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What has APEC accomplished in 1998 and How to Build Upon That

Remarks by Ambassador Choi Seok-Young, Executive Director, APEC Secretariat Bali, Indonesia | 02 May 2005
1. In 1997, several prominent events (e.g. haze and drought in Southeast Asia, unusually damaging storms, and floods in North and South America, etc.) prompted APEC Economic Leaders and Ministers to raise the question of whether APEC could usefully involve itself in improving emergency preparedness in the region.
2. In November 1997, APEC Ministers tasked the Senior Officials to explore measures for joint action, taking into account the programs of other regional and international bodies, and to provide an inter-sessional report by June 1, 1998. Ministers' resolution was three days later further endorsed by our Leaders. They "recognize that unexpected disasters which affect one of us can affect all of us, and that we can benefit from sharing expertise and collaborating on emergency preparedness and response. We welcome the initiative of Ministers in this regard." This is hitherto the highest endorsement in APEC to take collective and coordinated actions in better preparing the region for natural disasters.
A Milestone of APEC Emergency Preparedness in History
3. Well before APEC Leaders and Ministers declarations, several APEC working groups had been undertaking or planned to undertake activities that relate or contribute to emergency preparedness, i.e. activities that enhance the capacity of APEC economies to prevent or respond to natural disasters. According to the stocktaking carried out by the then Virtual Task Force, several APEC working groups were already engaged in emergency preparedness activities.
  • Industrial Science and Technology Working Group (IST) had three projects at that time relating to emergency preparedness:
    1. APEC Cooperation for Earthquake Simulation, a project that aimed at developing a realistic numerical simulation model for the physics and dynamics of the complete earthquake generation process and to assimilate new earthquake observations into such models.
    2.APEC Emerging Infectious Diseases, a project that aimed at achieving measurable progress in reducing the burden of emerging infectious diseases through self-action and cooperative policies and practices towards public health systems development, disease surveillance, outbreak response and disease prevention and control, and to advance scientific knowledge in the field of emerging infectious diseases through research in modern and traditional health science.
    3. Collaborative Research in Disaster Prevention-with particular focus on earthquake disasters, a project to promote research cooperation on the prevention and mitigation of natural disasters among APEC economies where seismic and volcanic activities are very active.
  • Marine Resources Conservation Working Group (MRC) prepared a Regional Workshop on Preventing Maritime Accidents and Pollution in the Asia-Pacific Region.
  • Transportation Working Group (TPT) had set up an Experts Group on maritime Safety to identify maritime safety issues and problems in the region and propose recommendations for improvement. TPT conducted a project of Regional Cooperation on Oil Spill-Preparedness and Response Arrangements.
  • Telecommunications and Information Working Group (TEL)- In fact, because many of the TEL's activities were intended to improve the reach, quality and reliability of the communications network as well as encouraging application, the TEL's work often had the secondary effects which were supportive of the goal of emergency preparedness.
  • Fisheries Working Group (FWG) planned to hold the APEC Aquaculture Forum which would discuss the issue of fish health and disease issues, including disease diagnosis, management and improved environmental management within the Asia Pacific Region.

This is of course not an exhaustive list of the activities carried out by all APEC fora at that time. Activities of Tourism Working Group (TWG), Energy Working Group (EWG), Trade Promotion Working Group (TP), and many others were not taken on board in the report.

4. Though there were a series of APEC activities related to emergency preparedness, they were carried by APEC working groups in a fragmented manner and lack of coordination among them.
5. In the Ministerial Statement of 1997, Ministers instructed "that APEC should define its value-added role in formulating emergency preparedness and disaster recovery measures. Ministers called for strengthening cooperative efforts to ensure an effective and integrated approach to deal with this key issue.
6. 1998, in response to the APEC Leaders and Ministers instruction, emphasis in APEC was put on measures for joint action. The then Virtual Task Force correctly began its work with consultation with the Lead Shepherds of APEC fora during the Joint Fora Meeting. The aim was to provide a framework which coordinates existing emergency preparedness initiatives in APEC, and build on this work in the context of other regional and international activity. The then Virtual Task Force identified four possible areas where APEC could make a value-added contribution: earthquakes, oil spills, advance weather monitoring system, and emerging infectious diseases. It was also felt that emergency preparedness could be a component of cooperation in ECOTECH, particularly in areas of harnessing technology and developing human resources through, for example, the sharing of information and capacity-building. SOM agreed on the need for close cooperation in undertaking this work to avoid duplication or proliferation of work."
7. In June 1998, at their second meeting in Kuching, Sarawak, Malaysia, APEC Senior Officials finalized the Report to Ministers-Emergency Preparedness in APEC-Capacity Building and Institutional Strengthening in which SOM recommended our ministers to consider:
  • to create a framework for longer-term capacity building cooperation for emergency preparedness in APEC;
  • to direct all APEC fora to explore emergency preparedness technical cooperation initiatives through information sharing exercises and the establishment of an Internet website; andto hold a one-off trade exhibition and seminar to identify needs and solutions unique to the APEC region for alleviating the deleterious impacts of smoke, haze and forest fires.
8. At SOM III held in Kuantan, Malaysia on 13-15 September 1998, the APEC Framework for Capacity Building Initiatives on Emergency Preparedness was officially submitted by SOM to Ministers for adoption at their meeting in November 1998, and SOM decided to disband the Virtual Task Force.
9. The establishment of the Virtual Task Force and recognition of need for close cooperation in undertaking emergency preparedness work was a milestone in APEC history in response to and getting prepared for natural disasters. Unfortunately, the momentum did not last very long. The sudden outburst of Asian financial crisis diverted the attention of the APEC Leaders and Ministers. The framework principles recommended by the then Virtual Task Force were neglected deep in the dust-cover files. Many far-reaching plans have not actually come off the drawing board.
Virtual Task Force Did An Excellent Job in 1998
10. The then Virtual Task Force was established in February 1998. It completed its mission and was disbanded in September the same year. Many of the findings and recommendations by the then Virtual Task Force are still relevant today.
  • APEC Should Contribute to Emergency Preparedness in the APEC RegionWith the increased profile created by the annual Leaders meetings, APEC is increasingly looked to as the key forum for regional cooperation on the issues of the day facing the region. Moreover, as the primary regional vehicle for promoting open trade and economic cooperation in Asia-Pacific, APEC has established the necessary linkages among governments, the private sector, and non-government expert groups to address these issues. A stocktaking of these existing activities was done by the Virtual Task Force;
  • APEC Should Add Value to but not Duplicate the Work of Other International/ Regional Organizations
  • The Virtue Task Force found that APEC fora had already been engaged in a number of emergency preparedness activities on issues such as emerging infectious diseases, earthquakes, and oil spill preparedness. APEC had proven itself to be flexible and pragmatic by recognizing the substantial work of regional organizations such as the Asian Disaster Preparedness Center (ADPC), the ASEAN Regional Forum (ARF), the Pacific Economic Cooperation Council (PECC), and the Asian Development Bank (ADB), and also the work of international organizations such as the Office for Coordination of Humanitarian Affairs (OCHA), the Red Cross, the World Meteorological Organizations (WMO). It recommended that APEC should continue to build upon existing emergency preparedness initiatives and mechanisms, and explore cooperation with those organizations in areas of mutual interest.
  • Objectives of APEC Emergency Preparedness Activities
    The then Virtual Task Force recommended that Ministers make a commitment to further develop the emergency preparedness capacity of APEC member economies. The objectives would be to: (a) enable economies to take preventive measures to avoid emergency situations, handle emergency situations, and mitigate the effect of disasters through strengthening of economic and technical cooperation; (b) promote expertise, technology, and trade and goods and services related to emergency preparedness; and (c) develop partnerships between the different stakeholders (public/private/non-governmental expert sectors) on these issues.
  • Joint activities and programs to strengthen economic and technical cooperation on emergency preparedness may include the following:
  • Projects to improve capacity building in emergency preparedness through training courses and exchange of personnel;
  • Seminars and trade exhibitions; -Improved access to emergency preparedness information through development of an Internet website to facilitate information exchange;-Sharing of best practice information on advance monitoring systems and legislative frameworks;
  • Ongoing dialogue with relevant international, regional and sub-regional organizations to maximize use of existing activities and avoid duplication of effort;
  • Engaging with local communities, including volunteer emergency response organizations, scientific research institutions, and businesses involved in emergency preparedness services, technology and equipment.
  • A list of several natural/man-made disasters to which the region has been exposed were identified:
  • Weather-related phenomena and in particular El Nino (its effects are felt across the entire Asia-Pacific causing floods, hurricanes, typhoons, tornadoes, ice storms, drought, forest/bush fires, haze and air pollution, infrastructure damages, etc.)
  • Earthquakes (the Pacific Rim is a high-risk area with major quakes in Kobe and San FranciscoThis decade);
  • Tidal waves/tsunamis (population is disproportionately located in coastal zones);
  • Sea-level rise and global change; Volcanic hazards;-Ocean oil spills(increased marine traffic around the Pacific Ocean);
  • Industrial accidents leading to widespread air/water pollution;-Disease and epidemiological emergencies affecting humans, animals, plants.
Lessons Learned from 1998
11. The standing Virtual Task Force on Response to and Preparedness for Natural Disasters (VTF) should remain existent under SOM on a long term basis;
  • The Asia-Pacific are includes 52% of the earth's surface area, 59% of the world's population, and over 70% of the world's natural disasters. The impact of natural disasters in the Asia-Pacific region from 1990 to 1998 had been estimated at over 200,000 deaths and over US$5 billion in material damage. A number of these events have had trans-boundary impacts and have required regional responses. Since most of the natural disasters are not one-off in nature, in response the VTF should stay in place on a long term basis to cope with APEC-wide coordination work in areas of emergency preparedness.
12. The VTF should play a role of the executive arm of SOM to look after the APEC activities for emergency preparedness;
  • The APEC's Strategy on Response to and Preparedness for Emergency and Natural Disasters has empowered the SOM Chair, in view of sudden and unexpected nature of many natural disasters, to serve as the coordinator of the APEC-wide emergency and natural disaster preparedness activities and to make necessary responses on behalf of APEC immediately after a natural disaster subject to due consultation with APEC member economies. But the broad range of work of the SOM Chair would prevent him/her from keeping the emergency preparedness work closely coordinated or centralized. Therefore, the VTF should play a role of the executive arm of SOM to look after the APEC activities for emergency preparedness.
13. The VTF website needs refurbished and properly updated/managed through a consistent quality control of the contents;
  • The 1998 VTF website has not been well maintained because of lack of political leadership and commitments thereafter. Website play an important role for the participants to communicate each other, exchange information, get access to the contact points and documents, get access to the project information etc.
14. The exercise of diffusing best practice and to identify gaps to avoid duplications had not been completely made because of the short time span of operation of VTF;
  • How to establish and operate the partnership arrangements with other stakeholders such as other international organizations, private sectors, NGOs?;Particularly, how to make compromise between the issues of the outreach and partnership with other stakeholders and the rules of non-member participation?
15. The work modality of subfora of APEC and SOM Chair office had not been clearly defined;
  • Although the need for the collaboration was identified, the details of the work modality has not been defined;
Elements of A Framework of PrinciplesFor Emergency Preparedness in APEC (Annex D of Report to Ministers-Emergency Preparedness in APEC) 1998

Goal:
  • To develop the emergency preparedness capacity of APEC member economies through activities and initiatives in existing APEC for a, or other appropriate mechanisms including in cooperation with other international institutions, subregional organizations, or bilateral programs in the region.
Objectives for Emergency Preparedness In APEC:
  • To focus on prevention of emergency situations affecting people in APEC;
  • To enable economies to take preventive measures to avoid emergency situations, handle emergency situations, and mitigate the effect of disasters through strengthening of economic and technical cooperation among APEC member economies (e.g. sharing information on means of reducing damage, improve advance monitoring systems, encourage training, promote more comprehensive emergency legislation);To promote expertise, technology, and trade in goods and services related to emergency preparedness (particularly roles of private and public sectors in the transfer of non-proprietary technology);To develop partnerships with local communities including organizations outside government, business, non-profit organizations, etc.
Process for Implementation:
The SOM (or other appropriate forum such as the ECOTECH Subcommittee) should continue to act as the focal point for coordination and to ensure a multi-disciplinary approach to this issue. The SOM should be responsible for reviewing the relevancy of this topic in the context of keeping APEC focused and streamlined. Emergency preparedness work should be closely coordinate with the six priorities of the Framework for Economic Development and Cooperation.
OUTLINE OF FRAMEWORK OF PRINCIPLES:

Preamble:
  • importance of emergency preparedness on economy
  • health and quality of life for people in region
  • the global environment and promotion of sustainable development
Voluntary Principles
  • shared responsibility and roles of public and private sectors
  • strengthening structures and procedures of existing organizations;
  • need for centralized coordination / direction; decentralized implementation and response (vest responsibility for action at level most affected by emergencies)
  • flexibility / adaptability: to extent possible, consider local conditions when sharing generic techniques of preparedness / capacity building
  • Role for APEC: to improve capacity for all groups / citizens; commitment to engage I information exchange and consultations; using partnerships to foster science and research for mutual benefit, sharing of information and providing educational opportunities for different sectors of society, etc.
APEC Framework for Capacity Building Initiatives on Emergency Preparedness 1998
Recalling the commitment made in Vancouver, November 1997, for an APEC value-added role to strengthen cooperative efforts for ensuring an integrated approach to dealing with emergency preparedness in the region;
Acknowledging the challenge to sustainable growth and sustainable infrastructure development posed by natural disasters which continue to affect the region;
Recognizing that unexpected, large-scale, natural disasters which affect one of us can affect all of us in the community, and that we can benefit from shared expertise and collaboration on emergency preparedness activities;
Desiring to safeguard the basic needs, including health and quality of life, of all people in the APEC community through developing effective preparedness capabilities to reduce the human and property recovery costs of emergencies and facilitate post-disaster rehabilitation and reconstruction:
SCOPE
APEC members agree to cooperate in areas of mutual benefit and interest to promote improved emergency preparedness in the APEC region in relation to natural disasters: including floods, droughts, earthquakes, bush or forest fires, tidal waves, cyclones, tornados, and emerging infectious diseases.
OBJECTIVE
We agree on the need for cooperation to enhance preventive and responsive measures for natural disasters through improved information sharing and capacity building among APEC member economies.
ACTIVITY
Joint activities and programs to strengthen economic and technical cooperation on emergency preparedness may include the following:
  • projects to improve capacity building in emergency preparedness through training courses and exchange of personnel;seminars and trade exhibitions;
  • improved access to emergency preparedness information through development of an Internet website to facilitate information exchange;
  • sharing of best practice information on advance monitoring systems and legislative frameworks;
  • ongoing dialogue with relevant international, regional and sub-regional organizations to maximize use of existing activities and avoid duplication of effort;
  • engaging with local communities, including volunteer emergency response organizations, scientific research institutions, and businesses involved in emergency preparedness services, technology and equipment.
COMMON UNDERSTANDING
Recalling the guiding principles for APEC economic and technical cooperation concerning mutual respect and equality, mutual benefit and assistance, constructive and genuine partnership, and consensus building, we acknowledge the diversity of the region as well as the desire for a basis of common understanding for cross-border cooperation on emergency preparedness activities. In this context, we recognize:
  • There is a shared responsibility for both the public and private sectors in preparedness activities to anticipate emergencies, with the responsibility for action vested at the level most affected.
  • APEC activities and projects should complement the structures and procedures of existing organizations which are active in the area of emergency preparedness.
  • Flexibility and adaptability are key to emergency preparedness activities. When generic techniques of preparedness / capacity building initiatives are being shared, proposals should recognize local conditions.
IMPLEMENTATION
To ensure a multi-disciplinary approach, APEC Senior Officials should be tasked as the point of guidance and coordination for all APEC fora activity related to emergency preparedness.

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