:: Disaster Risk Management and Mainstreaming :: Disaster Risk Management Commission

National Policy And Strategy On Disaster Risk Management

Federal Democratic Republic of Ethiopia

NATIONAL POLICY AND STRATEGY ON DISASTER RISK

MANAGEMENT

(DRAFT DOCUMENT)

March 2009

Table of Content.........................................................................Page

Acronyms............................................................................................................................ 3

1. Introduction and Background ................................................................................... 4

1.1. Disasters and Disaster Management Practices in Ethiopia ................................. 4

1.1.1.

Disasters ........................................................................................................4

1.1.2.

Disaster Management (DM) Practices ............................................................4

1.2. Policy Revision Process ......................................................................................... 5

1.3. Existing Disaster Management Policy: Strengthens, Limitations and

Challenges .......................................................................................................................... 7

1.3.1.

The National Policy on Disaster Prevention and Management ........................7

1.3.2.

Strengths........................................................................................................7

1.3.3.

Limitations ....................................................................................................8

1.3.4.

Implementation Challenges ............................................................................9

1.4. Definitions of Key Terminologies as Applied in this Policy ............................... 11

2. Disaster Risk Management (DRM) Policy Framework.......................................... 13

2.1. Key Policy Issues.................................................................................................. 13

2.2. Objectives of the DRM Policy.............................................................................. 14

2.2.1.

General Objective ........................................................................................14

2.2.2.

Specific Objectives ......................................................................................14

2.3. Guiding Principles ............................................................................................... 14

2.4. Policy Directions .................................................................................................. 15

2.4.1.

2.4.2.

2.4.2.1.

2.4.2.2.

2.4.2.3.

2.4.3.

2.4.4.

2.4.5.

2.4.6.

2.4.7.

2.4.8.

2.4.9.

2.4.10.

2.4.11.

2.4.12.

2.4.13.

Organization and Structure...........................................................................15

Core Disaster Risk Management (DRM) Phases...........................................15

Pre-disaster Phase: .......................................................................................16

Disaster Phase..............................................................................................16

Post-disaster Phase.......................................................................................17

Decentralized DRM and Disaster Declaration...............................................18

DRM Mainstreaming ...................................................................................18

Multi-hazard DRM.......................................................................................19

Funding Arrangements.................................................................................19

Information Management and Communication System.................................19

DRM Plans ..................................................................................................20

Partnership and the Role of Civil Societies and Humanitarian Partners .........20

Cross-Cutting Issues ....................................................................................20

Regional Administration and International Cooperation ...............................20

Monitoring and Evaluation...........................................................................21

Policy Enforcement and Implementation Guidelines.....................................21

3. Directives for the Implementation of the National Policy on DRM ...................... 22

3.1. Organization and Structure ................................................................................. 22

3.2. Operational Modalities under Each Core DRM Components ........................... 32

3.2.1.

3.2.2.

3.2.3.

3.3.

3.4.

3.5.

3.5.4.

3.6.

3.7.

3.8.

3.9.

3.10.

3.11.

3.11.6.

Annex 1:-

Pre-disaster Phase ........................................................................................32

Disaster Phase activities:..............................................................................36

Post disaster phase activities: .......................................................................37

Decentralized DRM and Disaster Declarations .............................................38

DRM Mainstreaming ...................................................................................39

Multi-Hazard DRM......................................................................................40

Funding Arrangements.................................................................................40

Information Management and Communication System.................................42

Consolidated DRM Plans .............................................................................43

The Role of Civil Society and Humanitarian Partners ...................................43

Cross-Cutting Issues ....................................................................................44

Regional Administration and International Cooperation ...............................45

Monitoring and Evaluation...........................................................................45

Policy Enforcement and Implementation Guidelines.....................................46

Definitions of Key Terminologies as Applied in this Policy ................... 47

Acronyms

DPPA

DPPC

DRM

DRMC

DRMCO

DRRF

DRMU

ETF

FDRMC

FDRMCO

FDRMU

HIV/AIDS

ICT

IGAD

MDG

MCI

MoARD

NPDPM

NDPPC

NGOs

PASDEP

PSNP

RDRMC

RDRMCO

RDRMU

RRC

Z/WDRMC

African Union

Disaster Management

Disaster Prevention and Preparedness Agency

Disaster Prevention and Preparedness Commission

Disaster Risk Management

Disaster Risk Management Council

Disaster Risk Management Coordination Office

Disaster Response and Recovery Fund

Disaster Risk Management Unit

Emergency Task Force

Federal Disaster Risk Management Council

Federal Disaster Risk Management Coordination Office

Federal Disaster Risk Management Unit

Human Immunosuppressive Virus/Acquired Immune Deficiency

Syndrome

Information and Communication Technology

Inter-Government Authority on Development

Millennium Development Goals

Mass Casualty Incidents

Ministry of Agriculture and Rural Development

National Policy on Disaster Prevention and Management (1993)

National Disaster Prevention and Preparedness Committee

Non Governmental Organizations

Plan for Accelerated and Sustainable Development to End Poverty

Productive Safety Net Program

Regional Disaster Risk Management Council

Regional Disaster Risk Management Coordination Office

Regional Disaster Risk Management Unit

Risk Management

Relief and Rehabilitation Commission

United Nations

Zonal/woreda Disaster Risk Management Councils

1. Introduction and Background

1.1.Disasters and Disaster Management Practices in Ethiopia

1.1.1. Disasters

1.1.1.1. Disasters triggered by various types of hazards are not

uncommon in Ethiopia. The impacts of disasters on the lives of

people and on the country’s social, economic, and political

development have been significant. Disasters impose serious

impediments to development, destroy years of effort, squander

vast resource investments, and perpetuate poverty. They

damage infrastructure and the natural environment, impoverish

communities, and divert national priorities and development

resources to emergency management operations.

1.1.1.2.

A wide range of natural and human-induced hazards are

associated with the country’s diverse geo-climatic and socio-

economic conditions. Disasters arising from some of the

hazards have caused widespread damage and loss, while others

remain potential threats.

1.1.1.2.1. Natural hazards in Ethiopia include, among others, drought,

flood, human and livestock diseases, crop pests, and seismic

and volcanic activities. Historically, severe droughts and

famines have been particularly important causes of loss of

lives and livelihoods and of political instability.

1.1.1.2.2. Human-induced hazards include, among others, conflicts as

a result of resource computation and other factors, war,

transport accident, fire, , and other factors. These hazards

are assuming greater importance over time.

1.1.1.3.

The vulnerability of the country is aggravated by poor

agricultural and livestock practices, a fragile and degraded

natural environment, extensive poverty, limited transport and

communication infrastructure, uneven settlement patterns,

inefficient markets, variable and changing climatic conditions,

high population growth, lack of good governance, competition

over scarce resources and border issues. The frequency,

severity, and impact of some hazards are likely to increase in

the future, especially due to climate change and other

exogenous factors.

1.1.2. Disaster Management (DM) Practices

1.1.2.1. The first formal governmental disaster management institution

was the Relief and Rehabilitation Commission (RRC),

established in the wake of the 1973/74 famine with a mandate

of relief supplies to drought victims. The RRC responded to

1.1.2.2.

1.1.2.3.

1.1.2.4.

1.1.2.5.

1.1.2.6.

1.1.2.7.

1.1.2.8.

1.1.2.9.

crisis through relief food distributions and other emergency

supplies and services.

Responses to crises prior to the establishment of the Relief and

Rehabilitation Commission (RRC) were ad hoc. Ethiopian

citizens have had a generous tradition of helping each other in

times of crises. Communities have been the primary

responders to crises.

The RRC was re-organized in 1978 and merged with the

Settlement and Awash Valley Development Authorities with a

mandate of relief supplies to victims of natural and manmade

problems and rehabilitating them through various programs

including settlement programs.

Following the ratification of the NPDPM in 1993, the

government restructured and renamed the RRC and

established, with significant changes in mandate to strengthen

linkages between relief and development, the Disaster

Prevention and Preparedness Commission (DPPC) in 1995.

Policy making and oversight responsibilities regarding disaster

management have been vested on the National Disaster

Prevention and Preparedness Committee (NDPPC) since 1993.

Since its ratification in 1993, the policy has played an

exemplary role in Africa.

With roles and responsibilities defined in the 1993 NPDPM,

since 2003 key line departments such as the Ministries of

Agriculture and Rural Development, Health, and Water

Resources became more involved in disaster management

through the establishment of emergency sectoral task forces.

In 2004, the DPPC was renamed by proclamation as the

Disaster Prevention and Preparedness Agency (DPPA), with a

revised mandate to focus on emergency response.

The government, with support of the international community,

has increased investments in poverty reduction programs, such

as the PSNP and the PASDEP.

1.2. Policy Revision Process

1.2.1. The DPPA initiated a policy revision process in 2004 after a review of

the NPDPM and identified strengths, limitations and challenges.

These are listed in detail in Section 2, below.

1.2.2. In 2004, it established technical, core and steering committees

comprising of DPPA management members and experts from

different departments, responsible for guiding the revision process.

1.2.3. In 2004 and 2006, the DPPA undertook experience exchanges with

other countries namely Bangladesh and South Africa, respectively.

1.2.4.

In 2006, the DPPA re-organized its committees and re-established

multi-sectoral technical and steering committees including disaster

management focal bodies in key line departments (Ministry of

Agriculture and Rural Development, Ministry of Health and Ministry

of Water Resource Development).

1.2.5. In 2006, the DPPA sought external technical assistance (consultancy

service) to augment its efforts and speedup the policy revision

process.

1.2.6. In 2008, an extensive literature review was conducted to identify best

DRM practices that are applicable to the Ethiopian context.

1.2.7.

Stakeholder meetings at the federal, regional, and local levels were

conducted in 2007 and 2008. These meetings included representatives

from line departments, regional government, civil-community,

academia, and the international community. The draft policy

document was distributed to stakeholders throughout the revision

process through meetings and workshops.

1.2.8. The final draft of this Policy was completed in 200X and was

followed by drafting of legislation.

1.3. Existing Disaster Management Policy: Strengthens,

Limitations and Challenges

1.3.1. The National Policy on Disaster Prevention and

Management

1.3.1.1. The Government of Ethiopia revised its disaster management

strategy and adopted the National Policy on Disaster Prevention

and Management (NPDPM) in 1993.

1.3.1.2. The accompanying policy directive was issued in 1993 and

the policy implementation guidelines were developed in 1995.

1.3.1.3. The major objective of the NPDPM was to save lives,

integrate relief assistance with development efforts in order to

mitigate the impacts of disasters, and enhance the coping

capacities of the affected population through the creation of assets

in the affected areas.

1.3.1.4. The NPDPM served as the national framework for disaster

management until the adoption of this Policy in 200X.

1.3.1.5. The NPDPM guided relief management policies, institutions,

and processes whereby drought disasters were detected and

resources, especially food aid, were mobilized and prioritized for

affected areas. At critical times, millions of citizens have been

assisted with humanitarian aid.

1.3.1.6. Through a process of national consultation, stakeholders

identified the strengths, a range of policy limitations and

implementation challenges in the disaster management system to

be addressed through a process of policy reform. These are

detailed in the following sections.

1.3.2. Strengths

1.3.2.1. With the establishment of the National Disaster Prevention

and Preparedness Committee as the highest decision making body,

chaired by the Prime Minister, the Government has been the

leading body for all matters of disaster management.

1.3.2.2. Emphasis was given to the need to link relief with

development and, hence, to contribute to addressing the root

causes of vulnerability.

1.3.2.3. The NPDPM underlined that disaster management is a multi-

sectoral responsibility and coordinated effort of various institutions

rather than a one-agency responsibility.

1.3.2.4. The NPDPM gave due attention to the development of

different preparedness modalities and the involvement of the

community in the planning, programming, implementation

and evaluation of all relief projects.

1.3.3. Limitations

1.3.3.1. The Constitution and a range of policies (such as PASDEP,

population, health, environment etc) and global strategies (such as

the MDGs) were instituted after the NPDPM, giving rise to

inconsistencies and inadequate integration between policies. The

composition of the NDPPC was diluted by proclamation. The

mandates of some line departments changed, others were

abolished, and new ones established. Therefore, over time,

important strategic, conceptual, and institutional changes have

rendered some aspects of the NPDPM obsolete.

1.3.3.2. The Policy directions for the response and management of

crises were primarily drought-focused. However, multi-hazard

induced disasters and related losses have increased in recent years.

Epidemics (human and livestock) have adversely affected lives

and livelihoods. An increasing frequency and intensity of floods

demonstrates that Ethiopia is prone to multi-hazards other than

drought that may have lower frequency but still important impacts.

War and conflict have led to losses of lives and displacement.

Signs of earthquake and volcanic activities were observed mainly

in the rift valley of the country. Transport/traffic accidents is

another major hazard that causes the loss of lives and property.

Such diverse hazards hold considerable potential to affect

development gains across community.

1.3.3.3. The policy implementation was not supported by legal

enforcement.

1.3.3.4. Responsibilities for disaster management were not adequately

detailed and no mechanisms for accountability in the NPDPM

were in place.

1.3.3.5. Some aspects of the NPDPM and its guidelines were not fully

implemented (e.g., livestock preservation, water harvesting,

contingency agricultural plans, seed reserves, many of agricultural

support activities, etc.) due to various reasons.

1.3.3.6. The NPDPM required overly centralized resource

management that was at odds with the decentralized structures

subsequently required by the Constitution.

1.3.3.7. The NPDPM did not state the need for research, and risk

mapping of hazards (e.g. climate change impacts, emerging

pathogens such as small pox), trends in changing hazard profiles).

Historical records of hazards, disasters, and responses have not

been maintained in a coordinated manner, undermining capacities

to learn from past experiences.

1.3.3.8. Inter-regional and cross-border mechanisms for collaboration

and mutual cooperation with regard to disasters were not outlined

and, thus, such relationships were ad hoc.

1.3.3.9. Globally, DRM practices are changing partly due to the

pressures of climate change and to improvements in the global

institutional environment (e.g., the Hyogo Framework). Therefore,

in Ethiopia, the changing context requires substantive policy,

institutional and philosophical shifts from relief response to more

comprehensive and holistic DRM.

1.3.3.10. Relief and preparedness modalities mainly focused on

drought-induced disaster. The early warning system focused on

drought and agriculture and had limited scope for other hazards.

1.3.3.11. With an emphasis on response, policy guidance on risk

reduction and post-crisis recovery and rehabilitation was lacking.

Prevention, mitigation and preparedness modalities and capacities

were not sufficiently emphasized as critical for reducing disaster

vulnerability and for protecting development initiatives.

1.3.3.12. The NPDPM in general did not contribute adequately to

sustainable development.

1.3.3.13. Inadequate attention was paid to the relationships among

development, risks, and vulnerabilities

1.3.4. Implementation Challenges

1.3.4.1. Support for livelihoods affected by crises has been insufficient

for building resilience to future crises.

1.3.4.2. The policy provisions were not enforced with accountability.

The resulting DM system was responsive, being activated only

when disasters were imminent. Some relief efforts were marred by

nepotism and misuse of resources.

1.3.4.3. The disaster response structure was excessively reliant on

external resources. There were limited structures, mechanisms, and

sustainable mobilization of domestic financing of disaster relief

programs and contingency reserves.

1.3.4.4. Mechanisms for multi-year or sustainable resource allocation

were not put in place and this contributed to the failure of the

major implementation modality of the NPDPM (Employment

Generation Schemes) for linking relief to development.

1.3.4.5. In practice, disaster management was seen as the

responsibility of one institution (DPPC/DPPA). Institutional

commitments and arrangements for sectoral/multi-sectoral

leadership, integration, and coordination were inadequate, while

horizontal and vertical institutional relationships were unclear.

1.3.4.6. There were weak vertical and horizontal DM information

flows, especially to and from grassroots level, exacerbated by a

poor national communication network. Information content and

flows were unreliable.

1.3.4.7. While the NPDPM stressed local capacities and community

participation, this was not adequately realized in practice.

1.3.4.8. Targeting of relief to the destitute in some cases encouraged

the depletion of productive assets, rendering beneficiaries

dependent on cycles of relief. Errors of exclusion in distribution

resulted from inadequate resources, quota requirements,

geographical remoteness, and other factors. Errors of inclusion

resulted from inflated estimates of beneficiaries and the frequent

distribution of relief resources to the same areas and other factors.

1.3.4.9. Policy implementation in practice focused on rural areas,

giving low attention to urban-based hazards.

1.3.4.10. Preparedness for non-food emergencies is inadequate. Gaps

existed in organizational and coordination mechanisms to respond

to vulnerabilities arising out of non-drought disasters, such as

conflict, internal displacement, flood, or urban disasters.

1.3.4.11. Policy monitoring and evaluation mechanisms were not

adequately stated in the NPDPM and its implementation

guidelines.

1.3.4.12. The institutions of disaster management suffered from a

shortage of skilled manpower and were characterized by frequent

turnover of qualified staff and inadequate physical and financial

resources and other capacities.

1.4. Definitions of Key Terminologies as Applied in this

Policy

Definitions of selected key terminologies frequently applied in this policy are

listed below and other important terminologies are given in the annex.

1.4.1. A disaster: the occurrence of an abnormal event triggered by a

hazard(s) that impacts a given entity (including a vulnerable community,

geographical area, infrastructure or a group of people in significant

numbers gathered in one place) causing damage and/or casualties,

leaving the affected entity unable to function normally, eroding survival

mechanism and forcing it to seek outside assistance for survival.

1.4.2. Disaster risk reduction (DRR): the broad development and application

of policies, strategies, and practices to minimize vulnerabilities

throughout communities via prevention, mitigation, and preparedness.

DRR action may include the construction of physical structures (such as

flood protection dykes, retaining walls for landslides), environmental

protection and rehabilitation, rainwater harvesting, relocation of

vulnerable households, provision of safer means of livelihoods, and other

proactive social protection measures.

1.4.3. Disaster Risk Management (DRM): collective actions and efforts

of concerned institutions, policies, programs, and other measures

designed to prevent, mitigate, prepare for, and respond to a disaster and

to provide recovery and rehabilitation support.

1.4.4. Disaster Risk Management System: a system of organizational

structures, mechanisms and process, strategies, policies, procedures,

programs, and other measures designed to prevent, mitigate, prepare for,

and respond to a disaster and to provide recovery and rehabilitation

support.

1.4.5. Hazard: a potentially damaging physical event, phenomenon, and/or

human activity that may cause the loss of life or injury, property damage,

social and economic disruption, or environmental degradation.

1.4.6. Mainstreaming: integrating and institutionalizing disaster risk

management in the process of the development of policies and strategies,

and in the planning and implementation stages of regular programs

across all sectors and at all levels.

1.4.7. Mitigation: actions or processes designed to reduce the severity of

potential consequences or level of likely harm of a hazard. Mitigation

measures can be both physical/structural and nonstructural and can take

place before, during, or after a disaster.

1.4.8. Preparedness: specific measures taken before disasters strike, usually

to forecast or warn against them, to take precautionary measure when

they threaten, and to be ready for the appropriate response. Preparedness

includes actions and measures being undertaken before the occurrence of

a disaster to avert or minimize the suffering of the affected entity.

Preparedness entails the building of capabilities before a hazard threatens

to overwhelm coping capacities in order to reduce the impacts of future

disasters.

1.4.9. Prevention: measures taken to reduce the risk of disasters posed by

hazards, primarily through eliminating the root causes that render

individuals, households, communities, and nations vulnerable to

disasters.

1.4.10. Protection: measures that address threats to or the vulnerabilities of

someone or some thing and preclude damage or injury that would cause

disruption or interference with normal practices.

1.4.11. Reconstruction: longer-term activities required to restore physical

infrastructure and services damaged by a disaster.

1.4.12. Recovery: actions taken after a disaster to restore the living conditions

of disaster-stricken people or communities while encouraging and

facilitating necessary adjustments to build resilience to prevent similar

crises in future.

1.4.13. Rehabilitation: the measures applied after a disaster which are

necessary to restore normal activities and build resilience to future

shocks in affected areas, communities, and economic sectors.

1.4.14. Relief: activity undertaken in the immediate aftermath of a

disaster to save lives, protect livelihoods, and address immediate

humanitarian needs, including the provisional restoration of essential

services.

1.4.15. Risk: the probability of a specific hazard occurring in a given location

and its likely consequences for people and property.

1.4.16. Sustainable development: development that meets the needs of the

present without compromising the ability of future generations to meet

their own needs. It contains two key concepts: the concept of "needs", in

particular the essential needs of the world's poor, to which overriding

priority should be given; and the idea of limitations imposed by the state

of technology and social organization on the environment's ability to

meet present and future needs.

1.4.17. Vulnerability: the potential to suffer harm or loss. Determinants of

vulnerability include physical, social, economic, political, cultural, and

institutional factors.

2. Disaster Risk Management (DRM) Policy Framework

2.1. Key Policy Issues

2.1.1.

From Disaster Response to DRM: DRM represents a paradigm shift

in the approach to disaster management. DRM refers to a full

management cycle: prevention (avoiding disasters by addressing

vulnerabilities), mitigation (minimizing potential disaster impacts

through risk management), preparedness (ensuring readiness through

strengthening early warning system, building logistic capacity,

maintaining adequate resource reserves and other precautionary

measures), response (saving lives and livelihoods), recovery

(immediate post-crisis assistance), and rehabilitation (building

capacities to withstand future crises).

2.1.2.

Accountabilities, Responsibilities and Resources: The responsibility

for disaster risk management rests primarily with government. DRM

is also the responsibility of all sectors, organizations, agencies,

companies, communities and individuals that may be affected by

disasters or those bodies whose actions may lead to an increase or a

reduction in disaster risks. This Policy delineates functions,

responsibilities, rights, resources, and accountabilities for disaster risk

management at all levels and sectors.

2.1.3.

Development First: DRM, particularly its prevention, recovery and

rehabilitation components, is principally the responsibility of

development actors. Crises expose weaknesses in development

strategies. Appropriate development initiatives are essential for risk

reduction, disaster prevention, and crisis recovery. It is essential that

hazards and their risks are managed before they become disasters.

2.1.4.

Protecting Lives and Livelihoods: This Policy enhances systems for

disaster response to protect the lives and livelihoods of vulnerable

populations when crisis threatens to overwhelm their coping

capacities. However, emergency response should not be the primary

strategy for DRM.

2.1.5.

Addressing Baseline Risks: Most disasters are predictable. This

policy details necessary measures for contingency planning and

domestically financed contingency reserves so that recurrent risks can

be managed before they become disasters. International assistances

will be solicited to complement domestic capacities or in the events

whereby national preparedness/response capacity is threatened.

2.1.6.

Constitutional Relevance: This policy capitalizes on the strong

principles enshrined in the Ethiopian Constitution regarding the rights

of citizens and the responsibilities of the government (Article 93).

2.2.

Objectives of the DRM Policy

2.2.1. General Objective

The overall objective of the National Policy on Disaster Risk Management is to

reduce risks and the impacts of disasters through the establishment of a

comprehensive and integrated disaster risk management system within the

context of sustainable development.

2.2.2. Specific Objectives

The specific objectives of the National Policy on DRM are to:

2.2.2.1.Reduce disaster risks and vulnerability that hinder development,

primarily by focusing on proactive measures, establishing a

culture of risk reduction in regular development programs, and

addressing the underlying causes of recurrent disasters.

2.2.2.2.Save lives and protect livelihoods in the event of disasters and

ensure the recovery and rehabilitation of all disaster-affected

populations.

2.2.2.3.Promote the resilience of people vulnerable to disasters and

thereby combat dependency on relief resources.

2.2.2.4.Insures that institutions and activities for DRM are mainstreamed

in to all sectors, coordinated, integrated in to regular development

program and implemented at all levels

2.3.

Guiding Principles

The guiding principles of the National Policy on DRM are:

2.3.1. Integration into development: DRM shall be an integral

component of national development efforts. All development programs,

including post-disaster recovery measures, shall incorporate disaster risk

management components in their regular plans and programs.

2.3.2. Protection of natural resources: natural resource endowments in

crisis-affected and crisis-prone areas shall be protected and promoted in

the context of comprehensive risk management strategies.

2.3.3. Decentralized and community-based: DRM systems shall be

decentralized and community-based whereby communities play decisive

roles in the planning, execution, monitoring and evaluation of disaster

risk management projects and programs.

2.3.4. A participatory approach: DRM systems will ensure the proper

participation of all stakeholders including the private sector, academic

and research institutions, humanitarian organizations, etc.

2.3.5. Accountability and responsibility:

DRM systems will ensure

accountability and responsibility of all concerned actors at all levels.

2.3.6. Protection of human life: no human life shall be lost for want of basic

relief assistance in times of disaster.

2.3.7. Information is power to DRM: information management is a vital

element of disaster risk reduction, Early warning information in

particular is citizen right.

2.3.8. Ensuring basic needs: DRM systems shall protect and fulfill the basic

needs, rights, and dignity of affected populations.

2.3.9. Impartiality: relief interventions shall impartially address the basic

needs of all disaster victims, especially at the initial stages of fast onset

emergencies.

2.3.10. Respect cultural norms: DRM systems shall take into account the

cultural norms, beliefs and practices of communities.

2.3.11. Minimize dependency and promote livelihood recovery: relief efforts

shall be followed by development initiatives in order to minimize

detrimental effects such as dependency on relief assistance and promote

the recovery of livelihoods.

2.3.12. Give due attention to the most vulnerable groups: DRM systems will

give due attention to especially vulnerable groups such as women,

children, the infirm, people living with HIV/AIDS, the disabled and the

elderly.

2.3.13. Avoid malpractices: DRM systems shall be free from all forms of

malpractice.

2.4.

Policy Directions

In accordance with the above set of goals, objectives and principles, the National Policy

on Disaster Risk Management (NPDRM) defined clear institutional arrangement and all

the risk management directions as indicated in the following sections are set out by

complete DRM cycle/phases and other essential policy provisions.

2.4.1. Organization and Structure

2.4.1.1. DRM shall be everyone’s responsibility: government,

communities, private sector, civil society, and development and

humanitarian institutions. This policy spells out a clear

organizational structure at all administrative levels and sectors to

ensure its proper implementation with clear delineation of tasks

and responsibilities.

2.4.1.2. This policy requires the establishment of strong coordinating

and regulatory bodies with proper authority at all levels and

defines relationships between coordinating bodies and line

departments.

2.4.1.3. This Policy details mechanisms for vertical and horizontal

coordination, accountability, and integration of all parties involved

in DRM.

2.4.2. Core Disaster Risk Management (DRM) Phases

DRM is a continuous process that guides a coherent and transparent system,

emphasizing three major phases or categories (pre-disaster, during disaster

and post-disaster). Given the geographic diversity of hazards, risks and

vulnerabilities in Ethiopia, such components or phases are not necessarily

linear and may be managed simultaneously.

2.4.2.1. Pre-disaster Phase:

2.4.2.1.1. Includes prevention, mitigation, and preparedness activities

before the event of disaster. Post-crisis recovery and

rehabilitation measures undertaken in on-going crises could

also serve as preventative interventions for future crises.

2.4.2.1.2. Disaster prevention, mitigation, and preparedness elements

shall be a focus of development strategies, policies, and

programs and need to be incorporated in the strategies, plans,

and programs of line departments and other relevant bodies.

2.4.2.1.3. The abilities to respond to disasters shall be developed

during the pre-disaster phase. All actors shall be prepared for

discharging their roles, managing resources, and upholding

their responsibilities during disasters well in advance of crises.

2.4.2.1.4. There will be multiple, decentralized, and adequate

reserves of physical and financial stocks to manage

predictable levels of crises for all major hazards and sectors.

2.4.2.1.5. Risk assessment, hazard mapping, and forecasting

processes will be developed to reflect actual threats, provide

genuine information, and produce accurate estimate and needs.

2.4.2.1.6. Contingency planning shall be an essential component of

disaster preparedness.

2.4.2.1.7. Assessment results shall not be compromised or influenced

by the limitations of response capacities.

2.4.2.2. Disaster Phase

2.4.2.2.1. The initial responsibility for detecting, responding to,

recovering from, and mitigating the effects of disaster rests

with the local (woreda) administrations. Communities as well

have a major role to respond to disasters but disasters often

overwhelm the capacity of communities to cope or respond.

The primary effort of the local administration shall be made in

order to support or strengthen communities to deal with

emergencies effectively.

2.4.2.2.2. When an emergency event strikes, the concerned DRMCOs

and DRMUs shall immediately activate/mobilize the

preparedness facilities at their disposal. They shall assume

responsibility for coordination of all humanitarian actors

working in their sectors through the establishment of

emergency task forces (ETF). ETFs shall meet as necessary

and be chaired by empowered, senior government

representatives who will be held accountable and evaluated for

the management of ETFs and other emergency coordination

responsibilities.

2.4.2.2.3. Where there is inadequate capacity for disaster

management, the Government will solicit international

assistance.

2.4.2.2.4. DRMCOs and DRMUs shall establish/strengthen a joint

government, UN, and donor coordinating body that meets as

necessary for the duration of a disaster.

2.4.2.2.5. Every effort will be made to ensure timeliness, adequacy,

rationality, and appropriateness of disaster response measures

in order to mitigate effectively disaster-related loss of lives

and livelihoods.

2.4.2.2.6. International humanitarian principles and minimum

standards of operations will be taken into account and adapted

as per the local conditions.

2.4.2.2.7. Disaster response strategies shall protect the dignity and

basic human rights of affected populations. The protection of

the rights and livelihood systems must be of equal importance

to the provision of goods and services.

2.4.2.2.8. The nature and scope of disaster response measures shall be

based on the actual needs of at risk populations.

2.4.2.2.9. The commencement of disaster response measures shall

automatically follow the declaration of disaster. However, it is

not always necessary to await a formal disaster declaration if

lives are threatened to perish for want of relief assistance.

2.4.2.2.10. Other risks of sensitive nature with humanitarian

consequences such as those emanating from a political nature,

such as border conflicts, refugee flows, or terrorist incidents

shall be managed according to the same principles as spelled

out in this Policy.

2.4.2.3. Post-disaster Phase

2.4.2.3.1. Following a disaster a proper damage assessment will be

conducted to identify the magnitude and extent of the damage

caused by a disaster and specific post-disaster early recovery

and rehabilitation program will be developed and implemented

by all concerned bodies.

2.4.2.3.2. Rehabilitation measures shall be integrated with

development programs.

2.4.2.3.3. Post-disaster activities shall ensure the development of

livelihood security and mitigate medium- and long-term

consequences of disasters, thereby reducing vulnerability.

2.4.3. Decentralized DRM and Disaster Declaration

2.4.3.1. DRM functions, resources, and accountabilities shall be

appropriately decentralized. Both standing and ad hoc institutional

structures and appropriate chains of command shall be clear.

2.4.3.2. Information shall flow across and within levels of government

to facilitate multi-hazard mapping, risk analysis, resource

rationalization, and other processes to ensure efficient and

effective DRM.

2.4.3.3. Regional states at all levels are obliged to consider and

promote mutual cooperation in times of disaster.

2.4.3.4. The responsibility for declaring national level disasters that

require extraordinary measures rests with the Federal Disaster Risk

Management Council.

2.4.3.5. The responsibility for declaring regional, zonal and local

levels disasters that require extraordinary measures rests with the

Regional Disaster Risk Management Councils. This responsibility

may be delegated to the Zonal and/or Woreda / Disaster Risk

Management Councils where necessary for the best interest of at

risk populations.

2.4.3.6. Disaster declarations shall be announced when the effects of

crises exceed the capacity of the affected populations and

concerned institutions to effectively mitigate the impact of the

disasters.

2.4.3.7. In the event of external military aggression and other crises

that endanger the constitutional order, a state of emergency shall

be declared according to the Constitution.

2.4.4. DRM Mainstreaming

2.4.4.1. DRM is a crosscutting and multi-sectoral responsibility

whereby concerned institutions shall integrate DRM into their

regular development activities. National development cannot be

sustainable unless DRM is considered as part of sectoral

development processes.

2.4.4.2. DRM will be guided by concerns for the specific

vulnerabilities and capacities that arise from differences in gender,

age, livelihood systems, and other defining characteristics.

2.4.4.3. DRM efforts shall be sensitive to local customs, beliefs, and

practices, and be adopted to local conditions.

2.4.5. Multi-hazard DRM

2.4.5.1. Understanding hazards, their behaviors, the risks they pose,

and the vulnerabilities they create are fundamental to achieving

successful DRM. Therefore, each sectoral line department shall

identify, map, and be a lead agency for the main hazards that have

critical effects on their sector.

2.4.5.2. DRMCs shall ensure that multi-hazard holistic DRM systems

are in place at different places, as appropriate.

2.4.5.3. DRM strategies, plans, and programs shall be based on

holistic and proactive approaches that are concerned with a wide

range of hazards identified and the interaction of multiple hazards.

2.4.6. Funding Arrangements

2.4.6.1. Fundamentally, this Policy envisions the development of a

sustainable and nationally self-reliant DRM system. Resource

mobilization for DRM strategies, plans, and programs shall, to the

extent possible, rely on domestic sources.

2.4.6.2. The DRM system for the management of baseline (that is,

routine, predictable) levels of hazards, risks, and vulnerabilities

shall be funded through multi-year development strategies.

2.4.6.3. Resource mobilization from local sources shall be the

responsibility of DRMCOs and DRMUs at all levels.

2.4.6.4. Resource mobilization from international sources shall be the

responsibility of the Federal Disaster Risk Management

Coordination Office (FDRMCO).

2.4.6.5. Contingency relief reserves of different categories shall be

established/maintained at different levels as necessary based on

realistic estimates of potential response and recovery operations at

each level.

2.4.6.6. Government resource at all levels will be mobilized and made

readily available to preserve lives and livelihoods during disasters.

2.4.7. Information Management and Communication System

2.4.7.1. As DRM is multi-disciplinary and multi-sectoral, it requires a

range of data and relies on the timely, smooth, and efficient

communication of information and reliable data generated by a

range of institutions, sectors, and decision-makers.

2.4.7.2. The interoperability of Information and Communication

Technology (ICT) for effective disaster management among key

disaster responders shall be uninterrupted and sustainable.

2.4.7.3. Effective DRM shall be guided by research, objective

analysis, communication, and knowledge management.

2.4.7.4. A centrally managed DRM information system that integrates

information from different sectors and documents all hazards and

vulnerabilities shall be established at federal and regional levels

within the DRMCOs.

2.4.8. DRM Plans

2.4.8.1. Sectoral DRM and emergency response contingency plans

shall be prepared by each DRM unit and focal bodies and shall be

consolidated at all levels and submitted to the respective

DRMCOs.

2.4.8.2. Integrated and consolidated DRM plans shall be developed by

DRMCOs at all (federal, regional, zonal and woreda) levels.

2.4.9. Partnership and the Role of Civil Societies and Humanitarian

Partners

2.4.9.1. Community based organizations, the private sector and

humanitarian organizations such as UN agencies, Donors, NGOs,

professional institutions, etc., play important roles in the

implementation of DRM strategies.

2.4.9.2. DRMCOs and DRMUs/focal bodies will promote the

involvement of these partners as appropriate.

2.4.9.3. Humanitarian partners are expected to deliver support to

DRMCOs, DRMUs and the affected population in a cohesive and

coherent manner in line with the strategies of the DRMCOs and

DRMUs in areas of their specific sectoral involvement.

2.4.10. Cross-Cutting Issues

2.4.10.1. Vulnerabilities associated with gender will be given due

attention in DRM.

2.4.10.2. Vulnerabilities associated with age, HIV/AIDS, poverty,

environment and disability and other socially-defined or disaster-

induced will be given due attention in DRM.

2.4.11. Regional Administration and International Cooperation

2.4.11.1. Disaster threats as well as DRM opportunities are trans-

boundary by nature. Some hazards, such as human and livestock

diseases, pest outbreaks, conflicts and refugee flows, may affect

neighboring regional administrations within Ethiopia and countries

that share common boundaries.

2.4.11.2. The country will promote active collaboration and mutual

assistance for DRM with neighboring regional administrations

(within Ethiopia) and countries and regional organizations (within

Africa) such as IGAD.

2.4.12. Monitoring and Evaluation

2.4.12.1. Monitoring and evaluation of the impact and consideration of

DRM practices and the effectiveness of this policy are the key

means by which DRMCOs and DRMUs/focal bodies ensure that

the provisions of this Policy are upheld in practice, that lives and

livelihoods are saved and protected, and that sustainable

development can be pursued.

2.4.12.2. Relevant stakeholders (including at risk communities) shall be

active in the monitoring and evaluation of this policy and related

interventions.

2.4.12.3. There shall be an inter-sectoral forum for the regular review,

and monitoring and evaluation of DRM implementation.

2.4.13. Policy Enforcement and Implementation Guidelines

2.4.13.1. There shall be enabling legislation to strengthen the

mechanisms of accountability for DRM as outlined in this Policy.

2.4.13.2. Detailed, specific sectoral implementation guidelines and

manuals shall be developed for policies that require further

elaboration. These shall be reviewed and updated as necessary.

2.4.13.3. There shall be a review and, where appropriate, revision of

existing legislation, implementation guidelines and manuals across

all sectors to strengthen DRM efforts, accountabilities, and

directions.

2.4.13.4. Responsible individuals and bodies shall be empowered and

capacitated to implement risk management activities and be held

legally accountable in case of failures of discharging their DRM

duties and responsibilities.

3. Directives for the Implementation of the National Policy

on DRM

3.1. Organization and Structure

3.1.1. DRM responsibilities will be distributed over three core structures

at federal and regional levels: the Disaster Risk Management

Councils (DRMCs); the Disaster Risk Management Coordination

Offices (DRMCOs); and, sectoral Disaster Risk Management Units

(DRMUs)/focal bodies at all administrative levels (federal, regional,

zonal,, woreda and Kebele/Farmer’s Kebele Administration).

3.1.2. Disaster Risk Management Councils (DRMCs)

3.1.2.1. The Federal Disaster Risk Management Council

(FDRMC)

3.1.2.1.1. The FDRMC is the highest policy and oversight body

for DRM.

3.1.2.1.2. The Council consists of the following members:

3.1.2.1.2.1. Prime Minister (chair)

3.1.2.1.2.2. Minister of Agriculture and Rural Development

3.1.2.1.2.3. Minister of Health

3.1.2.1.2.4. Minister of Water Resources

3.1.2.1.2.5. Minister of Defense

3.1.2.1.2.6. Minister of Mines and Energy

3.1.2.1.2.7. Minister of Federal Affairs

3.1.2.1.2.8. Minister of Transport and Communications

3.1.2.1.2.9. Minister of Foreign Affairs

3.1.2.1.2.10. Minister of Trade and Industry

3.1.2.1.2.11. Minister of Education

3.1.2.1.2.12. Minister of Finance and Economic Development

3.1.2.1.2.13. Minister of Labor and Social Affairs

3.1.2.1.2.14. Minister of Works and Urban Development

3.1.2.1.2.15. Minister of Women’s Affairs

3.1.2.1.2.16. Minister of Science and Technology

3.1.2.1.2.17. Ministry of Youth and Sports

3.1.2.1.2.18. Minister of Government Communication Affairs

Office

3.1.2.1.2.19. Director General of Federal Police

3.1.2.1.2.20. Director General National Intelligence and

Security Service

3.1.2.1.2.21. Director General of National Meteorology

Agency

3.1.2.1.2.22. Presidents of Regional States including Addis

Ababa and Dire Dawa City Administration Councils

3.1.2.1.2.23. Director General of Environmental Protection

Authority

3.1.2.1.2.24. Head of Federal Disaster Risk Management

Coordination Office (Secretary)

3.1.2.1.3. The FDRMC will perform the following functions:

3.1.2.1.3.1.

3.1.2.1.3.2.

3.1.2.1.3.3.

3.1.2.1.3.4.

3.1.2.1.3.5.

3.1.2.1.3.6.

3.1.2.1.3.7.

3.1.2.1.3.8.

Oversee the implementation of the National

Policy on Disaster Risk Management.

Provide general direction regarding DRM.

Oversee the integration of DRM into sectoral

development strategies and programs, and the

implementation of DRM policy through the

Federal Disaster Risk Management Coordination

Office (FDRMCO).

Ensure proper legislation and its enforcement

mechanisms are in place in support of DRM

functions.

Approve general rules for operating, financing,

and releasing funds from Federal Disaster

Response and Recovery Funds (DRRF) that are

managed by DRMCO.

Prescribe general guidelines for DRMCO to:

a) Declare national level disaster on behalf of the

council.

b) Mobilize domestic and foreign resources for

DRM functions.

c) Manage federally owned central DRM

resources.

d) Mobilize inter-regional (i.e., within Ethiopia)

DRM resources.

Approve national disaster contingency plans.

Ensure that the FDRMCO and other members of

the council effectively perform their functions.

3.1.2.1.3.9. Declare National Disaster Risk Management

Day.

3.1.2.1.3.10. Meet twice annually to review the national state

of DRM.

3.1.2.1.3.11. Meet at the request of the Secretariat

(FDRMCO) when circumstances so demand.

3.1.2.1.3.12. Ensure the necessary capacity of the FDRMCO

is in place.

3.1.2.2. Regional Disaster Risk Management Councils (RDRMC)

(The federal structures and responsibilities mentioned

under 3.1.2.1 will be replicated/adapted to regions, with

the inclusion of the participation of municipalities and fire

brigades as appropriate.)

3.1.2.3. Zonal Disaster Risk Management Councils (ZDRMC) (The

regional structures and responsibilities mentioned under

3.1.2.2 will be replicated/adapted to zonal level.)

3.1.2.4. Woreda/Kebele/Farmer’s Kebeke Administration Disaster

Risk Management Councils (WDRMC) (The zonal

structures and responsibilities mentioned under 3.1.2.3 will

be replicated/adapted)

3.1.3. Disaster Risk Management Coordination Offices (DRMCOs)

3.1.3.1. Federal Disaster Risk Management Coordination Office

(FDRMCO) is a coordinating and regulatory body at

federal level for DRM-related matters that will be

accountable to the Office of the Prime Minister. The

FDRMCO will:

3.1.3.1.1. Act as the secretariat for the FDRMC and serve as the

central agency for ensuring proper and effective

implementation of DRM activities among all line

departments at the federal level.

3.1.3.1.2. Have the authority to communicate directly with

ministers, directors, and head of sectoral DRM units on

all DRM issues.

3.1.3.1.3. Consolidate all DRM plans and activities conducted by

DRMUs and focal bodies at national and regional

levels.

3.1.3.1.4. Play coordinating role for handling:

a) National (multi-regional) level disasters.

b) Hazards that do not fall under any one of lead

agencies indicated in section 3.1.4.1.3.

c) Mass Casualty Incidents (MCI) where the scale of

the incident is considered as a national disaster.

3.1.3.1.5. Ensure that key national level preparedness and

mitigation facilities and capacities are in place and

effectively functional.

3.1.3.1.6. Facilitate the development of procedures for mutual

disaster risk management and mutual cooperation with

neighboring regions.

3.1.3.1.7. Provide support on request by RDRMCs to authorize

additional appropriate measures, if necessary.

3.1.3.1.8. Serve as a repository/custodian of national level DRM

information.

3.1.3.1.9. Establish technical committees and forums drawn from

sectoral DRM unit/focal bodies, civil society and

humanitarian partners, religious organizations, and

others to perform DRM duties as and when necessary.

3.1.3.1.10.Be organized in three core functional units: Federal

Integrated Information Management and Mapping Unit;

Federal Risk Management Unit; Federal Plan, Program

and Research Unit; and establish other support units as

necessary.

3.1.3.1.10.1. The Federal Integrated Information

Management and Mapping Unit will:

3.1.3.1.10.1.1. Conduct comprehensive analysis of sectoral

DRMUs/focal bodies, regional DRMCOs

and other sources of early warning

information, and issue and disseminate

consolidated national early warning

information.

3.1.3.1.10.1.2. Using a range of sources, develop and

maintain databases of all key hazards and all

disaster impacts (damage assessment), and

conduct multi-sectoral and multi-hazard risk

analyses.

3.1.3.1.10.1.3. Issue, at a minimum, monthly and quarterly

summaries of national risk and disaster

outlooks.

3.1.3.1.10.1.4. Develop and disseminate standard

operational guidelines for the management

of information and databases to be used at

different levels.

3.1.3.1.10.1.5. Organize trainings on information

management and other related fields for

capacity development of stakeholders and

institutions involved in DRM at different

levels.

3.1.3.1.10.1.6. Ensure that DRMUs and RDRMCOs and

other relevant bodies develop, maintain, and

enforce appropriate information systems.

3.1.3.1.10.2. The Federal Risk Management Unit will:

3.1.3.1.10.2.1. Ensure the implementation of multi-hazard,

multi-sectoral, and/or multi-regional disaster

risk management (RM) initiatives including

prevention, mitigation, preparedness,

rehabilitation; and response, early recovery

and rehabilitation initiatives for

unprecedented crises and mass causality

incidents.

3.1.3.1.10.2.2. Review the integration of RM in major

national multi-sectoral development

strategies, plans, and programs.

3.1.3.1.10.2.3. Ensure that DRMUs develop and

disseminate standards and appropriate

guidelines for effective and transparent

sector-specific risk reduction, emergency

response and recovery that are updated, at a

minimum, every five years.

3.1.3.1.10.2.4. Set quality control and minimum standards

of imported relief resources and ensue the

quality of imported resources maintain this

standards in collaboration with the

appropriate institution.

3.1.3.1.10.2.5. In collaboration with other relevant DRM

stakeholders, regularly monitor and evaluate

the proper implementation and effectiveness

of risk reduction, emergency response and

recovery activities.

3.1.3.1.10.2.6. Organize trainings and awareness raising

activities for capacity development of

stakeholders and institutions on this Policy

in relation to prevention, mitigation,

preparedness, response, recovery and

rehabilitation activities.

3.1.3.1.10.2.7. Ensure that DRMUs, RDRMCOs and other

relevant bodies develop, maintain, and

enforce appropriate and clear RM ,

emergency response and recovery

operational guidelines consistent with this

Policy.

3.1.3.1.10.2.8. Establish a crisis management and response

center for the coordination of response and

recovery initiatives for unprecedented crises

and mass causality incidents.

3.1.3.1.10.2.9. Review sectoral and regional risc reduction

and disaster contingency response plans and

develop consolidated national risk reduction

and disaster contingency plans.

3.1.3.1.10.2.10.

Develop and maintain relations with

local and international humanitarian and

development partners in order to mobilize

DRM resources and technical cooperation.

3.1.3.1.10.2.11.

Establish and manage the Federal

Disaster Response and Recovery Fund.

3.1.3.1.10.3. The Federal Plan, Program and Research Unit

will:

3.1.3.1.10.3.1. In collaboration with academia, research

institutions and humanitarian experts and

organizations, develop and disseminate

standards and appropriate guidelines for an

effective research management.

3.1.3.1.10.3.2. Develop and issue a standard guideline for

the preparation of DRM plans (risk

management and disaster response

contingency) at different levels.

3.1.3.1.10.3.3. Conduct comprehensive research on the

interrelationships among hazards, risks, and

vulnerabilities in Ethiopia.

3.1.3.1.10.3.4. Ensure that DRMUs/focal bodies develop

and disseminate standards sectoral DRM

plans.

3.1.3.1.10.3.5. Develop consolidated and comprehensive

national DRM plans.

3.1.3.1.10.3.6. Organize trainings on DRM, policy

implementation, research techniques,

planning, and monitoring and evaluation for

capacity development of stakeholders and

institutions involved in DRM at different

levels.

3.1.3.1.10.3.7. In collaboration with DRMUs and relevant

stakeholders, regularly monitor and evaluate

the effectiveness of sectoral DRM strategies,

plans and programs and the proper

implementation of this Policy.

3.1.3.1.10.3.8. Ensure that DRMUs, RDRMCOs and other

relevant bodies develop, maintain and

enforce appropriate and clear planning,

monitoring and evaluation operational

guidelines based on this Policy.

3.1.3.1.11. The Head of the FDRMCO will:

3.1.3.1.11.1. Be directly accountable to the Prime Minister

and serve as a secretary for FDRMC.

3.1.3.1.11.2. Initiate a process of review of (and revise as

required) the National Disaster Risk

Management Policy every five years.

3.1.3.1.11.3. Present comprehensive DRM reports to the

House of Peoples Representative about the

performance of DRM initiatives nationwide.

3.1.3.1.11.4.

Organize an annual disaster risk management

summit that includes all DRMCOs,

DRMUs/focal bodies and Regional Presidents

to review the status of DRM in the country.

3.1.3.1.11.5. Ensure the implementation of this Policy.

3.1.3.1.11.6. Perform other functions as may be required by

the FDRMC.

3.1.3.2. Regional Disaster Risk Management Coordination Offices

(RDRMCOs) (The federal structures and responsibilities

will be replicated/adapted, with the inclusion of the

participation of municipalities and fire brigades.)

3.1.3.3. Zonal Disaster Risk Management Coordination Offices

(ZDRMCOs). (The regional structures and responsibilities

mentioned above will be replicated/adapted.)

3.1.3.4. Woreda/Kebele/Farmer’s Kebele Administration Disaster

Risk Management Coordination Offices (WDRMCOs).

(The zonal structures and responsibilities mentioned above

will be replicated/adapted.)

3.1.4. Disaster Risk Management Units (DRMUs)

3.1.4.1. Federal Disaster Risk Management Units (FDRMUs)

3.1.4.1.1. Relevant federal line departments will establish,

maintain and manage DRM units and play the lead role

and coordinate all stakeholders to work together on all

stages of DRM in their sector and others will assign

focal body responsible for the management of all DRM

activities within their sector.

3.1.4.1.2. The following institutions at the Federal level will

establish DRMUs and play the lead role in their sector:

3.1.4.1.2.1.

Ministry of Agriculture and Rural

Development: all crop production, livestock,

forest fire, food, and food security related

hazards.

3.1.4.1.2.2.

Ministry of National Defense: search and

rescue in times of war and other emergences as

required.

3.1.4.1.2.3. Ministry of Federal Affairs; conflict related

hazards.

3.1.4.1.2.4.

Ministry of Mines and Energy: seismic activity

(earthquake and volcanic activities), landslides,

dam failure, etc., related hazards.

3.1.4.1.2.5. Ministry of Health: human health including

HIV/AIDS and malnutrition related hazards.

3.1.4.1.2.6.

Ministry of Transport and Communications:

transport accident especially road and

communications network damage.

3.1.4.1.2.7.

Ministry of Water Resources: climate change

especially flood, drought, water supply,

sanitation and hygiene related hazards.

3.1.4.1.2.8.

Ministry of Works and Urban Development:

urban infrastructure development and urban

fire related hazards.

3.1.4.1.2.9.

Environmental Protection Authority:

environment and radioactive pollution related

hazards.

3.1.4.1.3. Other governmental institutions who are members of the

FDRMC will designate DRM focal body responsible for

all DRM matters in their sectors.

3.1.4.1.4. All DRMUs and focal bodies shall report directly to the

Minister or Head of Agency and perform the following

duties and responsibilities in common. Each will:

3.1.4.1.4.1.

Coordinate all sectoral DRM activities and

ensure the integration of Disaster Risk

Management into the regular duties and

responsibilities of their institutions and other

relevant stakeholders involved in their areas of

responsibilities.

3.1.4.1.4.2.

Develop and implement sectoral strategies and

plans for DRM and coordinate their

implementation within their institution and with

partners.

3.1.4.1.4.3. Review the implementation of these strategies,

plans, and programs.

3.1.4.1.4.4.

Establish, maintain, and manage sectoral

contingency reserves of financial and/or physical

stocks for addressing disaster risks within their

sectors.

3.1.4.1.4.5.

Establish a sectoral early warning system and

disseminate early warning information to

regional DRMUs, regional DRMCOs, sectors

partners, the FDRMCO, and the general public.

3.1.4.1.4.6. Develop and maintain an integrated

comprehensive sectoral DRM plan.

3.1.4.1.4.7. Test through simulations the disaster response

contingency plans for their sectors.

3.1.4.1.4.8.

Conduct sector-specific risk assessments and

vulnerability analysis, and design and coordinate

strategies to addresses these risks and

vulnerabilities.

3.1.4.1.4.9. Define detailed sector specific duties and

responsibilities and develop sectoral DRM

standards, procedures, and guidelines/directives.

3.1.4.1.4.10. Promote the involvement of communities and

other stakeholders particularly women and other

vulnerable groups in the design, planning,

implementation, and monitoring and evaluation

of sectoral DRM strategies.

3.1.4.1.4.11. Play a leading role in emergency responses in

collaboration with other relevant stakeholders in

their areas of responsibility.

3.1.4.1.4.12. Establish and lead sectoral ETFs comprising

actors in their sector, other relevant line

ministries, UN agencies, donor governments,

humanitarian organizations, and private sector

representatives, as appropriate.

3.1.4.1.4.13. Establish and maintain an effective and reliable

system of communication with regional DRM

offices and the FDRMCO, maintain and secure

databases, and analyze information regarding

sectoral DRM activities and disaster risks.

3.1.4.1.4.14. Conduct damage assessments after the event of a

disaster and maintain proper records.

3.1.4.1.4.15. Ensure the availability of the necessary resources

and capacities for the implementation of DRM

responsibilities.

3.1.4.1.4.16. Ensure gender is adequately integrated and

mainstreamed in to DRM planning,

implementation, monitoring and evaluation

3.1.4.1.4.17. Establish, maintain, and manage sectoral

Disaster Response and Recovery Funds

(DRRFs) if deemed necessary.

3.1.4.1.4.18. Regularly assess and evaluate the effectiveness

of sectoral DRM strategies, plans, and programs.

3.1.4.1.4.19. Participate in FDRMCO technical committees

and other relevant sectoral DRM units and

provide technical assistance on request.

3.1.4.1.4.20. Undertake other DRM activities deemed to be

necessary and relevant to their sector.

3.1.4.2. Regional Disaster Risk Management Units (RDRMUs) (The

federal structures and responsibilities will be

replicated/adapted, with the inclusion of the participation

of municipalities and fire brigades.)

3.1.4.3. Zonala Disaster Risk Management Coordination Offices

(ZDRMCOs) The regional structures and responsibilities

mentioned above will be replicated/adapted

3.1.4.4. Woreda/Kebele/Farmer’s Kebele Administration Disaster

Risk Management Coordination Offices /WDRMCOs)

The zonal structures and responsibilities mentioned above

will be replicated/adapted

3.2. Operational Modalities under Each Core DRM Components

3.2.1. Pre-disaster Phase

3.2.1.1. Pre-disaster (prevention, mitigation and preparedness) activities

include:

3.2.1.1.1. Conducting routine hazard identification and vulnerability and risk

assessments in all sectors and at all levels of administration.

3.2.1.1.2. Ensuring that governmental institutions, private entities, and

charitable organizations at all levels develop, maintain, monitor,

and enforce appropriate and clear DRM operational guidelines

consistent with this Policy.

3.2.1.1.3. Developing and implementing appropriate risk reduction strategies,

programs, and plans.

3.2.1.1.4. Developing, maintaining, and testing through simulation DRM

contingency plans for all sectors at all levels.

3.2.1.1.5. Establishing, strengthening, and maintaining necessary and

appropriate preparedness capacities at different levels in all sectors.

3.2.1.2. Prevention activities include:

The following are the primary activities that will be undertaken to prevent

disasters:

3.2.1.2.1. Identifying and assessing areas and populations subject to recurrent

crises and prioritizing multi-year, multi-sectoral development

investments to address underlying, interlocking disaster

vulnerabilities.

3.2.1.2.2. Auditing every development strategy, plan, and program for any

and all potential increases in disaster risks related to such

endeavors.

3.2.1.2.3. Prioritizing preservation and regeneration of degraded and

threatened environmental bases for multi-year, multi-sectoral

development investments in order to minimize risks and

vulnerabilities arising from resource-based conflicts, and to

promote sustainable development.

3.2.1.2.4. Addressing the rapidly-developing urban environment (which

poses unique hazards and threats) through urban planning,

improvement and rigorous enforcement of building codes, and

infrastructure developments that are geared towards risk reduction.

3.2.1.2.5. Ensuring that where communities are resettled as part of disaster

risk management initiatives, crisis response strategies, or

development investments, that such communities will have access

to full resources to ensure their rights, health, livelihoods, and

security.

3.2.1.2.6. Raising the levels of disaster prevention through education and

public awareness will contribute to reducing the impacts of

disasters. This will entail the following activities:

3.2.1.2.6.1.

Mainstreaming of DRM into appropriate subjects at primary

and secondary schools and encouraging extra-curricular

DRM activities to create future generations with a culture of

resilience to disasters.

3.2.1.2.6.2.

Encouraging higher learning institutions and think tanks to

conduct DRM research, develop expertise, teaching

modules, and cultivate a sense of professionalism for

disaster risk management.

3.2.1.3. Mitigation activities include:

3.2.1.3.1. Establishing social safety-net mechanisms to assist at risk

populations (women, children, the poor, the elderly, displaced, and

people with disabilities) so that basic resilience against risk is

protected and enhanced.

3.2.1.3.2. Promoting diversified income options through long-term

development initiatives for population in high-risk areas to reduce

their vulnerability to hazards.

3.2.1.3.3. Protecting proactively through development initiatives the nation’s

physical infrastructure and natural environment to mitigate disaster

risk.

3.2.1.3.4. Promoting the development of financial risk sharing mechanisms

(such as insurance and reinsurance) to protect at risk communities

and public and private institutions,

3.2.1.3.5. Improving the capacities of DRMUs staff in basic DRM concepts

and applications, including first aid.

3.2.1.3.6. Establishing/encouraging the Ethiopian Red Cross Community, the

school scouts movement and similar volunteers to develop the

skills of youth in basic first aid and community service in times of

disaster.

3.2.1.3.7. Mitigation measures for large scale disasters and mass causality

incidents:

3.2.1.3.7.1. Crisis management and response centers shall be

established, financed, equipped, and maintained by

DRMCOs.

3.2.1.3.7.2. Simulations of the management of mass casualty incidents

shall be undertaken annually in large cities and major

transport hubs.

3.2.1.3.7.3. The Ethiopian Defense Forces and the police shall develop

capacities for search and rescue in times of earthquake,

bombings, floods, and similar crises.

3.2.1.3.7.4. The government shall develop standing agreements for

mutual cooperation with other countries.

3.2.1.3.7.5. The government shall develop regulations governing the

temporary commandeering of private sector assets and

procedures for compensation in times of disaster.

3.2.1.4. Preparedness activities:

3.2.1.4.1. Preparedness measures to be in place before disasters threaten shall

include, among others, strategic contingency reserves (physical and

financial), early warning systems, reliable information

communication networks, contingency plans, human resource

development, simulations, and institutions, guidelines, standards

for response initiatives.

3.2.1.4.2. The following are primary activities to be carried out in support of

local, regional, and national disaster risk preparedness.

3.2.1.4.2.1. Early Warning Systems

3.2.1.4.2.1.1. There shall be regional and national level multi-hazard

and multi-sectoral early warning systems linked to

hazard profiles.

3.2.1.4.2.1.2. DRMUs shall develop and maintain early warning

systems that monitor hazards with the potential to

impact their sectoral areas, guide sectoral risk

management responses, and feed into national multi-

hazard, multi-sectoral early warning systems.

3.2.1.4.2.1.3. Early warning systems will establish trigger indicators

linked to agreed preparedness measures, including

contingency plans that are linked to specific

vulnerabilities of affected communities, sectors,

institutions, and livelihood systems.

3.2.1.4.2.1.4. DRMUs will estimate the current and forecast future

magnitude of disasters and provide this information

across their line departments as well as to DRMCOs.

3.2.1.4.2.1.5. The DRMCOs must review and conduct comprehensive

analysis on information provided by each sector’s early

warning systems.

3.2.1.4.2.2. Identification, monitoring and forecasting of hazards

and risks

3.2.1.4.2.2.1. Each line department shall establish a capacity for

hazard and risk monitoring and forecasting as it

pertains to its sectoral focus at the federal, regional and

woreda levels.

3.2.1.4.2.2.2. DRMCOs shall coordinate and synthesize hazards and

risks profiles and forecasts of emerging trends

conducted by DRMUs, focal bodies and specialized

agencies.

3.2.1.4.2.2.3. DRMUs and DRMCOs shall be active participants in

international fora and initiatives regarding regional and

global hazard and risk assessment, mapping and

forecasting.

3.2.1.4.2.2.4. To prioritize resources to impartially identified at risk

areas and populations and to ensure that analysis is free

from political influence, individuals engaged in

assessment, mapping and forecasting shall have

separate lines of accountability from individuals

responsible for disaster response functions.

3.2.1.4.2.2.5. An updated national disaster risk forecast, including

details of the hazard and risk profile by region,

livelihood system, and international trans-boundary

shall be issued annually by the FDRMCO.

3.2.1.4.2.2.6. Civil society will be encouraged to undertake hazard

and risk identification and forecasting, with the outputs

by these efforts taken under consideration by

government in its own process of assessments, mapping

and forecasts.

3.2.1.4.2.2.7. Civil society and government shall work together to

ensure that accurate, complete and permanent records

of the history of risks, hazards and responses are

maintained and are accessible for planners and analysts.

3.2.1.4.2.2.8. Other risks of sensitive nature with humanitarian

consequences should be appropriately monitored by

relevant government institutions according to the same

principles as spelled out in this Policy.

3.2.1.4.2.3. Contingency Planning Processes

3.2.1.4.2.3.1. DRMUs will be responsible for the development of

contingency plans with respect to their sectors.

3.2.1.4.2.3.2. DRMUs will maintain historical records of past crises

and contingency plans that must be consulted when

developing new contingency plans.

3.2.1.4.2.3.3. For threats affecting multiple administrative boundaries

and/or sectors, the DRMCO at national and regional

levels shall be responsible for developing holistic

contingency plans based on DRMU plans.

3.2.1.4.2.3.4. There shall be an independent evaluation of each

contingency plan in the post-crisis period to refine

future contingency measures.

3.2.1.4.2.3.5. DRMUs and DRMCOs will exercise periodic disaster

simulations specific to their sectors.

3.2.1.4.2.3.6. Contingency planning and simulations shall take into

account the potential impacts and roles of the private

sector and community based organizations.

3.2.1.4.2.4. Contingency Resource Mechanisms

3.2.1.4.2.4.1. In hazard-prone areas, communities shall be

encouraged to develop and maintain a minimum level

of resources to manage predictable disasters through

their own capacity and resources, government support,

and development initiatives.

3.2.1.4.2.4.2. Each DRMU shall establish/strengthen and maintain a

minimum emergency contingency reserve of financial

resources and/or physical stocks (e.g., cash, food, non-

food reserves).

3.2.1.4.2.4.3. DRMCOs shall establish/strengthen and maintain

centralized Disaster Response and Recovery Funds

(DRRFs) to augment DRMU units once the DRMU

contingency reserves have been exhausted.

3.2.1.4.2.4.4. DRMUs and focal bodies will ensure the inclusion of

budgeted and financed contingency reserves in sectoral

development projects that can be rapidly reprogrammed

in the event of disasters that threaten to affect project

areas or project progress.

3.2.2. Disaster Phase activities:

3.2.2.1.

DRMUs shall be responsible for organizing unilateral or joint disaster

and emergency need assessments. Assistance should normally be

provided on the basis of such assessments except when human life

will perish for want of assistance.

3.2.2.2. DRMUs shall initiate rapid disaster area assessments, make

preliminary estimates of affected populations, losses of lives and

property, identify priority needs, and review contingency emergency

plans as per prevailing conditions.

3.2.2.3. DRMUs shall ensure the rapid supply of relief materials to affected

areas.

3.2.2.4.

DRMUs shall activate ETFs and emergency operations and coordinate

their activities with others, involving humanitarian actors in

emergency responses if necessary.

3.2.2.5. In case of MCI, the relevant DRMU shall:

3.2.2.5.1. Establish crisis management and response centers.

3.2.2.5.2. Immediately launch search and rescue operations and mobilize the

necessary search and rescue equipment and other relief resources as

required.

3.2.2.6.

DRMUs shall closely and continuously follow up and monitor the

progress of emergency response operations, identify problems and

additional needs, and take appropriate actions.

3.2.2.7. DRMUs shall provide adequate and timely information and

comprehensive progress reports to the DRMCOs.

3.2.2.8.

DRMUs shall insure rapid information flows from affected areas,

maintain regular contact with relevant actors in the affected areas, and

provide timely and adequate information to the public about the

impacts of disasters and emergency operations.

3.2.2.9.

DRMCOs and DRMUs must permanently maintain and make publicly

available current records of all emergency activities within their

sector.

3.2.2.10. DRMCOs shall provide the necessary and timely support to DRMUs

as necessary.

3.2.2.11. In case of MCI, national level disaster and hazards that do not fall

under any one of lead agencies, the DRMCOs shall act according the

directives indicated above.

3.2.2.12.

If NGOs and other humanitarian partners are directly involved in

emergency operation, they shall be required to provide complete

details of their activities, materials, and financial reports on a regular

basis to the relevant sector in which they are working.

3.2.3. Post disaster phase activities:

3.2.3.1.

DRMUs shall develop a strategy and comprehensive plan for early

recovery and rehabilitation following the declaration of disaster in

their areas of responsibility and implement the plan accordingly.

3.2.3.2.

The private sector shall be encouraged, through tax breaks and other

incentives, to participate in post-crisis recovery planning and

implementation.

3.2.3.3.

3.2.3.4.

Disaster-affected and disaster-prone areas and populations shall

benefit as a matter of highest priority from development investments

in the post-crisis period.

DRMUs shall conduct post-crisis evaluations and damage assessments

each time a disaster is declared. The evaluations must review

preparedness, prevention, mitigation, and response strategies in each

affected area. The evaluations must be stored in physical and

electronic format within relevant DRMCOs/Us and be made publicly

available. Recommendations must be formally reviewed by

DRMCOs/Us to improve standards, procedures, strategies, and

guidelines.

3.3. Decentralized DRM and Disaster Declarations

3.3.1. National level disaster declarations shall be made only by the

FDRMC. However, this responsibility can be delegated to the

FDRMCO.

3.3.2. Regional, zonal and woreda levels disaster declarations shall be made

only by a RDRMC. However this responsibility can be delegated to the

RDRMCO.

3.3.3. Each level of administration shall coordinate and utilize all available

resources within their administrative units to manage disaster risks

before seeking additional assistance from the next highest level of

authority or neighboring entity.

3.3.4. If the local administration is unable to manage and coordinate the

disaster with its capacity accordingly, higher levels of administration

shall intervene and provide assistance.

3.3.5. It is not necessary to declare a local disaster if local administrations are

able to manage the crisis without undue adverse impact.

3.3.6. If a local or regional governmental institution(s) determines that a

disaster will exceed existing capacities, that institution(s) shall request

the regional DRMCO to issue a timely disaster declaration. The

RDRMCO will review the request and issue declaration on behalf of the

RDRMC, if deemed appropriate.

3.3.7. If a sectoral FDRMU or regional DRMC/DRMCO determines that a

disaster will exceed existing capacities, that sector or regional

DRMC/DRMCO shall request the FDRMCO to issue a timely disaster

declaration. The FDRMCO will review the request and issue declaration

on behalf of the FDRMC, if deemed appropriate.

3.3.8. Where crises exceed the capacity of a single region, a national disaster

declaration shall be issued.

3.3.9. Disaster declarations shall be issued based on objective situation

analysis and technically-sound early warning systems.

3.3.10. For disasters that arise without warning, responsible authority at

federal and regional levels may declare a disaster in the absence of early

warning reports or situation analysis.

3.3.11. Unlike the declaration of a state of emergency, the declaration of

disaster does not avail government the right to derogate from citizens

their full rights as specified in the Ethiopian constitution and other legal

instruments. However, private property rights may be overridden in the

best interest of at risk communities provided that rights holders are

offered adequate compensation.

3.3.12. Disaster declarations immediately empower DRMCOs in the affected

area(s) to coordinate government efforts to:

3.3.12.1. Mobilize local, regional, federal, and international resources.

3.3.12.2. Re-program humanitarian, development, and private sector

resources to alleviate life-threatening situations.

3.3.12.3. Reschedule personal debts.

3.3.12.4. Suspend certain tax and public labor requirements not to

exceed the expected duration of the crisis impact.

3.3.13. A disaster declaration entails the following duties, privileges and

obligations:

3.3.13.1. Implementation of contingency plans.

3.3.13.2. Development of post-crisis recovery plans and utilization of

contingency reserves against contingency plans, emergency

responses, and post-crisis recovery plans.

3.3.13.3. Empowerment of FDRMCO in consultation with the relevant

DRMUs to appeal for additional assistance beyond government

resources (provided that they can demonstrate that contingency

reserves will be exhausted by the crisis).

3.3.13.4. Upon the advice of FDRMCO, the Ministry of Inland

Revenue will allow for the duty and tax-free importation of

specific emergency supplies. The FDRMCO will ensure that such

imports are used only for humanitarian operations.

3.3.13.5. The official declaring a state of disaster shall organize,

finance, and disseminate an evaluation of the crisis response

within six months of the end of the declared period or one year

after the disaster declaration, whichever is sooner.

3.4. DRM Mainstreaming

3.4.1. All DRMUs and focal bodies will integrate DRM into existing and

future local, regional, and national development strategies, policies,

plans and programs for sustainable development, as well as the policies

and practices of the private sector.

3.4.2. All DRMUs and focal bodies will promote DRM strategies and

coordinate their implementation at different levels and between

government agencies, private sector, communities, UN agencies, NGOs,

and donor governments in their areas of responsibility.

3.4.3. Each DRMU and focal body shall develop its own specific sectoral

DRM standards and guidelines in support of this Policy.

3.4.4. DRM education shall be integrated into formal and informal systems

of education at all levels and shall be promoted through community

awareness.

3.4.5. All development schemes in vulnerable areas shall include DRM

measures.

3.5. Multi-Hazard DRM

3.5.1. Each DRMU and focal body will identify the range of hazards that

may relate to its area of responsibility and develop and implement DRM

strategies to address these hazards.

3.5.2. DRMCOs shall develop regional and national hazard profiles based on

profiles provided by DRMUs.

3.5.3. DRMUs will collaborate with each other to ensure cross-sectoral

cooperation for addressing the range of risks arising from multiple,

interrelated hazards.

3.5.4. Funding Arrangements

3.5.4.1. Financing of Disaster Prevention, Mitigation, Preparedness and

Rehabilitation

3.5.4.1.1. Federal and regional governments shall allocate budget for disaster risk

management initiatives (prevention, mitigation, preparedness, and

rehabilitation) through regular development programs.

3.5.4.1.2. All DRMUs and relevant focal bodies shall include prevention,

mitigation, preparedness, and rehabilitation requirements in their

annual sectoral DRM plans and budgets.

3.5.4.1.3. All DRMUs shall ensure that sufficient DRM funds are secured.

3.5.4.1.4. DRMCOs and DRMUs shall encourage communities to establish local

self-help or community support mechanisms and build and maintain

DRM funds for use in times of disasters.

3.5.4.1.5. DRMCOs and DRMUs will provide technical support to communities

to design fund mobilization mechanisms for emergency response (e.g.,

taxes and surtaxes, voluntary contributions from the public and the

Diaspora, encouraging investors to contribute through tax exemptions,

etc.)

3.5.4.1.6. DRMCOs and DRMUs shall establish National and Regional DRRFs

and the sectoral contingency reserves from a wide range of sources

(e.g., by contributions from federal and regional government budgets,

the private sector, the public, the Diaspora, and international

contributions).

3.5.4.1.7. The DRRFs shall be managed by the FDRMCO and the RDRMCO,

with the oversight of the FDRMC and RDRMCs.

3.5.4.1.8. DRMCs shall guarantee that operational costs for DRMCOs are

included and financed in national and regional annual budgets, and that

DRRFs are replenished in a timely fashion.

3.5.4.2. Financing of Disaster Response and Recovery

3.5.4.2.1. The woreda DRMC is the first government institution to respond to

disasters at local levels. The council will mobilize relief assistance if

the affected kebele in the woreda and communities are unable to cope

up the disaster.

3.5.4.2.2. The primary source of funding for disaster responses shall be from

communities and local administrations in affected areas. The secondary

source will be the next highest level of administration above the

affected areas.

3.5.4.2.3. Federal and Regional DRRFs will be established by federal and

regional DRMCOs to provide resources in times of disasters to

augment sectoral DRM contingency reserves.

3.5.4.2.4. The DRRFs shall be used only for emergency relief and recovery

measures during disaster and post-disaster periods.

3.5.4.2.5. Federal and regional governments should be approached for funding

only when capacity and resources at local levels are overwhelmed by

crises.

3.5.4.2.6. When a crisis threatens to overwhelm available resources, a special

local fund raising event may be organized by federal and regional

sectoral offices in collaboration with the respective DRMCOs.

3.5.4.2.7. When the disaster threatens to overwhelm national capacity, appeal for

external assistance will be issued by FDRMCO upon the guidance of

the FDRMC.

3.5.4.2.8. The FDRMCO in collaboration with the appropriate institution shall

set quality control and minimum standards of imported relief resources

and ensue the quality of imported resources maintain this standards.

3.5.4.2.9. DRMCOs will establish guidelines for the procedures for accessing

contingency funds. Such guidelines shall not contravene the structures

and procedures detailed in this Policy.

3.6. Information Management and Communication System

3.6.1. DRMOs and DRMUs shall develop/strengthen and manage integrated

central DRM information management systems and networks that will

serve all DRM components at all levels.

3.6.2. Each DRMUs/focal bodies at all levels shall supply sectoral DRM

information to respective DRMCOs on a regular basis. Similarly,

DRMCOs at different levels shall supply consolidated periodic DRM

information to the next higher level of DRMCOs.

3.6.3. DRMCOs shall ensure the consistency of DRM information/ reports.

3.6.4. DRMCOs shall ensure that all DRM coordination bodies have clear

lines of communication across vertical and horizontal linkages.

3.6.5. DRMCOs will establish a secure and separate communication network

for emergency communication for all disaster managers. This network

shall remain operable even when public network are unavailable.

3.6.6. Each DRMU and DRMCO will develop, maintain, and make

accessible integrated databases of hazards, disasters, and DRM

programs. The database shall include, at a minimum:

3.6.6.1. Hazard types, frequency and intensity (area and population

affected).

3.6.6.2. Disaster types, frequency, intensity and impacts.

3.6.6.3. Disaster risk management interventions by type, cost,

implementing agency, and population affected.

3.6.6.4. Vulnerability by area, population, and livelihood system.

3.6.6.5. Livelihood baseline information that is updated, at a

minimum, every five years.

3.6.7. DRMUs and DRMCOs shall have adequate analytical capacity for

data management, manipulation, analysis, presentation, and

dissemination.

3.6.8. A disaster risk/hazard and vulnerability map shall be produced and

updated by each DRMCO, at a minimum, every five years.

3.6.9. DRMCOs in collaboration with Finance and Economic Development

Offices and other relevant institutions shall estimate the economic and

social impacts of disasters.

3.6.10. All studies and evaluations of any aspect of DRM program shall be

properly documented and maintained by the respective DRMU or

DRMCO for a period of no less than ten years.

3.6.11. External agencies shall provide full cost information on the expenses

relating to disaster responses on a quarterly basis to the DRMU for the

sectors in which they work, and provide comprehensive annual report to

the DRMCOs at the regional and federal levels where they are

operational.

3.6.12. With the exception of information deemed sensitive to national

security, databases shall be made available to the public.

3.7. Consolidated DRM Plans

3.7.1. The major objective of DRM planning is to minimize the adverse

effect of hazards through proactive development and implementation of

comprehensive, integrated, and multi-sectoral DRM interventions.

3.7.2. Each DRMU has the responsibility of developing DRM plans within

their sector (taking into account the different hazards that affect the

sector) and submitting them to their respective DRMCOs.

3.7.3. The plans shall include among other components analysis of hazards,

vulnerabilities, resources and other capacities, details of how

responsibilities, accountabilities, and resources are to be allocated to

specific institutions or individuals, and strategies for risk reduction.

3.7.4. Each DRMU shall ensure that the planning process involves all

relevant bodies, including communities.

3.7.5. All DRMCOs shall compile consolidated DRM plans at their levels.

3.8. The Role of Civil Society and Humanitarian Partners

3.8.1. Civil society and humanitarian partners will:

3.8.1.1. Work in close harmony with relevant DRMCOs and DRMUs

and take direction from them in areas of their specific sectoral

involvement.

3.8.1.2. Participate in different forums and technical committees

dealing with specific hazard types.

3.8.1.3. Provide technical, financial, and material support for DRM

capacity development in addition to responding to humanitarian

crisis.

3.8.1.4. Assist in development of technical skill, knowledge

management, and sharing of best practices for DRM.

3.8.2. NGOs and other humanitarian partners directly involved in emergency

operation shall submit complete details of their plans, implementation

performance, and financial and material utilization on a quarterly basis to

the relevant authorities in the sector in which they are working.

3.8.3. Organized community organizations can mobilize the community to

participate in recovery and rescue operation, early stages of emergency

response operations, and recovery and rehabilitation programs in special

circumstance.

3.8.4. Universities, think tanks, and international partners shall promote

research on DRM.

3.9. Cross-Cutting Issues

3.9.1. In times of disaster, the vulnerabilities associated with HIV/AIDS shall

be given special attention.

3.9.2. Disasters may exacerbate social vulnerabilities such as those relating

to gender, age, occupation, location, nationality, or other potential

sources of discrimination. In times of disaster, socially vulnerable groups

shall be given special attention. This includes at a minimum in disaster

affected areas:

3.9.2.1. Protecting the rights of vulnerable groups in all DRM

activities.

3.9.2.2. Ensuring that DRM guidelines, codes, standards, strategies,

legislation, and implementation plans and programs reduce social

vulnerabilities.

3.9.2.3. Collecting and analyzing disaggregated information on DRM

issues by sex and age and other indicators of potential social

vulnerability.

3.9.2.4. Ensuring full participation of vulnerable groups including

women, elderly, and disabled in decision making at all stages of

DRM.

3.9.2.5. In time of emergencies targeting of relief supplies shall be

gender sensitive and give due attention and priority to other

socially vulnerable groups.

3.9.2.6. Providing counseling support to vulnerable groups to enhance

their capacity to manage disaster risks such as reducing the

workload of women and or expanding their income generating

opportunities or protecting enrollment of children in schools.

3.9.3. Disasters may increase gender and age inequalities while exposing

women, men, girls, and boys to unique risks as a result of their age and

sex, such as changing labor roles and increased risk taking in economic

and social coping strategies.

3.9.4. DRMUs are responsible for ensuring that a primary aim of DRM is to

reduce risks faced by socially vulnerable groups.

3.9.5. There shall be equal pay for equal work in all DRM related

institutions. Discrimination in hiring or other benefits based on gender,

disability or age is to be expressly prohibited.

3.9.6. Natural resource degradation and population pressure are major

sources of disaster risks. Therefore, DRM programs shall attach special

importance to environment and population issues. More specifically,

comprehensive DRM plan shall:

3.9.6.1. Address the consequences of rapid population growth and the

nation’s large population base.

3.9.6.2. Give due emphasis to the improvement and protection of the

natural resource base.

3.9.6.3. Have in-built environmental risk reduction and protection

components.

3.9.7. Ensure that all DRM activities are environmentally friendly.

3.10. Regional Administration and International Cooperation

3.10.1. Regional DRMCOs shall develop procedures for mutual disaster risk

management and mutual cooperation with neighboring regions. This will

be facilitated by FDRMCO

3.10.2. DRM is a shared responsibility that shall be fostered through

partnership with neighboring countries. The FDRMCO (in collaboration

with the Ministry of Foreign Affairs) will:

3.10.2.1. Establish and maintain links with IGAD, IGAD member

countries, AU and AU member counties and other international

bodies for DRM activities.

3.10.2.2. Share early warning information on all cross-border hazards.

3.10.2.3. Encourage simulations of mutual cooperation exercises with

neighboring countries for key disaster hazards.

3.10.2.4. Strengthen cooperation and collaboration with other

international DRM institutions with similar aims and purposes.

3.10.2.5. Develop and establish partnerships with international

institutions for DRM functions, including active participation in

international protocols, treaties, and agreements for global DRM

activities.

3.11.

Monitoring and Evaluation

3.11.1. DRMCOs and DRMUs shall review and evaluate their progress in the

implementation of DRM plans and incorporate lessons learned.

3.11.2. DRMCOs and DRMUs shall regularly monitor the implementation of

this Policy.

3.11.3. Federal and Regional DRMCOs will initiate and lead reviews and

evaluations of the performance of DRM policy implementation and

provide feedback to the respective DRMCs.

3.11.4. DRMCOs shall organize an annual DRM summit to review the status

of DRM implementation at federal and regional levels, respectively.

3.11.5. Monitoring and evaluation activities shall ensure that DRM system at all levels

address gender and other crosscutting issues adequately and timely.

3.11.6. Policy Enforcement and Implementation Guidelines

3.11.6.1. Legislation shall be issued and enacted for enforcing the implementation

of the policy in support of the provisions detailed in this Policy.

3.11.6.2. DRM legislation shall ensure that the rights of citizens as enshrined in the

Ethiopian Constitution be protected in times of disaster.

3.11.6.3.

The legislation shall specify the duty and responsibilities of all DRM

actors. Relevant institutions and individuals will be accountable for the

failure of discharging their duties and responsibilities indicated in this

Policy. The legislation shall specify the implications, including penal

measures.

3.11.6.4. Federal and regional DRMU shall incorporate DRM duties and

responsibilities in their formal mandates and proclamations.

3.11.6.5. The DRMUs at federal and regional levels will develop sector specific

rules and regulations, detailed standards, implementation procedures and

technical guidelines/directives for effective implementation of this Policy.

3.11.6.6. The DRMUs at federal and regional levels will define duties and

responsibilities of all actors and ensure the availability of adequate

resources for sectoral DRM.

3.11.6.7. The DRMCOs and DRMUs at federal and regional levels will take

corrective measures in case of failures of DRM actors to fulfill their

responsibilities.

3.11.6.8. Federal and Regional DRMCOs shall oversee the implementation of

DRM policies and legislation.

Annexes

Annex 1:- Definitions of Key Terminologies as Applied in this Policy

1. At risk: the condition of being more likely to be exposed to conditions or

circumstances which would reasonably result in disaster.

2. Basic needs: relief items and other essential assistances to be supplied to disaster

victims to sustain lives and livelihoods.

3. Capacity: a combination of all the strengths and resources (human, material, and

financial) available within a community, society, or organization for effective

disaster risk management.

4. Civil society: encompasses both the wide range of organizations outside of the

government and the family. These include social, cultural, and religious bodies,

voluntary organizations and others such as professional associations, think thanks

or foundations, etc.

5. Community: a group of people with a commonality of association, having

common interest, shared experience, or function and living in the same locality

and under the same public administration.

6. Contingency planning: a process in which scenarios and objectives are agreed,

managerial and technical actions are defined, and potential response systems are

put in place in anticipation of potential crises to mitigate or better respond to a

likely emergency situation.

7. A disaster: the occurrence of an abnormal event triggered by a hazard(s) that

impacts a given entity (including a vulnerable community, geographical area,

infrastructure or a group of people in significant numbers gathered in one place)

causing substantial damage and/or casualties, leaving the affected entity unable to

function normally and forcing it to seek outside assistance for survival.

8. Disaster declaration: the official announcement of the occurrence of a disaster by

the responsible authority if the concerned body in the affected area determines

that scale/impact of the disaster is beyond its capacity to cope with effectively,

thereby requiring the support of others.

9. Disaster phase:

is time when an emergency event strikes. DRM activities

implemented during this period include warning/evacuation, saving of people,

provision of immediate assistance and assess sing damages.

10. Disaster risk reduction (DRR): the broad development and application of

policies, strategies, and practices to minimize vulnerabilities throughout

communities via prevention, mitigation, and preparedness. DRR action may

include the construction of physical structures (such as flood protection dykes,

retaining walls for landslides), environmental protection and rehabilitation,

rainwater harvesting, relocation of vulnerable households, provision of safer

means of livelihoods, and other proactive social protection measures.

11. Disaster Risk Management (DRM): collective actions and efforts of concerned

institutions, policies, programs, and other measures designed to prevent, mitigate,

prepare for, and respond to a disaster and to provide recovery and rehabilitation

support.

12. Disaster Risk Management System: a system of organizational structures,

mechanisms and process, strategies, policies, procedures, programs, and other

measures designed to prevent, mitigate, prepare for, and respond to a disaster and

to provide recovery and rehabilitation support.

13. Displacement: the process of people being forced to move from their homes to

other places because of a natural hazard, war/conflict, or other human-made

action.

14. Emergency response: the provision of essential goods and services to a disaster

affected population to save lives and protect livelihoods in times of disaster.

15. Entity: something that exists as a particular and discrete unit and is affected by a

disaster event.

16. Federal: the first and highest tier of Government in the administrative structure of

the Federal Democratic Republic of Ethiopia.

17. Gender: is part of the broad socio-cultural context that is socially constructed

roles of and relations between men and women that are learned through

socialization process. It refers to historically, socially, and culturally constructed

differences between the sexes.

18. Hazard: a potentially damaging physical event, phenomenon, and/or human

activity that may cause the loss of life or injury, property damage, social and

economic disruption, or environmental degradation.

19. Kebele/Farmer’s Kebele Association:

the lowest administrative unit with

its own jurisdiction in urban and settled rural areas, respectively. It is an

organized body of the inhabitants of a given urban or rural locality.

20. Lead agency: the organization that has the responsibility, accountability, and

specialist expertise to lead DRM activities for specific hazards or emergency

situations.

21. Local disaster: a disaster that affects a single woreda or community within a

woreda and the administration of the woreda concerned, either alone or with the

assistance of others in the area is able to deal with it effectively.

22. Line department: a relevant government institution that has full responsibility in

a specific sector at all levels.

23. Mainstreaming: integrating and institutionalizing disaster risk management in the

process of the development of policies and strategies, and in the planning and

implementation stages of regular programs across all sectors and at all levels.

24. Mass casualty incident (MCI): a major incident such as an earthquake, terrorist

attack, a severe flood, or any other incident which because of its physical size, the

number and criticality of victims, its complexity or its intensity is likely to

suddenly overwhelm existing capacities.

25. Mitigation: actions or processes designed to reduce the severity of potential

consequences or level of likely harm of a hazard. Mitigation measures can be both

physical/structural and nonstructural and can take place before, during, or after a

disaster. It can be achieved through proper planning and implementation of

programs before the disaster event, during or after a disaster.

26. Mutual cooperation: cooperation and voluntary provision of resources, services,

and facilities, particularly among neighboring countries, federal, regional, zonal

and woreda administrations, etc., to assist each other when existing resources

prove to be inadequate and there is a need for additional support.

27. National level disaster: a disaster is a national level disaster if it affects more

than one region or if a single region is unable to manage using regional resources

and capacities effectively at all levels, thereby requiring federal intervention.

28. Post disaster phase: is an event after the occurrence of disaster. DRM activities

during this period includes coordinated measures of support to affected

communities/areas to recover and rehabilitate from the effects of crisis and

construction/reconstruction to reduce vulnerability to hazards, to mitigate against

the risk of future hazards, and to restore social, economic and physical well-being

to proper levels of functioning.

29. Pre-disaster phase: is an event before the occurrence of disaster. DRM activities

implemented during this period include prevention, mitigation, and preparedness

activities in order to eliminate or reduce the root causes of disaster.

30. Preparedness: specific measures taken before disasters strike, usually to forecast

or warn against them, to take precautionary measure when they threaten, and to be

ready for the appropriate response. Preparedness includes actions and measures

being undertaken before the occurrence of a disaster to avert or minimize the

suffering of the affected entity. Preparedness entails the building of capabilities

before a hazard threatens to overwhelm coping capacities in order to reduce the

impacts of future disasters through maintaining contingency reserves and

strengthening early warning system.

31. Prevention: measures taken to reduce the risk of disasters posed by hazards,

primarily through eliminating the root causes that render individuals, households,

communities, and nations vulnerable to disasters. Taken before a disaster occurs,

prevention measures can better prevent disasters and ensure a hazard has no

disastrous impact

32. Protection: measures that address threats to or the vulnerabilities of someone or

something and preclude damage or injury that would cause disruption or

interference with normal practices.

33. Reconstruction: longer-term activities required to restore physical infrastructure

and services damaged by a disaster.

34. Recovery: actions taken after a disaster to restore the living conditions of

disaster-stricken people or communities while encouraging and facilitating

necessary adjustments to build resilience to prevent similar crises in future.

35. Region: the second tier of Government in the administrative structure of the

Federal Democratic Republic of Ethiopia.

36. Regional level disaster: a disaster is designated as regional if it affects more than

one zone in the same region and if the region concerned is able to deal with it

effectively, or if a single zone in the region is unable to deal with it effectively

using local resources and capacity within its reach, thereby requiring regional

intervention.

37. Rehabilitation: the measures applied after a disaster which are necessary to

restore normal activities and build resilience to future shocks in affected areas,

communities, and economic sectors.

38. Relief: activity undertaken in the immediate aftermath of a disaster to save lives,

protect livelihoods, and address immediate humanitarian needs, including the

provisional restoration of essential services.

39. Resiliency: the capacity to withstand an extreme natural event with a tolerable

level of losses, including mitigation actions consistent with achieving that level of

protection.

40. Risk: the probability of a specific hazard occurring in a given location and its

likely consequences for people and property.

41. Social vulnerability: those determinants of vulnerability that arise from non-

physical factors (e.g., identity, economic, political, cultural, etc.) and are related

to gender, age, occupation, location, etc.

42. Sustainable development: development that meets the needs of the present

without compromising the ability of future generations to meet their own needs. It

contains two key concepts: the concept of "needs", in particular the essential

needs of the world's poor, to which overriding priority should be given; and the

idea of limitations imposed by the state of technology and social organization on

the environment's ability to meet present and future needs.

43. Volunteer: individuals or a broad array of organizations, institutions, agencies,

collectives (including charities), cooperatives, religious groups, professional and

economic associations, social service providers, etc. who freely enlist or are

involved in services in disaster management without expectation of return or

profit.

44. Vulnerability: the potential to suffer harm or loss. Determinants of vulnerability

include physical, social, economic, political, cultural, and institutional factors.

45. Woreda: the fourth tier of Government in the administrative structure of the

Federal Democratic Republic of Ethiopia.

46. Zone: the third tier of Government in the administrative structure of the Federal

Democratic Republic of Ethiopia.

47. Zonal level disaster: a disaster is defined as a zonal level disaster if it affects

more than one woreda in the same zone and the zone concerned is able to deal

with it effectively, or if a single woreda in the zone is unable to deal with it

effectively using local resources within its reach, thereby requiring zonal

intervention.