the OECD methodology for peer reviews of
risk management policies.
This peer review of risk management policies is the first produced under the auspices
of the OECD High-Level Risk Forum, under the direction of Rolf Alter, Director of
Public Governance and Territorial Development. Stéphane Jacobzone, Deputy Head,
Reform of the Public Sector Division, provided guidance and direction throughout the
process and liaised with Mexican authorities to agree upon the scope and process of the
review.
The desk and field research, drafting and revisions to the report were carried out by
an OECD team consisting of Jack Radisch, Charles Baubion and Jacob Arturo Rivera
Pérez. Ezequiel Wachs and Margareth Celse L’Hoste conducted background research.
Kate Lancaster offered editorial comments. Jennifer Allain prepared the report for
publication. Assistance was also provided by Lia Beyeler, Anne Lise Faron, Natasha
Lawrance and Sophie Limoges. Special thanks are due to the OECD Centre in Mexico,
including in particular José Antonio Ardavín, Manuel Gerardo Flores and José Antonio
García.
The OECD team very grateful to the help received from: Laura Gurza Jaidar, Rubem
Hofliger Topete, Roberto Quaas Weppen, Ana Lucia Hill Mayoral, Ernesto Visconti
Chacón and Marco Ceballos Muñoz.
OECD REVIEWS OF RISK MANAGEMENT POLICIES: MEXICO 2013 © OECD 2013

7
TABLE OF CONTENTS –

Table of contents
Acronyms and abbreviations .................................................................................................... 11
Executive summary .................................................................................................................... 15
Chapter 1 Key natural hazards and vulnerabilities ................................................................ 29
Hazardous natural phenomena in Mexico ................................................................................ 31
Mexico’s vulnerabilities to natural hazards .............................................................................. 48
Conclusion ................................................................................................................................ 56
Notes ........................................................................................................................................ 57
Bibliography ............................................................................................................................. 57
Chapter 2 Legal and institutional framework for risk management ..................................... 63
Introduction .............................................................................................................................. 64
Towards the development of a harmonised nationwide emergency response approach .......... 65
A gradual move towards more emphasis on preventive approaches ........................................ 72
Towards integrated risk management: The new 2012 General Law for Civil Protection
and its implementation challenges ........................................................................................... 75
Conclusion ................................................................................................................................ 78
Bibliography ............................................................................................................................. 79
Chapter 3 Risk assessment in the National Civil Protection System ..................................... 81
Introduction .............................................................................................................................. 82
Gathering the empirical evidence for risk assessment ............................................................. 85
Development of a national risk atlas ........................................................................................ 91
Risk atlas initiatives at local levels ........................................................................................... 93
Conclusion ................................................................................................................................ 96
Note .......................................................................................................................................... 97
Bibliography ............................................................................................................................. 97
Chapter 4 Disaster risk prevention and mitigation ................................................................. 99
Risk prevention: A SINAPROC priority ................................................................................ 100
Reducing physical exposure and vulnerability ....................................................................... 101
Strengthening the risk culture................................................................................................. 110
The crucial role of early warning systems .............................................................................. 115
Financing prevention .............................................................................................................. 124
Conclusion .............................................................................................................................. 127
Bibliography ........................................................................................................................... 128
Chapter 5 Emergency preparedness and response ................................................................ 131
Introduction ............................................................................................................................ 132
Clarity of first responder roles in emergency management .................................................... 132
Advances in emergency planning........................................................................................... 135
Co-ordination of emergency response .................................................................................... 142
OECD REVIEWS OF RISK MANAGEMENT POLICIES: MEXICO 2013 © OECD 2013
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– TABLE OF CONTENTS

Conclusion .............................................................................................................................. 153
Note ........................................................................................................................................ 155
Bibliography ........................................................................................................................... 155
Chapter 6 Recovery and reconstruction ................................................................................. 157
Introduction ............................................................................................................................ 158
Business continuity and early recovery as a civil protection objective .................................. 158
Financial mechanisms in support of reconstruction ............................................................... 162
Risk transfer and insurance .................................................................................................... 170
Conclusion .............................................................................................................................. 174
Notes ...................................................................................................................................... 176
Bibliography ........................................................................................................................... 176
Chapter 7 International co-operation to strengthen civil protection ................................... 177
Foundations of international co-operation in civil protection ................................................ 179
Cross-border co-operation in civil protection matters ............................................................ 181
International co-operation in crisis management ................................................................... 187
International and bilateral co-operation in disaster risk management .................................... 190
Conclusion .............................................................................................................................. 193
Notes ...................................................................................................................................... 194
Bibliography ........................................................................................................................... 194
Annex A States and municipalities interviewed during the peer review ............................. 197
Annex B Major disruptive events by state ............................................................................. 202
Annex C Key federal laws related to civil protection ............................................................ 203
Annex D SINAPROC: Key federal ministries and organisations ........................................ 205
Annex E Prevention activities: Responsible stakeholders .................................................... 208
Annex F Recovery activities: Responsible stakeholders ....................................................... 210
Annex G Process for scaling up emergency response ........................................................... 211
Annex H 2012 General Law of Civil Protection: Main new provisions .............................. 212
Annex I Operational process for accessing the FONDEN Emergency Fund ..................... 214
Annex J Operational process for accessing the FONDEN Reconstruction Fund .............. 215
Annex K Agreements for international co-operation ............................................................ 216
Annex L List of interviewees ................................................................................................... 218
Annex M Methodology ............................................................................................................. 221
Tables
Table 1.1. Number of emergency declarations per state, by disaster type (2001-2011) ........ 34
Table 1.2. Major floods in Mexico and their impacts (1943-2004) ....................................... 41
Table 1.3. Major active volcanoes and eruption consequences in Mexico since 1980 .......... 44
Table 1.4. Number of tsunamis registered in Mexico after 1950 ........................................... 45
Table 1.5. Percentage of Mexican territory affected by droughts .......................................... 46
Table 1.6. Economic and social consequences of the 1998 drought ...................................... 47
Table 1.7. Largest cities in OECD countries ranked by population density .......................... 50
OECD REVIEWS OF RISK MANAGEMENT POLICIES: MEXICO 2013 © OECD 2013