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Wereda Disaster Risk Mitigation Adaptation Planning Guidelines (English)

DRMFSS

WEREDA

DISASTER RISK

MITIGATION/ADAPTATION

PLANNING GUIDELINES

26/06/2013

*These guidelines are a living document

PREFACE

Ethiopia is exposed to a wide range of hazards associated with the country’s diverse geo-climatic and socio-economic

conditions. Ethiopia is well aware of the impact that disasters can have on the development goals that we are

rigorously pursuing through our Growth Transformation Plan. At the same time, these disasters can be exacerbated by

climate change which is changing the frequency and intensity of natural events increasing the vulnerability of

populations to hazards and it is likely to become more unpredictable in the coming years. With this recognition the

Government of Ethiopia started a paradigm shift a few years ago, largely triggered by the Government policies and the

Hyogo Framework for Action, shifting the focus from reactive crises management to a more proactive multi-sectoral

and multi-hazard Disaster Risk Management System.

With a view to operationalizing the revised National Policy and Strategy on disaster Risk Management, the government

of Ethiopia is designing and implementing different programmes with the Development partners. Some of them,

focusing on strengthening the capacities and resources at local level because the Ethiopia DRM systems shall be

decentralized and community-based whereby communities play decisive roles in the planning, execution, monitoring

and evaluation of DRM projects and programs.

To make the DRM programme implementation in the country well-informed, a comprehensive information

management system is required. That is why we are undertaking a comprehensive risk assessment exercise under

which Disaster Risk Profiles are being prepared for each district and at sub-district levels in the country. This Wereda

Disaster Risk Profile are based on local level information and establish an extensive database on disaster risk elements

and historical trends that will help decision makers at all levels to be better informed about nature, magnitude, and key

factors that renders people, livelihoods, environment and infrastructure vulnerable to disasters.

Such a comprehensive risk analyses system provides all the basic information which then feeds into Disaster Risk

Reduction and Climate Change Adaptation plans at district and community level and also to prepare comprehensive

multi-sector Contingency Plans.

It is a governmental responsibility that local development plans are adapted to the trends happening in the wereda

either produced by the climate change, demographics or other factors or also prevented of the negative effects of

disasters. Disaster Risk Mitigation and Adaptation Planning identifies the development strategies and activities that will

have higher impact reducing the disaster risk and adapting the communities to the localized trends, based on the

information provided by the Wereda Disaster Risk Profile and other secondary sources.

This manual gives the guidelines for planners to create a disaster risk mitigation and adaptation plan that will be used

by every sector and for the most important hazards present in the specific location. The users of the manual can be

government officials, executive bodies and associated stakeholders, community based organizations, private sector,

NGOs, UN organizations and donors working at wereda and kebele level.

The plan obtained by these guidelines should be specially used during the design of any development programme or

planning in order to mainstream in each sector or project the adequate actions for risk mitigation and adaptation.

I encourage all stakeholders involved at wereda level to use these guidelines and to participate, but also, to contribute

in the risk mitigation and adaptation planning process.

ACKNOWLEDGEMENTS

These guidelines have been initially based on the pilot experiences carried out by ACCRA Ethiopia (Africa Climate

Change Resilience Alliance) and the Bahir Dar University in 4 weredas and they have been developed and improved by

the support of World Food Program and leadership by DRMFSS. Also, the guidelines have been additionally

complemented with inputs from different International and national guidelines.

During the design process it has been incorporated ideas and comments of many people, although it would be difficult

to list them all by name, we would like to thank everyone who contributed.

Special acknowledgement is due to Charlotte Stemmer (ACCRA Ethiopia Lead), who has been contributing all process

and Dr. Wakjira Abdisa, who has been coordinating the logistics for the entire pilot exercises of the Wereda DRR

process.

We also thank ato Mathewos Hunde (Director of EWRD, DRMFSS) and Ato Tadesse Bekele (Deputy Director of EWRD,

DRMFSS), who steered the whole process. We are particularly grateful to the members of the Wereda DRR Steering

committee, Ato Negussie Kefeni (Head of EW case team), who chaired the steering committee and the rest of the

members, W/ro Beletu Tefera, W/ro Altayech Yitbarek, W/ro Beletu Tefera, ato Tarekegn Aga, ato Tsegaye Kelklie and

W/ro Almaz Demese. We also thank the support team of ACCRA team (Charlotte Stemmers, Kirsty Wilson, Mahteme

Mikre and Medhin Fissha) and the Bahir Dar University who have contributed to the development of this methodology.

We wish to thank everyone who took part in the background consultations and who gave feedback during the process.

We are particularly grateful for the assistance given by the wereda officers of Wuchale (Oromia) and Ewa (Afar), as well

as the staff of the DPPC of Oromia, and DPPB of Afar, who have contributed to the process supporting the pilot

exercises carried out in Wuchale and Ewa during July and August of 2012.

Finally, we are especially grateful to Animesh Kumar (DRM adviser of DRMFSS, seconded by World Food Program), who

initiated and supervised this process. This process would have not been possible without his coordination and support.

The document was designed, written and coordinated by Borja Santos Porras under a consultancy contract with WFP

Ethiopia during 2012 and 2013, in support of the DRMFSS.

Correct citation:

DRMFSS (2013), Wereda Disaster Risk Mitigation/Adaptation Planning Guidelines, Ministry of Agriculture (Disaster risk

Management and Food Security Sector), Addis Abeba, Ethiopia

For extra copies of the guidelines or addition information, contact:

Ministry of Agriculture, Disaster Risk Management and Food Security Sector, Addis Abeba, Ethiopia. Telephone: =251-

115-509666 Fax: +251-115-514788 E-mail: zinetahmed190@gmail.com

TABLE OF CONTENTS

PREFACE ................................................................................................................................................................................ 2

ACKNOWLEDGEMENTS......................................................................................................................................................... 3

Acronyms .......................................................................................................................................................................... 6

1. INTRODUCTION................................................................................................................................................................. 7

1.1. Purpose and Scope .................................................................................................................................................... 7

1.2. How to use these guidelines...................................................................................................................................... 8

1.3. Training materials ...................................................................................................................................................... 9

1.4. Objectives .................................................................................................................................................................. 9

2. KEY CONCEPTS ................................................................................................................................................................ 10

2.1. Understanding the planning environment .............................................................................................................. 10

2.1.1. International policies ........................................................................................................................................ 10

2.1.2. National Policies................................................................................................................................................ 11

2.1.3. National Strategies/Programs........................................................................................................................... 12

2.1.4. Linkages with other plans ................................................................................................................................. 14

2.2. Risk Mitigation and Adaptation concepts................................................................................................................ 16

2.2.1. Key concepts ..................................................................................................................................................... 16

2.2.2. Risk Mitigation and Adaptation integration ..................................................................................................... 18

2.2.3. Similarities and Differences .............................................................................................................................. 19

2.2.4. Planning principles............................................................................................................................................ 19

2.3. BOTTOM-UP Planning .............................................................................................................................................. 21

3. DISASTER RISK MITIGATION/ADAPTATION PLANNING PROCESS ................................................................................... 22

3.1. Form a planning team.............................................................................................................................................. 24

3.2. Risk Analysis ............................................................................................................................................................. 27

3.2.1. Concept ............................................................................................................................................................. 27

3.2.2. Methodology..................................................................................................................................................... 27

3.3. Strategy Identification and Prioritization ................................................................................................................ 32

3.3.1. Concept ............................................................................................................................................................. 32

3.3.2. Methodology..................................................................................................................................................... 33

3.4. Action planning ........................................................................................................................................................ 34

3.4.1. Concept ............................................................................................................................................................. 34

3.4.2. Methodology..................................................................................................................................................... 34

3.5. Mainstreaming, Monitoring and Updating .............................................................................................................. 36

3.5.1. Concept ............................................................................................................................................................. 36

3.5.2. Methodology..................................................................................................................................................... 36

3.5.2.1. Writing the plan, approve and disseminate the plan .................................................................................... 36

3.5.2.2. Mainstreaming............................................................................................................................................... 36

3.5.2.3. Monitoring ..................................................................................................................................................... 38

3.5.2.4. Updating ........................................................................................................................................................ 38

ANNEXES ............................................................................................................................................................................. 39

I. Glossary................................................................................................................................................................... 39

II. References .............................................................................................................................................................. 43

II. a. General literature about Risk Mitigation and Adaptation .................................................................................. 43

III. Terms of reference for the Wereda Disaster Risk Reduction Planning workshop (Risk Mitigation/Adaptation

plan and Contingency plan) ............................................................................................................................................ 45

IV. Examples for Risk Mitigation/Adaptation strategies and activities.................................................................... 50

IV. a. For dry land areas (pastoralist and agro pastoralist)......................................................................................... 51

TEMPLATES ......................................................................................................................................................................... 52

Acronyms

The following terms are used across the document and its comprehension will allow to have a common understanding

ACCRA

Africa Climate Change Resilience Alliance

CAF

Cancun Adaptation Framework

COP

Conference of the Parties

Contingency Plan

CRGE

Climate resilient green economy

DRM

Disaster Risk Management

DRR

Disaster Risk Reduction

DRMFSS

Disaster Risk Management and Food Security Sector

EPA-CC

Ethiopian program of adaptation to climate change

EWS

Early Warning System

FSF

Fast Start Finance

GCF

Green Climate Fund

GoE

Government of Ethiopia

GTP

Growth and Transformation Plan

HIV/AIDS

Human immunodeficiency virus infection / acquired immunodeficiency syndrome

HFA

Hyogo Framework of Action

IPCC

Intergovernmental Panel on Climate Change

MoA

Ministry of Agriculture

NAPA

National Adaptation Program of Action

NGOs

Non-Governmental Organizations

NAMA

Nationally Appropriate Mitigation Action

NIMS

National Incident Management System

NMA

National Meteorological Association

PASDEP

Accelerated and Sustained Development to End Poverty

PCDP

Pastoral Community Development Project

PSNP

Productive Safety Net Program

RM&CCA

Risk Mitigation and Climate Change Adaptation

SPIF

Strategic Program Investment Framework

ToT

Training of Trainers

UN-ISDR

United Nations – International Strategy for Disaster Reduction

UNCED

United Nations Conference on Environment and Development

UNFCCC

United Nations Framework Convention on Climate Change

WDRP

Wereda Disaster Risk Profile

1. INTRODUCTION

1.1. Purpose and Scope

Ethiopia has registered steady and high economic growth in the last several years; however, being one of the most

disaster prone countries globally, the impact of disasters on rolling back the socio-economic gains cannot be

underestimated. Under such circumstances, an effective Disaster Risk Reduction planning becomes an important part

of the development planning in the country.

At the same time, these disasters can be exacerbated by climate change which is changing the frequency and intensity

of natural events increasing the vulnerability of populations to hazards and it is likely to become more unpredictable in

the coming years, with potentially major long-term challenges in future decades1.

Disaster Risk Reduction:

Ethiopia is likely to be one of the countries hardest hit by climate change. This

will impact all aspects of Ethiopia’s economy, potentially affecting the

Actions taken to reduce the risks of

disasters and the adverse impacts

of natural hazards, through

achievement of middle income and growth objectives, and with particularly

severe impacts for the agricultural, forestry, health, natural resources, water and

energy sectors.

systematic efforts to analyze and

manage the causes of disasters,

Disaster risk reduction and climate change are closely linked. Scientific evidence

including through avoidance of

hazards,

and

improved

preparedness for adverse events

shows that for disasters, climate change poses a double threat. Firstly, increases

are expected in the frequency and intensity of weather and climatic hazards, such

as floods, tropical cyclones, heat

UN/ISRD Definitions

waves and droughts. Secondly,

there are likely to be other

changes such as ecosystem

Climate Change:

degradation, reduced availability of water and food, and impacts on

livelihoods, which together will reduce the capacities of communities to

cope with natural hazards, especially in poor developing countries.

A change of climate which is

attributed directly or indirectly to

human activity that alters the

composition of the global

In this context, a key challenge and opportunity, therefore, lies in

building a bridge between current disaster risk reduction efforts, aimed

at reducing vulnerabilities to extreme events and efforts to promote

Climate Change Adaptation. This holistic concept is directly related with

atmosphere and which is in

addition to natural climate

variability observed over

comparable time periods.

building resilience at wereda level.

United Nations Framework Convention

on Climate Change (UNFCCC)

Under such circumstances, the government of Ethiopia inspired by the

Hyogo Framework of Action (HFA) and through Disaster Risk

Management and Food Security Sector (DRMFSS) has put in place

different programs which cover the different aspects of the Disaster Risk

Management. These programs are under the draft of the new DRM

National Policy which guides the shift from an emergency approach into

a development approach and establish that DRM should be

Climate change adaptation:

A change of the adjustment in

natural or human systems in

response to actual or expected

climatic stimuli or their effects,

which moderates harm or exploits

beneficial opportunities

1 Disaster Risk Management Strategic Program and Investment Framework

IPCC Climate Change Adaptation

Definition

decentralized and community based with a participatory approach. Also, Ethiopia’s ambition is to build a climate

resilient green economy (CRGE) that will protect Ethiopia against the negative impacts of climate variability, extreme

climate events, and long-term trends from climate change, ensuring the well-being of the people and the economic

growth and prospects of the country. These guidelines will contribute to these objectives developing a risk mitigation

and climate change adaptation at wereda level.

The first step has been to build a Wereda Disaster Risk Profile (WDRP) which establishes an extensive database at

community/kebele level and provide all necessary information on disaster risk elements. This information system

forms the basis for designing Disaster Risk Management strategies. Once the weredas and communities have

established their profiles and know the disaster risk elements the next step is to build the programs which forms the

full cycle of DRM (consisting of prevention, mitigation, preparedness, response, recovery and rehabilitation). Hence,

the Wereda Risk Mitigation/Adaptation Planning process will follow the principles to build resilience, where the

government will work with development and humanitarian partners to achieve synergetic results starting with

common analyses, the Wereda disaster Risk Profile

The planning process explained in these guidelines

focuses on the pre-disaster phase (see contiguous

figure) and it will cover specifically the mitigation and

prevention part. So, they will help planners at any

governmental level to improve the Risk Mitigation and

Adaptation Planning which covers any hazard and

sector at local level. The emphasis will not be to employ

new programmes and funds but to use the existing

budgetary mechanisms to have a more informed

development process in a Wereda. The Risk

Mitigation/Adaptation process works as an informed

‘Wereda Development Plan’ and all sectors and stakeholders are involved in the planning and implementation.

Disaster Management is a multi-sectorial responsibility and a coordinated effort by various institutions rather than

one agency responsibility, that’s why most of the sectorial institutions at wereda level will be included in the Disaster

Risk Reduction (DRR) Planning process.

1.2. How to use these guidelines

These guidelines are designed to help trainers and wereda staff involved in disaster risk mitigation/adaptation issues at

local level (wereda & community level) to tackle development plans analyzing the disaster risk including the Disaster

risk reduction approach. It also provides information and instructions on the fundamentals of Disaster Risk

Prevention/Mitigation, the climate change adaptation and their application.

Chapter 2 provides information about the DRR planning environment in Ethiopia and its principles and objectives. It will

help to contextualize the background and to understand the fundamentals of the process.

Chapter 3 explains the planning process and steps to build a Disaster Risk Mitigation/Adaptation Plan and describes the

Content Guide.

A detailed template is annexed with the formats required in order to standardize the information.

This process must be integrated in the development planning. This methodology will provide mechanisms that can be

used to mainstream this approach in the wereda development planning process.

1.3. Training materials

These guidelines will help readers to understand the process to build a disaster risk mitigation/adaptation plan but in

addition to these guidelines, presentations and others training materials have been prepared.

The training process will be cascaded from the federal level to the wereda and kebele level.

The Federal government will provide initial support though trainings, manual development and facilitation of resource

mobilization for doing the trainings.

In order to improve and to complement the results of the Risk Mitigation and Adaptation Planning, the process at

wereda level will include Contingency Planning. Hence, the planning process will cover main aspects of Disaster risk

reduction and it will help weredas to understand the process, the concepts and the similarities and differences.

According with the training material that has been prepared, the process is designed to cover 6 days, where

representatives from the Wereda sectorial offices, from the communities and wereda stakeholders will participate

actively in the planning process producing finally a Wereda Risk Mitigation and adaptation plan and a Contingency Plan.

1.4. Objectives

The main objective is to provide the wereda with the planning tool to enable them to develop a risk mitigation and

adaptation plan.

The specific objectives to achieve this aim are:

1. To introduce key concepts and planning process of Risk Mitigation and Adaptation planning

2. To collect the most important information of the Wereda Disaster Risk Profile and to analyze the hazards,

trends, vulnerabilities and capacities of the kebeles/wereda focusing on the information which help to

formulate disaster risk reduction interventions for the communities.

3. To build an action plan with strategies and activities which mitigate and prevent the disaster risk

4. To mainstream and follow up the Risk Mitigation/Adaptation strategies in the wereda sectorial development

plans

2. KEY CONCEPTS

2.1. Understanding the planning environment

2.1.1. International policies

Disaster Risk Reduction (DRR)

The Government of Ethiopia is highly committed to

the international Risk Reduction initiatives. Ethiopia

is one of the countries who pledged to implement

the Hyogo Framework for Action (HFA) which serves

as the primary international framework on DRR. It

was agreed in 2005 and its intended outcome for the

decade is “the substantial reduction of losses, in lives

and in the social, economic and environmental assets

of communities and countries”. It specifically

identifies the need to “promote the integration of

risk reduction associated with existing climate

variability and future climate change into strategies

for the reduction of disaster risk and adaptation to

climate change...”

Priority Action 4:

Reduce the underlying risk factors.

Disaster risks related to changing social,

economic, environmental conditions and land

use, and the impact of hazards associated

with geological events, weather, water,

climate variability and climate change are

addressed in sector development planning

and programmes as well as in post-disaster

situations.

Hyogo Framework for Action

The HFA offers five areas of priorities for action, guiding principles and practical means for achieving disaster

resilience for vulnerable communities in the context of sustainable development. The mitigation/adaptation

process seeks to achieve HFA Priority Areas 2 (Know the risks and take action) and 4 (Reduce the underlying

risk factors).

Climate Change Adaptation

The United Nations Framework Convention on Climate Change (UNFCCC) is an international

environmental treaty negotiated at the United Nations Conference on Environment and Development

(UNCED), informally known as the Earth Summit, in 1992. It sets an overall framework for intergovernmental

efforts to address climate change. It is called a framework convention because it is seen as a starting point of

addressing the problem of climate change. Ethiopia has ratified the UNFCCC (1994).

The Bali Action Plan, adopted at COP 13 in Bali, December 2007, identified adaptation as one of the key

building blocks required for a strengthened future response to climate change to enable the full, effective and

sustained implementation of the UNFCCC through long-term cooperative action, now, up to and beyond 2012.

At the Cancun Climate Change Conference in December 2010, Parties further established the Cancun

Adaptation Framework (CAF) with the objective of enhancing action on adaptation, including through

international cooperation and coherent consideration of matters relating to adaptation under the Convention.

Under the UNFCCC it is recognized that developing countries require international assistance to support

adaptation, including funding, technology transfer and capacity building. Parties in Cancun established

the Green Climate Fund (GCF) and decided that a significant share of new multilateral funding for adaptation

should flow through the GCF.

2.1.2. National Policies

2.1.2.1. Disaster Risk Management (DRM) policy

At the moment of writing these guidelines, the existing DRM policy is the ‘National Policy on Disaster

Prevention and Management’ signed in 1993. Although this policy was mainly focused on relief issues, it gives

importance to prevention among its objectives: “Disaster Prevention Programmes shall be given due emphasis

in all spheres of development endeavours”.

However, currently there is a draft of the new DRM policy called ‘National Policy and Strategy on Disaster

Risk Management’ in which is based the new DRM programs and the new Strategy Program and Investment

Framework for DRM in the country. In accordance with the new National Policy, Disaster risk Management

shall be a shared responsibility of the Government, civil society and humanitarian partners including NGOs,

private sector, voluntary organizations, community and individuals at all levels. For this reason, DRM should

be a process where all these actors participate to build resilience.

This Risk Mitigation and Adaptation Planning guideline will follow the guiding principles of the National Policy

on Disaster Risk Management (DRM).

• DRM is part of development - and is therefore the responsibility of all Sectors and Bureaus

• DRM should be de-centralised and community based

• DRM should take a participatory approach – consultation between all stakeholders is needed

• Accountability and responsibility are key to DRM – both downward and upward

• Managing information is vital for DRM – using the profile and the early warning system for decision

making, for example

• Impartiality is vital – the Government is responsible for meeting needs of people affected by disaster

equally.

• Relief efforts should be integrated with development to minimise dependency and promote recovery

• Due attention must be given to the most vulnerable groups (women, people living with HIV/AIDS, disabled

people and the elderly)

• DRM systems should be free from malpractice

2.1.2.2. Climate change related Policy:

The overarching policy that climate change currently sits under in Ethiopia is the Growth and Transformation

Plan (GTP) which directly addresses climate change and environment issues in a separate section. The GTP

stipulates the country’s ambition to build a climate resilient green economy by 2030 (see further information

in the Section 2.1.3.)

Climate change is also included in other policies, documents and plans2:

• The Environmental Policy (1997) aims to rectify the economic and social costs of environmental damage

from widespread mismanagement of environmental resources, and to provide overall guidance in the

conservation and sustainable utilization of the country’s environmental resources. The policy has

considered in its sectorial environmental policy components atmospheric pollution and climate change as

important environmental, social and development challenges that need to be tackled

• Plan for Accelerated and Sustained Development to End Poverty (PASDEP), which includes a national

strategy to enhance coping mechanisms regarding the adverse impacts of climate change, as well as other

relevant aspects, e.g. water harvesting and small scale irrigation.

• Agricultural Transformation Agency includes a program on environmental economics and climate change

which is being implemented with the support of ministry of agriculture and the research system (NARS)

• Environmental Policy

• Energy Policy and the Biofuels Strategy

• Agriculture and Rural Development Strategy

• Water Resources Management Policy, Strategy and Program

• Health Policy

• National Policy on Biodiversity Conservation

• The Pastoral Policy

• National Development Plan for Ethiopian Women, Children and Youth

2.1.3. National Strategies/Programs

2.1.3.1. Disaster Risk Management (DRM) Strategic Program Investment Framework (SPIF)

The DRM Strategic Programme and Investment Framework (SPIF) is a tool to implement different modalities of

the DRM policies whose main objectives is the establishment of a comprehensive and integrated Disaster Risk

Management system in the country. It covers all the phases of the Disaster Risk Management cycle

(Prevention, Mitigation, Preparedness, Response, Recovery and Rehabilitation).

The most important programs for these guidelines are part of these pillars:

2 ‘A Climate Change Country Assessment Report for Ethiopia’, Alebachew Adem and Woldeamlak Bewket

Program

Description

Wereda

Disaster Risk

Profile (WDRP)

The Wereda Disaster Risk Profiles (WDRP) will provide all necessary information on disaster

risk elements at wereda and sub-wereda (kebele) levels. Given that information for WDRP

has been collected at community and household levels any plan/program of the DRM cycle

developed based on WDRPs will address the problems faced at the community levels.

Contingency

Planning

Based on identified disasters risks by the Wereda Disaster Risk Profile, the contingency

plans will help to improve the response the emergency response management of the

administrative area.

Early Warning

System

The preparedness part of DRM cycle starts from an effective EWS. It will provide timely

information about the risk disaster situation in the wereda. The information is used: to

prevent, mitigate or respond forecasted disasters; to Trigger early action; and to update

possible scenarios of likely disaster.

Risk Mitigation To mainstream in the sectorial development plans those strategies and activities which

/ Adaptation reduce more the risk of the disaster in the wereda and that adapt to the changes produced

planning

by the climate change

2.1.3.2. Ethiopia's climate-Resilient Green Economy (CRGE)

Ethiopia is committed to building a climate-resilient green economy by 2025. Its plan to do so comprises

actions to reduce greenhouse gas emissions (“green economy”) as well as adaptation initiatives to reduce

vulnerability to the effects of climate change (“climate resilience”), all the while safeguarding economic

growth. The Climate Resilient Green Economy (CRGE) Initiative was launched in Addis Ababa in November 2011

to protect the country from the adverse effects of climate change and to build a green economy that will help

realize its ambition of reaching middle-income status by 2025. It also recognizes that traditional development –

through carbon intensification and environmental degradation is not sustainable. The climate-resilient green

economy will be able to withstand the shocks presented by a changing climate. Moreover, it will be delivered

through zero carbon growth (i.e. no increase in net emissions from today’s level). Realizing this vision will

require a coordinated and sustained effort by all parts of the Ethiopian society – the Government, civil society,

academia and the public.

The CRGE builds on the Growth and Transformation Plan (GTP), and is based on three complementary

objectives: fostering economic development and growth, ensuring mitigation of greenhouse gases (GHGs), and

supporting adaptation to climate change. The CRGE initiative will be comprised of two national strategies; the

Green Economy (GE) Strategy, which was launched in 2011, and the Climate Resilient (CR) Strategy, which is

currently being drafted. The GE strategy quantifies the opportunity presented to Ethiopia by green growth

across seven sectors of the economy. It identifies over sixty priorities for investment that will enable Ethiopia

to both grow its economy while minimizing emissions. The CR Strategy will identify the impacts and costs

posed by climate change and prioritize investments to reduce that vulnerability. In reviewing and compiling

adaptation options, the CR strategy will focus on priorities within agriculture, including disaster risk

management (DRM). This Risk Mitigation/Adaptation planning process should be linked in the future to the CR

strategy when this one will be defined.

Previously other initiatives have been developed like the National Adaptation Program of Action (NAPA) and

the Ethiopian program of adaptation to climate change (EPA-CC)

2.1.4. Linkages with other plans

The Disaster Risk mitigation/adaptation measures needs to integrated and coordinated with other development

planning mechanisms and programs. Due to that it should be linked with any development tool existing at the same

level.

2.1.4.1. Wereda Development Plans

The decentralization of the administrative resources is a key element of good development policies. In

Ethiopia, decentralization is a process on going in many aspects of the development. The new policies want to

give the Wereda Administrations the legal, institutional and financial bases for effective and efficient

administration and implementation of the development goals.

Nowadays, the wereda councils make budgetary decisions on block grants received from regional government,

as well as expenditure on its own revenues. For that purpose, Woredas are responsible of their local level

planning and budgeting. For the planning process the Woredas are dependent on other institutions below

them (Development Agents, Community Representatives…) for collection of information, identifying and

prioritization of development needs, and transferring this information to the Woredas.

The impacts of disasters and the climate change in the progress of the development goals at any level cannot

be underestimated, and they are expected to seriously and disproportionately affect the poorest people in the

communities. These people are especially vulnerable to disasters and climate change due to their heavy

reliance on climate-sensitive sectors such as rain-fed agriculture or the tendency to be located geographically

in more exposed or marginal areas. Poverty therefore increases exposure while also limiting the ability to cope

and adapt to climate change impacts which also affects all development sectors. Hence, wereda development

plans & programmes need to ensure that they are enhancing coping capacities of poor people as well as

enabling adaptation to future shocks and stresses, so mainstreaming or integrating disaster risk reduction and

climate change adaptation into wereda development planning process will increase the sustainability and

impact of interventions in every sector and specially in the most vulnerable community. Further details will be

found in the chapter 3, where the mainstreaming, monitoring and updating are explained.

2.1.4.2. Productive Safety Net Program (PSNP)

The Productive Safety Net Programme (PSNP) in Ethiopia was set up in 2005 by the government as part of a

strategy to address chronic food insecurity. The PSNP provides cash or food to people who have predictable

food needs in a way that enables them to improve their own livelihoods – and therefore become more resilient

to the effects of shocks in the future. The Productive Safety Net Program has been designed as an asset

protection mechanism for the household level and to create productive community assets.

The Objectives of PSNP are:

 To provide households with enough income (cash/food) to meet their food gap and thereby protect

their household assets from depletion

 To build community assets to contribute to addressing root causes of food insecurity.

The Risk Mitigation and Adaptation planning process will identify measures at kebele level which will affect the

disaster risk factors, decreasing the vulnerability and the impact of the hazards as well as increasing the

capacities and resilience. In this process, all actors in the wereda, including sectorial offices (including PSNP

focal point), kebele representatives and other stakeholders (NGO, UN, Private sector…), will participate in the

planning process and every actor will contribute with resources for the common actions and strategies

prioritized in the wereda.

The results of this identification can be used by PSNP to assign public works. Although PSNP will maintain

their identification procedures, their results can be cross checked with the ones identified by this disaster risk

mitigation/adaptation plan, taking them into account, in order to prioritize the actions with highest impact in

the Mitigation/Adaptation of the Disaster risks and to participate in the same outputs that have identified by

all actors of the wereda during the planning process.

2.1.4.3. Pastoralist Community Development Planning (PCDP)

The Federal Democratic Republic of Ethiopia (FDRE) mandated the Ministry of Federal Affairs (MoFA) to

coordinate and facilitate the Pastoralist Community Development Planning Program which ensures equitable

development in the pastoral and agro pastoral areas of the country based on the Government of Ethiopia's

policies of equitable and just distribution of resources. As a result the Ethiopian Government in collaboration

with the World Bank and the International Fund for Agricultural Development (IFAD) started implementing a

15-year Pastoral Community Development Program (PCDP) aiming at establishing effective models of public

service delivery, investment and disaster management in the arid and semi-arid Ethiopian lowlands that

address pastoral communities’ priority needs, improve their livelihoods, alleviate poverty and reduce their

vulnerability. Over a fifteen-year period, PCDP's interventions are designed to empower communities and

district (Wereda) and Regional governments (Somali, Afar, Oromia and SNNPR) to better manage local

development in pastoral areas, with the aim of increasing, stabilizing and diversifying incomes, improving

infrastructure and increasing access to public services. The second phase will finish in 2013, when the third

phase will start.

As well as the PSNP, the PCDP has their identification mechanisms to assign its budgets to different projects

and investments. However, the PCPD focal point will participate in the planning process for disaster risk

Mitigation/Adaptation so he can also cross check the result of the PCDP identification with the results of the

risk mitigation/adaptation plans and prioritize those actions which have been identified as the ones with

highest impact in the mitigation/adaptation of disaster risk in the wereda. Hence, the impact of the plan will

be strengthened if PCDP would participate in the same outputs identified by all actors of the wereda in the

disaster risk mitigation/adaptation planning process.

2.1.4.4. Growth Transformation Plan (GTP)

In 2010 Ethiopia unveiled the Growth and Transformational Plan (GTP) which sets the vision for the country as

a middle income, democratic and developmental state.

The GTP has a subsection on environment and climate change (subsection 8.9) which declares that Ethiopia

will pursue both climate change adaptation and considers Environment and Climate Change as one of the

cross-sectorial issues by identifying adaptation measures as key implementation strategies. Also, one of the

objectives of the GTP is ‘to improve disaster mitigation and managing’.

Success in delivering effective disaster risk management and climate change adaptation will then guarantee a

strengthened resiliency for the communities, substantial reduction in the underlying vulnerabilities and,

ultimately, the sustainability of economic and social development gains.

2.2. Risk Mitigation and Adaptation concepts

2.2.1. Key concepts

2.2.1.1. Disaster risk

The impact of disasters has been increasing, especially because the

increase in the population and other external factors. Rainfall deficit,

torrential rains, or earthquakes are natural phenomena but they are not

considered to be disaster in and of themselves. For example, if there is

an volcano eruption, but there is not population living around there will

be not people or property affected. This because, disaster cannot be

seen as a hazard, is a function of the risk process. It results from the

combination of hazard, vulnerability and capacity. The conditions of the

hazard (H) and vulnerability (V) contribute directly to the disaster risk,

the capacity (C) inversely (see next formula).

Disaster Risk= HxV/C

Hazard (H): A dangerous phenomenon,

substance, human activity or condition

that may cause loss of life, injury or other

health impacts, property damage, loss of

livelihoods and services, social and

economic disruption, or environmental

damage

Vulnerability (V): The characteristics and

circumstances of a community, system or

asset that make it susceptible to the

damaging effects of a hazard.

Capacity (C): The combination of all the

strengths, attributes and resources

available within a community, society or

organization that can be used to achieve

agreed goals.

Hence, to reduce the disaster risk, it will be necessary after the analysis

UN-ISDR Terminology

of the factors, to reduce as

Prevention: The avoidance of adverse

impacts of hazards and related disasters

taken actions in advance

possible the conditions of the

hazard and vulnerability, and to increase the capacity. The final strategies and

actions that will be identified in this planning process, will try to mitigate and

Mitigation: The lessening or limitation

of the adverse impacts of hazards and

related disasters.

UN-ISDR Terminology

prevent the disaster risk trough those conditions.

The Disaster risk Management Cycle shows a process to address the specific

issues or disaster risk.

The risk Mitigation and Adaptation process will work in the pre-disaster phase,

before the disaster could happen, being part of the Prevention and Mitigation

phase (see definitions in the contiguous box).

2.2.1.2. Climate Change Adaptation

Weather is the set of meteorological conditions – wind, rain, snow, sunshine, temperature, etc. – at a particular time

and place. By contrast, the term climate describes the overall long-term characteristics of the weather experienced at a

place.

The climate therefore can be thought of as a long-term summary of weather conditions, taking account of the average

conditions as well as the variability of these conditions. The fluctuations that occur from year to year, and the statistics

of extreme conditions such as severe storms or unusually hot seasons, are part of the climatic variability. Some slowly

changing climatic phenomena can last for whole seasons or even years; the best known of these is the El Niño

phenomenon. Because the climate system is in a constant state of flux and has always exhibited natural fluctuations

and extreme conditions, it is not possible to argue that any single extreme event is attributable to climate change. Only

after a sufficient period and with hundreds of extreme events recorded can scientists determine if a specific event is

within normal historical variation or is due to some other cause such as climate change.

Africa is particularly vulnerable to the effects of climate

change because of multiple stresses. Drought will continue to

be a primary concern for many African populations. The

frequency of weather- and climate-related disasters has

increased since the 1970s, and the Sahel and Southern Africa

have become drier during the twentieth century. Water

supplies and agricultural production will become even more

severely diminished. By 2020, in some African countries

agricultural yields could be reduced by as much as 50%. By

the 2080s, the area of arid and semiarid land in Africa will

likely increase by 5-8. A range of studies of national climate

trends in Ethiopia since the 1960’s show that mean

temperatures have increased by 0.5 and 1.3 C3. Rainfall

estimates are much more uncertain, with no significant

change in total rainfall amount, but with changing seasonal

patterns4 and more rain falling in extreme events5.

Natural hazards by themselves do not cause disasters – it is

the combination of an exposed, vulnerable and ill prepared

population or community with a hazard event that results in a

disaster. Climate change will therefore affect disaster risks in

two ways, firstly through the likely increase in weather and

climate hazards, and secondly through increases in the

Agriculture is particularly sensitive to climate change.

Greater total or more intense rainfall across Ethiopia

may increase soil erosion and the incidences of crop

damage. Ethiopia is particularly vulnerable to

accelerated soil erosion because of existing pressures

and degradation on our land area, 79% of which has a

slope of greater than 16%, with 25% having a slope of

greater than 30%. There will also be changes in

production system viability; cropland area and

cropping patterns; pest and disease frequency and

distribution brought about by changes in seasonality;

timing and distribution of rainfall; higher

evapotranspiration; drought and flood damage.

Livestock yields will be impacted directly through

temperature effects on annual growth, milk and wool

production and reproduction; and indirectly by

changes in the quantity and quality of pasture, forage,

grass and disease and increases in parasites. Pastoralist

communities may be particularly negatively impacted

by climate change. The interactions between these

problems and potential benefits of greater CO2

‘fertilization’ are largely unknown.

Climate Resilient Green Economy strategy

(Ethiopia)

3 McSweeney, C., New, M. and Lixcano, G., (2007) Ethiopia – UNDP Climate Change Country Profiles report a 1.3°C increase between 1960 and 2006. Other studies

show a smaller increase, for example: Conway et al report rises of approximately 0.5°C from 1961-2000, in Conway, D. and Schipper, E. L. F. (2011) Adaptation to climate change in

Africa: Challenges and opportunities identified from Ethiopia. Global Environmental Change 21 (2011), 227–237. Also in the National Adaptation Programme of Action, 2007, the

National Meteorological Agency reports increases of 0.37 0C every 10 years from 1951-2006.

4 Conway, D., Schipper, E. L. F., Mahmud, Yesuf, Menale, Kassie, Persechino, A., and Bereket Kebede. (2007) Reducing Vulnerability in Ethiopia: Addressing the Implications of

Climate Change. Report prepared for DFID and CIDA. University of East Anglia, Norwich.

5 McSweeney et al, 2007, ibid; and Ericksen P, Thornton P, Notenbaert, A, Cramer L, Jones P, Herrero, M. (2011) Mapping hotspots of climate change and food insecurity in the

global tropics. CCAFS Report No. 5 (advance copy). CGIAR Research Program on Climate Change, Agriculture and Food Security (CCAFS). Copenhagen, Denmark. Available online

at: www.ccafs.cgiar.org.

vulnerability of communities to natural hazards, particularly through ecosystem degradation, reductions in water and

food availability, and changes to livelihoods. Climate change will add yet another stress to those of environmental

degradation and rapid unplanned urban growth, further reducing communities’ abilities to cope with even the existing

levels of weather hazards. The poorest communities are the most vulnerable to climate extremes, the impacts of

which will increase with the changing climate. Poor women and men should be at the center of the response to climate

change.

2.2.2. Risk Mitigation and Adaptation integration

The expressions “disaster risk reduction” and “climate change adaptation” represent policy goals, one concerned with

an ongoing problem (disasters) and the other with an emerging issue (climate change). While these concerns have

different origins, they overlap a great deal through the common factor of weather and climate and the similar tools

used to monitor, analyze and address adverse consequences. It is important, therefore, to consider them and

implement them in a systematic and integrated manner.

A key challenge and opportunity, therefore, lies in building a bridge between current disaster risk reduction efforts,

aimed at reducing vulnerabilities to extreme events and efforts to promote Climate Change Adaptation.

There are several arguments about the key benefits of the integration between them, such as how the disaster Risk

mitigation and prevention measures can reduce climate related losses; the importance of increasing efficiency of

resource allocation through this integration; and how it will enhance the effectiveness and sustainability of both

approaches. The most important similarities are that both are multivariable process that involves incremental changes

in biophysical variables and processes, as well as, extreme events. Furthermore, Climate Change also affects societies’

and communities’ vulnerability to hazards, through changes in inherent dynamics. Therefore, from a disaster risk

reduction perspective, Climate Change affects both, hazards and vulnerability. Nevertheless, the examination of the

similarities between adaptation and disaster risk reduction also highlights differences. One of the most obvious

distinctions is that disaster risk reduction addresses all types of hazards, including geological hazards, while climate

change adaptation is only focused on the dynamics of climate. Moreover, disaster activities still focus more on reducing

immediate causes of hazard and impact, while, for adaptation, the current interventions are often more focused on

reducing only impacts of Climate Change without a holistic view of what actually causes risks .

The following diagram shows the relationship between Risk Mitigation and Climate Change Adaptation:

Relationship between RM and CCA

In conclusion, in both cases a change in mindset is still necessary to direct interventions to reducing underlying

vulnerability and addressing root causes, ensuring a long-term sustainable perspective.

Lack of integration between RM & CCA might result in:

 Continued growth in disaster risk associated to climate change

 Increased administration burdens, prevent efficient use of resources in reducing risk

 Unsustainable RM resulting in mal-adaptation (i.e. DRR based on past & current experiences is likely to fail in

its aim of building people’s resilience to future risks if it does not account for, & address, the consequences of

climate change)

2.2.3. Similarities and Differences

SIMILARITIES

DIFFERENCES

 Both have similar aims: reducing people’s vulnerability  Hazard type: Disaster risk Reduction addresses all

& building resilience to hazards in the context of types of hazards; Climate Change Adaptation addresses

sustainable development

only hydro-meteorological hazards

 Mutual benefits: Disaster risk reduction supports

Climate change adaptation through reducing climate

related disaster risk & in offsetting the long term

implication of climate change

 Poverty reduction: both addresses the issue of poverty

through reducing underlying risk & both recognize ‘the

poor’ as the most vulnerable

 Converging political agenda: governments have come

to recognize that risk reduction associated to climate

change should be incorporated into development

strategies

 Time scale: DRR concerned with the present & near

future; CCA concerned with the short, medium & long

term future

 Level of significance placed on existing capacities: DRR

focuses on traditional knowledge & Past experiences in

reducing disaster risk; CCA focus more on science &

innovation in addressing future risks associated with

climate change

2.2.4. Planning principles

- Disaster risk Mitigation/Adaptation Planning must include participation from all stakeholders. Effective planning

ensures that the community is represented and involved in the planning process. Disasters and climate change

affect all of society, and therefore Risk Mitigation and adaptation solutions must involve all sectors. The most

realistic and complete plans are prepared by a diverse planning team, including representatives from the different

sectorial offices, civic society, partners and community representatives who are able to contribute critical

perspectives and/or have a role in executing the plan. There are obviously many advantages of inter-sectorial

collaboration, these being: looking for the same impacts, minimizes duplication of activities; facilitates sharing of

experiences; promotes team spirit; minimize time waste; and, maximizes optimal use of scarce resources. Also the

new national policy advocate for mainstreaming Disaster Risk Reduction in all sectors at all levels.

- Disaster risk Mitigation/Adaptation Planning includes decision makers throughout the process to ensure both

understanding and approval. Potential planning team members have many day-to-day concerns but must be

reminded that Risk Mitigation and Climate Change Adaptation planning is a high priority. The more involved

decision makers are in planning, the better the planning product will be.

- Disaster risk Mitigation/Adaptation Planning must represent the whole population and its needs. It is very

important to recognize that different people has different perceptions of risk and different understanding and

experience in coping with it. Understanding the composition of the population—such as accounting for people with

disabilities, others with access and functional needs, for elder people needs, for gender issues and for the needs of

children—must occur from the beginning of the planning effort.

- Women have unique needs in disaster situations and specific vulnerabilities against disaster risk. It has to be

addressed, but they also have unique capacities that must be taken into account in community-based disaster risk

reduction and in climate change adaptation planning. Men and women may have different understandings and

experience in coping with risks. Women participation is very important during the planning process.

- Disaster risk Mitigation/Adaptation Planning must be community-based and include local knowledge. Natural

disasters and the Climate Change effects frequently vary significantly by micro regions. Hence, local knowledge

(indigenous knowledge) must be integrated with scientific evidences in order to design and implement effective

disaster risk management and climate change adaptation strategies. In other words, the role of community should

be considered a key for disaster risk management and climate change adaptation strategies to be successful. It will

also help to decentralize the RM&CCA processes.

- Disaster risk Mitigation/Adaptation planning should be practical and realistic. It should be based on realistic

parameters and resources, and should not be a bureaucratic exercise. Apart of creating awareness and knowledge

among the participants, this methodology should really improve the impact of the development plans reducing the

risk disaster and improving the adaptation to the Climate Change

- Disaster risk Mitigation/Adaptation Planning should be simple and easy to do. RM&CCA planning should not be a

complex task undertaken only by specialists; rather, all staff – and indeed community representatives – should be

able to participate.

- Disaster risk Mitigation/Adaptation planning considers all hazards and threats. There are ongoing some existing

programs in Ethiopia for DRR, however, they are usually focused on one hazard: mainly drought or flood. This

program at Wereda level will consider all hazards and threats and it will prioritize those who have more impact and

considered more important by the community (indicated in the Wereda Disaster Risk Profile)

- Disaster risk Mitigation/Adaptation planning allocates possible sources resources to accomplish those tasks

identified, and it establishes accountability. Decision makers must ensure that they provide planners with clearly

established priorities and feasible resources; additionally, participants should be held accountable for effective

planning and execution.

- Disaster Risk Mitigation/Adaptation planning outputs must be followed up. Strategies and activities should be

monitored to assure the impact.

- Disaster Risk Mitigation/Adaptation planning must have a human rights approach. It is now widely recognized

that effective poverty reduction is not possible without empowerment of the poor. The human rights approach to

poverty reduction is essentially about such empowerment. This recognition of the existence of legal entitlements

of the poor and legal obligations of others towards them is the first step towards empowerment. A human rights

approach to poverty reduction requires active and informed participation in the formulation, implementation and

monitoring of poverty reduction strategies.

2.3. BOTTOM-UP Planning

The bottom-up planning is an approach where plans are developed at the lowest level. The Risk Mitigation and

Adaptation will follow the bottom-up planning. Firstly, when the information collected from the Wereda Disaster risk

Profile comes from households and key informants from the community, and secondly, when both kebele

representatives and sectorial offices identify and prioritize strategies and actions to mitigate disaster risk and to adapt

to the climate change in the wereda. The Bottom-up planning has the next characteristics:

 Communities have experiences, skills and resources at hand to solve some of their problems

 Bottom up planning help to reduce the gap persisted between real community needs/demands and the

availability of resources to meet the community needs.

 Bottom up planning empower the community members giving ownership in the development process instead

of giving individual responsibilities for development to experts or outsiders or agencies from outside.

 Bottom up planning help the community to have more presence in the resources allocation decisions. E.g,

resources always held outside the kebele

 Community-based processes helps in building confidence, pride in being able to make a difference, and

enhanced capabilities to pursue DRM and CCA measures

 Bottom up planning should anticipate the possible problems of decentralization in regards to how to bring

together the high level strategic thinking and the local level context, in a way that ensures the optimization of

outcomes. It is generally known that decentralization has several risks: elite capture (local elites capturing the

benefits); revenue minimization (low capacity and unwillingness to mobilize local resources); weak

administrative and management systems (absence of effective and efficient administrative and management

systems); corruption (political influence and risk for corruption); lack of effective participation (no automatic

increase in participation); and, poor human resource base (staff unwilling to move to remote areas, and poorly

trained or motivated).

 Outsiders can bring new knowledge, resources and skills to a community BUT communities should be the one

to determine whether it adds value for them

3. DISASTER RISK MITIGATION/ADAPTATION PLANNING PROCESS

Disaster Risk Mitigation/Adaptation planning can also be considered as an approach that aims to reduce disaster risk

through the application of participatory assessment and bottom-up planning methods. It is a practical bridging strategy

to integrate local development efforts on one hand with strategies and actions that reduce the impact of priority

disaster & climate risks on the other. Risk Mitigation/Adaptation aims to reduce vulnerabilities and strengthen

people’s capacities to manage specific disaster & climate risks, even if it is not possible to address all their day-to-day

difficulties.

This process applies at all levels of government and allows private and nongovernmental organizations to integrate

with government planning efforts.

The development of Risk Mitigation & Climate Change Adaptation planning can be described briefly by the following

steps:

1. Form a planning team

It is very important to establish a collaborative planning team that includes experts from different sectors

who get a better understanding of the disaster risk factors and identify and follow-up possible prevention

and mitigation measures that will be mainstreamed in the sectorial development plans. It will be very

helpful if that planning team is already a structure, platform or committee already established in the

Wereda, because the planning results can be integrated in the terms of reference and the follow up

mechanisms of that planning team.

Although individual planners can use this process, it is most effective when it is done by a planning team.

2. Disaster Risk analysis

It involves collection and analyses of information regarding all important hazards that have the potential to

become a disaster. The Wereda Disaster Risk Profiling (WDRP) database provides information about

hazards and associated trends, vulnerability factors, and existing and required adaptive capacities of

communities. Therefore these profiles will be used to analyze disaster risk at wereda and kebele levels and

inform the process. This information will determine the type of strategies that are needed to reduce the

risk.

3. Strategy identification & prioritization

A wide range of strategies will be identified to reduce the risks. However, since resources are limited to

implement all of identified strategies, participants shall rank and prioritize those according different factors

in order to select the better strategies to address the risks.

4. Action planning

Every Sectorial Office prepares an action plan, focused on defining selected strategies as objectives and

specifying a list of activities to implement identified strategies.

5. Mainstreaming and follow up

The planning results shall be mainstreamed in the development planning mechanisms and if possible,

followed up with similar mechanisms. Mainstreaming and follow up is an absolutely necessary step, in

order not to become the results in one more document in the shelves.

Typically, time is a constraint for developing the plan so initial steps can be minimized in order to accelerate the

process, however the action planning and mainstreaming and follow-up should be always well completed and well

carried out.

The following figure shows the structure of these planning steps.

Form a planning team

Organize a planning team/ structure

Risk

Analysis

What disaster

risk elements

exist?

Strategy Id &

Prioritization

Which

strategies to

address the

risks should be

planned for?

Action

planning

What activities,

responsible and

timelines will be

defined to

mitigate the

risks?

Mainstreaming

and follow up

Integrating into

the development

plans and

monitoring

3.1. Form a planning team

The effects of the disaster have significant consequences for the development of all sectors in the wereda. Hence it will

be necessary the presence of experts of different sectors to plan how to avoid or to reduce the adverse impact of the

hazards.

Also, another goal of using a planning team is to build a common understanding of the risk analysis of the wereda and

expand relationships that bring collaboration and confidence to plan together.

Some tips for gathering the team together include the following:

 Plan ahead. The planning team should receive plenty of notice about where and when the planning meeting

will be held.

 Provide information about team expectations. Planners should explain why participating on the planning

team is important to the participants’ offices/organizations and to the community itself, showing the

participants how their contributions will lead to more effective planning.

 Ask the senior elected, appointed official or highest authority to sign the meeting announcement. An official

letter from the executive office carries the authority of the senior official and sends a clear signal that the all

relevant participants are expected to attend and that operational planning is important to the community.

 Consider using external facilitators. Third-party facilitators can perform a vital function by keeping the process

focused and mediating disagreements.

As a consequence of these tips, when the

corresponding administration level will send an

official letter to prepare the planning workshop,

a paper sheet will be attached where it will be

possible to find the Term of References of the

planning process. This will contain information

about the objectives, the necessary participants

for the workshop and the necessary duties that

would be needed before it. An example of Term

of Reference is added in the Annex IV.

The key to plan in a group setting is to allow

open and frank discussion during the process.

Interaction among planners can help elicit a

common understanding. Individual group

members must be encouraged to express

objections or doubts. If a planner disagrees with a

suggested intervention, that planner must also

identify how this can be improved.

Information in advance

It is important to collect in advance the most important information

which can help the effort of the planning process:

 The Wereda Disaster Risk Profile will provide with the most

extensive database made at community/kebele level existing in the

country. The information system forms the basis for designing

long-term risk reduction/development programs at wereda and

sub-wereda levels.

 The Wereda sectorial Development Plans will be fundamental in

order to see how to mainstream the results of the planning

process. Risk Mitigation and Adaptation action plans should be

integrated into the Wereda Development Planning mechanism, so

any information regarding with that (budgets, existing plans…)

should be collected in advance

 Finally, others existing programs plans such as PSNP, PCDP… will be

interesting in order to work in common with similar strategies and

activities.

Involvement of all relevant DRM stakeholders will be important. Senior

managers and decision-makers should lead Risk Mitigation and Climate

Change Adaptation planning processes to give the relevant support to the

reduction of the adverse impacts of the disaster in the wereda. The

planners must ensure that planning process involves all actors who work in

the administrative area in issues related with the Risk Mitigation and

Adaptation.

Disaster Risk Management shall be

everyone’s responsibility: government,

communities, private sector, civil society

and development and humanitarian

institutions.

Initially, the team should be relatively small, consisting of more relevant planners from the ministries/bureaus/offices

and other organizations (including community organizations) that usually participate in Disaster Risk Reduction. They

form the core for all planning efforts. At local level, all the participants will sign the approval document that will certify

the validation of the Disaster Risk Mitigation and Adaptaion plan so this is other reason why all these participants must

be involved during the Contingency process.

Governmental environment

Every sector/office which can have relation with the

impact of adverse disaster should have a representative

in the planning team. The Directives for the

Implementation of the new National Policy on Disaster

Risk Management (DRM) establishes the members

involved in the federal DRM Council. Similar members

could be included in the planning process. Wereda

structure is explained in the adjoining box.6

A proposal of governmental necessary participants is in

the annex 4 with the Term of Reference of the Wereda

workshop.

Wereda Structure

The structures of most Woredas reflect the

institutional setup of regional governments as

regards sectoral competencies, integration and

coordination. The Woreda executive consists of

technical heads of all offices and a political Woreda

Administrator (who is elected by the council and

heads the Woreda executive). The Woreda Council,

which comprises of elected representatives from

each Kebele, is responsible for the final approval of

plans. Woredas are responsible for consolidating

priorities and reconciling them to match with

available financial resources.

International Organizations, Non-Governmental Organizations (NGOS) and scientific agencies/organizations

These actors can support the governmental institutions with specific projects. Initially many actors make their

own identification of the problems in order to design the projects. The current idea is that the Wereda Disaster

risk Profile will provide the baseline of the risk analysis and

during this common process, all actors will design in common

the best strategies and activities to reduce the disaster risk

and to adapt to trends produced by climate change,

providing with resources and working all together in the

same planning outputs in the wereda.

Although currently in Ethiopia, the external

stakeholders (NGOs, UN…) make the official

agreements at regional level, in those agreements

they could include those strategies and actions

which have been identified jointly during the

Disaster Risk Mitigation and Adaptation planning

process.

Community involvement

Community should have a say in how disaster response occurs and should take responsibility for protecting

themselves of the impacts of disasters and thanks to their knowledge and expertise, the strategies selected will

address better the root causes of risk. They should also shoulder responsibility for building their community’s

6 ‘Training Guide for: Training of Trainers on Integrated Community Based Participatory Planning’

resilience and enhancing its recovery before, during, and after a disaster. Due to that, Disaster Risk Mitigation

is most effective at community level where specific local needs can be met. Hence, Community leaders have a

keen understanding about their community’s needs and capabilities and are valuable stakeholders that can

support the planning process..

Additional participants can be considered if the wereda administration office considers it appropriately.

Finally, these questions in the following box will help us to check that the planning team is well organized and

represented.

Planning Team Checklist

 Are all sectors covered?

 Are all sectors well represented?

 Are community-based organizations or groups that are familiar with the local situation

represented?

 Are all mandated organizations represented?

 Are NGO, donors and multilateral organizations operating in the Woreda represented?

 Are communities from each kebele or Livelihood zone represented?

 Are the representatives committed and dedicated?

3.2. Risk Analysis

3.2.1. Concept

According to the UN-ISDR, it can be defined as: ”Risk assessments include: a review of the technical characteristics of

hazards such as their location, intensity, frequency and probability; the analysis of exposure and vulnerability including

the physical social, health, economic and environmental dimensions; and the evaluation of the effectiveness of

prevailing and alternative coping capacities in respect to likely risk scenarios. This series of activities is sometimes

known as a risk analysis process”.

Hence disaster risk analysis can be seen as a function of hazards, vulnerability

and capacity. However, as we have seen in the chapter 1 and 2, disasters can be

Disaster Risk= HxV/C

exacerbated by climate change which is changing the frequency and intensity of

natural events increasing the vulnerability of populations to hazards. In this context, holistic management of disaster

risk requires action to reduce impacts of extreme events before, during and after they occur, including technical

preventive measures and aspects of socio-economic development designed to reduce human vulnerability to hazards.

Hence Risk Mitigation and climate change adaptation shall be closely linked.

Due to that, the risk analysis will also analyze the trends in physical, social and political environment in which they live

and the capacity will be analyzed not only in terms of the capacity to manage the risk associated with extreme events/

hazards but also in terms of the adaptive capacity to adapt to longer-term trends and stresses.

All the information analyzed during this process has the purpose to serve to the sectorial planners to be able to identify

the best strategies which can contribute to reduce and prevent the disaster risk. It is important that the experts of the

different sectorial offices have in common the same risk analysis of the territory in order to plan with the same

baseline and same conception of the common problems.

3.2.2. Methodology

Ethiopia has great spatial disparities in terms of occurrence of disasters –

not all parts of the country suffer from the same type of disasters.

Therefore, it is necessary to obtain information risk analysis at kebele

level and to prepare, from the bottom up, Disaster Risk Mitigation and

Adaptation plan involving the community and all the kebeles.

The Wereda Disaster Risk Profiling (WDRP) database will give the most

relevant information of the risk analysis at kebele and wereda levels. It

provides extensive and comprehensive information about the nature,

magnitude and key factors that render people, livelihoods, environment,

political systems and infrastructure vulnerable to disasters. Most of this

information will be used during the planning process, however for the

Risk Analysis which will be shown in the document; it will present only

that information that will be indispensable to ensure better disaster risk

Sample hazards list

Droughts

Floods

Landslides

Crop diseases

Livestock diseases

Human diseases

Storms / Cyclone/hail storm

Heavy rain

Frost / Cold waves

Heat waves/ High temp

Conflicts

Economic / Price shock

Forest fires

Earthquake

Road Accident

Source:Wereda Disaster Risk Profile

mitigation/ adaptation to a likely disaster. For that purpose, the more important aspect of the risk information will be

organized in the right format that can be usable by the planning team in order to identify the most adequate

interventions.

Once the Risk Analysis is done, mapping is very important to show those localizations with higher probability of being

affected.

This planning process will cover any hazard, caused by natural or technological factors or human-caused. Apart from

this list shown in the table there is always a potential for new and unexpected risks. This list may give the impression

that hazards are independent of one to another, but in fact they are often related.

Finally, it can be important to know, once the risks have been analyzed, the existing interventions (by governmental

institutions or by external stakeholders) done in the past for Disaster Risk Mitigation and Adaptation… All the lessons

learned obtained from this analysis, will be very useful to improve the plan that the administration is preparing.

The WDRP will provide most of the information needed for this steps and during the workshop, the data will be

validated and modified in case that it can be needed.

The templates of these steps can be seen at the end of these guidelines, as part of the Annexes. So, it is advisable to

read the following sections at the same time than the templates.

3.2.2.1. Hazard mapping

A hazard map allows the reader to observe the location of the most serious likely disasters. In rural areas,

where sometimes there are not appropriate maps of the territory or when the technologies or capacities do

not allow production of accurate maps, it is a good practice to elaborate the maps, by hand, as the first step

with all stakeholders, showing the most dangerous places that have been affected in the past, comparing with

the information of the Risk Profiles and showing also, the main important factors of the risk (risk map). Maps

developed should be easily understood by the member of the planning team and by the community.

3.2.2.2. Hazard Assessment

It refers to the process of identification and analyzing the

main characteristics of the hazards. The Wereda Disaster

Risk Profile will provide all information related to this. The

hazard assessment will determine the most important

hazards which occur in that wereda, identifying the kebeles

affected by that hazard, the period of occurrence, the

frequency of the impact, the effects of the disasters, the root

causes of disasters and the Early Warning Indicators to

monitor them.

Definition of Hazard

A dangerous phenomenon, substance, human

activity or condition that may cause loss of life,

injury or other health impacts, property damage,

loss of livelihoods and services, social and

economic disruption, or environmental damage.

UN-ISDR Definition

The final action plan will determine strategies and activities to reduce the risk of the hazards identified in this

hazard assessment.

3.2.2.3. Trend analysis

It consists on analyze the most important trends identified in the different kebeles. Normally they are long

term trends and large scale as demographic trends, resource trends, economic trends, agricultural trends,

trends related with Climate Change, etc. Many natural hazards are worsened by these trends. Climate change

refers to long-term changes in weather patterns leading to more frequent and intense extreme weather

events, including severe dry seasons or flooding, and longer-term incremental changes, such as increases in

average temperature and the alteration of seasons and sea levels

This analysis will describe the list of gradual of changes observed and threatening the livelihoods of the

community and according to that, it will analyze the kebeles affected by those changes, the analytical

description of the trend, the impact of that trend on human and non-human elements, the coping mechanisms

used by the community to face those changes and finally which hazards are affected by those trends.

3.2.2.4. Vulnerability Assessment

It is the process of estimating the susceptibility of elements at risk to various hazards and of analyzing the

causes behind their vulnerability. There are many aspects

of vulnerability (physical, social, economic, and

environmental factors) and the vulnerability varies

significantly within a community and over time. As it was

mentioned, the vulnerability also depends on the elements

and its exposure, hence due to that, the Vulnerability

Definition of Vulnerability

The characteristics and circumstances of a

community, system or asset that make it

susceptible to the damaging effects of a hazard.

UN-ISDR Definition

Assessment will analyze the levels of vulnerability of the

different sectors (elements (Crop, Livestock, Water, Health, Education, Infrastructure and the human elements

(men, women, children, elder, disable, HIV/AIDS) to a specific hazard and describes the specifics reasons of

vulnerability of those elements.

This information will serve the sectorial planners to identify which interventions can reduce the vulnerability of

the different elements of the community and in which they needed to dedicate special attention due to the

high vulnerability.

3.2.2.5. Adaptive Capacity Assessment

Capacity assessment is a term for the process by which the

capacity of a group is reviewed against desired goals, and

Definition of Capacity

the capacity gaps are identified for further action (UN-ISDR

definition). In our case, the desired goals would be to face

hazards and extreme events. However, it should not be

The combination of all the strengths, attributes

and resources available within a community,

society or organization that can be used to

achieve agreed goals.

forgotten the long terms, where climate

conditions/variability/uncertainty which may appear

UN-ISDR Definition

gradual having finally devasting impacts. That’s why the capacity should not be consider only to manage the

risk associated with hazards but also to build adaptation to longer-term trends and stresses. Due to that, it will

be analyzed as the ‘Adaptive Capacity’

Hence, efforts should aim to develop coping capacities of the individuals, communities and organizations to

develop resiliency from any type of hazard and taking into account the longer trends produced by the climate

change. People’s capacity is divided into their ability to cope using short-term unsustainable strategies, and to

adapt, using methods that keep pace with the changing nature of hazards and threats.

For this purpose, this methodology has adopted the ACCRA Framework for Local Adaptive Capacity. This

analytical framework analyzes the capacity through some of the key characteristics that influence it.

 Assets: Availability of key assets that allow the system to respond to evolving circumstances.

- Assets include both tangible capitals (natural, physical and financial), as well intangible ones

(human and social)

- In many occasions, assets has been identifies as capacity, however to improve capacity is necessary

other factors, not only assets.

- Most of the times, the most vulnerable to the impacts of climate change are the ones with lack of,

and restricted access to key assets and capitals

- Examples: Natural (Pasture water, land for grass/agriculture, forest resources, access to water

resources …), Physical (Water Points, Schools, Health centers, veterinary centers, roads, irrigation

canals, sand dams, boreholes…), Financial (Microcredits, village savings and credit associations ,

household savings, access to financial loans, livestock and household wealth …), Social (Family,

clan…) and Human (Heath & Education services, indigenous knowledge, conflict management…)

 Knowledge and information: The system has the ability to collect, analyse and disseminate knowledge

and information in support of adaptation activities.

- Communities + knowledge= Better coping disaster and better adaptation

- Examples: Weather information (Seasonal forecast, weather early warning…), Market information,

disaster information (e.g. Woreda Disaster Risk Profiles), Improved seeds or hazards resistant

seeds knowledge, development of groups that share risk and provide a platform for shared

learning, traditional knowledge

 Innovation: The system creates an enabling environment to foster innovation, experimentation and

the ability to explore niche solutions in order to take advantage of new opportunities

- Community will need to alter existing practices, resources and behaviours or in some cases adopt

new ones.

- It is not only referred to high-tech or large-scale innovation but also micro-level.

- Example7s: Irrigated agriculture, Diversifying to agriculture offers opportunities for livestock

feed/food/income, Enclosure for fodder production, changing crop types, adopting new farming

practices, switching livelihoods, etc.

7 ACCRA research found a number of innovations initiated by local residents. Examples include the local adaptation of an

introduced technology, the broad-bed maker, to local conditions in Wokin; the initiation of fruit and fodder production and

apiculture in Ander Kello; and water harvesting and local irrigation systems in Kase-hija

 Adequate and forward looking decision-making and planning: The system is able to anticipate,

incorporate and respond to changes with regards to its governance structures and future planning.

- Informed decision-making, transparency and prioritisation are key elements

- Organization learn and anticipate future weakness and vulnerability and create opportunities for

appropriate adaptive actions

- Examples: Early warning committee strengthen relation with community in two-ways, DPPB has

mainstreaming Disaster Risk Mitigation/Adaptation mechanisms in the sectorial development

plans, Plan for diversification of the livelihood options, land-use regulations that protect

floodplains while allowing moderate use, and that are reassessed every planning period against

new, climate-change evidence; regulations that have requirements that the land owner/user

report on certain changing conditions.

 Institutions: Existence of an appropriate and evolving institutional environment that allows fair access

and entitlement to key assets and capitals

- Institutions cannot be measured only according to asset distribution, also as participation in

decision-making, how they empower/disempower people, involvement of the community…

- Institutions can be formal (e.g. laws, government regulations and statutory bodies such as the

police and the courts) and informal (e.g. norms of behaviour, codes of conduct, indigenous

community organisations and religious organisations).

- Examples: Committees established and operative, Local norms that regulate access to natural

resources or water points (e.g. whose animals, and how many, are allowed at which water point

during which season); religious rules that prevent women from ploughing; social norms that

encourage wealthier households to support poorer neighbours in times of stress or crisis, gender

roles and responsibilities, religious rules and regulations, and the rules governing access to natural

resources such as arable land, grazing land and irrigation water.

The adaptive capacity assessment will analyze the existing adaptive capacities and the capacity gaps, according the

previous characteristics.

3.3. Strategy Identification and Prioritization

3.3.1. Concept

Based on the Risk Analysis and some specific information8 provided by the Wereda Disaster Risk Profile (WDRP),

the sectorial planners, helped by the community representatives and stakeholders, will develop a brainstorming of

strategies for the Risk Mitigation and Adaptation planning.

From the Risk Analysis done in the previous step the planners can get the main information needed for the

identification of strategies: Where are the hazard located? What are the causes and the effects? How trends are

affecting the different hazards? What the vulnerabilities of each sector according each hazard and why? Who are

the most vulnerable human groups in those kebeles affected and from each sectorial perspective? What are the

existing capacities and the capacity gaps of each sectorial office to reduce their vulnerability and the characteristics

of the hazard?

At this point, only strategies will be identified and in the next phases more details will provided for every strategy.

For that reason, it will be necessary understand perfectly the difference between strategy and activities, because

sometimes it can be produced a mix of them, confusing the planning framework. The box below provides

clarification for that matter:

Strategy

- Broad concepts

- Medium/Long term

- Envision a way to get some objectives

- Broad themes for future actions

E.g:

- Awareness raising

Activity

- Specific execution

- Short term

- Sets of process/work items/skills that an y

organization /community/individuals can develop

to achieve the strategy

E.g:

- Training/workshops/conferences

- Publications

- Radio/TV/Newspaper programs

- Street theater

- Micro-financing capacity development

- Micro-credits programme

- Cooperatives has funds and capacity

- Water Harvesting Improvement

- Water Channels construction

- Pond constructions

8 The WDRP provides specific information such as ‘Suggestions to DRM Actors in the Area’, ‘ Community Suggestions to

Improve Economic Situation’, ‘Community Preparedness against disasters’, ‘Suggestions to development actors’…

- Flood channels diversion

- Natural Resources Conservation

- Tree Planting

- Laws/regulation improvement

- Terracing

Many interventions can be identified. However, due to

shortage of resources and time, the planners should

prioritize the more important for the wereda attending to

different criteria.

3.3.2. Methodology

After the risk analysis, the planners will have some time

to think and to list a number of strategies for disaster risk

mitigation and adaptation. To prioritize and select the

strategies, these ones will be ranked from 1 (lowest) to 5

(highest) according the following different criteria:

Provide examples

In order to understand the methodology and to

get good results, examples should be provided in

order to guide the planners through the right

direction.

The Training Materials will provide with examples

and the Wereda Disaster risk Profile will provide

with intervention suggested and desired by the

different kebeles for Disaster risk Management.

This information from the WDRP should highly be

taken into account when the strategies will be

identified and prioritized.

- Urgency: If the strategies require immediate action or attention.

- Importance: If the strategies have of great significance or value for the community and have big

impact for the Disaster Risk Mitigation and Adaptation.

- Feasibility: If the strategies are possible to be accomplished easily or conveniently (in terms of

money, time, skills, capacities…).It should be designed in order that not external resources might

be able to be used to tackle this.

- Lack of maladaptation: If the strategies do not have negative impacts for the future (the highest

mark, 5, will be when the strategies do not have any negative impact).

For every strategy, it should include the trends or change due to climate change that affect those strategies (in

order to design the strategies with better adaptation for the future), the ranking of the different criteria, and

the final score.

This prioritization is very important to provide a final realistic action plan for the community and it will prevent

to make big plans in many areas which are impossible to implement.

3.4. Action planning

3.4.1. Concept

Once the strategies have been identified and prioritized, the planners will elaborate an action plan with the sequence

of steps that must be taken for a strategy to succeed. Mayor elements of an action plan like specific tasks, time horizon

or resources allocation will be described.

3.4.2. Methodology

Before this step, the planners would have identified and prioritized a number of strategies by every hazard. In this step,

the planners will develop the strategies defining the different elements:

- Lead Sectorial Office: The planning process has been based on the vulnerability and capacity of each sector

according the specifics hazards faced so every sectorial office will develop its own action plan. At the

moment of the follow up every sectorial office will need to mainstream these activities in their sectorial

development plans. The development planning process is elaborated by every sector so, to make easy the

integration and to identify it easier, evey sectorial office will have a lead in charge of their strategies.

- Strategy Prioritized: For each strategy prioritized, a sequence of steps must be taken to succeed. In this

column will appear all strategies identified and prioritized in the step before.

- Activities for that strategy: Every strategy will be accomplished with the achievement of different tasks or

actions. The differences between strategy and actions were explained in the last sub-chapter. Every strategy

will have a number of actions/tasks.

- Kebeles affected by that activity: Not all activities or strategies need to be carried out in every kebele, even

although they can be affected by the same hazard. Different kebeles or communities could require different

activities to succeed the strategy according to the different aspects of the risk.

- Time of Implementation: It explains when that activity will be carried out. There will be some actions that will

take one year and that will be mainstreamed in the annual sectorial development plans, and actions who will

take 5 years and that will be mainstreamed in the five years sectorial development plan. Usually, the short-

term actions are more focused on Risk Mitigation and prevention, and the medium-long term actions include

the adaptation to the climate change or other aspects.

- Tentative total Resources needed (economical/non

economical): The planners would need to estimate

how many resources would be required, in terms of

Source of resources

economical budget and non-economical (human

resources, available assets, specific skills…)

- Tentative source of resources / Actor Responsible: A

good action plan should specify the tentative source of

the available resources according the needs and the

responsible actor. Although, every strategy should be

Sometimes, some of the sources could not

offer economical resources but they could be in

other form. Some possible source of resources

could be:

- Annual sectorial budget

- Community contributions

- Productive Safety Net Program

- Pastoralist Community Development

Project

- NGO project in the wereda

- UN project in the wereda

- Agricultural Growth Program

led by a sectorial office of the wereda, the different activities can be supported or implemented by different

responsible bodies (community, stakeholders, other sectorial in-line office…). The accountability will be

improved as better as the specific responsible of every activity will be described.

- Tentative Resources Gap: Planners could already foresee the resource gap that some of the activities could

have according with the availability of resources in the wereda.

3.5. Mainstreaming, Monitoring and Updating

3.5.1. Concept

As the new Ethiopian policies reflect, there is a shift in perspective from the view of disaster as an unavoidable or

unpredictable phenomenon that will be faced by emergency specialist, to an increasing of understanding of disaster as

complex development issue. Development plans do not necessary reduce vulnerability to possible hazards, instead

they can create or enhance vulnerable factors. That’s why it is very important this mainstreaming process that serves

to ensure that sectorial development plans and policies take into account the purposes of prevention, mitigation and

preparedness efforts and create the environment to create and enhance adaptive capacities in the communities and

societies.

The planning results of this methodology shall be mainstreamed / integrated in the development sectorial planning

mechanisms and followed up with similar current mechanisms. Mainstreaming and follow up is an absolutely necessary

step, in order not to become the results in one more document in the shelves.

3.5.2. Methodology

3.5.2.1. Writing the plan, approve and disseminate the plan

Once the plan has been initially developed, the planning team or the person

assigned prepares and circulates a final draft to obtain the comments of

stakeholders that have responsibilities for implementing the plan. Every actor

who participates in the Risk Mitigation and Adaptation Plan should be able to

provide their comments determining the effectiveness and efficiency of the

plan.

Once the plan has been written and validated, the plan should be presented to

the appropriate officials for signature and promulgation. The promulgation is

the process to make the plan widely known. The promulgation document is a

signed statement formally recognizing and adopting the plan as the Risk

Mitigation and Adaptation Plan. Every actor involved in the plan should either

sign that statement or at least, be aware of their final responsibilities agreed in

the planning process.

Finally, the plan should be distributed to stakeholders who have roles in

implementing the plan and also, the representatives of the community/kebeles

which should be aware of the final results as well in order to ensure there is

ownership and agreement of the activities identified.

Writing tips

Following these simple rules for

writing plans and procedures will

help ensure that readers and users

understand their content:

 Keep the language simple and

clear.

 Avoid using jargon and minimize

the use of acronyms.

 Use short sentences and the

active voice.

 Provide enough detail to convey

an easily understood plan that is

actionable.

 Follow the formats produced by

the guidelines

3.5.2.2. Mainstreaming

In order to Mainstreaming the Risk Mitigation and Adaptation Process, the next steps are advisable:

a) Multi-sectorial coordination mechanism: All sectors

and stakeholders must be involved in planning and

implementation of this Disaster Risk

Mitigation/Adaptation plan. To get an efficient

mainstreaming, every sector should be aware of this

methodology and final action plans in order to

mainstream it into every sectorial development

mechanism. The emphasis of this joint effort is not

to employ new programs and funds but to use the

existing budgetary mechanism to have a more risk-

informed development system in a wereda,

including kebeles/community organizations.

Wereda Development Planning Process

The planning process is based on an annual financial

planning cycle. Annual planning starts with community

consultations at the Kebele level. The community

consultation process aims at identifying problems faced by

communities and prioritize them accordingly. The

consultations are undertaken through Development

Agents (DAs). These priority needs identified by

community members at the Kebele levels are thereafter

forwarded to the Kebele level for further processing.

Kebele level officials consolidate the priority needs into a

single priority list with assistance from Development

Agents. The consolidated list is subsequently dispatched

to the Woreda level for action.

b) Development planning is based on risk Profiling:

Risk profiling helps direct the development planning

process to focus on the underlying causes of

disasters risks rather than their effects. If the

Wereda has the Wereda disaster risk Profile, the

wereda development planning process should

consider it as one of the main sources to establish

the needs at wereda level. According with the

development planning process (see the adjoining

box9), the annual planning starts with community

consultations. Added to this process, the Wereda

disaster risk Profile should be taken into account as

a possible baseline because is based on individual

interviews made to an average of 400 households

from Kebele, apart from a Focus Group Discussion

per Kebele and interviews to Key Informants in the

wereda. If every actor, either kebele/wereda

institutions or other stakeholders (NGOs, UN …)

At the Woreda level, the re-organization of the priority

needs from the kebele level normally focuses on creating

a sector related clusters, by The Finance and Economic

Development Office. These are then passed to relevant

sectorial offices for additional modification. Normally it is

only those priority needs that appear in several kebele

that get addressed. These sectorial based plans are

thereafter linked to sector budgets through Public

Expenditure Program (PEP) and Public Investment

Program (PIP). It is a three years rolling plan that used to

allocate financial resources in accordance to the

prioritization of the need of the community. It is a

Planning Reform included as one of the sub program of

The Public Expenditure Management and Control in The

Civil Service Reform Program. Integration of the sector

plans into a single Woreda Plan is facilitated by the

Finance and Economic Development Office. A yearly plan

is extracted from the three years plan, and then sent to

the Woreda Council for approval. Feedback mechanisms

are supposed to happen through quarterly meetings

between Woreda Council and Keble leaders and

communities. Any dissatisfaction with the plans is

channeled through the kebele or directly to the Woreda.

Should there be serious misgivings; the Woreda Council is

required to dispatch a team to investigate and make

amends.

would take the risk profile as a baseline they could

plan to get joint results and outputs. Also, using the

Wereda disaster risk Profile, it allows including disaster

risk factors as part of the inputs to build the wereda development plan. It can happen that if the wereda

sectorial development plans are only focused on productivity or other individual factors, some actions can

create or enhance vulnerable factors instead of avoiding them (see Chapter 3.2. Risk analysis).

9 Extracted from ‘Training Guide for: Training of Trainers on Integrated Community Based Participatory Planning’

c) Integration/Mainstreaming of Disaster Risk

Mitigation/Adaptation strategies & activities into the

Sectorial Development Plans: This Disaster Risk

Mitigation/Adaptation Plan has been developed with a

number of strategies and actions defined in sectorial

action plans for disaster risk mitigation & adaptation.

Every strategy is leaded by a specific wereda sectorial

Tips for Community-based planning process

For identification, mechanism for processing the

community priority needs must be necessary

because sometimes, it can be feared that staff at

the Woreda level employ perhaps arbitrary

individual criteria as basis for selecting requisite

priority needs and subsequent interventions.

office that must be in charge of mainstreaming and

integrating them with their annual development tasks.

Although the sectorial offices will be the final responsible

of the implementation of the activities, they shall involve

The Woreda Council shall hold feedback meetings

at Kebele levels for following up the plans

according to their priority needs. Hence,

participatory consultation processes in their

planning cycles.

the community and other stakeholders in the decision

making and implementation. Furthermore, when other

external stakeholders in the wereda will be identifying their concerned Disaster Risk Reduction programmes

they should be encouraged to use the Wereda Disaster risk Profile as a baseline and collaborate with the

wereda in this joint plan for Disaster Risk Mitigation/Adaptation, both (wereda and stakeholders) contributing

for the same results.

3.5.2.3. Monitoring

Once, the actions plans have been mainstreamed into the Sectorial development plans, the results will be

monitored by the sectorial development mechanisms. This will happen through quarterly meetings between

Woreda Council and Keble leaders and communities. At the beginning of the fiscal year the wereda will use the

‘monitoring mainstreaming and planning’ template to check the progress of the mainstreaming. The DPPO

Office [Wereda DRM Council according draft new DRM Policy] will collaborate with every sectorial office

[Wereda DRM Unit according draft new DRM Policy] to fill this matrix and inform the Wereda Administration.

Based on this monitoring, lesson learns will be developed, and the mainstreaming should be improved every

sector.

The action plan establishes a lead sectorial office for every strategy. That sectorial office should be responsible

to implement that strategy and to follow up the results of the activities assigned during the quarterly meetings

giving feedback about the development/progress of their strategies.

3.5.2.4. Updating

The duration of this risk mitigation/adaptation plan developed will be not only valid for one year, it will remain

in the time because the factors of the risk analysis will not change so quickly so the strategies and activities

identified will be valid for a period of time. When the Wereda disaster risk Profile will be updated, the Disaster

Risk Mitigation/Adaptation Plan shall be updated.

ANNEXES

I. Glossary

The following terms will be used during the document and its comprehension will allow to the readers to have a

common understanding and common usage of Disaster Risk Management concepts related with Risk Mitigation and

Climate Change Adaptation Planning.

The next glossary is extracted from the United Nations International Strategy for Disaster Reduction (UNISDR)

Adaptation: The adjustment in natural or human systems in response to actual or expected climatic stimuli or their

effects, which moderates harm or exploits beneficial opportunities.

Comment: This definition addresses the concerns of climate change and is sourced from the secretariat of the

United Nations Framework Convention on Climate Change (UNFCCC). The broader concept of adaptation also

applies to non-climatic factors such as soil erosion or surface subsidence. Adaptation can occur in autonomous

fashion, for example through market changes, or as a result of intentional adaptation policies and plans. Many

disaster risk reduction measures can directly contribute to better adaptation.

Capacity: The combination of all the strengths, attributes and resources available within a community, society or

organization that can be used to achieve agreed goals.

Comment: Capacity may include infrastructure and physical means, institutions, societal coping abilities, as well

as human knowledge, skills and collective attributes such as social relationships, leadership and management.

Capacity Development: The process by which people, organizations and society systematically stimulate and develop

their capacities over time to achieve social and economic goals, including through improvement of knowledge, skills,

systems, and institutions.

Climate change:

(a) The Inter-governmental Panel on Climate Change (IPCC) defines climate change as: “a change in the state of the

climate that can be identified (e.g., by using statistical tests) by changes in the mean and/or the variability of its

properties, and that persists for an extended period, typically decades or longer. Climate change may be due to natural

internal processes or external forcings, or to persistent anthropogenic changes in the composition of the atmosphere

or in land use”. The IPCC definition can be paraphrased as “A change in the climate that persists for decades or longer,

arising from either natural causes or human activity.”

(b) The United Nations Framework Convention on Climate Change (UNFCCC) defines climate change as “a change of

climate which is attributed directly or indirectly to human activity that alters the composition of the global atmosphere

and which is in addition to natural climate variability observed over comparable time periods”.

Contingency planning: A management process that analyses specific potential events or emerging situations that might

threaten society or the environment and establishes arrangements in advance to enable timely, effective and

appropriate responses to such events and situations.

Coping capacity: The ability of people, organizations and systems, using available skills and resources, to face and

manage adverse conditions, emergencies or disasters.

Disaster: A serious disruption of the functioning of a community or a society involving widespread human, material,

economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope

using its own resources.

Disasters are often described as a result of the combination of: the exposure to a hazard; the conditions of vulnerability

that are present; and insufficient capacity or measures to reduce or cope with the potential negative consequences.

Disaster impacts may include loss of life, injury, disease and other negative effects on human physical, mental and

social well-being, together with damage to property, destruction of assets, loss of services, social and economic

disruption and environmental degradation.

Disaster risk: The potential disaster losses, in lives, health status, livelihoods, assets and services, which could occur to

a particular community or a society over some specified future time period.

Disaster risk management: The systematic process of using administrative directives, organizations, and operational

skills and capacities to implement strategies, policies and improved coping capacities in order to lessen the adverse

impacts of hazards and the possibility of disaster.

This term is an extension of the more general term “risk management” to address the specific issue of disaster risks.

Disaster risk management aims to avoid, lessen or transfer the adverse effects of hazards through activities and

measures for prevention, mitigation and preparedness.

Disaster Risk Reduction: The concept and practice of reducing disaster risks through systematic efforts to analyze and

manage the causal factors of disasters, including through reduced exposure to hazards, lessened vulnerability of people

and property, wise management of land and the environment, and improved preparedness for adverse events.

Disaster risk reduction plan: A document prepared by an authority, sector, organization or enterprise that sets out

goals and specific objectives for reducing disaster risks together with related actions to accomplish these objectives.

Disaster risk reduction plans should be guided by the Hyogo Framework and considered and coordinated within relevant

development plans, resource allocations and programme activities.

Early warning system: The set of capacities needed to generate and disseminate timely and meaningful warning

information to enable individuals, communities and organizations threatened by a hazard to prepare and to act

appropriately and in sufficient time to reduce the possibility of harm or loss.

Environmental degradation: The reduction of the capacity of the environment to meet social and ecological objectives

and needs.

Greenhouse gases: Gaseous constituents of the atmosphere, both natural and anthropogenic, that absorb and emit

radiation of thermal infrared radiation emitted by the Earth’s surface, the atmosphere itself, and by clouds.

This is the definition of the Intergovernmental Panel on Climate Change (IPCC). The main greenhouse gases (GHG) are

water vapour, carbon dioxide, nitrous oxide, methane and ozone.

Hazard: A dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other

health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental

damage.

Land-use planning: The process undertaken by public authorities to identify, evaluate and decide on different options

for the use of land, including consideration of long term economic, social and environmental objectives and the

implications for different communities and interest groups, and the subsequent formulation and promulgation of plans

that describe the permitted or acceptable uses.

Mitigation: The lessening or limitation of the adverse impacts of hazards and related disasters.

Preparedness: The knowledge and capacities developed by governments, professional response and recovery

organizations, communities and individuals to effectively anticipate, respond to, and recover from, the impacts of

likely, imminent or current hazard events or conditions.

Prevention: The outright avoidance of adverse impacts of hazards and related disasters.

Public awareness: The extent of common knowledge about disaster risks, the factors that lead to disasters and the

actions that can be taken individually and collectively to reduce exposure and vulnerability to hazards.

Resilience: The ability of a system, community or society exposed to hazards to resist, absorb, accommodate to and

recover from the effects of a hazard in a timely and efficient manner, including through the preservation and

restoration of its essential basic structures and functions.

Response: The provision of emergency services and public assistance during or immediately after a disaster in order to

save lives reduces health impacts, ensure public safety and meet the basic subsistence needs of the people affected.

Risk: The combination of the probability of an event and its negative consequences.

Risk assessment: A methodology to determine the nature and extent of risk by analyzing potential hazards and

evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services,

livelihoods and the environment on which they depend.

Sustainable development: Development that meets the needs of the present without compromising the ability of

future generations to meet their own needs.

Vulnerability: The characteristics and circumstances of a community, system or asset that make it susceptible to the

damaging effects of a hazard.

The following terms complement the previous ones10:

Climate Variability: Natural variations in the climate that are not caused by greenhouse gas emissions and show no

long-term trend in one direction or another (eg. It rains more in some years and less in other)

Climate Change Adaptation: Actions that people and institutions make in anticipation of , or response to, a changing

in climate. This includes changes to the things they do, and /or the way they do them.

Climate change Adaptation: It can be understood as: (a) adapting to gradual changes in average temperature, sea level

and precipitation; and (b) reducing and managing the risks associated with more frequent, severe and unpredictable

extreme weather events, including those for which there may be no historic precedent (UNISDR, 2011 - Global

Assessment Report).

10 ACCRA/ Bahir Dar training materials (2011)

Adaptive Capacity: The potentials of individuals, communities, and societies to be actively involved in the process of

change, in order to minimize negative impacts and maximize any benefits from changes in the climate. Adaptive

capacity therefore strengthens resilience and reduces vulnerability to a wide range of climate related changes. In

simple words:

The ability of a system [human or natural] to adjust to climate change (including climate variability and extremes) to

moderate potential damages, to take advantage of opportunities, or to cope with the consequences.

Climate- Compatible development: Development that takes in to account possible or predicated climate hazards and

impacts, and is sustainable over time in light of these changes

Mal-adaptation: Actions that increase vulnerability to climate change or other stressors. This includes making

development or investment decisions while neglecting the actual or potential impacts of both climate variability and

longer-term climate change (Burton, 1998).

II. References

The following references have been used to develop these guidelines.

II. a. General literature about Risk Mitigation and Adaptation

1. Terminology on Disaster Risk Management, UNISDR, 2009

2. ACCRA Publications, http://community.eldis.org/.59d669a8/publications.html

3. Climate Change Resource Guide, http://www.eldis.org/climatechange

4. Climate Change Adaptation, http://www.eldis.org/go/topics/resource-guides/climate-change/climate-change-adaptation

5. Tools for Mainstreaming Disaster Risk Reduction: Guidance Notes for Development Organizations, Proventium

Consortium, Ethiopia, 2007

6. Community-based Disaster risk Reduction/WASH, Training manual, Zambia, December 2010

7. Community-Based Adaptation Toolkit, CARE, July 2010

8. Disaster Risk Reduction in Drought Cycle Management: A Learning Companion, Oxfam

9. Disaster Risk Reduction and Climate Change Adaptation Resources, OXFAM

10. Community-based disaster risk management, field practitioners ‘handbook, ADPC, Imelda Abarquez and Zubair Murshed,

2004

11. Words Into Action: A Guide for Implementing the Hyogo Framework, Hyogo Framework for Action 2005-2015: Building the

resilience of nations and communities to disasters, United Nations

12. Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters, Extract from

the final report of the World Conference on Disaster Reduction (A/CONF.206/6), United Nations

13. Participatory Capacity & Vulnerability Analysis, A Practitioner’s Guide, OXFAM, ,2010

14. Participatory Capacity and Vulnerability Analysis, Training Pack, Edward Turvill and Honorio B. De Dios, OFXAM GB, 2009

15. Gender and Disaster Risk Reduction: A training pack, Maria Caterina Ciampi, Fiona Gell, Lou Lasap, and Edward Turvill,

OXFAM 2011

16. Climate Change and Disaster risk Reduction, Briefing Note 01, UN ISDR, 2008

17. Adaptation to Climate Change by Reducing Disaster Risk: Country Practices and Lessons, Briefing Note 02, UN ISDR, 2008

18. Strengthening climate change adaptation through effective disaster risk reduction, Briefing Note 03, UN ISDR, 2008

19. Effective measures to build resilience in Africa to adapt to climate change, Briefing Note 04, UN ISDR, 2008

20. Disaster Risk Management Systems Analysis, Rome, FAO, 2008

21. Community-based Disaster risk Management, Field practitioners’ handbook, ADPC, 2004

22. Tools for Mainstreaming Disaster Risk Reduction: Guidance Notes for Development Organizations, Charlotte Benson and

John Twigg with Tiziana Rossetto, JANUARY 2007, Provention consortium

23. Mainstreaming Drought Risk Management, UNDP 2011

24. Disaster Risk Management for communities, ACF INTERNATIONAL, POLICY DOCUMENT

25. Mainstreaming Climate Change adaptation into development planning: a guide for practitioners, UNEP-UNDP, 2011

II. b. Ethiopian specific literature about Risk Mitigation and Adaptation

1. Community based Disaster risk Reduction and Climate Change Adaptation Planning, Bahar Dar University in collaboration

with University of Jaume I

2. Climate change national adaptation programme of action (NAPA) of Ethiopia, Ministry of Water Resources, National

Meteorology Agency and UNDP, Ethiopia, 2007

3. Participatory Vulnerability and Capacity Analysis: Programming against Hazards to Pastoralist Food Security and

Livelihoods Harshin Woreda, Somali Regional State, Ethiopia Capacity Building Outcome Report July 2010

4. Ethiopia’s Program of Adaptation to Climate Change, EPA, 2011

5. National Policy and Strategy on disaster Risk Management, Draft document, Ethiopia, 2012

6. Disaster Risk Management Strategic Programme and Investment Framework, DRMFSS, MoARD, Ethiopia, 2011

7. Pastoralist Community Development Project, Ethiopia, http://www.pcdp.gov.et/

8. Productive Safety-Net Programme, Ethiopia,

http://web.worldbank.org/WBSITE/EXTERNAL/COUNTRIES/AFRICAEXT/0,,contentMDK:21072837~menuPK:1804110~page

PK:146736~piPK:146830~theSitePK:258644,00.html

9. Leaving Disasters Behind: A guide to disaster risk reduction in Ethiopia, IIRR Nairobi and Save The Children USA Addis

Ababa, 2007

10. Participatory Disaster Risk Reduction Model, Ethiopia Pilot - Final Report , October 2007, ECB Disaster Risk Reduction

Initiative

11. Decentralization and Development Planning: Some Practical Considerations, January 2003, Tim Hadingham – Development

Planner, Scott Wilson

12. Introductory Guidelines to Participatory Rangeland Management in Pastoral Areas, Save the children, FAO, EU, Ethiopia,

2010

III. Terms of reference for the Wereda Disaster Risk Reduction Planning

workshop (Risk Mitigation/Adaptation plan and Contingency plan)

Background

Ethiopia has historically been affected by different kinds of disasters, the frequency and magnitude of which have

only been increasing with time. Under such circumstances, the government of Ethiopia through DRMFSS (Disaster

Risk Management and Food Security Sector) has put in place different programs which cover the different aspects of

the Disaster risk Management. These programs are under the draft of the new DRM National Policy which establish

that DRM should be decentralized and community based with a participatory approach.

The first step has been to build a Wereda Disaster Risk Profile which establishes an extensive database made at

community/kebele level and provide all necessary information on disaster risk elements. This information system

forms the basis for designing disaster risk management (DRM) strategies. So once the wereda and community have

established their profiles and know the disaster risk elements the next step is to build the programs which forms the

full cycle of DRM (consisting of prevention, mitigation, preparedness, response, recovery and rehabilitation). This

program will be focused in the pre-disaster phase and hence in the Disaster Risk Reduction Planning.

Disaster Risk Reduction

Actions taken to reduce the risks of disasters and the adverse impacts of natural hazards, through

systematic efforts to analyze and manage the causes of disasters, including through avoidance of

hazards, and improved preparedness for adverse events.

UN/ISRD Definitions

It consists in one hand, to get an efficient preparedness system that helps them to anticipate, respond to and

recover from, the impacts of hazards events of conditions (Contingency Planning), and on the other hand, to reduce

or to avoid the risks of disasters and to adapt to them managing the causes of disasters and facing the problems at

wereda level (Risk Mitigation/ Adaptation Planning). DRMFSS has developed both methodologies to apply them in

every Wereda of the country once the WDRP is already developed.

Contingency planning

A management process that analyses specific potential events or

emerging situations that might threaten society or the environment

and establishes arrangements in advance to enable timely, effective

and appropriate responses to such events and situations.

UN-ISDR Definition

Mitigation

The lessening or limitation of the adverse impacts of hazards and

related disasters (UN-ISDR Definition)

Prevention

The outright avoidance of adverse impacts of hazards and related

disasters (UN-ISDR Definition)

The Wereda Disaster Risk Reduction Planning programme is a fully government-led and operated programme and

follows a cascaded system of streamlined capacity development of government at all levels. The program has been

technically supported by UN World food Program and assisted by ACCRA, USDA/USFS and Bahir Dar University.

DRMFSS has developed both methodologies to apply them in every Wereda of the country once the risk profiles are

established.

The Wereda Disaster Risk Reduction Planning process is an innovative way to reduce risks through an informed

community-driven process, at the same time, be prepared against disasters. The Wereda DRR Planning process pursues

the final goal of building resilience, where the government will work with development and humanitarian partners to

achieve synergetic results starting with common analyses, the Wereda Disaster Risk Profile, and integrating

development, Disaster Risk Reduction and Climate Change Adaptation.

Objectives of Wereda Disaster Risk Reduction Planning

The main objective is to provide the wereda with two planning tools to reduce the risks of disasters and the adverse

impacts of the hazards which affects the wereda.

The specific objectives to achieve this aim are:

 To introduce key concepts of Disaster Risk Reduction planning (Risk Mitigation/Adaptation planning and

Contingency Planning)

 To build resilience at kebele and wereda level

Risk Mitigation/Adaptation planning

 To collect the most important information of the Wereda Disaster Risk Profile and to analyze the hazards,

trends, vulnerabilities and capacities of the kebeles/wereda focusing on the roots and causes of the problems

 To build an action plan with strategies and activities which mitigate and prevent the risk of the likely disaster

 To mainstream and follow up the Risk Mitigation/Adaptation strategies in the wereda sectorial development

plans

Contingency Planning

 To collect the most important information of the Wereda Disaster Risk Profile and to analyze the hazards,

seasonal calendar, vulnerabilities and capacities of the kebeles/wereda focusing on the effects of likely disasters.

 To bring together all sectors and assign roles and responsibilities to organizations and individuals to improve the

multi-sectorial emergency response management

 To estimate scenarios and prepare resources available and possible emergency response for specific

contingencies

 To build the capacity to manage local disasters

Outputs/Expected results of Wereda DRR Planning

 Government staff, community representatives and stakeholders have been trained in DRR Planning

 The Wereda has a contingency plan

 The Wereda has mainstreamed a Risk Mitigation/Adaptation plan into their sectorial development plans.

Duration

6 days of workshop

Contents of the training

Module I: Introduction & key concepts

Module II: Risk Mitigation/Adaptation Planning

Module III: Contingency Planning

Module IV: Mainstreaming and follow up

Participants/Audience

Involvement of all relevant DRM stakeholders will be important. The DRM technical working groups at the various

administrative levels will play a key role in ensuring extensive participation and involvement. Senior managers and

decision-makers should lead wereda DRR planning processes participating the first half day of the workshop.

There should be participants of the coming institutions (the names of the offices and work process can change

among the regions):

Wereda Office

Woreda administration

Agriculture and Rural

Development Office

Capacity Building Office

Work process/desk

Wereda Administrator

Wereda Adminstration staff

Crop Production

Livestock Production work process

Natural Resource Mgt work process

Water

Cooperatives and credit &Microenterprise

Office

Food Security work process

PSNP / PCDP

Early Warning and Response work process

(Disaster Prevention and Preparedness

Office)

Educational Bureau

Health Bureau

Remark

1 The W. Administrator for opening

1 and closing speech

If PSNP or PCDP exist in that wereda

Social Affairs Office

Finance and Economic

Development Office

Finance and Economic

Development Office

Administration and

Justice

Wereda Road Office

Communication Office

Youth and Sport

NGO

Community/Kebele

Zone Office

Regional Office

Women, Children and Youth Office

Planning and budgeting desk

Finance desk

Police/Militia

One representative/NGO

Kebele representatives (1/kebele)

Food Security process owner

Zonal DPPB, agriculture and livestock

Regional DPPB

They could play critical role during

emergency response

? Coming with their own resources

1 per kebele, only for the first full 4

days

Women participation is highly encouraged.

Community representatives will participate only the first four days, until the end of the fourth day.

Head sectorial officers are highly encouraged to participate.

DSA will be paid only for people working in governmental offices. NGOs or other external actor should pay DSA with

their own resources.

Checklist of necessary activities to prepare the workshop

Risk Mitigation/Adaptation and Contingency Plan will be usually prepared during the workshop where all the

planning team will participate. Due to the fact that it is very difficult to get together all authorities from different

sectors, it will be very important to economize on time and to prepare all materials and information needed in

advance.

In order to be efficient, this checklist of actions should be accomplished by the wereda and trainers before the

workshop and it will help planners to prepare all the resources in advance.

□ Assign a focal point or committee from the wereda to work with and that will be responsible for supporting

the preparation of the workshop

□ Every sectorial office should have a copy of the digital library of the Wereda Disaster Risk Profile before the

workshop and they should we aware about the its content

□ Collect or print an administrative map of the wereda. This map will be useful to draw and color the areas

highly affected by the hazards during the workshop. If not possible draw it in a flip chart.

□ Prepare at least one copy of the existing wereda plans to bring to the workshop such as: wereda development

plan (sectorial development plans -1 year and 5 year), PSNP plan, PCDP plan or any document related with any

kind of planning tool which can have any relation with the disaster risk reduction plan. This can serve the experts

to compare and to discuss during the workshops the advantages and challengues to mainstream the disaster risk

mitigation/adaptation plan into the development plans

□ Every sectorial office should bring the the workshop a copy of the emergency historical records of previous

years. This information is very important to build the scenarios

□ Prepare and bring to the workshop a copy of any inventory of emergency resources existing in the

administrative area in order to incorporate it to the contingency plan

□ Prepare and bring to the workshop a copy of the Early Warning Reporting Forms filled by the administrative

area during the last months.

□ Help and collaborate to prepare/coordinate the logistics of the workshop such as place, food, materials …

□ Arrange the participation of all necessary actors identified in this terms of reference

IV. Examples for Risk Mitigation/Adaptation strategies and activities

These are just some possible general examples – the strategies that you select will depend on the local context and

through following the steps in the risk mitigation/adaptation planning process in a thorough, participatory way.

Sector

Examples of Risk Mitigation/Adaptation strategies and activities

Agriculture



(Crop and



livestock)



Water



Transport



Education



Finance



Women/



Children/ Youth



Diversification of livelihood strategies in areas vulnerable to flooding

Provision of crossbred goats and information and instructions in graze-free feeding

Vaccination programmes to eradicate diseases in low-income areas

Participatory reforestation to combat flood-induced landslides

Reinstating pastoral networks to foster appropriate rangeland management practices in arid lands

Traditional enclosures to encourage vegetation regeneration and reduce land degradation

Teaching farmers to collect climate data and integrate into their planting decisions

Change to drought tolerant crop varieties

Diversification of crop varieties grown

Community seed banks

Improved access to agricultural new technologies

Introduction of agro-forestry systems

Reforestation and afforestation of degraded areas

Improved watershed management

Enhancing early warning systems

Improve farmers knowledge about weather and climate information

Provision of forages and clean potable water for animals

To develop the awareness of the pastoral community on livestock disease through training

Enhancing market linkage and access

Improving soil and water conservation

Enhancing improved seed utilization

Monitoring of salinization of drinking water and drilling of new wells no longer useable

Communal water harvesting

Construction of reservoirs for water supply

Small-scale irrigation

Water recycling technologies

Rehabilitation and maintenance of roads susceptible to flood damage

Improved access to markets through improved transport infrastructure

Include environment and climate change awareness in education curriculum

Provide weather and seasonal forecasts by radio/ SMS

Promote use of indigenous knowledge

Use of insurance

Improve access to credit and saving schemes

Organizing peoples in to different groups - cooperatives

Introducing income generating activities

Encourage the strong participation of women in Woreda decision-making

Promote women’s saving-schemes

Women and youth groups

Health

 Develop early warning systems for a range of diseases sensitive to climatic change e.g .malaria

 Training public health workers to use seasonal climate forecasts to identify health risks

Source:

 ODI, 2010. Responding to a changing climate

 CR strategy presentation Sept 2012

 Adapting to climate change - Challenges and opportunities for the development community, Tearfund and ODI, 2006

 Child Rights and Climate Change Adaptation: Voices from Kenya and Cambodia, Children in a Changing Climate: Feb 2010

IV. a. For dry land areas (pastoralist and agro pastoralist)

Pastoralism is a livelihood system and a way of life for more than 10 million citizens accounting to 12-15% of the total

population in Ethiopia. The pastoral groups reside in six National Regional States of Ethiopia (Oromia, Somali, Afar,

SNNP, Gambella, and Benishangul Gumuz). They inhabit the entire lowlands of the country, which constitutes about 61

% of the country’s total landmass. These areas are prone to rainfall variability, extreme drought and flash floods. The

people in the pastoral lowlands are mainly pastoralists and agro-pastoralists who have an immediate daily dependence

on climate sensitive livelihoods and natural resources (pasture and water). Climate change affects their livelihood

patterns and strategies that made food, feed, and water and social insecurity very crucial to design and develop

appropriate climate change adaptation programme in the area.

Livestock Sector

a. Institutional and policy changes

i. Introducing subsidies, insurance systems, income diversification practices

ii. Establishing livestock early warning systems

iii. Forecasting and crisis-preparedness systems

b. Improve livestock management systems

i. Provision of shade and water to reduce heat stress from increased temperature. E.g. providing natural

shade instead of high cost air conditioning is more suitable for rural poor producers

ii. Use of improved breeds

iii. Changes in livestock/herd composition (selection of large animals rather than small)

iv. improved management of water resources for agro-pastoralists and for pastoralists moving out from the

system through the introduction of simple techniques for localized irrigation (e.g. drip and sprinkler

irrigation), accompanied by infrastructure to harvest and store rainwater

c. Production adjustments/changes in livestock practices

i. Diversification and/or integration of pasture management, livestock and crop production;

ii. Designing and implementing local level rangeland use planning for appropriate use of dry lands;

iii. Conservation of nature and ecosystems;

iv. Establishing/modifying livestock trekking routes, water and feeding points;

v. Introducing mixed livestock farming systems, such as splitting herds and mixing species and improving

traditional range management.

d. Improve Breeding strategies

i. Identifying and strengthening local breeds that have adapted to local climatic stress and feed sources for

improved resilience;

ii. Improving local genetics through cross-breeding with heat and disease tolerant breeds.

e. Capacity building for livestock keepers

f. Commercial destocking

g. Slaughter destocking

h. Restocking

i. Adoption of more drought and heat tolerant forage species

j. Enhancing urban market linkages, export markets and market infrastructure

k. Use of index-based livestock insurance (it is intended to help pastoralists invest in protecting their

livestock assets as a result of drought and reduce their risks of destitution.)

l. Consideration of fodder bank development and backyard forage development to utilize during stress

for milking and breeding stocks

Health Sector

a. Mobile health service

Education Sector

a. Mobile education

Plant and Crop Sector

a. Diversification of crop varieties and involving various combinations of animal and green manures based on

local and external knowledge.

b. Selection of drought tolerant livestock species

c. Improved weed management

d. Expanding efforts to control wind and water erosion and enhance soil water holding capacity

e. Improving access to long-range weather and seasonal climate forecasting information

Natural Resource Sector

a. Reforestation and afforestation of degraded areas

b. Clearance of bush encroachment and alien invasive plant species.

Traditional Climate Change Adaptation Mechanisms:

a. Off season and opportunistic cultivation

b. Reduction of consumption levels

c. Use of inter-household transfers and loans

d. Temporary and permanent migration in search of employment

e. Sale of assets such as livestock and agricultural tools

f. Credit from merchants and money lenders

g. Use of traditional early warning system

h. Negotiation with other ethnic groups for scares resources utilization

i. Use of traditional medicine for humans and livestock

j. Strategic use of large communal grazing areas

k. Identifying dry and wet season grazing lands

l. Liversifying and splitting of their livestock

References

 IFAD, 2009. Livestock and Climate Change. Livestock thematic papers. Tools for project design.

www.ifad.org/lrkm/index.htm

 ADDN, 2008. A Primer on Climate Change Adaptation in the Dry lands of Africa. Background Paper for the 3rd African

Drought Adaptation Forum. The African Drought Risk and Development Network (ADDN). 17 – 19 September, 2008, Addis

Ababa, Ethiopia

 Drylands Coordination Group, 2014. Community Based Climate Change Adaptation Practices for Pastoralists. Pastoralist

Forum Ethiopia (PFE). http://www.drylands-group.org/Articles/2014.html

RISK MITIGATION &

ADAPTATION PLANNING

TEMPLATES

DRMFSS

How to use these templates

The Risk Mitigation and Climate Change Adaptation Templates follows the instructions established in the chapters of

the RM&CCA Planning process. This collection of templates will help the guidelines to standardize the content of the

RM&CCA Plans and to make its development easier. However, any change in the templates could be done during the

planning process if it can help to improve the content of the plan and its understanding.

Please note that these templates contain guidance instructions and sample language that can be discarded or used in

part or in whole at the decision of the wereda staff during the planning process. [Italic text] in parentheses is guidance

information and regular text is sample language. The guidance information should be deleted before finalizing the

Contingency Plan and sample language serves as example of text that can be modified to contextualize it to the

Administrative Area. All underlined text in parentheses must be replaced with administration-specific input, such as

the name of the wereda, name of the institutions/stakeholders, etc.

This sub-chapter ‘How to use these templates’ shall be deleted when the wereda plan will be built.

Cover page

[The Cover page has the title of the plan. It should include the last updating date and identify the administrative area

covered by the plan.]

DISASTER RISK MITIGATION / ADAPTATION PLAN

(Name of the Wereda, Zone, Region)

(Date of the updated plan)

Promulgation document

[The promulgation statement enters the plan “in force”. Promulgation is the document that officially

announces/declares the plan. This document gives the plan official status and it is the signed statement that formally

recognizes and adopts the plan as the official Risk Mitigation and Adaptation plan of the administrative area. It gives

both the authority and the responsibility to organizations to perform their tasks. This statement is usually signed by the

main authority of the Administrative Unit. The following is sample language]

(NAME OF AUTHORITY)

(TITLE)

(NAME OF ADMINISTRATIVE AREA) RISK MITIGATION AND ADAPTATION PLAN PROMULGATION

The primary role of government is to provide for the welfare of its citizens. Every year, every sectorial office of (Name of

administrative area) develops an annual development plan. These development plans establish the strategies and

priorities for the human development in (Name of administrative area). However, the development goals can be seriously

affected by the disasters and by the possible effects of the climate change. Also, the impacts will affect the the most

vulnerable people, who are the ones more needed of the governmental support

The (Name of administrative area) Risk Mitigation and Adaptation Plan provides a number of actions and strategies that

shall be mainstreamed in the sectorial development plans in order to prioritize those actions which will have higher

impact in the reduction of the disaster risk. It will also serve to coordinate the efforts among the wereda sectorial offices

and the civil society and development partners (including NGOs, private sectors, volunteers, voluntary organizations and

individuals) who want to mitigate and to prevent likely disasters in the wereda.

The (Name of administrative area) Risk Mitigation and Adaptation Plan ensures consistency with Disaster Risk

Management policy guidance.

Therefore, in recognition of the Risk Mitigation and Adaptation responsibilities of (Name of administrative area)

government and partners, and with the authority vested in me as the Wereda Administrator of (Name of administrative

area, I hereby promulgate the (Name of administrative area) Risk Mitigation and Adaptation Plan.

____________________________________

(Name)

(Title), (Name of administrative area)

Signature page

[Especially at local levels, the promulgation document can be accompanied by the signatures of all actors and

stakeholders who are involved in the plan and that must have participated in the Disaster Risk Mitiation/Adaptation

Planning Process. This information can be taken from the attendance sheet filled during the planning workshop]

Name

Organization

Position

Telephone

E-mail

Signature

Table of contents

I. Risk Analysis

a. Wereda Disaster Risk Profile

b. Hazard Map

c. Hazard Assessment

d. Trend Analysis

e. Vulnerability Assessment

f. Adaptive Capacity Assessment

II. Strategy Identification & Prioritization

a. Sector X111

b. Sector X2

c. Sector X3

d. Sector X4

e. …

III. Disaster Risk Mitigation/Adaptation Action Plan

a. Action Plan Sector X1

b. Action Plan Sector X2

c. Action Plan Sector X3

d. Action Plan Sector X4

e. …

IV. Mainstreaming, monitoring and updating

11 The possible sectors can be (adapted to the context): 1. Livestock and animal health, 2. Crop, 3. Land Use and Natural resource Management,

4. Health, 5. WASH (Water, Sanitation and Hygiene), 6. Education, 7. Gender (Woman and Children Affairs), 8. Youth, 9. Road, Transport and

Infrastructure, 10. Trade Office (industry , market, technology), 11. Cooperatives and 12. Micro finance

SUMMARY OF WEREDA PROFILE

Wereda Disaster Risk Profiling Programme: X

Disaster Risk Profile: X Wereda

SUMMARY OF LIVELIHOOD ZONE

MAP: LOCATION OF THE WEREDA

MAJOR DISASTERS REPORTED IN WEREDA

SHORT NARRATIVE ON MAJOR DISASTERS:

EFFECT OF DISASTERS

Wereda Disaster Risk Profiling Programme:

Disaster Risk Profile: X Wereda

HOUSEHOLD AND COMMUNITY

VVUULLNNEERRAABBIILLIITTYY

Accessibility:

Level of Awareness and Institutional Development

COMMUNITY CAPACITY TO COPE

InfoBits:

I. RISK ANALYSIS

It involves collection and analyses of information regarding all important hazards that have the potential to become a disaster. The Wereda Disaster Risk Profiling

(WDRP) database provides information about hazards and associated trends, vulnerability factors, and existing and required adaptive capacities of communities.

Therefore these profiles will be used to analyze disaster risk at wereda and kebele levels and inform the process. This information will determine the type of

strategies that are needed to reduce the risk and adapt to the trends.

A. HAZARD MAP

A hazard map enables to observe the most difficult hazard facing and where. [When the technologies or capacities do not allow to produce precise accurate maps,

it is a good practice to elaborate the maps, by hand, as the first step with all stakeholders, showing the most dangerous places that have been affected in the past,

comparing with the information of the Risk Profiles and showing also, main factors of the hazard, vulnerability and capacity. Maps developed should be easily

understood by the member of the planning team and most of the times by the own community. This map could be included in the Plan if this is considered by the

planning team.]

B. HAZARD ASSESSMENT

It refers to the process of identification and analyzing the main characteristics of the hazards. The final action plan will determine strategies and activities to the

risk of the hazards identifies in this hazard assessment.

Hazards

(in their order of

importance)

Potential Kebeles

Affected

Period of Frequency Impacts/Effects of the

occurrence/

disaster

Duration

Root cause of disasters

Early Warning Indicators

Source: WDRP [affected kebele (from hazard _ disaster characteristics by Kebele); period of occurrence (hazard _ month of occurrence of frequent disaster); frequency (hazard _

frequency of disaster occurrence); impact and root causes (hazard _ disaster characteristics and Hazard _ losses suffered by households or from Biological, hydro-meteorological, and

socio-economic hazards);] and Workshop

C. TREND ANALYSIS

This analysis will describe the list of gradual of changes observed and threatening the livelihoods of the community and according to that, it will analyze the

kebeles affected by those changes and different factors related.

List of gradual changes

observed and threatening

the livelihoods of the

community

Kebeles affected

Analytical description of

the trend

Impact of the trend on

human and non-human

elements

Adaptation mechanisms

(To face with changes

observed)

Hazards affected

(Affected positively or

negatively by that

change)

Source: WDRP (vulnerability analysis–environment section and social analysis section) and Workshop

D. VULNERABILITY ASSESSMENT

It is the process of estimating the susceptibility of different elements at risk to various hazards and of analyzing the causes behind their vulnerability. There

are many aspects of vulnerability (physical, social, economic, and environmental factors) and the vulnerability varies significantly within a community and

over time. This information will serve the sectorial offices to identify which sectorial interventions can reduce the vulnerability of the different elements of

the community and in which they needed to dedicate special attention due to the high vulnerability.

SECTOR:

Hazard

VULNERABILITY ASSESSMENT

Level of vulnerability

Very High Med Low

High

Specific reasons of the sectorial

vulnerability

Most Vulnerable Human Elements for that hazard according the

sector (Men, Women, Children, Age, HIV/AIDS, Disabilities… ) and

why

Source: WDRP [vulnerable elements and reasons for vulnerability can be obtained from HAZARD_ situation during last disaster; while general information can be obtained from

HAZARD_ Disaster characteristics by Kebele], WDRP (Economical Vulnerability: Source of livelihood) and workshop

E. ADAPTIVE CAPACITY ASSESSMENT

This analysis will enhance to develop coping capacities of the individuals and the communities, and the organizations to develop resiliency from any type of

hazard taking into account the longer trends produced by the climate change.

Sector:

Capacities

HUMAN

CAPITAL

Existing capacities

(to mitigate, to cope with or to adapt to the hazard/trend)

SOCIAL CAPITAL

Capacity gap

ASSETS

PHYSICAL

CAPITAL

FINANCIAL

CAPITAL

NATURAL

CAPITAL

KNOWLEDGE AND INFORMATION

INNOVATION

FLEXIBLE AND FORWARD

LOOKING DECISION-MAKING AND

PLANNING

INSTITUTIONS

Source: WDRP [Information about WASH –access to water and sanitation-, HEALTH –status, status by kebele, health facilities and access to water-, INFRASTRUCTURE, -access to

road and market-, FINANCE AND ECONOMICS –Access to market or to credit facilities, formal & informal transfers-, CROP –Water for irrigation, status of agriculture, land of

ownership and crops grown-, LIVESTOCK –Livestock ownership and changes, water and pasture availability for livestock-, NATURAL RESOURCES MANAGEMENT –Environmental

problems, general quality-, EDUCATION and GENDER] and workshop

II. STRATEGY IDENTIFICATION AND PRIORITIZATION

Many interventions can be identified, however, due to shortage of resources and time; planners should prioritize the more important for the wereda.

[Each sectorial office that elaborate annual sectorial development plan will produce its own matrix]

A. SECTORIAL AREA:

STRATEGY IDENTIFICATION AND PRIORITIZATION/ Sectorial area:

Hazard

Strategy to reduce the risk of that hazard [based on

effects and causes of the kazard, trends observed, most

vulnerable elements and groups, existing adaptive

capacity gap and interventions suggested by the

Community (WDRP)]

Possible trends related to that

strategy (See trends analysis)

Selection Scores for the strategy

Total

score

Urgency

Importance

Feasibility

Lack of negative

impacts (good

adaptation)

Prioritizat

ion

(YES/NO)

Source: WDRP [Interventions: Suggestions to DRM Actors in the Area, Economic Vulnerability: Community Suggestions to Improve Economic Situation, Community

Preparedness against disasters, Suggestions to development actors] and workshop

III. DISASTER RISK MITIGATION/ADAPTATION ACTION PLAN

Once the strategies have been identified and prioritized, the planners will elaborate an action plan with the sequence of steps that must be taken for a strategy to

succeed. [Each sectorial office that develop annual and five years sectorial development plan will produce its own action plan. During the workshop every office

will fill one matrix per strategy, but after, during the plan writing all sectorial strategies will come together in the same matrix]

A. SECTORIAL AREA:

LEAD SECTORIAL OFFICE:

DISASTER RISK MITIGATION/ADAPTATION ACTION PLANNING

Hazar Selected

d/s strategy

Activity for that strategy

Kebeles where

that activity will

be developed

Time of

impleme

ntation

year year

Tentative total

resources needed (#

birr, # human resources, #

assets needed,

knowledge, innovation,

decion-making/planning,

…)

Tentative sources of available

resources and/or specific actor

responsible (Sectoral Office Budget,

PSNP, PCDP, Community, NGO, UN,

Regional Sectoral budget, AGP, HABP…)

Tentative

resource

gap

IV. MAINSTREAMING, MONITORING AND UPDATING

This section will describe the different mechanisms to mainstream the Risk Mitigation/Adaptation planning process into the sectorial development planning

mechanisms. This will also describe the mainstreaming monitoring mechanisms and updating. [The wereda can modify the sample answers contextualizing it to

the context]

Multi-sectorial coordination mechanism:

All sectors and stakeholders must be involved in planning and implementation of this Disaster Risk Mitigation/Adaptation plan. To get an efficient mainstreaming, every

sector should be aware of this methodology and final action plans in order to mainstream it into every sectorial development mechanism. The emphasis of this joint effort is

not to employ new programs and funds but to use the existing budgetary mechanism to have a more risk-informed development system in a wereda, including

kebeles/community organizations.

Wereda Development planning includes Wereda Disaster Risk Profile (WDRP) as baseline:

Risk profiling helps the development planning process to focus on the underlying causes of disasters risks rather than their effects. The Wereda Disaster Risk Profile will be

taken into account as a baseline at the time of identifying and prioritizing the needs from every community (the information of the WDRP comes also from the community).

The risk factors of the WDRP will be considered as inputs to build the wereda development plan.

Integration of Disaster Risk Mitigation/Adaptation strategies & activities into the Sectorial Development Plans:

This Disaster Risk Mitigation/Adaptation Plan has been developed with a number of strategies and actions defined in sectorial action plans for disaster risk mitigation &

adaptation. Every strategy is leaded by a specific wereda sectorial office that must be in charge of mainstreaming and integrating them with their annual development tasks.

Although the sectorial offices will be the final responsible of the implementation of the activities, they shall involve the community and other stakeholders in the decision

making and implementation.

Furthermore, when other external stakeholders in the wereda will be identifying their concerned Disaster Risk Reduction programmes they should be encouraged to use the

Wereda Disaster risk Profile as a baseline and collaborate with the wereda in this joint plan for Disaster Risk Mitigation/Adaptation, both (wereda and stakeholders)

contributing for the same results.

Monitoring mainstreaming of Risk mitigation/adaptation action plan:

Once, the actions plans have been mainstreamed into the Sectorial development plans, the results will be monitored by the sectorial development mechanisms. This will

happen through quarterly meetings between Woreda Council and Keble leaders and communities.

At the beginning of the fiscal year the wereda will use the ‘monitoring mainstreaming and planning’ template to check the progress of the mainstreaming. The DPPO Office

[Wereda DRM Council according draft new DRM Policy] will collaborate with every sectorial office [Wereda DRM Unit according draft new DRM Policy] to fill this matrix and

inform the Wereda Administration. Based on this monitoring, lesson learns will be developed, and the mainstreaming should be improved every sector.

The action plan establishes a lead sectorial office for every strategy. That sectorial office should be responsible to implement that strategy and to follow up the results of the

activities assigned during the quarterly meetings giving feedback about the development/progress of their strategies.

Updating:

The duration of this risk mitigation/adaptation plan developed will be not only valid for one year, it will remain in the time because the factors of the risk analysis will not

change so quickly so the strategies and activities identified will be valid for a period of time. When the Wereda disaster risk Profile will be updated, the Disaster Risk

Mitigation/Adaptation Plan shall be updated.

MONITORING MAINSTREAMING:

These matrixes will be used at the end and at the beginning of the fiscal year, to measure and to strenghten the level of DRR mainstreaming.

At the beginning of the fiscal year, and once the sectoral development plans are developed, the DPPO Office [Wereda DRM Council according draft new DRM

Policy] will collaborate with every sectorial office [Wereda DRM Unit according draft new DRM Policy] to fill this matrix and inform the Wereda Administration

about the level of mainstreaming. Based on this monitoring, lesson learns will be developed, and the mainstreaming should be improved by every sector.

Before the fiscal year, the Wereda Administrator should use the results of this matrix to remind the different sectoral offices, with the support of the DPPO office

[Wereda DRM Council according draft new DRM Policy], to mainstream activities of the Risk Mitigation and Adaptation Plan developed into their respective

annual or 5 year development plan.

Sectorial

Action

Plan

Strategy/Activities included in

the annual sectorial

development plan

Strategy/Activities included in

the 5 years sectorial

development plan

Strategy/Activities that have been

mainstreamed/funded by other

plans/stakeholders

How to improve mainstreaming next

year