On July 31st, a large-scale basin-wide flood occurred in the Haihe River Basin, officially named "Yongding River 2023 No.1 Flood" and "Daqing River 2023 No.1 Flood."
In ZHUOZHOU CITY, HEBEI PROVINCE, six rivers intersect within the jurisdiction, resulting in the convergence of floods. Within a few days, ZHUOZHOU CITY became a severely affected area by the floods. As of 10 a.m. on August 1st, the number of affected people in Zhuozhou was 133,913, with 146 affected villages and a total area of 225.38 square kilometers.
This is the first severe flood that ZHUOZHOU has experienced since 1963. People in the area had no concept of floods and no experience in dealing with them. As the disaster evolved and rescue operations began, questions emerged:
"Did the private rescue teams fail to enter without an invitation? Did they see the disaster but not help?" "Was the flood released to protect Beijing and Xiong'an?" "Was there no advance flood release notice? Are the supplies at the relocation points insufficient?"
We focus on 12 issues that have received widespread attention to verify the various voices.
Was the flood released to protect Beijing and Xiong'an?
Liu Xingpo (Professor at the School of Ocean Science and Engineering, Shanghai Maritime University): The protection function of flood storage and detention areas mainly targets downstream areas. Most areas of Beijing are located upstream in Hebei Province's water system, while the downstream areas of Hebei Province include Tianjin and other regions. The average height difference in the North China Plain is considerable, and water flow generally does not reverse; it flows downstream along the river channels. Establishing flood storage and detention areas is a planned way to "give space to floods." Without orderly diversion through flood storage and detention areas, downstream areas may experience excessive river flow and water levels, leading to more severe disasters.
The delineation of flood storage and detention areas has strict standards and requires sufficient demonstration. According to China's flood control regulations, flood storage and detention areas should be designated in flood control planning or flood defense schemes. When floods occur, the activation of flood storage and detention areas requires strict conditions and must be implemented according to the established flood control dispatch plan for the basin or region.
Zheng Yonglai (Professor in the Department of Water Resources Engineering, Tongji University, Shanghai): "Protection" means planned and controllable protection. The claim that upstream flood releases led to the flooding in Zhuozhou is unfounded. One of the important reasons Zhuozhou became severely affected this time is the density of rivers. Apart from the Zhumahai River "turning here," five other rivers converge here, causing strong rainfall convergence and inefficient flood discharge. Flood storage and detention areas have an important protective role. Without storing and detaining floodwaters, water levels in some reservoirs might exceed the dams' carrying capacity. A sudden dam breach could submerge the entire city. The existence of flood storage and detention areas is a "last resort choice" to minimize overall losses.
Was there "excessive flood release"?
Zheng Yonglai: From a scientific perspective, there is no such thing as "excessive flood release." However, it is not uncommon to pre-release some water from certain reservoirs to prevent potential flood risks. Later, due to changes in water conditions, the actual flood release might exceed the initially set value. There are many uncontrollable factors affecting flood release, but they generally stay within a reasonable and controllable range.
The duration of flood release depends on the development of flood conditions in the later stage. The flood storage and detention areas can gradually exit after the water level and flow in the flood discharge channels return to normal. This process might take about a month, with approximately 300 to 400 million cubic meters of water still to be discharged for Zhuozhou in the later stage, according to the prediction by the Hebei Provincial Department of Water Resources.
Were residents not notified of the flood release?
Landlady (Resident of Matou Village in Matou Town): There was a notification in the village, but it came very slowly and in a hurry. On August 1st during the day, the notice to evacuate came, and we rushed to the relocation point 20 minutes later.
Zhang Xiaoxiao (Resident of an old community in the center of Zhuozhou): I received the information from a WeChat group. At around 7 p.m. on July 31st, my mother forwarded a message to me: "The flood peak is expected to arrive in Zhuozhou tonight. Parents and children, please cooperate in taking protective measures." At that time, the water at the intersection outside the community had already reached knee-high.
Zou Bin (Person in charge of Beijing Jiwentianxia Cultural Development Co., Ltd.): I did not receive any notice of flood release. Only on the afternoon of July 29th, the park's WeChat group sent a notice reminding all leasing units that there would be an exceptionally heavy rain from July 29th to August 1st, and the city had initiated a flood prevention orange alert. It was like saying there would be heavy rain and be prepared. If we had received an advance notice of the flood release, we might have been able to save some books.
Why did some local residents not evacuate in time?
Wang Fang (Resident of Zhuozhou Development Zone): At present, my sister and I have reached Baoding City, but our parents are still at home in Zhuozhou. They are unwilling to leave, and we have persuaded them, but it's of no use. We can only maintain remote contact with them, sometimes with signals and sometimes without. Most of the people in the village who do not want to move are elderly. Their lifelong efforts have been put into this home, and they cannot bear the sudden notice of evacuation. Village officials couldn't persuade them. Some villagers stayed until there was no water or electricity before moving out. Those who have the conditions sought refuge with relatives, while others were arranged by the village committee.
"Invitation letters" hindering rescue teams?
Wang Haibo (Coordinator of the Hebei Zhuozhou Social Emergency Forces Coordination Center): To some extent, the significance of the invitation letter is the recognition of the qualifications and capabilities of private rescue teams by relevant departments. It also helps deter "independent," showy, and inadequately qualified rescue teams. Currently, there are nearly 4,000 registered private rescue teams in China. It is unrealistic for all these teams to rush to Zhuozhou.
The reason why a small number of rescue teams were stuck at the highway exit might be due to four factors: First, the local rescue forces were almost saturated and no longer needed more teams to enter. Second, the "lifeline" leading to the disaster area had just been opened, and the flow of rescue teams entering the disaster area was being controlled. Third, the flood blocked the way, making the road impassable. Fourth, miscommunication resulted from poor communication between people.
Li Wen (Team Leader of a private rescue team in Zhengzhou, Henan): The invitation letter serves as a kind of "reporting," which allows the department responsible for disaster relief to command and deploy in a unified manner. It covers aspects from coordination and public relations to responding to international rescue calls. If there is no invitation letter, there might be unnecessary disputes over liability if team members are injured during the rescue process. The invitation letter is also required for the annual qualification review of the rescue team.
My rescue team is still applying to relevant departments for an invitation letter. On the way from our base to Zhuozhou, we did not encounter any situations where we were stuck due to the lack of an invitation letter.
Dong Ping (Member of the Beijing Lvzhou Emergency Rescue Promotion Center): Lvzhou entered the disaster area for rescue through the invitation letter and registration. The situation of other teams is unclear. Generally, when a disaster reaches a certain level, the relevant national emergency management departments and local emergency bureaus will respond. The related departments will coordinate with teams engaged in long-term rescue efforts, and daily rescue information needs to be reported.
The "invitation letter" is a kind of audit mechanism: At the national level, there is only one national rescue team, and private rescue teams are registered social service organizations under the Civil Affairs Department. Teams that have not registered are strictly speaking "illegal organizations."
How do rescue teams without an invitation letter coordinate with local emergency departments?
Wang Haibo: The National Emergency Management Department has launched the "Social Emergency Forces Rescue Coordination System." Social emergency forces, including private rescue teams, can apply to participate in rescue operations based on the "disaster notice" issued in the system. Then, the coordination center will screen the social emergency forces that meet the requirements based on the distance, professional direction, and equipment, and provide them with a "passcode" that allows them to travel freely on highways within a certain range and enter the disaster area. Currently, there are about 2,000 teams registered in the system, and many rescue teams responded to the call for Zhuozhou through this coordination system.
Xiaobei: Currently, disaster relief efforts are mainly coordinated through direct contact between local emergency departments and rescue teams. Depending on the type of rescue operation, there will be an emergency command center responsible for overall work, such as arranging accommodation for the rescue teams and assigning tasks.
This is a very systematic process, and information needs to be publicized in terms of coordination, responding to public opinion, etc. The local civil affairs and emergency departments are keeping a close eye on the situation.
Wang Zhen (Member of Baiyangdian Private Rescue Team): Before we set off, we found a local person online to assist us. He guided us into the disaster area from the highway exit and found the person in charge of emergency management locally for unified command and coordination.
There have been several news reports that some rescue teams were unable to respond to the rescue needs of residents along the way. Why did this "see the disaster but not help" situation occur?
Dong Ping: Generally, private rescue teams will select the appropriate rescue locations based on unified instructions from relevant departments or reliable sources, with the primary consideration being self-preservation, saving lives, and responding to emergencies.
Wang Zhen: During the rescue process, there are requirements for the type and power of boats used. Many villages have narrow alleys, and larger boats cannot turn around once they enter. In turbulent waters, some private rescue teams brought 15-horsepower rubber boats, which are practically useless; boats with at least 30-horsepower are needed. Currently, several of the boats we brought are leaking, and we don't have enough life jackets to meet the rescue needs.
Xiao Bei: The possibility of "seeing the disaster but not rescuing" may arise when rescue personnel have not received rescue notifications.
In general, mature rescue teams have information collection and verification platforms in the rear. Staff or volunteers widely collect disaster information through the internet and other means, then integrate and screen it. Two main points are focused on: verifying the authenticity of distress calls and determining whether rescue has already been carried out. The dissemination of information may be delayed.
The selected distress calls are classified based on urgency and location, and then the information is communicated to frontline rescue personnel, who assess the urgency of the victims and determine the rescue area and tasks for each day.
Additionally, the information platforms of different rescue teams have not yet been fully connected.
What is the current situation of the temporary resettlement points in Zhuozhou, Hebei?
Lei Ceyuan (Special correspondent of Liberation Daily): On the evening of August 3rd, at the temporary resettlement point located at Zhuozhou No. 3 Middle School in Matou Town, Zhuozhou City, the reporter observed that there were temporary signal vehicles and washing sinks at the entrance of the teaching building. Ambulances were occasionally entering the campus. All four four-story teaching buildings, one three-story teaching building, and one four-story dormitory building in the campus are already full, with about ten people per room.
"The government also provides supplies, but it is difficult to supply them to so many people, and transportation of supplies is also limited." A staff member of Nanlu Village Committee said, "Basically, each village is finding its own solutions and utilizing their own resources." At the entrance of the school, Zhuotong Village in Matou Town distributed quilts, which were purchased on behalf of the village committee and were only given to villagers in their own village. In front of the steps of the teaching building, there were many supplies such as mineral water, instant noodles, and bread, which were purchased by young villagers from Nanlu Village. These supplies were free for people from their own village.
According to an on-site staff member, on that evening, 3,000 quilts and 3,000 towels would arrive.
Zhuozhou No. 3 Middle School temporary resettlement point. Photo by Lei Ceyuan.Zhang Qian (Owner of a private kitchen): Zhuozhou Vocational Education Center is a relatively large temporary resettlement point and a supply transfer point. I delivered meals there twice, with 30 servings sent two days ago, including both meat and vegetarian dishes. Yesterday, I delivered breakfast. Now, local restaurants in Zhuozhou with the capacity are lending a helping hand.
Xu Xin (Head of the Yingzhi Basketball Club): I have a 1,500-square-meter venue, which can be used as a resting place for rescue teams and for storing supplies. Currently, there is no domestic water supply, but we have drinking water. Zhuozhou's rescue coordinators are in contact with me, and around 200 rescue personnel have come here to rest.
What are the criteria for setting up resettlement points?
Xiao Bei: According to relevant documents issued by local emergency management bureaus, the preferred sites for centralized resettlement points are civil air defense projects or public places with high fortification levels that have not been damaged, such as primary and secondary schools, sports venues, and village committees. In addition, for resettlement points set up due to floods, considerations must also include the facilities for rainwater and flood discharge. Resettlement points should also meet the basic needs of food, accommodation, clothing, medical care, and other basic living requirements.
The situation of centralized resettlement points may vary depending on the type of disaster. For earthquakes, non-affected areas usually have flat and dry ground where temporary resettlement points can be set up. However, for large-scale floods, resettlement points can only be established after certain areas have completely drained. The reconstruction period after an earthquake is relatively long, and the displaced people may stay in the resettlement points for a relatively long time, which requires higher standards for the resettlement points. In contrast, the recovery after a flood is relatively quick, and most resettlement points are temporary.
Currently, the local resettlement points in Zhuozhou are also gradually improving, and the supply and distribution are catching up.
What will be the focus of the next stage of rescue and post-disaster reconstruction?
Dong Ping: Currently, Zhuozhou is still in the stage of life-saving rescue, and the first priority is to assist the local government in evacuating stranded people.
Rescue is a long-term process. In the early stages, life-saving rescue and timely replenishment of emergency supplies are vital. During this period, foundations will provide support and transportation for supplies. In the middle stage, disinfection, epidemic prevention, and post-disaster reconstruction will be carried out. In the later stage, psychological assistance will be provided, and this will be a continuous process.
Next, we will focus on Zhuozhou and continue to pay attention to areas including Beijing's Mentougou.
Zhang Ke (Senior member of a private rescue team): Our focus will shift to the northeastern region. The Northeast has already experienced large-scale floods. The downstream tributary, Harling River, has caused serious disasters in Wuchang, a major rice-producing area, and the confluence will create significant pressure on Harbin. Shulan and Yushu in Jilin Province are also experiencing severe disasters.
In Zhuozhou, the peak period for post-disaster rescue will come within a week. Currently, the mountainous areas in Baoding should be in the peak period of rescue. If the roads to the mountains are open, it is worth conducting post-disaster assessments.
Regarding corporate donations, it is also recommended not to donate too many supplies and funds to the same disaster-stricken area. Instead, attention should be given to more infrastructure-challenged and less affluent areas, such as mountainous regions, where the severity of the disaster is much higher than in the plains. However, in previous disaster relief work, it was often encountered that the mountainous areas in need of assistance were harder to raise funds for.
Will residents in the reservoir storage and detention area receive compensation?
Jiang Yao (Lawyer at Jin Tiancheng Law Firm, Shanghai): Currently, both the state and Hebei Province have corresponding compensation regulations for reservoir storage and detention areas.
The "Interim Measures for Compensation for the Use of Reservoir Storage and Detention Areas" issued in 2000 stipulates that housing in reservoir storage and detention areas shall be compensated at 70% of the water damage losses. Family agricultural machinery, draught animals, and major durable consumer goods with a value of less than 2,000 yuan can be fully compensated; for water damage losses exceeding 2,000 yuan but less than 4,000 yuan, compensation is 2,000 yuan.
In addition, for coping with certain major natural disasters, the state may issue special compensation measures.
For example, after the major floods in Henan in 2021, there was a "Work Plan for Compensation in Reservoir Storage and Detention Areas in Henan Province in 2021," which was a special arrangement. It is still uncertain whether a separate compensation plan will be formulated for the current flood in the Beijing-Tianjin-Hebei region.
Guo Teng (Partner at Beijing Jingrun Law Firm): After this flood in Hebei, there may be some difficulties for affected people in applying for compensation and assistance: Is there a causal relationship between property losses and the flood? How much of the losses are caused by the flood? Is the property loss located within the designated reservoir storage and detention area?
Since the future compensation determination will be the responsibility of county-level (city, district) people's governments and will be implemented by specific towns (streets), it belongs to specific administrative actions, which may lead to administrative disputes due to the amount of compensation.
(Due to the request of interviewees, the names Li Wen, Xiao Bei, Zhang Qian, Xu Xin, Zhang Ke, and Wang Fang are pseudonyms.)
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