Making an institutional system for disaster preparedness and risk mitigation

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(1)//4SP e=.::a�r s r.::: ::..:: :::.ce:::.dn =:.::e=-=s� =s�t:!ae�r�P Maki!:::.!n��__!S�.!:=s7t:.!:e�m�f=-o �r�D�i�s�a. ",t·. FOREWORD. r,{>11. �.,•' J ' ·��· CENTRO DE ... el DOCUMENTACION ��. � <"e,,. I �. and Risk Mitigation. Omar D. Cardona.(*). 1'�,¿/fJrt N�r,\�•,t-"/ ,. ""� e,.,(j. 1 r A [tll ':..--··. Considering ,a, " participants of the Disaster Management and Development Workshop, that is organised by the Oxford Polytechnic Disaster Management Centre during summer.of each year,. should write a paper (project) during their stay, the author as a participant of the 1991's workshop decided to attempt to describe a model and an example of an institutional organisation to cope disasters. However, it is not a formal paper, may be it could be an outline or a speculative scheme that include, as example, the experience of Colombia, where the author has• been working during the last year.s. INTRODUCTION. According to the criteria of many disaster preparedness experts and planners it is practically impossible to reduce the impact of the disasters without a strong institutional organisation and co ordi.nation. Still, it is no easy to find literature about how that institutional organisation should be structured and how it could work. This document attempt to define a general structure, considering the existing entities and authorities of a country, in order to face disasters taking into account that each entity must do, surely, several activities relate to disaster preparedness and risk mitigation according to its role. In order to show how these ideas can be implemented, like an example, the colombian experience is ilustrated. 'l'hm.-:;, this document expect to he useful to who needs somenthing of theory and a lot of practice. THE SYSTEM. As mentioned previously, disaster peparedness and risk mitigation are the combination of many different activities related to several disciplines and sectors. For that reason, it is necessary to think of a system of institutions that can carry out a diversity of funtions, such as technical and scientific work, planning, education, emergency response, and work with community. It is very important to remark that the different entities or institutions involved in the latter activities always exist, therefore it is not necessary to create new institutions, although probably, it can be required to define a co-ordinator with enough authority in the top level of the political structure.

(2) tó avoid duplications and losing of resources. pelides, it is very important to take into account the di1ferent sectors involved: agriculture, health, education, housing, industry, mining, army, communications, public works, electricity, and so on. All entities related to them must be concerned with disasters preparedness and risk mitigation, because any way lisasters can strike one or several sectors of the country organisation. The dífferent funtions must be defined by law, however the better way to get successful results it is through the conviction of the importancy of the theme, that only it is possible to obtain by trainy'ing and awarness or because a severe disaster is striking or has -occurred...1 The goverment of Colombia, as a consequence of different disasters that have occurred during the last decade, specially the one caused by the volcano Nevado del Ruiz (1985), has become aware of the importance of deveolping adecuate polices for mitigation and management of emergencies of natural or anthropic origen, and has identified the need to establish planning and mitigation activities as part of national policies. In 1986, the National Office for Disaster Preparedness and Risk Mitigation (ONAD) was created within the Administrative Department of the Presidency of the Republic; in 1988 Congress approved Public Law 46 (ref.1), wich creates the National System for Disaster Preparedness and Risk Mitigation, and in May 1989, by Decree-Law ;;J9919 (ref.2), regulations governing the National System were issued, thus defining' funtions and responsibilitis for all institutions conforming the system, at national, regional and local levels. The system is co-ordinated by the National Office ONAD, since the Presidency of the Republic, and is made up of public and private entities wich deal with these issues. The entities should carry out, on a descentralized manner, disaster preparedness and risk mitigation through Regional and Local Committees. These activities are undertaken from not only operational response points of view, but also from the technical, scientific, and planning angles, according to each entityrs role. National Level (Presidency). National Commitee for Disaster Preparedness and Risk Mitigation. Provincial Level (Governor). Regional Commitee for Disaster Preparedness and Risk Mitigation. Municipality Level (Mayor). Local Commitee for Disaster Preparedness and Risk Mitigation. i 1 i. 1 1 1.

(3) Sistema aduna! « ra la Prevenció tendón de Desastres de Colombia PRESIDENTE DF LA RI.PI BIZCA. Ministros de Gobierno, Hacienda, Defensa, Salud, Obras y ComuniLmones Jefe Departamento Nacional de Planeación (DNP) Director Cruz Roja Colombiana Director Defensa Civil 2 Representantes Asoc Org Comun y Gremios Jefe Oficina Nacional de Desastres (OND) 'S. I,. OND • DNP • Dame() Mtn Agricultura • Ingeommas Himat • IGAC • Inderena • Telecom ICT • SENA • D Civil • Cruz Roja ídem • Policía Nal • Mm Defensa Mm Salud • Mm Obras Comisiones Asesoras. Servicios Nacionales. Asentamientos Humanos y Vivienda. Red Sismológica Nacional. MI MI MI 1111. Riesgos sa Tecnológicos e Industriales lanbalses y Represas Juma Nal de Bomberos. Defensa Co ti • Cruz Rola Salud • Fuerias A11111(1 N Pohua Nacional • ON. Oficina Nacional para la Prei, encion e Atención de Desastres de la Presidencia de la Republica. sistema Nacional de Comunicaciones. Vigilancia Vulcanologica Nacional Sector Agropecuario. oeidONaeienate e Calamita. III MI 11111 MMMMM 1111. teMCOINa1101110 II ,. Sistema Nacional de Distolitic ion de Alimentos. Red de Alertas Hidrometeorológicas. sistcinit Nacional de Cc tiros cic Rcseri. CINPROQI. Vigilancia de Maremotos Vigilancia de Huracanes Sistema Información Siniesiralidad. • COsIti ‘1110 • Cruz Roja Entidades de Desarrollo, Asociaciones Gremios Alcalde Ciudad Capital • Fuerzas Militares • Policía GOBERNADOR • INTENDENTE S S Salud • Defensa Co II. Secretaria Técnica (Oficina Planeacion). loordmador Administratiso. Coordinador Operan, o (Defensa Cis i). Alcalde Defensa Civil • Cruz Roja • S Salud Representantes de Asoc , Gremios • Entidades de Desarrollo Oficina Planeación Fuerzas Militares • Policia. Comités Regionales de Emergencias: 32. 2 Comisiones Técnicas. Comisiones Oper.an ti. Comités Locales de Emergencia: 1.022 J CO.

(4) COMMITTEE FOR DISASTER PREPAREDNESS AND RISK MITIGATION President, Governor, or 1>:..:1.vor Administrative Co-ordinator RESPONSE EMERGENCY COUNCIL. TECHNICAL AND PLANNING : COUNCIL. Technical Co-ordinator - Planning Office. Operative Co-ordinator Civil Defence. Institute of Housing Institute of cartography Institute of Transportation Secretary of Agriculture Institute of Hidrology Institute of Enviroment Institute of Geology Water Resources Office Secrctary of Public Works Institute of Electricity Secretary of Education Secretary of Public Health Food Supply Office Institute of Communications Institute of Industry Secretary of Treasury Prívate Sector. Fire Department Red Cross Institute of Transportation Secretary of Public Health Secretary of Public Works Food Supply Office Police Army Institute of Industry Institute of Communications Community Representers. FIGURE 1 TECHNICAL COMMISSIONS. NATIONAL SERVICES. Human Settlements Agriculture Seismic Risk Tsunami Risk Landslides Risk Floods Risk Volcanological Risk Daros and Reservoirs Technological Risk Education and Training Health and Sanitation Fire Departments Board Public Awareness. Seismological Network Vulcanological Network Hydrometereological Network Tsunami Warning System Huracan Warning System Chemical Information Centre Food Supply Network Communications Network Reserve Emergency Centres. FIGURE 2.

(5) CO-ORDINATION AND FUNTIONS There are two models to co-ordi nate a system as mentioned aboye. With a co-ordinating office within the President or Prime Minister administrative department, and with a co-ordinating council of representatives of the different sectors and entities. In both cases the leadership should be - done from the top authority, due to his political power and influence. On the other hand, it is very important that each ministry, entity or sector have _an administrative unit involved, thus they can be able to plan activities and resources according to their responsibilitis. As aboye was mentioned, disaster preparedness and risk mitigation are several integrated activities along a common objective that is beyond this that deal with inmediate help or relief.For that reason, it is necessary to assign to each entity, according to its role, renponsibilities such as scientific research about natural and man-made hazards; phenomena instrumentation; land regulation taking into account the hazard and risk; investment planning taking into consideration the infrastructure and community protection; inclusion of enviroment and agriculture measures into the territorial development plans; public education, information and training to awOre the community and the public officials; and emergency response preparedness not only at the institutional level but at the level of the community. The structure of the colombian system is made up of a National Committee for disaster preparedness and risk mitigation, headed by the President of the Republic, by Regional Committees presided by the Provincial Governors, and by Local Committees leaded by the Mayors of each municipality. Each committee, in each level, has a Technical and Planning Council and Emergency Response Council, the former has in charge the promotion of risk mitigation activities and the latter has in charge to promote all preparedness and co-ordination activities for assistance in case of a disaster. (fig.1). Besides these councils in charge of technical and operational aspects, at the national level the committee and councils count on National Services and Technical Commissions for specific tasks. (fig.2). This National System was created with existing state entities at all levels, and designed so that its actí?ns would be carried out on a descentraliz'ád way, has been implementing a large number of risk mitigation and rehabilitation projects in affected areas with the support of the central goverment and by international organisations as UNDP,UNDRO, PARO, CIDA, AID/OFDA, the EEC, and JICA..

(6) Several disasters have ocurred after this system was created, such as huracan and floods in 1988, volcanic emergencies in 1989, various mudflows and landslides in different places every year, forest fines in 1990, and the epidemy of cholera in 1991. Although the difficult experiences was intrumental to verify the need and the utility of a basic organisation as the one here described, it also served as a mechanism to identify the difficulty that is faced when trying to organise and co-ordinate several entities along a coman objective, with specific responsibilities assigned to each. A very dificult taks because, as a rule the tendency was that of assigning disaster activities only to those organisations in charge of relief and inmediate help, leaving out important entities that work in the fields of planning and rehabilitatior. Because this is an evolutionary process, the structure that has envolved is not completely defined, nor it is permanent or present in all ministries and official entities. This situation, however, has provided the opportunity for spontaneous mechanisms to appear due to the nature of disasters. But these procedures so created do not always remain to help strenghten mitigation programmes and long-term efforts aimed at the management of new disasters. The same occurs in local and regional political subdivisions where the creation of technical units, with established budgets, leading to well founded mitigation planning institutions, is only an initial process characterized by regional inequalities and very different levels of development. PLANNING ACT I ON S. Any type structure should count on a plan in order to define the different activities to do in time and in the space. A national system for disaster preplredness and risk mitigation need also to have a plan of coherent proposals and programes to be undertaken. On the whole, a national plan for disaster preparedness and risk mitigation compiles proceedings to strengthen and promote actions of sectorial, regional and local character, considering among others the following aspects: -Legal, finakial, economic and institutional approaches. -Intersectorial and interinstitutional co-ordination. -Researches and scientific and technical studies. -Education, mass information, and community participation. -Integral information and communication systems, at national, regional and local levels. -Preparedness, response and rehabilitation phases in case of disaster or public calamity. Presently, risk mitigation and preparedness, as a global planning concept, should be part of the country's development policies. In Colombia the new norms and regulations previously described, reinforced with the Presidential Directive 33 of 1990 (ref.3),.

(7) created the obligation on the part of national organisations to incorporate this concept in their development plans, in the design of regional and urban projects, civil works of greast magnitude, and in industrial activities that could present any kind of threat to the population, keeping in mind the fact that recent and growing ecological degradation, together with a lack of strict and efficient enviromental protection, have contributed to enhance and precipite disasters. In addition, planning offices at all leveis of goverment to have now the obligation to define and initiate actions aimed at risk prevention and mitigation. The Urban- -Reform Law (ref.4), recently enacted, and the Code for Earthquake Resistant Constructons issued in 1984 incorporated this concept also. Within this framework, greatest importante han been given to urban disaster mitigation programmes in wich the activities of dikerent entities and institutions involved with these issues are integrated. In addition to local and regional support important finantial contributions are being provided by UNDP, CIDA, and UNDRO to undertake this type of projects in several cities of the country. Some examples are Cali and Manizales, with respect seismic risk; Tumaco, with respect to tsunami, in Ibague with Tolima and Machin volcanos; along the Combeima river, with respect to sudden floods; in Paz del Rio, with respect to landslides; in several parts of the country with respect to industrial risk; and an integrated programme that include all type of risk in Medellin. In addition to these efforts, important progress has been made in the elaboration of a national inventory of risks; more than 800 municipalities, out of a total of 1020, have provided the necessary infoLmation. In the field of research and technology, at present, Colombia counts with national networks via satellite for seismological and hydrometereological surveillance, and other telemetric networks at regional level such as vulcanologic observatories and the tsunami and seismologic observatory in the southwest. Some of these projects have been supported by UNDP, UNDRO, CIDA and other programmes with developed countries. In arder to include truly the preparedness and the mitigation concepts into the culture in Colombia, a programme has been defined to incorporate, in several stages, mitigation issues in educational programmes at all school leveis, both under formal and non-formal education structures. Efforts are also being made to include in all school textbooks tlle same issues according to the specific conditions, a programe is being prepared to begin curricular adaptation in some professions more involved with the subject. In the area of public information, the aim is to provide stimili for the population at large to participate, actively, in local processes of risk mitigation and preparedness, with information provided at the national level for mass distribution; such as.

(8) audiovisual materials, radio programmes, TV campaings and printed brochures and leaflets. By other way, keeping in mind that emeliency management requires an appropiate communication network, comprising all entities of the system has been integrated into a trueemergency network. In different parts of the country, and in ordér to maintain the basic elements needed in anemergency, Reserve Emergency Centres are being created, strategelly located in special areas with easy access. The elements stored in these centres belong to the nation and aré given under custody to'local authorities to be used when required in each region. In several ocassions the Local Committees have been in operation, together with committees at higher levels and adecuate public information campaigns, thus creating the conditions for a successful mitigation phase and adecuate response programes in health, fast supplies, and temporary shelters. With respect to temporary settlements which usually are established as an answer to disasters, a new different approach to this problem has been applied when it is possible: the classic and traditional temporary shelters han been eliminated. The many types of problems created by this kind of response are well know. Under the new approach the affected population is housed in the homes of those not affected that voluntarily would offer their homes. A small fee is payed to the host family. Finally, in the field of relocation or partial or total house reconstruction it is of priority to have these homes located in low risk areas, with reconstruction programmes that involved an important element of community participation, and with efficient institutional support. The new housing solution that is provided corresponds to the basic unit required for inmediate occupancy, leaving all accesory refinements, additions and subdivisions for later stage and under established credit programmes. With this approach the concept of free housing has been eliminated. FINATIAL ASPECTS Considering the previously described type of organisation for risk mitigation and disaster preparedness it is important to be awPre of the fact that disaster are not a problem that fails exclusively on the local population and on the local authorities. These emergencies must be addressed by the nation in general and all state entities are thus res nsible to face Chem along ther own line of responsibility. In the colombian case, according to law, each national entity must include in its national budget the resources necessary to intiate and maintain, on a permanent basis, disaster mitigation programmes, and to provide for necessary funds to cover additional expenses which are required when a desaster arrives. In addition to the institional budgets just mentioned, a National.

(9) Calamities Fund was organised to complement and support those initiatives of the different entities that make up the system. As a compliment to the norms and regulations that established the fund, aditional regulations have 1,.en enacted to provide for greater agily and efficacy in the application of fund's resources, which is what disaster conditions require. It is worth mentioning that in the medium and long run great finantial effort is required to reduce risk among the population and the economy in general. To this end, peLmanent and planned efforts in the field of preparedness and mitigation are required, with corresponding investments and resource allocation for several decades. CONCLUSIONS While much undoubtedly remains to be done in this field, certain valid and useful conclusions can be drawn for the system described herein, for the purpose of exploring with the benefit of insight, the "how": that is, in what manner could a developing country such as Colombia undertake such an institutional organisation and obtain practical and effectively applicable results? 1-On the whole, the most important result to date has been the ongoing convergence between three factors: technical and scientific work, political and administrative will,, and community acceptance: without the last, the most advanced hazard and risk assessment could not achive its goal. Convergence is basically the result of inter-intitutional organisation, including national, regional, and local levels, leading to multisectorial integration regarding intentions and decisions in orden to achive a common goal, with each entity assuming responsabilities and task in accordance with its role. 2-It was always accepted that no individual and isolated measures could be effective. Risk mitigation and disaster preparedneSs are a matrix of technical, scientific, legal, administrative, merketing, informational and other variables. Because of this, Whoever wishes to contribute must permanently taslate his or her goals and results, in an effort to understant the systematic variables of the person who receives the information. The projects do not generate political organisation and will, but this is well-high impossible if the projects do not result from a convergence of wills and do not consider the participatory character of its users. 3- The work han been characterized by ongoing expansion of its scope, emphasis on partial but applicable results wich could establish the system's credibility, and optimal use of local resources. One of the system's most heartening experiences has proven that the first step can be taken with a will and the available information, and after the first step has been taken,.

(10) more ample support quickly materializes. The perfect is the enemy of the good. While it is true that a more or less complete programme for tisk mitigation and disaster preparedness requires a large inveb�ments over fairly long time periods, this fact itself has frequently checked useful intentions and skills. AKNOW.LEDGEMENTS 1. This -_document has written during Disaster Management and Development Workshop organised by Oxford Polytechnic Disaster Management Centre in surnmer of 1991,-due to the encouragement gave by Ian Davis and Yasemin Aysan, directors of the workshop. Thanks are expressed to the fellows who have been collaborated with ONAD (Oficina Nacional para la Prevencion y Atencion de Desastres) to create and strenghten the Colombian System for Disaster Preparedness and Risk Mitigation. Finally, appreciation is extended to the British Council, UNDRo,· and UNDP for their support and help, without which it would have been impossible to participate in the workshop. REFERENCES. l.Law 46: Establishing the National System Prevention and Management, November 2nd, 1988. 2.Decree-law 919: Organising the National System Prevention and Management, May 1st, 1989. _. for for. Disaster Pisaster. 3.Presidential Directive 33, Responsibilities of public sector and agencies in the development and operation of the National System for Disaster Preverition and Management, October 8th, 1990. 4.Law 9, Urban Reform, December 1989. 5.Decree-law 1400, Colombian Construction, June 7th, 1984.. Code. for. Earthquake. Resistant. (*) Civil Engineer Universidad Nacional de Colombia - Manizales, Graduate Courses on Earthquake Engineering, Skopje, Yugoslavia, Professor Graduate School of Earthquake Engineering, Universidad de los Andes, UNDRO/UNDP consultant for Oficina Nacional para la Prevencion y Atencion de Desastres, Bogotá, Colombia..

(11) RISK MITIGATION nitigation mea-sures can be ardifferenAcinds, nanging from phifswal ~asures - sbeir a flood de, reces or safe building olesIgn 1b legislafron, traming and públic atiyareAess. ','"7"ROCTURAL ME-ASURES NON-s7RuCTURAL ME-ASURES. Ríe. 1—lí e. Ve. Rie :Probabflikj lhafa loss afferling elginente 6hcold necur cionsegaLnce oían event IntenstiY eqvcil to or yeaiár Maní' fui ó Probabihti That an eventotan intenstizi eral f-¿7 3ravilr imnoci ot exposure, t, thcw i doring Ve • 7ntrinlíc pncityx,sition an elernerztatrisK /a ze airiecre c b3 beatriSbi0 f auffering a 1oss Upar? /he oavrre-nce (Van ev€Tzto-il: znfen,51&. MITIGATiON STRUCTVRAL NO,V-STRUCZURAL MIEASZIR&3 M SURES. -07 RISA'. -C37 *I•11%. te. "U.. HAZARD . VULNERABILITY.

(12) S1RIJC71JRAL MITIGATION MCASURES. - PT?OTECTION WORKS 'FOR HA'ZARD CDNTROL ENG/NE:ERING WORJ<S 70 F'J1Cé FLOODS: , 'Ernba..nkmenls. • D1..f Kes. • Levees , etcr1n9 dams • Bt;-pass1n9 cha.nne/s · vred91ng , ReaJ19n1n9_,. Theq can modift¡ fhe /ocal e11v1romenf cond,ftons. Theíf ron 91ve a false idea of 5ewrtft¡.. WARNING:. - 07HE'R 'éNGIN�l:"RING WORKS ' Terraung of h1l/s,des, dra¡nage 'trenches, __ re.:ta.Jn1n�.... wa/ls' and hónzontal p1pe-dro.1ns, · '3o.J;,o. wo rK$. , ecast- wo..lls. " Trr190Ííon channefs . San,Wton UJOrK:5.

(13) -. PJ./'(5/CAL AND FUNTIONAL VULNE"RA8ILITV /NTERVE"NTIOA " sfrvcfural refro/1fftng of e>as#ng Ke1f-b1.11ld1n9s and - d1.:ve/1ngs · Fle,able connecÍíons Jn p1pe.hnes • Nef(.J.X)rK redundance · Warning and secvr,f'I st¡sfems �n 1ndusfr1al/aCJl1fies. - REl.OCATION OF C.LEME'NTS AT RISK. • T>wel,ngs • L1fe'1nes. · ofher {aal1lies WARNING: As a. rule, 1n order lo gef ef(echveness _. acdvaJ!r¡J fhe :,Trvcívn:il m,ftgaTton meas:ures musf - ce. wmpleJ??enfed aiwac¡s bq non-sfrudóral mift!JClton mea.:sures ,, Tndeed 1 some of fhem can onlt.¡ b1::, imp lemented as a re.sv/t óf non-sfr(/cJ-ural m,hgailDn rneasores a.ppltcaf¡on..

(14) NON-STRUC7VRAL MITIG�710N ME'ASIJRES - PASS/VE MeASIIRB " " " )(. Legal frameUJOrK Ce<les for des19n and consfrudion Land vse reeulatTon Urban - phqs1cal · p/ann,ng 1< 7err1for1al x A9r1cultural x sedor,al - Bud9ef.s · Warning Sr.¡s. x ::Insfrumenfafion ndworKS K 4/arms >< tv1on/lonng and �earch · Tax 1ncenftves > granfs, subs1dlis . Insurance , Leg,s/aíion. - A/;T/VE' M'tA5tJRES · Insfifülional organ1saffon and co--ord1nct/(on - x Pub/te off1e1als · 7ra1n1ng , Educa.fron. x Commun1ñes. x. Elemenfarc¡ and h,ghschoo/ cvrr,cu/q. x Unde,19raduafe. , Pubhc awarwm x schcdls 'JI Commvnrñes .. !3mergenu¡ pr.epar-€0/n�.ss..

(15) Planning Action:9 - Legal, tnanfie, econotnic and inslitiTenal appmar-hes 7ntersect¿Irial and JntérinstilLiitionail co-ordinaton, 7za,se.tv-ches and sierzfific and technical stdies - Education, 177a515 irt7nna170/71 and 00,71Intin4. prajari.. inteDmi InPrmation and wratriv a7:10/2 sotsteins, FreParedne.ss , response and rehabrá,t-tizoi9 pha45 ,. ‹ProJects. th. - Ha2ard evakt-1750,2 in ,rone C1/". - 74veriárti o/ e/e/772.0721. rIst.c. az,s t, =s - n2 2, 91,,t. lzsesiimaton. 1.01; e ErZ,. /. -. Moni7nn9 and warning s-94s. terfk.p.... -. EmeTency and contingency p/ans. /7-vining and 7)9É,h,...2. ir7. rmala-7.. Vrbail plannIn.9 anal f:'zi7c/ u&--2 rQ,<-7,91a (017.,.

(16) F1nantíal As�. - 'Ea.ch enft� musf,ncludt: 1n. 1fs ht.1d:3ef fhé?... resourCl!=.9, !e.tj. ()/red fo vnclerfall(e fh¿ pnve.d-.. - Naft0nal Calam1t'/ , rvnd.. Conclvsu,ns ;. - Converyence. 1s bas,cal/11 fhe rewlfof 1nler-1nshtufronol. orgarusafie>n; 1ndvd1ng naliona.l, �1onc.t0 and ltJccv /evw, fead1n9 to mvtfrse.ct"F!ru:il 1nle9r&on rt2gard1ne 1n/:. ertÍiDns and dec..1s1ons 1n order lo aduve a common l::7t'>t:..:!; � w,fh ea1.".J? en:li"li¡ assom1n9 respon$;1h1hlies anc/ fasK J:i a.ccórd:inCI:.. w1fl1 11s role... - 7!1e. proJeds do nc;fgénere!k. pc/tfic::z/ c,:3pc1n1salicr; :-?./;,;/ (J)J//) l)(.)f fh¡s t:3 weJ/... fngh /IYlpó:ESlh/e. !{ ft¡¿ píqj!J'':.!::;,ls ch 7,JJf,re'tSulf from a con1_1ergenr-e cf w1l/s and ele r,of Cont:J 1der fh.e_ par1ie1¡:,e,1ÍCJ rt¡ eharac/er of ; vse;-s.. 'Is. - 7he per{ecf 1s fhe ene.mt¡ of fhe accd. t;Jh1/e 1 /-,1.s 7rvé. fhaf a.. J?>zore or /ess progroJY?me -for rlSK' m1 h:3.ctllo/; ::z;-1::7 d1;:;ct.Sfer pr12. paredne."SS rec¡u1 res a. Í4/:.fl€ tn ves/in V2lf over f�1rle¡ long 'time pe.rtccls 1 fh,s fa.el ,ts¡2Jf ht1s frc:z1venfh.¡ chec.Ked 11.seful 1nlenrtons and 8!;('1//.s,.

(17)