Disaster Response System and the Role of Voluntary Groups in Britain

国の防災体制が見直される契機としては、多くの場合、大災害の発生があげられる。イギリスの場合は、大災害の続発に加えて、冷戦構造の終息が背景にある。イギリス政府は、戦後、一貫して核戦争に対する被災市民対応計画である民間防衛(Civil Defence)計画に力を入れ、災害対策は地方政府に任せ切りであった。しかし、民間防衛計画は、東欧、ソ連邦の崩壊という状況の中でその存在意義を著しく損なった。一方、1980年代後半に相次いで起きた大災害(事故を含む)は、地方政府に任せ切りであった災害対策への国民の関心を高め、全面的見直しの契機となった。この見直しの焦点は、防災対策の中での中央政府の役割とボランティアの位置づけなどであった。この検討の中で、国が災害対応部隊(National Disaster Squad)を保有するという構想も論議されたが、結局、現行の地方政府中心の災害対応を中央政府が支援するという方向性でまとまり、地域防災計画の充実のための諸施策が実施された。この論議の中で、災害時のボランティアの役割も整理され、各地で平常時から活動しているボランティア団体を防災応急対応を担う有力なパートナーとして位置づけた。ボランティア団体は、応急手当、医療活動支援、負傷者移送、無線連絡、避難所での受付・食糧提供等、被災者に対する精神面でのケア一等のサービスを実施する部門として、各地域の防災計画に組み込まれれることになったのである。防災計画に組み込まれた以上、ボランティア活動は、確実に実行しなければならない、というのがイギリスの考え方であり、そのためには、普段の訓練と組織化が不可避ということになる。ボランティア活動が盛んで、日本のような大規模自然災害が少ないイギリスでは、このような厳しい条件をクリアーできるボランティア団体が存在するのである。Britain had faced an unprcedented number of major disasters including natural and man-made. Zeebrugge barge accident, Piper Alpha oil-rig explosion, King\u27s Cross subway fire, Lockerbie airplane (Pan Am) blasting had become inextricably linked with evevts involving major loss of life, injury, and trauma. These events, together with other problems such as the storms which hit Southern England in 1987, have tested in extreme conditions Britain\u27s ability to respond to major disaters. The first-line response of the emergency services was widely praised but people had a question on how effectively the largely decentralized response system can meet the needs of major disaster and had an attention whether anything could be done to improve it. The Government had been under increasing pressure to take a more central role in dealing with emergencies. A consultation document was issued in 1989 by Home Office to representatives in County Emergency Planning, the rescue services, voluntary organizations and relevant societies and colleges. The purpose of this document was to summarize Britain\u27s approach to disaster management at that time and to detail suggested alternatives as a basis for further discussion. The focus of discussion was whether a "national disaster squad" with the necessary know-how to cope with any major national disaster should be created or not. Also the role of voluntary services was discussed. Taking account of various views, the ideas put forward and the Home Secretary reached the following conclusions. The basis of the response to disasters should remain at the local level : expertise and knowledge of disaster response exists and the necesary information is available there, and most effective co-ordination between the various agencies involved can be done. There had been no support from practitioners for a "national disaster squad" because it would not assist in making the exisiting response more effective and could cause problem in co-ordination and control. To encourage and develop co-ordination between the various services at the local level and between departments of central Government, the Home Secretary decided to appoint a Civil Emergency Adviser to work closely with senior representatives of all groups which have operatioal or administrative responsibilities in this field. Britain has a large and well-organised voluntary groups such as the British Red Cross, St. John Ambulance Brigade, Salvation Army and Women\u27s Royal Voluntary Service. Major problems of voluntary sector is not the lack of volunteers, but rather than there can be too many, which was showed at the Pam Nam disaster. To make the best possible use of voluntary sector\u27s contribution, planning is essential. Planning should be carried out under close co-operation between the local statutory services and voluntary organizations. It is said that the following three elements are essential : 1) there should be mutual agreement on the roles of the voluntary secter in a disaster, 2) voluntary groups should demonstrate their ability to fulfil those roles, and 3) joint training and exercises should be used to prove the effectiveness of disaster plans involving the use of volunteers