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

Disaster Risk Management Programs for Priority Countries

Global Facility for Disaster Reduction and Recovery

Disaster Risk

Management Programs

for Priority Countries

Disaster Risk

Management Programs

for Priority Countries

Global Facility for Disaster Reduction and Recovery

2009

This volume is a product of the staff of the The World Bank. The findings, interpretations, and

conclusions expressed in this volume do not necessarily reflect the views of the Executive Directors of

The World Bank or the governments they represent.

The World Bank does not guarantee the accuracy of the data included in this work. The boundaries,

colors, denominations, and other information shown on any map in this work do not imply any judgment

on the part of The World Bank concerning the legal status of any territory or the endorsement or

acceptance of such boundaries.

Design: miki@ultradesign.com

/ iii

Contents

Foreword / v

2009 Priority Countries

Africa

Ethiopia / 2

Ghana / 17

Mozambique / 32

Togo / 43

East Asia and Pacific

Indonesia / 62

Marshall Islands / 72

Papua New Guinea / 85

Solomon Islands / 96

Vietnam / 106

Europe and Central Asia

Kyrgyz Republic / 122

Latin America & Caribbean

Haiti / 134

Panama / 145

Middle East & North Africa

Djibouti / 156

Republic of Yemen / 164

South Asia

Nepal / 178

Donor Earmarked Countries

East Asia and Pacific

Cambodia / 188

Lao PDR / 197

Vanuatu / 205

Latin America & Caribbean

Colombia / 222

Costa Rica / 231

Ecuador / 241

Guatemala / 251

South Asia

Bangladesh / 262

Pakistan / 272

Sri Lanka / 285

Foreword

At its 5th meeting in Copenhagen in November 2008, the GFDRR Consultative Group asked the Secretariat to focus on a

select group of priority countries to achieve increased impact.

In GFDRR’s Track II, Mainstreaming Disaster Risk Reduction in Development, this lead to a prioritization of operations in 20 core

countries, including Burkina Faso, Djibouti, Ethiopia, Ghana, Haiti, Indonesia, Kyrgyz Republic, Madagascar,

Malawi, Mali, Marshall Islands, Mozambique, Nepal, Panama, Papua New Guinea, Senegal, Solomon

Islands, Togo, Vietnam, and Republic of Yemen.

The countries were selected due to their high vulnerability to natural hazards and low economic resilience to cope with

disaster impacts including anticipated climate change and variability. Two thirds of the countries are least developed

countries and twelve are highly indebted poor countries. Nine are from Africa and several others are Small Island States

at high risk.

These 20 core countries will receive 80 percent of available funds while 20 percent will be made available for flexible, innovative,

high impact grants, such as those that catalyze increased investment programs and integration of disaster risk reduction and

climate change adaptation in development in any disaster prone country.

GFDRR will also systemize and deepen its engagement in eleven single donor trust fund countries, including Bangladesh,

Cambodia, Colombia, Costa Rica, Ecuador, Guatemala, Lao PDR, Pakistan, Sri Lanka, Timor-Leste, and

Vanuatu, using funding made available by the concerned donors.

To develop a strategic and integrated vision, GFDRR is preparing comprehensive programs for disaster risk management

and climate change adaptation for the next three to five years in each of the priority and donor earmarked countries.

The Development Process of Programs

A multi-stakeholder planning process lays the foundation for the comprehensive national programs for disaster risk

reduction and climate change adaptation. The process ensures the facilitation of ownership by governments for their risk

reduction agenda and the initiation of larger strategic partnerships and disaster risk reduction platforms.

In each priority country, the following steps are undertaken to develop the country programs:

1. investigation of a) the underlying risk factors and b) the progress in the five priority areas of the Hyogo Framework

for Action;

2. stocktaking of ongoing risk reduction and climate change adaptation programs by key stakeholders, including UN

agencies, multilateral and bilateral donors, and other partners;

vi / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES

3. identification of key gaps at national, sector, and local levels;

4. solicitation of proposals from different government and non-government entities and concerned donor agencies;

5. analysis of the solicited proposals and consensus building in a consultative process involving a range of stakeholders,

including relevant government ministries, UN organizations, multilateral and bilateral donors, INGOs and civil society

actors;

6. development of strategic comprehensive programs of support based on the gathered information.

Criteria used for the selection of the proposed activities include the relevance in addressing underlying risk factors,

the leveraging potential of future disaster risk management interventions, and meeting the challenge of increased risk

reduction activity synchronization and synergy building across various donors and thereby improving the quality and

effectiveness of donor aid in the DRM arena.

The presented programs are indicative and further dialogue with the Governments and other partners will refine the

agendas as the detailed planning and implementation phases start. At the sixth meeting of the GFDRR Consultative

Group in Geneva, disaster risk management plans are put forward for 25 out of the 31 priority and donor-earmarked

countries. The plans for the six remaining countries of Burkina Faso, Madagascar, Malawi, Mali, Senegal, and Timor Leste

will be submitted at the seventh meeting of the GFDRR Consultative Group since consultations in these countries are

still ongoing.

Achieving Outcomes

A set of priorities has emerged which will drive the GFDRR supported risk reduction agenda for the next three to five

years.

Knowledge, advisory, and capacity building on all levels. Many countries are undergoing a substantial shift in

DRM structures, roles and responsibilities away from classical disaster response functions to multi-sectoral and ministerial

development agendas around risk reduction and climate change. It will require a strong investment in national capacities for

Governments to lead and implement the comprehensive risk reduction agendas and to coordinate between ministries. Local

authorities at district level will also require technical support to put new strategies into practice.

Intensified support for sectoral mainstreaming. The programs identify the Governments’ demand for technical and

managerial support to develop sector specific risk reduction strategies and priority program investments. The most urgent

investments are linked to the hydro-meteorological sector in flood protection and mitigation of storm damages due to increased

severity of changing weather patterns.

Coordination of disaster risk management and climate change adaption agendas. Disaster risk reduction and

climate change adaptation should largely be managed as one integrated agenda. Both agendas have a few differences

but many overlaps. Many of the country programs aim to integrate the two agendas and strengthen the coordination

between climate change adaptation and disaster risk reduction institutions. The resulting climate risk management

approach treats existing and future climate-related risks as one continuum, generates social and economic benefits in

the short term, while also reducing vulnerability to long-term changes in climate.

Comprehensive risk assessments. Many countries have made progress in sector specific hazard assessments but

there is practically no targeted country within the GFDRR framework that has developed a comprehensive hazard risk

assessment system where data is easily collected, analyzed and shared with various stakeholders either within the

Global Facility for Disaster Reduction and Recovery / vii

government or with external constituencies. Generally, the scope of monitoring systems will have to be expanded in most

countries while investments in advanced technology are required.

Better risk financing models to alleviate macro and micro economic loss of assets due to disasters. The

area of risk financing is emerging as a macro-economic issue of great importance, most notably as all countries face

significant loss in GDP by a wide range of natural hazards. Most GFDRR core countries therefore strive to develop

innovative finance instruments including Disaster Management Funds for response and recovery activity as well as

Catastrophe Insurance risk financing models to cover losses to state and private sector assets. Pooling risks at a macro-

economic level as well as finding micro-insurance schemes for individuals at a community setting prove how complex and

diverse the needs are for innovative finance instruments.

Improved engagement of civil society and community actors in building resilience on local levels to ensure

a bottom up process to mainstreaming risk reduction priorities. The country programs address the need for an

increased decentralization of DRM management responsibilities to local authorities on provincial, district and communal

level. Mainstreaming and leveraging of DRM programs at national level will be complemented through strengthening

human resources, appropriate tools and empowerment of institutions at the point of service delivery.

Strategic partnerships with other development actors including regional Banks, bilateral donors, the UN

system, INGOS and civil society. The GFDRR funding requests are built on a thorough in-country assessment

process with relevant government ministries, the UN system, the Red Cross and Red Crescent movement, INGOs, local

civil society actors, and other partners. All country assessments have clearly concluded that one single organization

cannot tackle the rising demands of integrating a comprehensive risk reduction and climate change adaption agenda

alone. However, the coordination mechanisms are often still weak and a large number of donors with specific technical

agendas are not part of a broader risk reduction platform. GFDRR will strengthen existing and initiate new partnerships

for its work as a technical engine for DRM excellence and a catalyst for leveraging investments into mainstreaming

risk reduction and climate change in a larger development agenda. The new round of program proposals is built on a

promising commitment by many in-country partners to a joint DRM agenda that is executed by a wide range of partners,

including the Governments, UN, civil society, bilateral donors, and other partners.

viii / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES

Table: GFDRR Priority and Donor Earmarked Countries

HIPC

SIDS

LDC

(Heavily

(Small

LLDC

(Least

Developed

Income

Lending

Indebted

Poor

Islands

(Landlocked

Developing Developing

Country

Region Country)

group

Category Country)

State)

Country)

2009 Priority Countries

1 Burkina Faso

AFR

Yes

Low

IDA

Yes

2 Ethiopia

AFR

Yes

Low

IDA

Yes

3 Ghana

AFR

Low

IDA

Yes

4 Madagascar

AFR

Yes

Low

IDA

Yes

5 Malawi

AFR

Yes

Low

IDA

Yes

6 Mali

AFR

Yes

Low

IDA

Yes

7 Mozambique

AFR

Yes

Low

IDA

Yes

8 Senegal

AFR

Yes

Low

IDA

Yes

9 Togo

AFR

Yes

Low

IDA

Yes

10 Indonesia

EAP

Lower middle IBRD

11 Marshall Islands

EAP

Lower middle IBRD

Yes

12 Papua New Guinea

EAP

Low

Blend

Yes

13 Solomon Islands

EAP

Yes

Low

IDA

Yes

14 Vietnam

EAP

Low

IDA

15 Kyrgyz Republic

ECA

Low

IDA

Yes

16 Haiti

LAC

Yes

Low

IDA

Yes

17 Panama

LAC

Upper middle

IBRD

18 Djibouti

MNA

Yes

Lower middle

IDA

19 Yemen, Rep.

MNA

Yes

Low

IDA

20 Nepal

SAR

Yes

Low

IDA

Yes

Donor Earmarked Countries

1 Cambodia

EAP

Yes

Low

IDA

2 Lao PDR

EAP

Yes

Low

IDA

Yes

3 Timor-Leste

EAP

Yes

Lower middle

IDA

Yes

4 Vanuatu

EAP

Yes

Lower middle

IDA

Yes

5 Colombia

LAC

Lower middle IBRD

6 Costa Rica

LAC

Upper middle

IBRD

7 Ecuador

LAC

Lower middle IBRD

8 Guatemala

LAC

Lower middle IBRD

9 Bangladesh

SAR

Yes

Low

IDA

10 Pakistan

SAR

Low

Blend

11 Sri Lanka

SAR

Lower middle

IDA

Income Group: All economies are divided based on 2007 gross national income (GNI) per capita, calculated using the World Bank Atlas

method. The groups are: low income, $935 or less; lower middle income, $936–3,705; upper middle income, $3,706–11,455;

and high income, $11,456 or more.

Lending category: IDA countries are those that had a per capita income in 2007 of less than $1,095 and lack the financial ability to borrow from

IBRD.

ETHIOPIA / 1

DISASTER RISK MANAGEMENT

Africa

Ethiopia / Ghana / Mozambique / Togo

Disaster Risk Management Programs for Burkina Faso, Madagascar, Malawi, Mali, and Senegal

are under preparation and will be presented at the 7th Consultative Group Meeting

2 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

ETHIOPIA

The preparation of the Ethiopia Disaster Risk Management (DRM)

Plan comes at a very opportune moment because of: a) the

recent (and ongoing) Business Process Re-engineering (BPR)

throughout the government, which has considerably transformed

structures and staffing at several ministries, including the Ministry

of Agriculture and Rural Development; b) the development of

a new National Policy on Disaster Risk Management, which

is expected to be submitted to Parliament by July 2009 and

potentially ratified in 2010; and c) a new mandate and approach for Disaster Management and Food Security Sector

(DMFSS) to shift from a focus on ex-post emergency response and relief work to the much broader ex-ante disaster risk

reduction. DMFSS is also a lead agency for issues related to climate change.

To prepare the Country DRM Note, consultations were undertaken with members of the World Bank’s Ethiopia

Country team and the DMFFS, and meetings were held with Ministry of Health, Ministry of Water Resources, National

Meteorological Agency, Environmental Protection Authority, European Commission, WFP, UN-OCHA, UNDP, UN-ECA,

UNICEF, FAO, DFID, USAID, FEWS-NET, DMFSS Livelihood Integration Unit, SC-UK, IFPRI, Oxfam-US, CARE, Relief

Society of Tigray, and the Ethiopian Red Cross.

The matrix of priority areas and actions for DRM and estimated budget allocations were discussed and cleared at a debriefing

meeting held at DMFSS on May 15, 2009 with wide participation of stakeholders from Government, donors, and NGOs.

There is strong support and ownership and endorsement by DMFSS for the matrix of priority areas and actions.

1. Disaster Risk Profile

A wide range of natural hazards are present in Ethiopia, including drought, floods, landslides, human and animal

diseases, pests, earthquakes, and urban and forest fires. Recurrent drought and floods in particular have the most severe

impacts on people’s lives in Ethiopia (refer to Figures 1 and 2). The country’s vulnerability to natural disasters is due to a

number of inter-linked factors. These include dependence on rain-fed agriculture, under-development of water resources,

land degradation, low economic development, and weak institutions. Furthermore, with a population of 80 million people,

Ethiopia is the second most populous country in Sub-Saharan Africa, and has a relatively rapid annual population growth

rate of 3.2%. With a GDP of US$200 per capita, Ethiopia is also one of the world’s poorest countries.

Drought is the most significant and recurrent climate-related hazard affecting the country. Ethiopia has

mainly dry sub-humid, semi-arid and arid regions, all of which are prone to desertification and drought. Ethiopia has a

long history of recurring drought; however, since the 1970s, the magnitude, frequency, and impacts of droughts have

become more severe. Moreover, due to climate change and human-induced factors, the areas affected by drought and

desertification are expanding in Ethiopia.

Flash floods and seasonal river floods are becoming increasingly common due to deforestation, land deg-

radation, increasing climate variability, and settlement patterns. During the past two decades, major floods in

ETHIOPIA / 3

Top 10 Disasters in Ethiopia,

1999-2009

Hazard

Drought

Flood

People Affected

12,600,000

4,500,000

2,600,000

361,600

239,586

235,418

110,000

79,000

45,000

38,000

Date

2003

2008

2005

Oct 2006

July 2007

Apr 2005

Apr 2003

Oct 1999

Aug 2006

Natural Disaster Occurrence Reported,

1980-2008

Mass mov. dry 1

Wildfire 1

Mass mov. wet 2

Volcano 2

Insect infestation 4

Drought

Epidemic

Flood

Source: EM-DAT: The OFDA/CRED International Disaster Database, Université catholique de Louvain, Brussels, Belgium.

1988, 1993, 1994, 1995, 1996 and 2006 have caused significant loss of life and property. Large-scale flooding is

limited to the lowland areas of the country; however, intense rainfall in the Highlands causes flooding of settlements in

a number of river basins, particularly the Awash River Basin in the Rift Valley. Annual flooding in urban areas, especially

in Addis Ababa, causes property damage along streams descending from the nearby hills. Flash floods are common in

most parts of the country, especially when rains occur following prolonged dry spells.

Ethiopia’s climate is highly variable, and is projected to become more variable due to climate change, with

the potential for increased frequency of extreme weather events including floods and droughts. Rural areas are

very vulnerable to climate variability. The most vulnerable sectors to climate variability are agriculture, water, health, and en-

ergy.1 Smallholders dependent on rain-fed crop production and pastoralists in drought-prone areas are the most vulnerable

rural livelihood systems. Approximately 85% of the population lives in rural areas and depends on the local natural resource

base to meet their basic welfare needs. The relatively under-developed, semiarid, and arid regions of Afar and Somali have

been historically vulnerable to unfavorable climatic conditions, which are being exacerbated by climate change. The Amhara

and Oromia regions are characterized both by areas of good agricultural production in the highlands and midlands and by

recurrent droughts. The Tigray region, vulnerable to recurrent drought, is also vulnerable to climate change.2

Recurrent droughts, conflict, rising food prices and isolation of affected populations have resulted in per-

sistent and high levels of food insecurity, and recurrent emergency situations. In 2008, more than six million

Ethiopians required emergency food assistance due to drought and rising food prices. In recent years the value of

emergency food and non-food aid has reached over US$350 million on average per year. Although once self-sufficient

in food and a net exporter of food grains, since the 1980s, Ethiopia has been a net importer of grain due to a decline in

crop production caused by land degradation, soil erosion, and a decline in farm sizes, and rapid population growth and

increasing demand for grains as livestock feed. Food aid has tended to be managed through emergency mechanisms

that hand out food to needy households, rather than being provided as part of development programs that build and/or

1 Most of Ethiopia’s electricity is from hydro-electric power.

2 ‘Measuring Ethiopian Farmers’ Vulnerability to Climate Change Across Regional States.’ Temesgen Deressa, Rashid M. Hassan, Claudia Ringler.

IFPRI Discussion Paper 00806, October 2008.

4 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

protect assets (human, natural or physical). Thus, although there have been massive flows of food aid into Ethiopia since

the 1980s, its contribution to sustained economic development has been insignificant.

The vulnerability to climate-related hazards and food insecurity is closely linked to land degradation. About 85% of the

land surface in Ethiopia is considered susceptible to moderate or severe soil degradation and erosion. In the Highlands,

shrinking farm sizes and soil degradation and erosion are reducing the sustainability of agricultural production and

causing downstream pollution (including siltation of dams), thereby making it difficult for rural populations to meet their

basic needs. The annual costs of land degradation are estimated to be at least 2-3% of agricultural GDP.3 To put this

in perspective, that means that land productivity would need to increase by more than 20% immediately to reverse the

damage of the past 10 years. In addition, land productivity is declining as average per household landholdings are

declining due to population pressure and limited uncultivated land.

Despite the widespread problems related to droughts, there are some Highland areas that are relatively

high rainfall areas, and, from a national perspective, Ethiopia is relatively well endowed with water re-

sources. However these water resources are unevenly distributed both spatially and temporally. Between 80-90% of

the country’s surface water resources are found within four major river basins – Abay (Blue Nile), Tekeze, Baro Akobo

and Omo and Omo Gibe. These are located in the west and southwest of the country with no more than 30-40% of the

total population. In the east and central river basins, where 60 percent of the population resides, there are only 10-20%

of the country’s surface water resources. The Ethiopian Highlands contain the headwaters of a number of major rivers

that flow across its borders and which are vital sources of water for neighboring and downstream countries, especially

the Sudan, Egypt and Somalia.4 Historically there has been a problem for Ethiopia to exercise its riparian water rights

and to access rivers whose source is in Ethiopia.

2. ACTIVITIES UNDER HYOGO FRAMEWORK OF ACTION

HFA Priority # 1: Policy, Institutional Capacity and Consensus Building

Key DRM Institutions and National DRM Policy

Ethiopia’s institutional framework for disaster risk management has undergone numerous changes in

mandate, structure, and scope over the past 30 years. Following the devastating 1973/4 famines in Northern

Ethiopia, the Relief and Rehabilitation Commission (RRC) was established. During its 20-year existence, RRC focused

on disaster response and the distribution of relief supplies. The ratification of the National Policy on Disaster Preven-

tion and Preparedness Management (NPDPM) in 1993 led to a shift in thinking based on the perceived need to more

closely link the relief and development agendas.5 With this in mind, the government restructured RRC to establish the

Disaster Prevention and Preparedness Commission (DPPC), and gave it a mandate to focus on the links between relief

and development.6

In 2004, DPPC was renamed the Disaster Prevention and Preparedness Agency (DPPA), with a revised

and more restricted mandate to focus on acute cases of emergency response. The responsibility to coordinate

employment generation, one of the major strategies that link relief with development, was reassigned from DPPC to the

3 Ethiopian Strategic Investment Framework for Sustainable Land Management (Draft). SLM Secretariat. August 2008.

4 Ethiopian Strategic Investment Framework for Sustainable Land Management (Draft). SLM Secretariat. August 2008.

5In the 1990s, several important documents were created to guide the early warning system and food security: 1) the National Food Security Policy;

2) the 1993 National Policy for Disaster Prevention and Preparedness Management (NPDPM); 3) General Guidelines for the Implementation of the

National Policies on Disaster Prevention and Preparedness Management; and 4) the Five-Year Disaster Prevention Plan 1998-2002.

6See Climate Risk Management in Africa: Learning from Practice, edited by M.E. Hellmouth and others. (2008) International Research Institute for

Climate and Society. The chapter “Food Security in Ethiopia” provides a good overview.

Ministry of Agriculture and Rural

Development (MoARD)

ETHIOPIA / 5

Agricultural

Development

Sector

Agricultural

Marketing

Sector

Natural Resource De-

velopment

Sector

Support

Process

Disaster Risk Management and Food

Security Sector (DMFSS)

Food Security Program

Directorate (FSPD)

Early Warning and Response

Directorate (EWRD)

newly created Food Security Coordination Bureau (FSCB). As such, DPPA was no longer responsible for addressing

the underlying causes of disasters, and was responsible only to respond to fast-onset disasters or unpredictable events.

FSCB addressed national food security through a productive safety nets program, other food security-related projects

that attempted to enhance assets and livelihoods, and a voluntary resettlement program. At the institutional level, DPPA

was responsible for transitory vulnerability, while FCSB dealt with chronic vulnerability. In practice, though, many per-

ceive that this distinction between chronic and transitory vulnerability is not so clear-cut in reality, and that there is some

movement of households between categories.7

The recent (and ongoing) Business Process Re-engineering (BPR) process throughout the government

during 2008-2009 has again restructured the institutional arrangement for disaster risk management, and

established the Disaster Management and Food Security Sector (DMFSS) under the Ministry of Agriculture and Rural

Development (MoARD), with a significant shift in policy direction. DMFSS now assumes all responsibilities of the former

DPPA and FSCB. DMFSS oversees two directorates: the Food Security Program Directorate (FSPD) and the Early

Warning and Response Directorate (EWRD). The diagram on the following page illustrates the current structure of

DRMSS within MoARD.

BPR, which began more than a year ago, has had a major impact on government capacity, resources, and

continuity, and has resulted in staff reductions across ministries. Staff of DMFSS in the national-level MoARD

was streamlined to reduce 60 percent of the staff, including some of the most experienced and skilled staff. There was

less turnover at the regional DMFSS level, and a new cadre of DMFSS staff was created at the woreda (district) level.

Thus, many of the current staff in DMFSS are new, and/or lack significant practical experience in disaster risk manage-

ment. As some donors and NGOs are now beginning to re-engage with Government and try to re-establish partnerships

with new staff, the DMFSS is in need for large-scale institutional and capacity building during this transitional and trans-

formational phase.

Under the new structure, DMFSS is undergoing a major shift in its approach from traditional reactive ex-

post emergency response and relief work to pro-active ex-ante preparedness and disaster risk reduction.

The new approach to DRM is highlighted in the new DRM Policy, which is a revision of the 1993 NPDPM. The new

7 Burg, Jericho. ‘Measuring Populations’ Vulnerabilities for Famine and Food Security Interventions: the Case of Ethiopia’s Chronic Vulnerability

Index.’ Disasters, 2008.

6 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

DRM Policy is still not completed and needs to be submitted to the legislature for approval. The new and ambitious DRM

policy is organized according to Hyogo Framework for Action (HFA) priority areas and addresses some of the weak-

nesses of the 1993 policy, including the focus on drought and lack of information on community vulnerability and flood

preparedness. Despite DMFSS’s shift toward proactive ex-ante disaster risk management and explicit attention to HFA

principles in the new policy, Ethiopia is not yet a signatory to HFA and has not established a national platform. Becoming

a signatory to HFA would demonstrate Ethiopia’s commitment to the broad principles and strategies outlined in HFA, and

would constitute an important political gesture for the new unit. It is anticipated that the new national DRM policy will be

presented to Parliament in mid-late 2009 and potentially ratified in 2010.

Government capacity at all levels, but particularly at the national level, is a critical issue in the establish-

ment and implementation of this new mandate and proposed DRM policy. Successful implementation of the

new DRM policy will require the development of a concrete and detailed strategic framework and implementation plan.

The failure to fully implement the existing NPDPM has been attributed to the chronic capacity problem at all levels and

lack of legislation to enforce the implementation of the Policy. Major stakeholders, particularly key line departments, do

not always accept and support the main DRM strategy - the Employment Generation Scheme (a mechanism to link relief

and development) - as part of their mandates. Links between responsibility, authority and accountability have not been

clearly understood and observed. This is a major priority for making the new DRM Policy an effective vehicle for DRM.

Lack of coordination and cooperation among development partners and among government branches, and

the lack of a coherent, comprehensive approach to DRM, are the main challenges to the implementation of

the new DRM mandate. DMFSS needs to take a strong lead in providing a coherent framework and policy for DRM

at the national, regional, and local levels. There is also a need for DMFSS to play a significant coordination role among

the many actors involved in DRM, and to provide the donor and NGO community with a clear picture of how the various

DRM investments and interests in the country are aligned.

There is also a strong need for greater coordination by DMFSS for sectoral-level DRM activities within the

line ministries. DMFSS is the lead agency for dealing with hazards including drought, flood, and food insecurity, and

the coordination of DRM across the ministries. Line ministries address the integration of DRM issues at the sectoral level.

The Ministry of Water Resources, for example, is responsible for flood preparedness and the coordination of responses

to water and sanitation-related disasters including floods. The National Meteorological Agency (NMA) falls under this

ministry and prepares and disseminates monthly, seasonal, and annual climate bulletins and seasonal and annual hydro-

meteorological bulletins; NMA also finalized the Government’s National Adaptation Program of Action (NAPA) in 2008

and is mobilizing financial resources for its implementation.8 The Ministry of Health oversees an emergency preparedness,

early warning, response and recovery system for health emergencies linked to hazards including floods and drought.

These DRM activities at the sectoral level need to be better coordinated by DMFSS to avoid duplication of efforts and

develop common methodologies and baselines for risk profiling (see next section for more details on risk profiling)

There is a recognition that food security and early warning activities must be decentralized to regional and

woreda (district) levels. In 1995 the new constitution established a decentralized federal system that divided the

country into a series of semi-autonomous Regional States. Most responsibilities for the planning and implementation

of development policies and programs were decentralized to this level. Each region has its own set of government

institutions which largely replicate those at the federal level. Resources and responsibilities for service delivery and

8Other environmental strategies and policies include: (i) the 20-year Ethiopian Forestry Action Program (EFAP) formulated in 1994; (ii) the Ethiopian

Water Sector Strategy formulated by the Ministry of Water Resources in 2001 and its 15-year (2002-16) water sector development program; and

(iii) the Ethiopian National Biodiversity Strategy and Action Plan prepared in 2005 in fulfillment of the country’s obligations following ratification of

the UN Convention on Biodiversity.

ETHIOPIA / 7

project implementation have been moved to the woreda offices. In practice, however, both woreda and regional policies

are still guided by federal sector policies and by cross-sector strategies and programs.9

A second phase of decentralization in 2002 established the woredas as the center of socio-economic

development and empowered woreda administrations. The woredas now have economic autonomy and receive

direct block grants from the regional level. Each woreda now has an elected council, from which are elected a woreda

administrator and deputy who exercise overall leadership. The administrator chairs the woreda cabinet, which consists of

the heads of the various government departments found at this level.10

There is a Task Force on DRM, led by DMFSS, that is supposed to bring together all of the Ministries that

deal with DRM at the sectoral level: 11 Ministry of Water Resources, Ministry of Health, Ministry of Agriculture and

Rural Development, Ministry of Environment, and NMA. This forum and other similar working groups and platforms,

including the Early Warning Working Group (EWWG), Rural Economic Development – Food Security (RED-FS) Group,

and the Sustainable Land Management (SLM) national platform, need to be better coordinated and integrated, with the

clear establishment of roles and responsibilities. However, during and immediately after the BPR, this Taskforce has not

been functioning. It is important to re-establish a functioning Taskforce on DRM to help finalize the new DRM Policy and

to help lead the process for developing a detailed operational strategy and implementation plan.

HFA Priority # 2: Disaster Risk Assessment, Monitoring, Early Warning

Risk Assessments

A major priority of the DMFSS is to develop risk (hazard/vulnerability/coping) profiles at the woreda level.

The purpose of the profiles would be to integrate the baseline data on livelihood zones (disaggregated by livelihood

groups) developed by the USAID-funded Livelihoods Integration Unit (LIU) with historical woreda-level data on hazards

(e.g., floods, drought, malaria outbreaks, livestock disease) provided by the line ministries to determine multi-hazard risk

profiles at the woreda level. Ultimately, this information can serve as a source of forecasting and early warning information

based on historical data and also based on real-time data. In addition, the risk profiles can serve as a tool for analyses

and planning exercises based on the interface between sustainable land management (SLM), DRR and CCA, and

incorporate information on other sectors such as water balances, health and nutrition, land use, etc.

As such, DMFSS is seeking a common methodology for its proposed risk profiling. The existing early warning

system places more emphasis on the livelihood zone database (i.e., vulnerability profiles), and how climate variability

(notably lack of rainfall) can impact household well-being in terms of food production and consumption. It is possible

to have more detailed historical and “real-time” multi-hazard data to estimate the potential disaster risks, and to extend

the number of household well-being variables under consideration and to better model coping mechanisms and other

household adjustments to changing conditions (including changing prices). Thus, the woreda-level risk profiling could

provide a vast amount of information to integrate monitoring, forecasting, early warning systems, contingency plans and

contingency financing for multi-hazard analyses that cover many sectors.

Early Warning System

The National Early Warning System (EWS) has been in place in Ethiopia since 1976. It is supported by a

National Committee for Early Warning (NCEW), whose members, as stipulated in ‘Directives for Disaster Prevention and

9 Ethiopian Strategic Investment Framework for Sustainable Land Management (Draft). SLM Secretariat. August 2008.

10 Ethiopian Strategic Investment Framework for Sustainable Land Management (Draft). SLM Secretariat. August 2008.

11 Additional ministries and agencies with relevance to DRM include the Ministry of Federal Affairs, Ministry of Transport and Communication, Ministry

of Works and Urban Development, Ministry of National Defense, Ministry of Mines and Energy, and Environmental Protection Authority.

8 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Management,’ include senior staff members of EWRD, Ministry of Agriculture and Rural Development, Ministry of Health,

Central Statistical Authority, Ethiopian Mapping Authority, and NMA. In 1996 the multi-agency Early Warning Working

Group (EWWG) was established to coordinate early warning activities related to food-insecurity among government

agencies, donors, UN agencies, and NGOs. Early warning committees at all levels, including woredas, gather information

and report to higher-level committees.

The EWS conducts hazard assessments periodically and yearly by monitoring social, economic, cultural

and physical indicators. The EWS was established to “monitor and warn the threat of disasters ahead of time to

trigger timely, appropriate, and preventive measures.” However the primary focus of the EWS has been to monitor causal

factors of food insecurity. Thus it monitors the occurrence of drought, rainfall, pests, and the outbreak of human and

livestock diseases that affect the availability of, and access to food. The existing EWS is not well-suited to fast-onset

natural disasters such as floods, and certain rapidly spreading diseases and pests, and conflicts.

Communication among the kebele (community), woreda, regional, and federal levels is at the core of the

early warning system and must be strengthened for effective functioning of the system. This includes improved

systems for data collection, analysis, and dissemination to end users, as well as strengthening of the communication

channels from the community to national levels.

There is widespread recognition, among Government and development partners, of the need to develop a

more unified, transparent, coordinated, and objective early warning system, that has a system of “checks

and balances.” Although more than 30 early warning systems, methodologies, and approaches exist in the country, there

is no coordinating framework that brings together the different streams of information into a multi-sectoral early warning

system that assesses hazards in, e.g., agriculture, health, nutrition, and natural resources management.12 There should

be one major unified early warning system that assesses multi-sectoral hazards across the country, including monitoring

of drought risk, food insecurity, health epidemics, malaria outbreaks, livestock diseases, and market information. This

requires the coordination of early warning activities from the community level up to the federal levels, across line Ministries

at the federal level, and among the many actors and donors working on early warning issues at the community, regional,

and national levels.

There has been some progress toward the development of unified early warning systems. In recent months

the USAID-funded FEWS NET and the WFP-funded Vulnerability Analysis Mapping (VAM) have joined forces to generate

a unified monthly Early Warning Bulletin. This is a major stride toward streamlining and integrating existing monitoring

and early warning systems in Ethiopia. In addition, DMFSS has requested technical assistance from FEWS NET and

VAM to help in preparation of monthly reports by Government.

The Government has made a strategic decision to decentralize the early warning system to the woreda level,

particularly with regards to slow-onset risks such as drought and food insecurity. Given the importance of data

captured and used at the woreda level, DMFSS needs to focus on woreda-level capacity building for monitoring and early

warning, along with contingency planning and financing. In the existing system, the key information gathered and potential

decision-making is at the woreda level. This allows information gathered at the community level to be used by those at the

community level. One potential mechanism for the transfer of information between the community, regional, and national

levels is through the WoredaNet system, an initiative to connect the woredas through a network. This system is largely non-

functional at present but has the potential to be an important mechanism for information dissemination.

12Sue Lautze, Yacob Akalilu, Angela Raven-Roberts, Helen Young, Girma Kebede and Jennifer Leaning.: Risk and Vulnerability in Ethiopia: Learning

from the Past, Responding to the Present, Preparing for the Future. A report for the U.S. Agency for International Development, 2003.

ETHIOPIA / 9

Improved data collection at the local level and a strengthened multi-hazard early warning system require

reliable information on climate monitoring. The National Meteorological Agency (NMA) currently has about 1,000

hydro-meteorological stations of various classes located throughout the country.13 however, information at the local level

is seen as unreliable, and not captured in a way that would allow the community itself to use the data for early warning

and forecasting, and for planning of crop-livestock systems. There is a need to provide capacity building for better

and more reliable climate information at the local level through climate downscaling, expansion of hydro-meteorological

stations, and support for new technologies.

The NMA is promoting the “Mali model” for community-based climate monitoring whereby climatic data, along with other

data (e.g., on vegetation, crops and livestock status, human and animal health and nutrition, water resource availability

and quality, environmental indicators, etc) are collected at the community level to help in forecasting and early warning,

and also to better understand local conditions. In turn, this information can be used together with agriculture and heath

extension agents for planning farming systems and livelihoods that have higher returns, are more resilient to hazards, and

are environmentally sustainable.14

Contingency Planning

Along with capacity building for the early warning system, there is a clear need to strengthen the entire

contingency planning process, including the development of contingency plans at all levels, formulation of

objective and transparent “triggers” for the plans, and integration of the plans into the EWS. Woreda level

risk profiles can be key for linking EWS and contingency plans. Contingency plans are currently developed at the national

level to guide emergency responses, and are activated by the Policy and Planning Department of DMFSS and the

associated regional Disaster Prevention and Food Security Bureau. The movement toward decentralization of the EWS

and the transfer of more responsibilities to the woreda level, including the collection of early warning information, requires

greater capacity and responsibility at grassroots levels to develop appropriate and actionable contingency plans. This

includes the development of alternative contingency planning and funding mechanisms, along with risk financing and risk

transfer mechanisms (including index-linked insurance) to strengthen and complement contingency funds.

Risk Financing

Within the framework of the NPDPM, a National Disaster Prevention and Preparedness Fund (NDPPF) has

been established as an emergency fund that provides resources for carrying out relief measures. The Fund is owned at

the federal level and is managed by a National Disaster Prevention and Preparedness Fund Administration (NDPPFA).

The Fund, which is guided by a Board of Directors and with technical involvement of major donors, intends to provide

loans to agencies involved in disaster reduction. The NDPPFA has been operational and supported relief measures in

three instances in 2003; however, this fund is relatively new and has limited capacity.

A risk financing mechanism is being established through the LEAP (Livelihoods, Early Assessment and

Protection) index, supported by the World Food Program and the World Bank. The LEAP index is intended to

harmonize key components of a risk management framework designed to translate early warning information into early

emergency response. LEAP produces good indicators of yield shortfalls and livelihood stress and has been used by the

Government for early warning and crop stress monitoring during 2008, while the World Bank has used the index to help

13 There are about 18 synoptic “full-service” stations, 180 “indicative” stations, 300 rain and temperature gauge stations, and 500 rain gauge sta-

tions.

14See Climate Risk Management in Africa: Learning from Practice, edited by M.E. Hellmouth and others. (2008) International Research Institute for

Climate and Society. The chapter “Agriculture in Mali” provides a good overview of the “Mali model” for community-based climate monitoring.

10 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

determine regional allocations of a US$25 million contingent grant to livelihood-stressed beneficiaries. The framework

is designed to protect five million livelihoods and would scale up the existing Productive Safety Net Program (PSNP) to

reach transient food insecure beneficiaries.

To quote Ato Mathewos Hunde, Director of the EWRD of DMFSS:

“Early warning systems are useless unless backed up by contingency plans and financing”

HFA Priority #3: Knowledge and Capacity Enhancement for DRM

Ethiopia’s undergraduate and graduate program on DRM at Bahir Dar University is an important mechanism

to increase knowledge and capacity enhancement for DRM, and should be supported as a critical element

of an overall national DRM strategy. The Department of Disaster Risk Management and Sustainable Development

(DRMSD) was developed within the Faculty of Agriculture and Environmental Sciences at Bahir Dar University (BDU)

as a response to an identified need to build more resilient communities through strengthened capacity and sustainable

development in Ethiopia. The three-year interdisciplinary undergraduate DRMSD curriculum was created in 2005 by a

joint committee of experts (BDU, Save the Children/UK and Canada and DPPC).

By strengthening and expanding upon the undergraduate DRMSD program at Bahir Dar University, USAID

is funding an interdisciplinary Disaster Risk Science and Sustainable Development Masters of Science

program. The curriculum is structured broadly to have both a proactive component that develops the skill to assess

the underlying vulnerabilities of different livelihood systems, contributing to sustainable development, and a reactive

component that addresses all stages of the disaster risk cycle.

Continued support for applied research and studies on DRM-related issues conducted by other Ethiopian

research institutes is important to further the DRM agenda in the country and to build capacity of local

institutions. Such institutions include the Ethiopian Development Research Institute (EDRI) and the Ethiopian Institute

of Agricultural Research (EIAR).

HHFA Priority # 4: Disaster Risk Reduction and Financing

Risk Reduction

Disaster risk reduction in Ethiopia is closely linked with poverty reduction, food security, and sustainable

land management (SLM) initiatives at the community and local level. Programs to reduce vulnerability include:

increase crop and livestock production and productivity of vulnerable population through moisture retention, soil and

water conservation (SWC), water harvesting and pasture development activities and improvement of extension services;

programs that improve the access of poor people to food in chronically food insecure areas through implementing

diversified income generating and cash based safety net, provision of credit and skill training; programs that improve

health and nutrition including water and sanitation, nutrition education, and preventive health activities; and resettlement

programs to provide access to land to the landless and/or to those who are settled in agriculturally marginal areas.

Although Ethiopia is mainly a rural country and largely dependent on agriculture, in urban risks are increasing

because of increasing hazards and vulnerabilities (e.g., increased population and informal settlements,

industrialization, and changing land use patterns). In particular, the Environmental Protection Agency (EPA)

has emphasized that industrial water and air pollution could contribute to a major environmental disaster. Also, lack of

adequate household and industrial solid waste management contributes to poor sanitation and drainage and increases

ETHIOPIA / 11

exposure and vulnerability to flooding and disease. EPA expressed urgency to address industrial water and air pollution

and solid waste management as a means to address risk reduction in urban areas.

HFA Priority # 5: Disaster Preparedness and Recovery

Given the restructuring caused by the Business Process Re-engineering (BPR) and shift toward

decentralization, there is a need to assess the best mechanisms for logistics, funding, and distribution

of relief supplies during a disaster response. At present DMFSS has institutionalized a Strategic Relief Fleet

that provides transport services in areas that are not accessible by long-haul trucks. In addition to short-haul trucks the

logistics plan is to mobilize pack animals to transport relief commodities. This system needs to be reviewed for upgrading

of the relief fleet; enhancement of delivery mechanisms; and improvement of the logistical system for distribution.

The community level storage facilities known as Relief-Food Outlets (RFOs) are established so that

affected populations receive assistance within their vicinity. The Government-owned storage capacity throughout

the country is around 1.7 million MT. Primary warehouses are placed in seven strategic locations and have 23,500MT

capacity. At regional states level the total storage capacity is nearly 1.3 million MT.

However, most drought-prone areas are inaccessible, forcing beneficiaries to travel long distances to

collect food rations. During emergencies, it is a common practice to use schools and other public facilities for storing

food as necessary. However, transportation of relief food from ports to the primary warehouses has not caused a major

problem so far although port congestions have been reported periodically.

The UNDP, though UNDP/BCPR, has just initiated a new integrated early recovery program that is a multi-

sectoral, multi-level and multi-stakeholders response mechanism to risk and disaster management. The UNDP’s new

integrated early recovery program aims at restoring the livelihoods of disaster-affected communities and provides basic

social services. The objective is to strengthen disaster response systems by lessening the negative impacts of disasters

and enhancing the positive development process.

3. Integration of Disaster risk management in Development Strategies

The FY 2008-2010 Ethiopia CAS recognizes the risks posed by climatic shocks, including droughts and

floods, and the need to reduce poverty and strengthen livelihoods for food-insecure Ethiopian households

to withstand adverse climatic shocks. The CAS identifies the potential entry points for reducing household

vulnerability from food insecurity. These include existing programs such as the Productive Safety Nets and Food Security

program as well as proposed programs such as the Land Management Project and the Tana Beles Integrated Water

Resource Development Project. The CAS also emphasizes urban development and extending infrastructure for poverty

reduction.

The Ethiopia Plan for Accelerated and Sustainable Development to End Poverty (PASDEP, 2006-2010)

provides an overarching policy strategy for reducing poverty and addressing food security. PASDEP builds

on the initiatives pursued under the Sustainable Development and Poverty Reduction Program (SDPRP), particularly in

promoting agricultural and rural development, developing human capital, promoting local capacity building in support of

the decentralization process, increasing household access to primary health care, and responding more effectively to the

HIV/AIDS pandemic.

12 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

4. Key Donor Engagements

There are many ongoing donor activities in DRM in Ethiopia. A major challenge is to better coordinate efforts between

Government, donors, NGOs and civil society to provide a more integrated and effective DRM program that is synergistic

and not duplicative and/or contradictory.

World Bank and Other Donor-Supported Projects Related to DRM in Ethiopia

Ongoing Projects and Organizations

World Bank Projects

Facilitating Provision of Baseline Vulnerability Information on Flood-Exposed

Communities in Ethiopia (GFDRR Track II)

Mitigating Impacts of Adverse Shocks on Nutrition and Health (GFDRR Track II)

Weather Risk Management Framework using Weather-Based Indices (GFDRR

Track II)

WMO/IGAD Climate Predictions and Applications Center (ICPAC) (GFDRR

Track I)

Economics of Adaptation to Climate Change (EACC) – Ethiopia Case Study

Food Security Project (World Bank, CIDA; DFID; Italy)

Productive Safety Net Program (PSNP) II (multi-donor project)

 includes a specific component for risk management

Pastoral Community Development Project (PCDP) II APL

 includes a specific component for risk management

Protection of Basic Services in Ethiopia (PBS) II

Ethiopia Financial Sector Capacity Building (National Bank of Ethiopia; NMSA;

Ethiopia Inst of Banking & Insurance; IMF; IFAD)

Rural Capacity Building Program

(WB/CIDA program)

Ethiopia National Nutrition Project

Irrigation and Drainage Project

Eastern Nile Flood Preparedness and Early Warning

Sustainable Land Management (SLM) Country Program (IDA, GEF, GTZ)

Tana and Beles Integrated Water Resources Development Project (World Bank,

Finland; MoWR; river basin organizations; regional BoARDs; ENTRO)

 includes a specific component for risk management

Indicative budget, years

$550,000

2008-2010

$745,000

2008-2010

$660,000

2008-2010

$473,000

2008-2010

$80,000

2008-9

$85 million IDA, with other donor

funds to a total of $110 million,

2002-2009

$175 million WB/IDA contribution

with other donor funding to a total

of $906 million; 2007-2010

$80 million

2008-2013

$540 million IDA plus donor

contributions, 2009-2014

$15 million

2006-2009

$54 million WB/IDA,

$17 million CIDA

2006-2011

$21 million IDA, 2008-2013

$100 million IDA, 2007-2015

$3.5 million (Phase I)

2007-2010

$19.6 million IDA

2008-2013

$45 million IDA

2009-2013

HFA

activity

area(s)

2, 4

1, 2

2,3,4

1,2,4,5

1,2,3,4,5

2,4,5

1,4

2,4

2,4,5

1,2,4,5

2,4,5

(Cont.)

ETHIOPIA / 13

World Bank and Other Donor-Supported Projects Related to DRM in Ethiopia

Ongoing Projects and Organizations

World Bank Projects

Donor Projects

UNDP Program for Food Security and Recovery

UNDP Recovery Strategy for Ethiopia

UNDP Technical Assistance (IT Support) for DMFSS

UNDP/BCPR Early Recovery Program

WFP Managing Environmental Resources to Enable Transition to Better

Livelihoods Project (MERET)

WFP Relief Program (save lives and livelihoods in emergencies through food

and non-food relief)

WFP HIV/AIDS (multi-donor fund, PEPFAR, Global Fund)

WFP Food for Education (CIDA, US Government)

WFP Targeted Supplementary Feeding Program

USAID Livelihoods Integration Unit

USAID Miscellaneous Activities: Support for Preparation of New DRM Policy,

support for Preparation of Multi- Hazard Profiles

USAID Support to Bahir Dar University

USAID Famine Early Warning Security Network (FEWS NET)

FAO SLM Activities (Land tenure/administration, Participatory Forestry Manage-

ment (PFM)/Natural Resource Management (NRM), watershed management)

DFID: Productive Safety Nets Project

DFID: Risk Transfer

Indicative budget, years

$4.4 million for 2009

2009-2011

Salary for 1 international and 3

national, 2009

$300,000 (estimated), 2009

$3 million, 2009-2011

Planned budget for 2009: about

32,000 MT food

$4.9 million

$22 million; $43 million with other

donor contributions, 2008-2010

$43 million, (2007-2011)

$1.2 million

$5 million

2004-2009

2008-2009

$300,000 per year

2008-2010 (?)

???

$1.6 million

2009-2011

Approx $30-40 million per year

2006-2012

Approx $15 million 2010

HFA

activity

area(s)

1,2,4,5

1,4,5

1, 2

1,2,4,5

4,5

3,4

4,5

1,2,3,4,5

1, 2

1,2,3

2,4,5

1,2, 3,

4, 5

2, 5

14 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

5.global facility for disaster reduction and recovery (gfdrr):

action plan

HFA Priority Areas

Key Partners*

Estimated

GFDRR

Budget for

2009-2011

Already

Approved

GFDRR

Funding for

2008-2010

HFA 1: Strengthen national disaster risk management strategies and institutions

a) Support for Ethiopia to become a signatory to the Hyogo Framework

for Action (HFA), and to establish a National Platform for DRM by

strengthening existing platforms dealing with issues related with

DRM

b) Finalization of new DRM Policy, with process of awareness building

and advocacy

c) Support for development of DRM Implementation Strategy and Plan

d) Support for preparation of DRM legislation

e) Institutional and capacity assessment of DRMFSS, line ministries,

and regional, and woreda levels to implement new DRM approach

f) Support to line ministries to mainstream DRM into sectoral strategies

and plans

g) Capacity needs assessment and subsequent capacity building

at national, regional and woreda levels (e.g., training, computers,

transport logistics and communication equipment including

cellphones and PDA) to implement DRM

h) Develop software and application packages to use woreda.net and

other IT technologies/systems an integrated DRM information and

communication links between kebele, woreda, regional and national

levels

i) Funding for DRM Technical Advisor for DMFSS

j) Funds for selected short-term consultancies

UN-ISDR, IGAD,

ECA, UNDP,

USAID, DFID

$1,300,000

HFA 2: Ensure risk and vulnerability assessments, early warning and contingency planning and financing – in both

rural and urban areas

1) Risk Assessments:

a) Technical support to develop methodology and implementation

modalities of risk profiling (hazard/vulnerability/coping) at woreda

level (including collection of additional data to build upon existing

livelihood zone baselines and hazard profiles)

b) Technical support to develop methodology and implementation

modalities to link recently developed WB-DFID financed climate

change computable general equilibrium (CGE) models to woreda

level risk profiling

c) Training, experience sharing (with other countries), and capacity

building for DMFSS staff (and other relevant persons and

institutions) to support of a) and b)

d) Piloting of woreda level risk profiles that aggregate community/

kebele level risk profiles (in areas with different hazards and different

livelihood zones, both inside and outside areas supported by World

Bank projects)

e) Support for preparation of woreda level integrated DRM and

Environmental Plans to be mainstreamed into woreda-level

Development Plans

WFP, UNDP,

UNICEF. IGAD,

ECA, DFID,

IFPRI,

TerrAfrica/

SLM Network,

NGOs

$1,400,000

$550,000

(GFDRR Track

II Funding

for Flood

Hazard Risk

Assessments,

GFDRR

$350,000 plus

co-financing)

ETHIOPIA / 15

Ethiopia (Cont.)

HFA Priority Areas

HFA 2: (Cont.)

1) Risk Assessments (Cont.):

f) Piloting of woreda level risk profiles that aggregate community/

kebele level risk profiles (in areas with different hazards and different

livelihood zones, both inside and outside areas supported by World

Bank projects)

g) Support for preparation of woreda level integrated DRM and

Environmental Plans to be mainstreamed into woreda-level

Development Plans

Key Partners*

2) Early Warning Systems: Multi-Hazard Forecasting and

Warning

Support to the National Meteorological Agency (NMA and others):

a) capacity building for improved timeliness, reliability and local

specificity of climate forecasting through use of new information

(e.g., climate downscaling) and technologies (e.g., satellite imagery),

and expansion of meteorological stations including communities-

based “stations”,

b) improve flood monitoring, forecasting and early warning system

c) improved systems for data collection, analysis and dissemination

to end users

d) improved access to NMA data by DMFSS through networking and

improved coordination

e) improved application of climate information and forecasts for DRM

by end users at various levels, including the community

f) link to other DRM monitoring and forecasting systems (e.g., health

epidemics and malaria forecasting)

g) adopt relevant climate risk modeling techniques and tools, and build

capacity for their application (e.g., LEAP)

h) improve capacity for preparation of early warning bulletins at national,

regional and woreda levels

IGAD, ACPC

(ECA), WMO

UNICEF, WHO,

WFP, FAO,

USAID

FEWSNET

3) Contingency Planning and Financing: Moving from Early

Warning to Response

a) Support for design of community and woreda level integrated

multi-sectoral monitoring, early warning, contingency planning and

contingency financing mechanisms (using objective and transparent

“triggers” that are linked to the community and woreda risk profiling)

b) Review and revise early warning guidelines in line with new DRM

approach

c) Capacity building to implement integrated early warning system that

includes monitoring, forecasting, warning, contingency planning and

financing linked to rapid response at community, kebele, woreda,

regional and national levels

d) Support for development of different risk financing and risk transfer

mechanisms (e.g., index-linked insurance) to strengthen and

complement contingency funds (e.g., for catastrophic events)

Estimated

GFDRR

Budget for

2009-2011

Already

Approved

GFDRR

Funding for

2008-2010

$600,000

$700,000

$473,000

(GFDRR Track

I IGAD regional

project, part of

which to benefit

Ethiopia)

$750,000

(GFDRR

Track II funding

for Health

Early Warning

Systems to

support National

Nutrition

Project,

$350,000

GFDRR funding

plus co-

financing)

$330,000

(GFDRR

Track II

funding for

Risk Financing

piloting to

support

Productive

Safety Project)

(Cont.)

16 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Ethiopia (Cont.)

Already

Estimated

GFDRR

Budget for

Approved

GFDRR

Funding for

HFA Priority Areas

Key Partners* 2009-2011

2008-2010

HFA 3: Increase and sustain awareness creation, education and capacity building

a) Support to strengthen BA and MA Programs in DRM at Bahir Dar

University, including applied research

b) Support for specialized training programs in DRM at Bahir Dar

University in DRM

c) Support for DRM-related applied research and studies at other

Ethiopian institutions (e.g., EIAR, EDRI)

USAID, DFID,

IGAD

$400,000

HFA 4: Reduce underlying risk and vulnerability (and integrate DRR into sector planning and practices for

example in water, agriculture, health, environment)

Design and implement pilot programs to reduce industrial water and air

pollution, and to improve solid waste management in Addis Ababa and

Bahir Dar (linked to climate change programs that provide “credits” for

pollution reduction)

UNDP, DFID,

GEF

$300,000

HFA 5: Improve emergency preparedness and response through capacity strengthening

a) Conduct study to propose optimal logistics and funding mechanisms

for decentralized rapid response and recovery (e.g., identify needs

for warehouses for pre-positioning of food and non-food items,

maintenance of strategic reserves, relief fleet, and management/

administration of the system)

b) Support for implementation of a), above

c) Support for development of appropriate post-disaster needs

assessment methodologies and techniques for rapid onset disasters,

and implement training and capacity to facilitate early recovery

focusing on community, kebele, woreda, regional levels

d) Support for design of decentralized emergency rapid response

systems based on all of the above, that also strengthens regional

collaboration and information exchange

GFDRR Track II Funding:

WFP, UNDP,

UN-OCHA,

UNICEF, IGAD,

ECA, USAID,

NGOs

$300,000

$5,000,000

$1,030,000**

Co-financing for GFDRR Track II Projects

$400,000

Total GFDRR Track II Funding and Co-financing

$6,430,000

GFDRR Track I Funding

$473,000

Note: this matrix reflects the overall priorities of the DMFSS. The proposed GFDRR funding can, obviously, only provide some of the required funds to carry out the activities.

* Key Partners: This refers to key partners for ongoing or potential funding and/or technical support. There are many ongoing and proposed activities in DRM in Ethiopia.

There is expressed interest to provide support for the activities detailed in this matrix in different parts of the country. There are also ongoing World Bank projects funding

activities in these priority areas in different parts of the country.

** Only a very small part of these budgeted funds have been utilized to date.

See: www.gdfrr.org for details about GFDRR Track I and II Projects in Ethiopia and other countries, along with Track III and South-South Cooperation

GHANA

GHANA / 17

In order to prepare the Country DRM Plan for Ghana the Africa

DRM Team agreed with UNDP on beforehand to undertake

a joint UNDP-World Bank mission. The mission was also ac-

companied by a representative from ECOWAS and a mem-

ber of the donor coordination group on Environment. This joint

mission held extensive meetings with the National Disaster

Management Organization (NADMO), and met representa-

tives of the Ministry of Interior (MoI), Environmental Protection

Agency (EPA), Ministry of Lands and Natural Resources (MoL-

MNR), Ministry of Food and Agriculture (MoFA), Ministry of Lo-

cal Government and Rural Development (MoLGRD), Ministry

of Water Resources (MoWR), Ministry of Finance (MoFEP),

National Meteorological Agency, and various development

partners, including UNICEF, WFP, the Danish Embassy and

UNDP. The team undertook a field visit to a District Office of

NADMO. The Mission also met with the technical team leading

the development of the Northern development Initiative (NDI),

and included a one day workshop with staff of the Country

Management Unit.

1. Disaster Risk Profile

Hazard Risks1

Ghana ranks high amongst African countries most exposed to risks from multiple weather-related hazards.

Ghana is exposed to floods and droughts, particularly in the Northern Savannah belt. Epidemics, pests, infestations and

wildfires occur across the country.2 There are risks of land slides, urban hazards, and coastal hazards (e.g. storms, storm

surges, and coastal erosion). Coastal erosion has become more pronounced, especially along the Eastern coastline. Seis-

mic hazards are most pronounced in areas around Accra, including the Akosombo Dam. The catastrophic floods in the

North in 2007 affected more than 325 000 people with close to 100 000 requiring assistance in some form or another to

restore livelihoods. The 2007 floods followed immediately after a period of drought that damaged the initial maize harvest,

and were indicative of the high variability in climate and hydrological flows in Northern Ghana. The long-term and economy-

wide impacts on the regional economy are still not well known, but an estimate of damage alone exceeds USD 130 million.

Between 1991 and 2008 the country experienced six major floods; the largest number of people affected being in 1991

1Some key sources for the Country DRM Plan: Amoako, P. Y. O. and S.T. Ampofo (eds) 2009 Hazard Mapping in Ghana, Report to NADMO,

Accra; NADMO website: www.nadmo.org, www.preventionweb.net, HFA Regional Summary of Africa, self-reported data; EM-DAT: The OFDA/

CRED International Disaster Database, Université catholique de Louvain, Brussels, Belgium; UNDP-Ghana: http://www.undp-gha.org/project.

php?page=25;

2 Between 1995 and 2008 the country experienced six major floods in the following years (number of people reported affected in brackets); 1991

(2.0 mill), 1995 (700 000), 1999 (325, 000), 2001 (144 000), 2007 (325 000), and 2008 (58 000). The last major drought was in 1982-83, af-

fecting more than 12 million people..

18 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

(2.0 million people). The floods have revealed weaknesses in the disaster preparedness and emergency response system,

and exposed vulnerabilities of people, land use systems and infrastructure.3 In this regard, it is important to understand the

interface between risk, hazard, vulnerability, and capacity (risk = hazard x vulnerability/capacity).

Vulnerability and Exposure to Hazards

Current development dynamics and demographic changes put more people at risk of disasters in Ghana,

related to increasing rural poverty, rapid urbanization, growth of informal urban and coastal neighborhoods,

poor urban governance, and declining ecosy tems.4 The high dependence on natural resources in rural areas (more

than 60 percent of Ghana’s 20 million people depend directly on agriculture), lack of secure livelihoods, and limited

informal and formal social safety nets add to these vulnerabilities. Moreover, there are widespread epidemic diseases,

often in combination with HIV/AIDS and malaria. The impacts of localized disasters (droughts, local floods, epidemics

and wildfires) are likely to have accumulated impacts on rural livelihoods over time as a consequence of climate change,

in particular on communities in the North.

To this end, the severity and depth of poverty is highest in the three Northern regions (Northern, Upper

West and Upper East). Out of 18 percent of the total population that live in extreme poverty, 54 percent live in Northern

Ghana.5 Poverty is highest among food crop farmers. Northern Ghana, especially Upper East Region, is also most ex-

posed to land degradation and soil erosion. Land degradation accelerates run off, reduces soil productivity, and capacity

of ecosystems to provide critical functions and services, including regulation of floods in key watersheds and resilience

to climate variability.6

Rapid population growth and pressure on land resources are often accompanied by unsustainable agricul-

tural intensification, including expansion of (shifting) cultivation, deforestation, and depletion of vegeta-

tion cover due to overgrazing. The majority of rural households depend on small-scale agriculture for their livelihoods,

while they often lack access to markets and infrastructure necessary to improve farming practices, diversify livelihoods,

and build up their assets and coping capacity. Hence, many households engage in non-farm income generation, urban

migration (temporary or permanent), or become dependent on formal or informal safety nets through family or neigh-

bors.7

Climate Change

Overall, there is evidence that the agriculture sectors (including fisheries, cocoa, cereals, and root crops),

and water resources sectors as well as human health and women’s livelihoods will be negatively impacted

by climate change; the poor being most vulnerable. Moreover, climate change may also contribute to accelerated

storm surges and coastal erosion, to which Ghana is particularly vulnerable (World Bank et al. 2006, Dasgupta et al

2009)8. Coastal fisheries are undergoing severe changes due to change in sea temperature and currents combined with

overfishing and non-functioning resource regimes. Similar issues face Lake Volta, with important implications for the lake

3 The catastrophic floods in 2007 destroyed thousands of houses, and key sections of bridges and roads and other infrastructures including treat-

ment plans and pumps for water supply. It also damaged crops and agriculture lands.

4 The UNDP Human Development Report ranked Ghana 129th of 175 countries and approximately 45 percent of the population live below the

poverty line of one USD per day.

5Northern Ghana has only about 17 percent of the total Ghanaian population.

6 Past studies estimate that 69 percent of the total land surface is prone to severe or very severe soil erosion (EPA 2002), the main manifestation of

land degradation in Ghana. A recent study estimated soil erosion to cost around 2 percent of the national GDP (World Bank et al. 2006).

7 Population almost tripled over the last 40 years, from 6.7 million in 1960 to 18.4 million in 2000 (Ghana Statistical Service 2000).

8 Dasgupta, S, Laplante, D, Murray, S, and D. Wheeler, 2009: Sea-Level Rise and Storm Surges. A Comparative Analysis of Impacts in Developing

Countries, Policy Research Working Paper 4901, DRG, Environment and Energy Team, The World Bank

GHANA / 19

ecology and livelihoods of fishermen. Disaster risk and poverty are strongly linked in Ghana, and are in turn intertwined

with the reality of climate change. Climate change is expected to expose people to higher rainfall variability, water stress,

drop in agricultural yields, and depletion of resource-based livelihoods. This would increase the risk of drought periods,

increase evaporation and reduce agricultural productivity (10% lower rainfall is expected by 2050; IPCC 1997). More-

over, climate change will probably result in rising temperatures (1.4-1.6 higher temperature is expected by 2050; IPCC

1997), potentially increasing the risk of forest and bushfires. At the same time, Ghana’s economy and rural population

depend on sustainable growth in these climate-sensitive sectors.9

The impacts of climate risks are likely to magnify the uneven social and spatial distribution of risk in

Ghana, and possibly amplify poverty in the North. At the same time, the links between disaster risk and poverty

—in a changing climate—means that reducing disaster risk can help reduce rural and urban poverty, further sustainable

development and growth and improve adaptation to climate change.

2. ACTIVITIES UNDER HYOGO FRAMEWORK OF ACTION

HFA Priority # 1. Policy, Institutional Capacity and Consensus Building

Confronted with a variety of natural hazards, and prompted by the recent floods in the North, the Govern-

ment of Ghana has initiated actions on several fronts in order to develop strategies and strengthen insti-

tutional capacity in disaster risk management with increasing donor support. Disaster risk reduction has its

main institutional home within the National Disaster Management Organization (NADMO) in the Ministry of the Interior.

NADMO was established in 1996 under a National Security Council, chaired by the President of the Republic of Ghana.

NADMO functions under a National Secretariat, ten Regional Secretariats, one hundred and sixty-eight District/munici-

pal Secretariats and nine hundred Zonal offices. The NADMO Committees at National, Regional and District levels imple-

ment the policies, and are supported by Technical Advisory Committees. NADMO has a dual objective of i) to manage

disasters by coordinating the resources of Government institutions and non-governmental agencies, and ii) developing

the capacity of communities to respond effectively to disasters and improve their livelihood through social mobilization,

employment generation and poverty reduction projects (ref. Amendment to the NADMO Act).

Since its inception under the NADMO Act (Act 517, 1996), NADMO has contributed considerably to the

management of disasters across the country, despite a constant struggle to obtain resources and maintain

response capacity on the ground. A draft National Disaster Management Plan (NDMP) has recently been prepared

(as a revision of the 1997 NDMP), along with an Amendment to the Act. These documents will be considered revised

to reflect a stronger role of NADMO in DRR and CRM. NADMO has also prepared draft Operational Procedures will

also be finalized in view of this. OCHA has helped develop the modalities for a national relief fund, through a three days

workshop, which are intended to be captured in the Amendment of the Act. As an organization, NADMO possesses a

country-wide structure with representation at regional, district, and zonal levels with about five staff members in each

district. As such, the structure of NADMO makes it relatively well positioned to play a key role in disaster response and

preparedness – as well as in disaster risk reduction. NADMO does however lack required capacity at all levels and bud-

getary support to play such a key role (see below).

9 While Ghana’s growth was historically furthered by natural resources exploitation (agriculture, forestry, energy), this growth cannot be sustained in

face of the alarmingly high rates of degradation, which represents a cost to Ghana’s GDP of about 10 percent per year (Ghana Country Environ-

mental Analysis (CEA), World Bank, cited in NREG program document).

20 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Beyond strengthening its capacity in emergency response and relief work, a main challenge for NADMO

and its stakeholders is to keep reinforcing the approach to ex-ante preparedness and disaster risk reduc-

tion. This approach would need to address the critical factors that drive the increasing exposure to risk in communities

of Ghana linked to vulnerable rural livelihoods, poor urban governance and declining ecosystems. Such a shift in focus

would need to involve an institutional transformation in NADMO related to e.g. management, capacity, mindsets of staff,

and communication systems. It would imply that national disaster management policies and strategies be coordinated

with sector programs in policies, legislation, and practice. The choice of approach would need to exploit synergies and

ensure mutual reinforcing measures across ministries and agencies more so than what has been achieved in the past.

This needs to be done at the national, regional and district level – with outreach mechanisms to engage the community

level. This is a tall order that requires sustained Government interest and commitment across all key sector agencies (for

further details on institutional capacity building opportunities, see under section HFA 4 and HFA 5).

There is also a need for more regular and substantive exchange of risk information and knowledge across boundaries

with e.g., Burkina Faso, Togo, Cote d’Ivoire on floods and other hazards. There is scope for transboundary collabora-

tion on issues of climate change, coastal zone and fisheries management, drought management, and issues related to

epidemics and pests. ECOWAS can potentially play an important role in this regard, given its recent strengthening in

areas of DRM&CCA.

HFA Priority # 2. Disaster Risk Assessment, Vulnerability Assessment, Monitoring, Early Warning

Ghana has recently undertaken country-wide hazard mapping that covers the broad geographical distribu-

tion of disaster exposed areas for key hazards, such as for ge logical (seismic, coastal erosion, and landslides),

hydrometeorological (floods), pests and insects, and fires (wild bush fires, domestic, industrial).10 Other hazards have not

yet been mapped. Moreover, the interface between hazard exposure and vulnerability is poorly mapped, and the informa-

tion is not analyzed and brought together and made available for different audiences on a regular basis, except in some

pilot programs. Vulnerability and capacity assessment is ongoing by the National Development Planning Commission

(NDPC), and WFP has engaged MoFA and MoH in a Food Security Monitoring System for Northern Ghana.

Climate predictions linked to hazard exposure and vulnerability need to be improved as an information

service for targetted early warning systems. NADMO has established Technical Advisory Committees that has the

mandate to identify, monitor, and assess hazards. However, these committees need to be strengthened through training

and support. The capacity of NADMO to monitor and forecast hazards, and provide early warning and mechanisms for

preparedness and early response is limited at all levels. Messages do not reach out. The 2007 floods indicated weak

communication and coordination among key stakeholders engaged in emergency response or risk management. There

are elements of EWS in place, for example, for river-level monitoring.

A key recommendation would be to assess the need for an effective and decentralized multi-hazard early

warning system, including how to design such a system, linked to stronger monitoring, information analy-

sis, communication, and outreach. Such a system would need to start from improved climate predictions and infor-

mation services from an upgraded National Meteorological service. An early warning system would need to be supported

by contingency plans and improved response capacity at local and district levels (and tested through rehearsals and

simulations). This would require a coordinated effort by several agencies including between NADMO, Ministry of Environ-

ment (EPA), which coordinates work with the National Climate Change Strategy, and the Ministries of agriculture, water,

energy and health, which would depend on improved climate information services for decision making.

10 Amoako, P. Y. O. and S. T. Ampofo (eds) 2007: Hazard Mapping in Ghana, UNDP/NADMO, Accra

GHANA / 21

An early warning system is however no better than its weakest link. Hence, any EWS would need to be accom-

panied by systematic institutional capacity strengthening and conscious efforts to link e.g. climate information to multi-

media communication systems e.g. cell-phones, radio, television, and tailor information to different audiences.

It would be particularly useful to carry out urban hazard mapping – linked to ways of improving urban

governance – in one or two coastal cities. This could be done by testing a World Bank Cities Primer methodology

(carried out already for Dakar). Flooding in urban areas, especially in informal settlements due to lack of proper drainage

system is a key issue; drains often being clogged by solid waste. There is also a need to consider piloting participatory

risk mapping in hazard prone areas of vulnerable rural and urban communities.

There is also a need to identify and map key assets and infrastructure at risk as basis for spatial planning,

sectoral, or integrated urban or regional planning. This could involve focused mapping of assets in urban and

coastal areas and river basins; areas which are most exposed to hazards.

HFA Priority # 3. Knowledge and Capacity Enhancement for DRM

A risk aware population is essential to promoting risk reduction behavior at different levels of society.

Hence, public awareness and education about hazard risks and vulnerabilities are essential for effective

disaster risk management. Ghana is known for its relatively strong education system and independent think tanks.

Some of these institutions conduct specific research in the areas of water resources, pest and insect infestations, epi-

demiology and geology, and there are experts from academic institutions as members of NADMO’s Technical Advisory

Committees. However, there are at present no educational programs that directly address DRM. A strategic approach

to the inclusion of disaster risk management and climate change in school curricula should be developed, including an

approach to the training of teachers.

NADMO has a history of engaging in public awareness building and social mobilization, and received some

funding from UNDP recently to revitalize public awareness campaigns (2007/8). A general awareness and

sensitization program on DRR & CRM should be designed for different audiences within Government and outside the

Government. Initially, community volunteers and leaders could be key target groups of such campaigns, including also

Local Assembly representatives. This work is intended to be stepped up with UNDP funding in particular.

HFA Priority # 4. Reducing Underlying Risk Factors and Integration Across Sectors

An increasing number of Government and donor sector programs in Ghana are addressing disaster risk reduction – and

related issues of vulnerability and sustainable land management (see below).

To this end, there exists a set of innovative approaches and tools across sectors in the areas of agriculture

and rural livelihoods, watershed management, ecosystem management, urban governance, risk transfer,

and community-based development that might be applied to a variety of local context in Ghana. The main

challenge is to reinforce and mainstream new approaches by linking national policy and governance systems for disaster

risk reduction, poverty reduction and climate change adaptation through a coordinated approach. A selection of piloting

exercise could be initiated related to for example flood protection; water harvesting/watershed management in drought

prone areas; coastal erosion in selected sites; and social infrastructure using safe building norms in collaboration with

sector programs.

Development strategies to address hazard risks and vulnerabilities, however, cut across the Government’s

22 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

sector forms of organization, and require coordination and types and scales of programs well beyond NA-

DMO’s mandate and capacity. This is for example recognized in the draft Development Plan for the North, which cov-

ers all key sectors and includes a strong focus on mainstreaming disaster risk reduction. Various new sector programs

are being planned, including for the North, within which NADMO could usefully play a proactive role and become partner

(including new programs with World Bank funding in integrated river basin management, social protection, and carbon

finance/forestry).

However, until recently, where NADMO has been capable of engaging sector agencies in the DRR&CRM agen-

da, it is more from an emergency response perspective rather than from a perspective of mainstreaming DRR/

CRM in sector programs and strategies. The National DRR Platform has not started functioning, and few substantive

linkages have been built across sector agencies since its inception in 2005. Coordination is relatively week and there are

no focal points for DRM in most of the sector agencies; while there is a fairly active Environment Sector Group.11 Relevant

stakeholder agencies also lack resources and appreciation of what constitutes hazard risks, hampering effective en-

gagement. Hence, the strengthening of NADMO alone would not be sufficient for effective emergency response, say

integration of DRR & CRM in planning and development at different levels of society. For example, there is at present

no system of integrated physical/environmental/ land use planning at district level which is a responsibility of the Minis-

try of Environment; a mechanism that could help bring actors together around issues of land use planning, zoning, and

codes for climate/risk resilient infrastructure and buildings. Moreover, decentralization processes have moved slowly, and

vertical linkages between national sector ministries and local state bodies and local assemblies are not well developed

(including between NADMO, the Ministry of Local Government Rural Development, Environment, and MoFA). It is also

not clear what role traditional authorities (Chiefs and local leaders), play or can play in this regard.

HFA Priority # 5. Disaster Preparedness and Recovery

In Ghana, the disaster response structure has four levels of organization beyond the community level. Re-

sponse to a given natural hazard starts with the local level (Zonal Offices of NADMO) determining whether

the event is of a magnitude that require outside assistance from the District, Regional or National levels.

In reality, due to limited capacity of the Zonal Offices, emergency warnings at local level often rely on ad hoc messages

from community volunteers, and/or District Assembly representatives with contacts in rural locations.

The 2007 floods revealed that effective disaster preparedness and recovery operations in NADMO face

critical challenges related to coordination and implementation capacity at all levels, due also to inadequate

and late release of government funding.12 NADMO has been underfunded for years, and has received limited gov-

ernment support. Institutional capacity strengthening is required at all levels, including in management, logistics, and

transport. The systems of hazard monitoring, early warning and communication are not well-functioning and the hardware

is outdated. The system of warehouses, logistics and equipment for effective disaster response is weak – in particular

at the level of the regional and district offices. Training and capacity building are lacking, and rehearsals and simulation

exercises are done only rarely. There is no substantive DRM planning at district and regional levels. The recent capacity

assessment of NADMO concludes that the organization faces low human resources capacity, lack of training opportuni-

ties, low remuneration, and weak coordination power in terms of engaging relevant sector agencies in disaster response

and emergencies.

11 The National Platform was established in 2005 and a program of action prepared, involving all the key objectives of the HFA (ref. Report on the

Establishment of a National Platform for Disaster Risk Reduction in Ghana, Sept. 2005).

12Sync Consult 2008: Capacity Assessment, Disaster Preparedness of NADMO, Accra (with UNDP funding)

GHANA / 23

Given that volunteers at local level play a critical role in local level disaster response, it is important to test

community-based approaches to disaster risk reduction that may enable volunteer groups and communities and local

government to identify and explore appropriate community-based solutions to DRR&CRM.

A main challenge, beyond strengthening the institutional capacity of the response system at different lev-

els, is to mobilize funding and ensure capacity for rapid and early recovery in the aftermath of a disaster

e.g. a flood event.

The Government, related to its work with OCHA on establishing a relief fund, expressed an interest in ex-

amining various mechanisms for risk transfer and risk financing. Mechanisms for risk financing and risk transfer

are still insignificant, reflecting that such measures are still in their early stages also in neighboring countries. There are

still no mechanisms developed for private or sovereign catastrophe insurance. In certain coastal areas or water basin

areas, where the level of risk and infrastructure exposure is high, financial risk transfer mechanisms can be considered

an area for future development in Ghana.

3. Integration of Disaster risk management in Development Strategies

The mission met strong Government commitment to the integration of DRR & CCA in development policy

and programs across key ministries. However, it is fair to say that DRR & CCA have only recently attracted more

substantive attention in development planning, even if for example NADMO – as well as key sector ministries – have

in various manners been engaged in disaster risk reduction for several years. The renewed attention to these agendas

reflects concerns over the 2007 floods as well as observed changes in climate variability. It may also be a response to

global trends and increased opportunities for external funding to these agendas. DRR & CCA are increasingly mani-

fest in new donor programs and policies, and have also started to become more firmly reflected in Government sector

programs. The National Planning Commission has recently raised the issue of CCA in long term development planning,

while DRR has not yet been internalized. The Government budget allocations to disaster management, as a measure of

commitment, is limited; NADMO being provided only about $ 5 million annually; less than 5% of this budget set aside

for investments and programs.13

The 2003-2005 Ghana PRSP does however refer to the potential impacts of climate change and the impor-

tance of DRM, early warning, and flood prevention. The Joint Staff Advisory Note, commenting on the PRSP prog-

ress in 2006, commends the focus on addressing environmental decline and natural resources degradation, which is

seen to severely undermine economic growth, and refers to the need for effort to manage land, forests, mining and urban

environment better. But the report does not raise issues of climate risks and variability and effects on sustainable land

use. Moreover, the Ghana Growth and Poverty Reduction Strategy – GPRS II (2006-2009) refer to these themes only

indirectly with reference to the degrading environment and declining agricultural productivity and its impact on poverty.

The focus is on economic growth, human resource development and governance. Hence, DRM is not well integrated in

these key planning documents. Similarly, UNDAF (2006-2010) does not refer to DRM and climate change – although

issues of environmental degradation and vulnerable groups in the North are addressed.

In the recent years, however, as the next section indicates, the attention to DRR&CCA has moved higher

up on the development policy agenda in Ghana, manifest in a set of new innovative donor supported pro-

grams and government commitment to the agenda. The most recent World Bank Country Assistance Strategy

13 More than 85% of the budget is for personnel and administrative expenses, according to a review of the 2009 budget presentation. Another ex-

ample of lack of priority accorded to this field is the fact that the National Action Program to Combat Drought and Desertification (NAPCDD), which

was prepared in 2004, only received some funding with the initiation of the UNDP program starting in 2009 (see matrix of donor engagements).

24 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

(CAS) (FY08-11) has explicit reference to the need for assisting vulnerable populations, and support measures towards

minimizing the impact of climate variability and climate change. This increased attention is evident, for example, in several

new UNDP programs, which followed in the aftermath of the recent floods in 2007, and UNDP Annual Work Plan 2009

has a special focus on institutional support to integrated CC and DRR into national development plans. Moreover, the

Second Natural Resources and Environmental Governance policy operation (NREG ) raises climate risks and climate

change adaptation and the need for a new climate change strategy as key issues.

4. Key Donor Engagements

Overall, the integration of DRR&CCA in new donor supported programs, some of the most important are listed here, is

a clear indication that the “new” development agenda in Ghana has started firmly addressing these cross-cutting fields.

The list is not complete.

World Bank and Other Donor Supported Projects in Ghana

Ongoing Projects and Organizations

Indicative budget

(where available, details on

years covered)

World Bank supported projects

Ghana North- Sustainable Development, Disaster Prevention, and Water

Resources Management (GFDRR)

US $660,000

(2008-2011)

Community Co-Management for DRM of Marine Resources in West Africa

(GFDRR) (multi-country program; Ghana involved)

TerrAfrica (Sustainable Land Management – knowledge creation)

Economics of Adaptation to Climate Change (EACC)

US $ 900, 000

(2008-2011)

(multi-country)

(multi-country study)

(2009-2010)

Natural Resources and Environmental Governance (NREG)

Ghana Productive Safety Nets Project

Integrated Water Resources Development and Agricultural Competitiveness

Project, Planned (FY10)

Ghana Community Based Rural Development Project (CBRDP)

Ghana Urban Water Project

US$ 60 million

(2008-2010)

US$ 30-50 million

(under preparation)

US$ 50-100 million

(under preparation)

US$ 60 million

(ending Dec. 2010)

US$ 103 million

(2004-2010)

Carbon finance project

UNDP funded projects

UNDP-Ghana: Mainstreaming DRR and CCA (mainly capacity building)

US$ 30 million

(under preparation)

US$ 700,00

(2009)-

UNDP-BCPR: Early Recovery Program for Northern Region

UNDP-GEF Impacts of CC on Health

US$ 1,2 million

(2009-2010)

US$ 2,0 million

(2010-2013)

UNDP-UNEP: CC-DARE (for preparation of National CCA Strategy)

UNDP Africa Adaptation Program (AAP)

US$ 150,000

(2009-2010)

US$ 2,5-3,0 million

(2009-2012)

HFA activity

area(s)

4, 5

1, 3, 4, 5

2, 3, 4

1, 2, 3, 4, 5

4, 5

3, 4

2, 4

1, 2, 3, 4, 5

1, 2, 5

1, 2, 3, 4, 5

(Cont.)

GHANA / 25

World Bank and Other Donor Supported Projects in Ghana

Ongoing Projects and Organizations

Indicative budget

(where available, details on

years covered)

Other donor projects (incomplete)

Food and Agriculture Budget Support (FABS) and the Agricultural

Development Policy Operation (Ag DPO)

Ghana Environmental Management Project (GEMP)

UNDP-GEF – for sustainable land management (in support of National

Action Plan to Combat Drought and Desertification)

(2009-2013)

HFA activity

area(s)

2, 3, 4

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given the substantial number and scale of new donor engagements, including those of the World Bank and

UNDP, it is essential to consider the GFDRR support within a broader national framework that ensures a

coordinated and harmonized approach. It was thus agreed to develop a National Program Framework for

Disaster Risk Management and Climate Risk Management which would help ensure a comprehensive and

integrated programmatic approach. 14 The World Bank and UNDP agreed to prepare together with Government a pro-

gram document to this end, under which the UNDP-World Bank/GFDRR projects would be implemented.

The total UNDP-World Bank support for this National Program will be about $ 12 million. Under this national

framework program there would be five UNDP supported operations, and the new World Bank/GFDRR “Country DRM

Plan” conceptualized as a joint program (See Annex 1 for more details about the joint UNDP-World Bank programmatic

approach). The program could later include additional projects, even from other partners.

The new program will include two on-going GFDRR funded programs; i) Ghana North: Sustainable Develop-

ment, Disaster Prevention, and Water Resources Management (2008-2010).15 The original funding of US$ 660 000

has been agreed allocated as follows; i) US$ 400 000 for the integrated flood prevention and watershed management

strategy for the Volta basin with a focus on developing irrigation potentials (about US$ 25 000 has so far been utilized

for a scoping mission). The remaining funding would be utilized to: a) advance work under the Country DRM Plan, includ-

ing the funding of a consultant to prepare a Government program document as an umbrella for the joint UNDP-World

Bank funding; and b) to strengthen capacity for planning and implementation of the new SADA; ii) The second GFDRR

funded program is a multi-country program with a component in Ghana: Community Co-Management for Disaster Risk

Management of Marine Resources in West Africa (US$ 900, 000). The project will strengthen the capacity of coastal

and sea-shore communities in marine and coastal resource management in face of local risk factors, effects of climate

change and marine resource over-exploitation. The project combines support for local-level resource management strat-

egies with interventions at national policy and institutional levels. The project includes a component for management of

marine resources of Lake Volta.

14 This in recognition of the fact that the two agendas of DRR and CCA are interwoven (yet distinct) – one focusing mainly on emergency response,

and early recovery, disaster preparedness and reduction of risks – the other mainly on medium- and long-term adjustments to climate change

through adaptation and mitigation. But both agendas meet under the objective of addressing climate risks management (CRM).

15 The Ghana specific GFDRR grant, approved in the context of the post-2007 floods, supports three work-streams: (i) support to the development

of the Northern Development Initiative (NDI); (ii) development of an integrated water resources and flood management plan for the Volta Basin; and

(iii) capacity building for Ghana’s national disaster management structures in particular NADMO, and b) The other GFDRR supported project is

26 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

It is essential that the new National Program be coordinated closely with the Natural Resources and Envi-

ronmental Governance (NREG) Development Policy Operation – which is supported by all key bilateral donors

and the World Bank – and which constitutes the main coordination mechanisms for program support on the environment

and climate change.

On this background, the indicative program areas identified for specifically for GFDRR financing – here de-

noted the GFDRR “Country DRM Plan” - are listed in the matrix below, with reference to the sharing of responsibili-

ties between the World Bank/GFDRR and UNDP – but referring only to the allocation of costs for GFDRR funding. The

GFDRR program would largely be Government-executed for a duration of three to five years, and implemented under the

umbrella of the National Program Framework.

In conclusion, a comprehensive approach to DRM will require national policy coordination for DRR, CCA,

poverty reduction, and human development led from the highest political and organizational level with a

focus on risk reduction as a means to promote sustainable development in all sectors.16 Bridging the North-

South divide in development requires addressing risk management, combined with a growth and rural poverty strategy,

in the Northern regions of Ghana. The approach would place considerable demand on governance systems from na-

tional to local level across a set of ministries. A key challenge is for the Government to be able to link national policy and

governance frameworks for disaster risk reduction, poverty reduction, and CCA through a new approach to sustainable

development.17 A first mechanism for different agencies to rally around would be the development of a national multi-

hazard early warning system linked to communication and contingency plans from the national to the local level, possibly

with an initial focus on the North.

Indicative new program areas for GFDRR/World Bank

funding under the “Country DRM Plan” for Ghana*

1. Strengthening national disaster risk management

strategies and institutions

Potential output/

outcomes

- Review and finalize new DRR/CRM policy/strategy based on

review of existing sectoral policies and new climate change

strategy

- Establish inter-ministerial coordination mechanism

- Validate and publish policy and ensure passage of the revised

Amendment Bill

- Sensitize key stakeholders on new policy directions, including

with the NADMO Committee members

- Prepare a government-owned National Program Framework

for DRR&CRM under which the joint UNDP-World Bank

program will be implemented

- Follow up the NADMO capacity assessment with a plan for

systematic institutional strengthening at all levels

Policy on DDR/CRM

mainstreamed

Coordination improved

DRM policy and CC

strategy integrated

Indicative

budget

for GFDRR

funding

US $

550,000

200,000

Partnerships

UNDP,

ISDR, NREG,

ECOWAS

UNDP will

continue to take

a lead role in

finalizing policy

and legal acts and

build capacity.

(Cont.)

16Commission on Climate Change and Development, 2009: Closing the Gaps: Disaster risk reduction and adaptation to climate change in develop-

ing countries, Report to the CCDC, info@ccdcommission.org, Stockholm)

17See 2009 Global Assessment Report on Disaster Risk Reduction: Risk and Poverty in a Changing Climate: Invest today for a safer tomorrow, UN-

ISDR, 2009.

GHANA / 27

Indicative new program areas for GFDRR/World Bank

funding under the “Country DRM Plan” for Ghana*

- Establish 9 Regional Platforms for DRR and CRM and develop

plan for systematic capacity strengthening

- Establish District Platforms for DRM/CRM, initially in the

North

- Develop Regional and District DRM plans

- Support and monitor the implementation of plans

- Develop program for capacity strengthening and provide

specialized training in DRM/CRM and damage/loss

assessment

- Develop and test low-cost communication systems (internet,

cell-phone) between District, Regional, and National levels

within NADMO – linked to community outreach (relates to

actions listed under HFA 5 below)

Potential output/

outcomes

National Platform

for DRR/CRM

strengthened

Regional and District

level platforms in

operation

Efficient

communication

systems in operation

Indicative

budget

for GFDRR

funding

US $

300,000

Partnerships

GFDRR support

will include

communication

equipment and

capacity building

(in tandem with

UNDP)

- Undertake exchange programs and visits in neighboring

countries and consider to establish Platforms for regional

coordination

- Improve information sharing with neighbors on climate related

risks – related to specific program needs

- Strengthened networks with sub-regional organizations

2. Ensure risk and vulnerability assessments, early

warning and contingency planning and financing

- Review and update existing hazard assessments and maps

- Develop an overview of key infrastructure and assets

threatened by hazards

- Provide technical support to develop methodology and

implementation arrangements for relevant hazard/vulnerability/

risk profiling at district level related to integrated DRM and

resource management plans (pilot in hazard prone flood areas

and coordinated with the Sustainable Land Management

Network/MoFA)

- Conduct pilot exercise in urban hazard mapping and urban

governance (based on Cities primer)

Trans-boundary and

regional cooperation

on DRR/CRM

strengthened

Hazard, vulnerability

and risk assessments

and relevant maps

carried out for all

climate related hazards

Risk profiling at district

level undertaken (on

pilot basis)

- Training and capacity building for the above

50,000 UNDP will take

the lead

2, 450,000

400,000

200,000

UNDP, WFP,

Met. Station

UNDP has

funded the initial

hazard mapping,

while World

Bank/GFDRR

will take the lead

in taking these

activities forward

(Cont.)

28 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Indicative new program areas for GFDRR/World Bank

funding under the “Country DRM Plan” for Ghana*

- Undertake an inventory of existing EWS, assessment of

future needs, and design of a multi-hazard EWS, including

infrastructure/communication needs. A major gap accepted

by all parties is the fragmented monitoring and early warning

system (EWS) in Ghana. This activity will related closely to the

CCA agenda and the work of EPA.

- Support to National Meteorological Agency (capacity building

and renovation of weather stations)

- Technical support and capacity building for EWS and

contingency planning

- Assess, improve and modernize EWS in communities

- Review of existing contingency plans and develop suggestions

for new plans that include DRR/CRM at Regional, District and

community levels

3. Increase and sustain public awareness creation,

education, and capacity building

- Organize workshops and seminars for policy makers and

professional bodies on DRR/CRM

Potential output/

outcomes

Early warning systems

(multi-hazard) updated,

and capacity for

management created

at all levels

Contingency plans for

DRR/CRM piloted and

scaled up

Increased awareness

of DRR&CRM, and

ways of coping

- Equip Regions and selected Districts with communication and

outreach equipment

- Seek to standardize and harmonize communication equipment

between NADMO and potential stakeholders

- Organize durbars and outreach programs for hazard-exposed

groups and civil society organizations

- Carry out community-based outreach programs

- Develop and distribute handbooks/text books on DRR/CRM

to educational institutions

- Collaborate with tertiary institutions to develop or provide

courses on DRR/CRM

Improved

communication

networks

Improved public

education and

increased awareness

Courses designed

at different levels of

education

Indicative

budget

for GFDRR

funding

US $

1,850,000

300,000

Partnerships

UNDP will mainly

support capacity

building, while

World Bank/

GFDRR will

mainly support

logistics and

hardware.

WFP/MoFA

has developed

a food security

monitoring system

that can be built

on.

UNDP, NGOs,

UNICEF, ISDR

UNDP will take

the lead

(Cont.)

GHANA / 29

Indicative new program areas for GFDRR/World Bank

funding under the “Country DRM Plan” for Ghana*

4. Reduce underlying risk and vulnerability factors

Potential output/

outcomes

- Sensitize stakeholders across sectors and within civil society

on the need to integrate DRR&CRM into planning and

program design

- Establish focal points in all sector agencies (MDAs) and –

encourage key sector ministries to prepare sectoral DRR/

CRM strategies and integration in programs (linked to CC

agenda)

- NADMO to engage with key sector programs including with

NREG on environment, forestry and mining

- NADMO to engage with Savannah Accelerated Development

Authority (SADA) and the Northern Development Initiative

which has adopted an integrated DRR perspective in the

development plan for the North.

- Revitalize the Technical Advisory Committees (TACs)

- Identify and sensitize women on DRR and CRM

- Train and resource women in vulnerable communities in viable

economic activities to build assess and coping capacity

- Train and resource youth groups and other CBOs

5. Improve emergency preparedness and response

Improved collaboration

and integration of DRR

& CRM into sector

planning and programs

Sector ministries more

aware of DRR & CRM

linkages

Community-based

DRM pilot projects

established for women

and other vulnerable

groups

- Develop a program for systematic strengthening of NADMO in

emergency preparedness and response

- Organize regular consultative and coordination meetings with

key stakeholders through Platforms at all levels and inter-

ministerial committee – strengthen coordination by NADMO

- Establish MoU with relevant stakeholders related to

contingency plans and emergency response

- Update inventory of logistics and equipment of NADMO and

stakeholders for rapid deployment and support

- Identify and improve warehouses at strategic locations

- Finalize the data preparedness work for appropriate post-

disaster needs assessments

- Assess training needs and provide specialized training for rapid

response and early recovery

- Equip NADMO Operations Room with digitized risk/hazard

maps and key communication equipment for effective hazard

monitoring, outreach and response

- DRM technical advisor in NADMO for design and

implementation of emergency preparedness and response

Improved capacity

of NADMO and

key stakeholders

to respond to

emergencies and

integrate DRR/CRM in

preparedness

Improved logistics for

emergency supplies

and data readiness

Indicative

budget

for GFDRR

funding

US $

200,000

Partnerships

UNDP, WFP,

ISDR, ECOW-

AS, TerrAfrica

Joint UNDP

and World

Bank/ GFDRR

engagement

UNDP to take the

lead

1,800,000

1100,000

UNDP, UN-

OCHA, ISDR,

ECOWAS

Major area for

GFDRR support.

UNDP has

supported

capacity building

of NADMO,

including support

for ICT in three

Districts in the

North (UNDP/

BCPR Early

Recovery Project).

(Cont.)

30 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Indicative new program areas for GFDRR/World Bank

funding under the “Country DRM Plan” for Ghana*

- Conduct study to propose optimal institutional arrangement,

logistics and funding for decentralized rapid response and

recovery (linked to EWS, contingency plans, warehouses for

prepositioning, logistics)

- Support design and implementation of integrated multi-

sectoral monitoring, early warning, contingency plan – linked

to the new EWS – based on a programmatic approach and

piloting of community-based DRM

- Design community-based DRM pilot exercises and sensitize

vulnerable communities on DRR/CRM, hazard monitoring,

mapping and contingency planning to engender volunteerism

- Introduce systematic training of Disaster Volunteer Groups

(DVGs) and provide minimum equipment and support

- Review and simulate community-based contingency plans for

effective response at all levels based on an examination of

various mechanisms for risk transfer and risk financing.

Total new GFDRR funding

Potential output/

outcomes

Improved capacity at

community level of

DRM approaches and

strengthened capacity

among DVGs to

respond to and prepare

for disasters

Indicative

budget

for GFDRR

funding

US $

700,000

Partnerships

World Bank will

work closely with

UNDP/ BCPR

5,300,000

* Note: This matrix represents key priorities put forward by NADMO for a comprehensive program on DRR & CRM – with a few adjustments. Given the limited GFDRR fund-

ing, not all of these activities can, obviously, be fully covered or carried out.

GHANA / 31

Annex 1

A joint World Bank-UNDP framework program

The World Bank and UNDP agreed to prepare together with Government a National Program Framework for Disaster

Risk Reduction and Climate Risk Management under which the UNDP-World Bank/GFDRR projects would be imple-

mented.

The total UNDP-World Bank support for this National Program will be about $ 12 million. Under this umbrella

there will be five UNDP supported operations, and one new World Bank/GFDRR program (which would include the two

on-going GFDRR program – one Ghana specific and one multi-country program on coastal/marine resources manage-

ment). The combined support from UNDP and the World Bank/GFDRR would help ensure that the work of lead govern-

ment agencies become linked, integrated and coordinated with the view to exploit synergies between them.

The coverage of these six programs in relation to the two main agendas – DRM & CCA – and along the five priority areas

of the Hyogo Framework of Action (HFA) would be as in the matrix below.

Coverage of World Bank/GFDRR and UNDP supported programs across Disaster Risk Management (DRM)

and Climate Risk Management (CRM)/Climate Change Adaptation (CCA)

HFA/

Project

Funding

Mill. $

HFA1

HFA2

HFA3

HFA4

HFA5

GFDRR18

5,900

BCPR

1, 200

UNDPa19

0,350

AAP

2,500

CC DARE

0,150

UNDP-GEF

(health)

0,350

UNDPb

0,350

18 While the lion share of GFDRR funding would be for DRM, a substantial amount would be for the CCA/CC agenda related to HFA 2 on hazard as-

sessment and early warning system, to accompany the AAP and the NREG projects, for example. The EWS would be national in scale and support

also agencies such as EPA and GMet and the CC agenda.

19 The UNDP Annual Work Plan 2009 has, for illustrative purposes, been divided equally between DRM and CCA – and denoted UNDPa and UNDPb

respectively in the matrix.

32 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

MOZAMBIQUE

1. DISASTER RISK PROFILE

More than 60 percent of Mozambique’s population of 21 million lives

in coastal areas, and is therefore highly vulnerable to cyclones and

storms along its 2,700 km coastline. Like Bangladesh, it lies at the receiv-

ing end of major international hydrographic basins1. Many of these basins

suffer from saline intrusion deep into river mouths. Despite strong economic

growth (6.5% in 2008), over 80 percent of the population continues to de-

pend on agriculture. The elevated rates of poverty (54% in 2003), malnutri-

tion, HIV/AIDS, and endemic diseases contribute to what is already a high

physical vulnerability.

Mozambique ranks third amongst the African countries most exposed to risks from multiple weather-relat-

ed hazards, suffering from periodic floods, cyclones and droughts. As much as 25 percent of the population is

at risk from natural hazards. Floods, epidemics and cyclones are the most frequent disasters, although drought affects by

far the largest number of people (Table 1 and Fig.2). Droughts occur primarily in the Southern and Central regions, with

a frequency of 7 in 10 and 4 in 10 years, respectively. Floods occur every 2-3 years along major river basins, low coastal

plains, and areas with drainage problems. The risk is highest in the central and southern region. Over the past 40 years,

Mozambique was greatly affected by upstream river use in the Zambezi and the construction of the Kariba Dam in 1959

and the Cahora Bassa Dam in 1974. Epidemics have been generally associated with flood disasters. Cyclones affect

the entire coast, but with highest wind impact along the northern area, from October to April, with frequencies of about

1-2 in 4 years, depending on the regions2.

Table 1. Summary of Disaster Impacts by Type

(1956–2008)

Number

Events

Droughts

Floods

Cyclones

Epidemics

Others*

Total

* Earthquakes and Windstormd

Number

Killed

100,200

1,921

697

2,446

105,288

People

Affected

16,444,000

9,039,251

2,997,056

314,056

6,540

28,801,147

Source: Quebec (2008) in INGC (2009). Study of Impact of Climate Change on

Disaster Risk in Mozambique (Draft).

Figure 2. Number of People Affected by Type

of Hazzard (1956–2008)

Epidemics

Cyclone

10%

Drought

58%

Flood

31%

Source: Quebec (2008) in INGC (2009). Study of Impact of Climate Change on

Disaster Risk in Mozambique (Draft).

1 The international basins are the Buzi, Incomati, Limpopo, Maputo, Pungoé, Save, Rovuma, Umbeluzi and Zambezi. The largest basins the Zambezi

and the Limpopo. For all but Rovuma, the flood plains are inside Mozambique.

2Sources: Ministry for the Coordination of Environmental Affairs (MICOA), 2007. National Adaptation Plan for Action (NAPA) and INGC (2009)

Study on Impact of Climate Change on Disaster Risk in Mozambique (draft).

MOZAMBIQUE / 33

In 2007, flooding in Mozambique killed at least 29 people and affected 285,000 people, the worst since 2000-

2001, when 700 people died and half a million lost their homes.3 In 2008, heavy rains in Zambia, Zimbabwe and Malawi

caused flooding in Mozambique that displaced tens of thousands of people and destroyed almost 100,000 hectares of

crops. As a result of the floods and consecutive droughts in 2002/03, 2003/4 and 2007/08, the World Food Programme

placed 300,000 people under food assistance. Some 35 percent of the population is now thought to be chronically food

insecure. Disaster costs to the national economy have been estimated at US$1.74 billion during 1980-2003, but this

largely underestimates economic losses and impacts on the poor4.

Climate change will increase extreme weather patterns, based on observed trends and future scenarios.

Historical records from 1960-2005 point to a warming trend in central and north Mozambique of 1.1-1.6o C in maxi-

mum temperatures and to significant increases in duration of heat waves, as well as a delay in the start of the rainfall

season. By 2040-2060, maximum temperatures are expected to increase by 2.5-3.0oC in the interior. Thus, the future

weather is expected to exacerbate current climate variability, leading to more intense droughts, unpredictable rains,

floods and uncontrolled fires. Depending on global sea level rise scenarios, critical urban centers such as Beira and

Maputo would need to significantly strengthen their coastal defenses or plan a retreat of urban infrastructure. Future

models predict a 25 percent increase in magnitude of large flood peaks in the Limpopo and Save and a reduction

in Zambezi river flow of 15 percent, requiring a major rethinking in power consumption strategies. With population

growth, per capita water availability is expected to decline in the major hydrographic basins, placing critical stress on

water resources. The Zambezi, Save and Limpopo rivers could experience saline intrusions up to 30 km inland. The

intensity of hurricane-strength cyclones is also expected to increase in a future climate.5 Hence, critical sectors that will

be at increasing risk include agriculture, infrastructure, power, water and sanitation, and health and nutrition.

2. ACTIVITIES UNDER HYOGO FRAMEWORK OF ACTION

HFA Priority # 1. Policy, Institutional Capacity and Consensus Building

The National Institute of Disaster Management (INGC), established in 1999, coordinates disaster risk man-

agement activities in Mozambique. INGC operates under the Ministry of State Administration (MAE) and is man-

dated to coordinate emergencies, promote disaster prevention through population and government mobilization; protect

human lives; ensure multisectoral coordination in disaster emergency; coordinate early warning systems; carry out public

awareness; and re-utilize arid and semi-arid zones. They are responsible for coordinating disaster risk management at

the national, provincial and district levels. Three regional emergency operation centers handle cyclones and droughts

(Vilankulos), floods (Caia) and cyclones (Nacala). There are also four multiple use centers (CERUM) at the district level

specializing in reducing vulnerability to droughts. At the community level, INGC acts through local Committees for Di-

saster Risk Management that are empowered to deal with both disaster prevention and preparedness.

The Coordinating Council for Disaster Management (CCGC), chaired by the Prime Minister, ensures multi-

sectoral coordination in disaster prevention, assistance to victims, and disaster rehabilitation. It receives ad-

vice from a Technical Council for Disaster Management (CTGC). The CTGC, composed of technical staff from sector

Ministries represented in the CCGC, proposes technical responses to disasters which are then submitted for analysis and

approval to the CCGC. The CCGC decision is then forwarded to the operating body of INGC for action through its regional,

provincial and district representatives. The CTGC is also active at the provincial level, where it advises the local INGC

and the Provincial Government and conducts disaster evaluations.

3OCHA Situation Report 2, 9 February 2007.

4 Abrams, Len. Long-term Strategic Planning for Disaster Risk Reduction in Mozambique and Malawi.

5INGC, 2009. Study on Impact of Climate Change on Disaster Risk in Mozambique (draft).

34 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

MAE

COUNCIL OF MINISTERS

COORDINATOR COUNCIL OF

DISASTERS MANAGEMENT

UN, NGOs,

DONORS AND

OTHERS

INGC

PROVINCES

DISTRICTS

ADMINISTRATIVE P.

TECHNICAL COUNCIL

INAM

FIRE BRIGATE

WATER

AGRICULTURE

ENVIRONMENT

HEALTH

HAB, URBANIZATION

DEFENCE

ROAD ADMINISTRATION

MINERAL RESOURCES

IND. COMMERCE

Mozambique adopted a National Master Plan for Prevention and Mitigation of Natural Calamities in 2006.

The Master Plan followed the Disaster Management Policy of 1999 and became the country’s operative strategy for di-

saster risk management. It specifically emphasizes the links between development policies and preparedness, prevention,

mitigation and vulnerability reduction. Attention is paid to developing arid zones through introduction of conservation

agriculture and non-agricultural income generation activities, water supply and rainwater harvesting. For flood protection in

risky area, water resources infrastructure such as dams and dikes are considered keys elements for flood prevention.6

The Ministry for the Coordination of Environmental Affairs (MICOA) finalized a National Adaptation Pro-

gramme for Action (NAPA) in 2007. The plan, prepared by an inter-agency NAPA team, reviewed Mozambique’s

vulnerability to key hazards and identified four adaptation priorities:

1. Strengthening early warning systems;

2. Strengthening the capacity of farmers to deal with climate change

3. Reduction of the impacts of climate change along the coastal zone, and

4. Water resources management.

Despite this progress, a number of critical institutional weaknesses remain: the 2008 Interim National Prog-

ress Report on the Implementation of the Hyogo Framework for Action cites weak institutional capacity to manage the

relationship between Disaster Risk Management, and Climate Change and Environmental Issues. The main capacity

constraints are unresolved coordination issues between INGC and MICOA to address disasters as an environmental

issue, and the fact that most line ministries lack a legal mandate to participate in the Master Plan. A national disaster

management law is in draft form, but has been awaiting ratification by parliament for a number of years. As a result the

responsibilities of various government departments in disaster risk management are not yet clearly defined. Partially as

a consequence of this, Mozambique continues to depend heavily on international technical assistance to implement

disaster risk management plans.5 The UNDP project “Strengthening Local Risk Management and Mainstreaming Disas-

ter Risk Reduction” seeks to address some of these weaknesses by strengthening capacity for integrated emergency

response at the national and regional levels.

6Interim national progress report on the implementation of the Hyogo Framework for Action, 2008.

MOZAMBIQUE / 35

HFA Priority # 2. Disaster Risk Assessment, Monitoring, and Early Warning

In March 2009 INGC completed the first phase of a major report, “Study on the Impact of Climate Change

on Disaster Risk in Mozambique,” funded by the Government of Denmark, UNDP and GTZ. This study is

expected to help set priorities for the Pilot Program from Climate Resilience (PPCR) as well as other national programs

in climate change adaptation and disaster risk management. It researched extensively the projected effects of climate

change by 2040 and 2060, and the adaptation measures needed to reduce vulnerability to these impacts. It is being

complemented by the Economic Vulnerability and Disaster Risk Assessment Study and the Economics of Adaptation

to Climate Change Study, funded by the World Bank.

Mozambique has also made progress on risk mapping. Recently, INGC completed a major risk atlas for the

Limpopo Basin, in collaboration with FEWS NET and Universidade Eduardo Mondlane (UEM). The resulting atlas offers

access to maps, charts and images, and identifies the hazards that could affect the Limpopo river basin. Flood Risk Maps

have also been developed by the Water Administration unit, for the Limpopo and Incomati Basins.5

There is a further need, however, to identify and map key assets at risk as a basis for spatial planning. Ac-

cording to the 2008 review of the Hyogo Framework, however, there is a need for a comprehensive risk analysis of the

13 river basins in Mozambique. INGC and CTGC agencies also need to complete the identification and mapping of the

basic assets at risk in the major sectors of the economy – e.g. schools, health centers, transport infrastructure, etc. – so

that contingency plans and risk maps can be produced readily for areas exposed to major hazards. There is also a need

for better participatory risk mapping to ensure that communities are involved in the process and accept the mitigation

measures recommended by the studies. Given the vulnerability of coastal cities, INGC has also identified participatory

urban mapping of Inhambane, Maxixe, Maputo, Beira, Xai-Xai, and Quelimane, and coastal erosion and adaptation stud-

ies of Maputo, Beira and Inhambane, as major priorities for future assessments.

While much is known about flood, drought and cyclone risks, relatively little is known about seismic haz-

ards and the risks they pose to major cities. Seismic risk has become a particular concern since the 2006 earth-

quake, which struck the southern province of Manica with an intensity of 7.5 in the Richter scale, causing 4 dead and 36

injured7. The impact was also felt on the major metropolitan city of Beira, home to 600,000 inhabitants. Seismic modeling

and the development of seismic-resistant norms is an area of growing importance, particularly for the main urban centers

of the central region (Quelimane, Beira and Chimoio).

Mozambique has a well developed Early Warning System. INGC holds overall coordination responsibilities for the

system, but monitoring is carried out by specialized agencies. Hence, the National Directorate of Water is responsible for

flood forecasting, in collaboration with INGC and the National Institute of Meteorology (INAM). INAM and its regional

center are responsible for cyclone monitoring. Once Southern Africa Climate Regional Climate Outlook Forum forecasts

are released, the national institutions draw specialized forecasts, and INGC launches a Contingency Plan preparation. The

Technical Secretariat for Food Security and Nutrition platform (SETSAN) is responsible for the food security early warn-

ing system. SETSAN is composed of most ministerial institutions under the leadership of the Ministries of Agriculture and

Health. It carries vulnerability surveys nationwide to assess community food insecurity and requirements for emergency

relief. GTZ/Munich Re and UNDP fund specialized flood early warning systems in the basins of Save and Licungo.

A reported weakness of the early warning system is a lack of investment in the information and com-

munications needed to properly feed the system. The flood warning system, for example, depends on the in-

7OCHA Integrated Regional Network Report, 1 March 2006.

36 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

volvement of the national television system, radio, and local government working with flood-affected communities.8 The

system is also hampered by lack of continuous funding, poor maintenance and lack of insurance for equipment and op-

erations. Moreover, the process of information exchange amongst agencies is uncoordinated: for example, the National

Directory of Water does not use the rainfall information available from INAM to predict expected rainfall, but instead re-

lies on data from the U.S. Geological Survey. These weaknesses in information harmonization also permeate across the

disaster risk management network. The current UNDP assistance aims to address them through an information sharing

platform on disaster preparedness, contingency planning and early recovery which includes a loss data observatory.

Mozambique needs to optimize the use of its meteorological radars. Following the 2000 floods, Mozambique

received two radars covering the southern (Xai-Xai) and central (Beira) regions. Each has a 300 km outreach. There is

a need to invest in their further in their calibration, product development and training to optimize their application to the

early warning system covering these two regions.

HFA Priority # 3. Knowledge and Capacity Enhancement for DRM

Newly created post-graduate academic programs are expected to greatly assist the development of nation-

al risk assessment and adaptation strategies. The Department of Geography at Universidade Eduardo Mondlane

is carrying out a project on the application of RadarSat-1 SAR data for flood mapping in cooperation with the Canadian

Space Agency and IUCN. The Department of Physics at the same University is active in research on Adaptation to

Climate Change in cooperation with INGC. Nonetheless, there is still a need to support short-term international post-

graduate degrees in highly specialized fields that may not be available in-country (such as hydrology modeling).

Community awareness and education projects are being carried out on a pilot basis. With GTZ support,

INGC has carried out pilot awareness projects in primary schools in Buzi River, Sofala, training students and teachers

in risk management. GTZ/INWENT also helped INGC prepare school training materials for pilot in Chókwe. In 2007,

MICOA, in cooperation with UN Habitat, produced training materials for local communities living along river basins, using

the Limpopo River as a pilot. This set of materials (“O jogo do rio”, or River Game) are used to train communities through

the Local Committees for Risk Management.

There is still a need, however, for a more comprehensive public communications strategy. Most disaster risk man-

agement documents are still not written or translated into Portuguese. More effective public outreach programs need to be

established in partnership with the media. INGC is presently carrying out an advocacy campaign based on sharing information

with national Universities, but further efforts are needed to support public communications strategies around key disaster

management themes (e.g. improved construction norms).

HFA Priority # 4. Disaster Risk Reduction and Financing

While significant progress has been done to mitigate flood impact in key basins, Mozambique needs to re-

vise its building and infrastructure norms to take into account hazard risks. A number of flood protection mea-

sures are being adopted in the transport sector (see below), but construction regulations are out of date, do not properly

take into consideration key risk such as cyclone wind or storm damage, and are weakly enforced. Technologies used by

the construction industry therefore fail to protect common facilities from heavy storms and cyclones along the coast line,

resulting in frequent economic damages. A revision of norms would therefore be important at the national level, both for

buildings as well as for other infrastructure likely to be affected by cyclone winds, fire, flooding and seismic damage. Of

particular importance would be to review standards for social infrastructure such as schools and health centers.

8Interim National Progress Report on the Implementation of the Hyogo Framework for Action, 2008.

MOZAMBIQUE / 37

After completing a substantial number of background studies, the Government is now placing high priority

on piloting risk reduction on key sectors. These include:

(a) Flood protection measures such as dams, settlement protection dikes, and increased drainage in transport infra-

structure. The Massingir dam recently rehabilitated in the Limpopo river prevented floods in 2008 which could

have affected Chókwe and Xai-Xai Cities, and small towns along the river basin. The dam was also perceived as

having protected the largest irrigation scheme in the country in Chókwe. Protection dikes have also been popular

measures to protect settlements from floods: during 2007 and 2008, for example, dikes along the Zambezi were

seen to have protected Luabo and Marromeu towns from inundation. New technologies for road construction us-

ing drifts and drainage have also reduced road cuts during floods. As a result, trade has become less affected

and traffic has been re-established in the immediate post-disaster period, stabilizing food security and access to

markets.9

(b) Water management in arid lands, including the construction of small retention dams and ponds to increase water

availability for irrigation purposes and for cattle in dry land areas. Investments in pilot adaptation measures for

water management in arid lands, however, are not yet as developed as in flood-prone areas.

They are urgently needed in vulnerable coastal cities such as Beira, Maputo, Inhambane, and Quelimane. Given

that the vulnerability of certain low-lying areas may leave no choice but to consider retreat, involvement of urban

communities in participatory mapping is considered essential.

(d) Social infrastructure using safe norms. Once hazard risk management guidelines are incorporated into building

codes and infrastructure safety standards, the Government would like to promote “safe pilots” - such as model

houses, schools, health centers and other social infrastructure. These would serve to show to communities and

the private sector how their infrastructure can be protected against common hazards.

Mechanisms for risk financing and risk transfer are still incipient. The Government of Mozambique is presently

studying mechanisms for the establishment of a prevention and disaster contingency fund, under UNDP assistance.

While some preliminary work has been done in this regard, there is as of yet no clear mechanism for private or sovereign

catastrophe insurance. Given the level of risk and infrastructure exposure in the coastal cities, and the likely balance

between private and public damages, financial risk transfer mechanisms should be considered a priority area for future

development in Mozambique.

HFA Priority # 5. Disaster Preparedness and Recovery

The National Emergency Operations Center, CENOE, under INGC, coordinates disaster response activities.

CENOE is supported by a National Civil Protection Unit (UNAPROC) to assist with search and rescue activities.

INGC prepares Annual Contingency Plans in a participatory manner involving central and regional gov-

ernment, donors, the UN System and civil society. The Plans are prepared following the issuance of the hydro-

meteorological forecast by the Meteorological National Institute in coordination the National Directorate of Water and

consider four main hazards: floods, droughts, cyclones and earthquakes. They include a profile of the most vulnerable

districts and priority needs.

According to the scenarios established by the Contingency Plan, pre-positioning of goods takes place in

the most vulnerable and least accessible areas. The early warning mechanism is refined and a national, regional

9Interim National Progress Report on the Implementation of the Hyogo Framework for Action, 2008.

38 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

and local simulation takes place, as a signal to launch Mozambique’s disaster response. Training to Local Committees for

Risk Management is accelerated. In addition, CTGC weekly meetings are held to exchange information among disaster

risk response stakeholders. The CENOE information team is activated to monitor information sharing among all disaster

risk reduction institutions, including high-level decision makers who are members of the CCGC, chaired by the Prime

Minister (Figure 6). INGC, UNDP, GTZ and INWENT are currently taking the lead in financing the strengthening and

training of local risk management committees and the expansion of this network to other high-risk districts.

Even though disaster response institutions are well developed in Mozambique, there is still a need to

strengthen damage and loss assessment applications as a basis for reconstruction. Post disaster assess-

ments tend to rely on rapid sectoral evaluations that typically under-estimate economic losses. Mozambique could there-

fore benefit from capacity building in standard Post-Disaster Needs Assessment training, particularly standard UN/

ECLAC Damage, Loss and Needs Assessment. This could enable it to gradually strengthen its risk exposure data and

use it as a basis for probabilistic risk assessment, risk mapping, and eventually financial risk transfer (insurance).

3. Integration of Disaster risk management in Development Strategies

Disaster Risk Management is integrated, although not yet fully mainstreamed, into major development

strategies. The Government’s Five Year Plan (2005-2009) addresses some of the challenges related to disaster risk

management and climate change adaptation. It identifies as priority objectives the reduction of number of human victims

and amount of property loss, and it emphasizes a culture of prevention and mitigation. As part of the Plan, the Gov-

ernment committed to mapping zones at high risk, strengthening early warning systems, increasing resources for the

prevention and mitigation of natural disasters, reinforcing capacities for inter-sector coordination, strengthening river

basin management, establish a database for information on climate change trends and impacts, promote water storage

systems in drought-prone areas, and increase training and civic education.

The national Second Poverty Reduction Support Strategy (PARPAII 2006-2009) recognizes disaster risk

management as a cross cutting issue thereby acknowledging the need for a long-term strategy to reducing the

vulnerability of communities and infrastructure exposed to extreme natural phenomena. Disasters are also part of the

Medium-Term Fiscal Framework (MTFF). However, the priorities identified by the Master Plan for Disaster Preven-

tion and Mitigation were not reflected in the PARPA II. With the recent release of the NAPA and INGC’s “Study on Im-

pact of Climate Change on Disaster Risk,” adaptation strategies are expected to be much more closely mainstreamed

into the next Poverty Reduction Support Strategy which is starting to be prepared.

Disaster mitigation and enhanced resilience are specific objectives under the World Bank’s Country As-

sistance Strategy. The Mozambique Country Partnership Strategy (2008-2011) specifies “mitigation of risks from

disasters and shocks” as one of the objectives and “enhanced capacity to respond to disasters” as one of the outcomes

under the pillar on Sustainable and Broad-Based Growth. The establishment of early warning and emergency prepared-

ness systems is specified as a goal. The CPS also recognizes that future economic growth depends on the prevention of

a major natural disaster. The Joint Staff Advisory Note, commenting on the PRSP progress, indicates a need to integrate

disaster risk management in sectoral plans at all levels, and strengthen inter-sectoral coordination. While it compliments

Government efforts in mitigating the impacts of climate shocks in 2007, it recognizes the financial limitations of the Gov-

ernment in facing major disasters, and therefore recommends the establishment of a National Disaster Fund, including

mechanisms for risk transfer.

The Government annually provides USD $3.5- $5 million to INGC for disaster risk management and re-

MOZAMBIQUE / 39

sponse, which may be increased depending on the magnitude of a disaster. This is equivalent to about 0.2

percent of the annual State Budget. The Contingency Plan is also funded by international donors. Additional resources

are also allocated to other sectors for disaster risk management activities, such as irrigation schemes, small dams, con-

struction of ponds and environmental protection.

Since 2006, provinces and districts have gradually integrated disaster risk management into their annual

plans and budgets. The Government allocates direct financing to provincial and district plans in accordance with the

Decentralization Law of 8/2003. District land use plans have been developed by local governments (districts) with the

support of provincial governments and integrated into District Development Strategic Plans. However, regional INGC

delegations are still considered to be weak and need considerable support and capacity building to respond adequately

to the numerous disaster risk management challenges.

Despite these challenges, disaster risk management and adaptation to climate change have unquestion-

ably become a central issue to economic development in Mozambique, and are expected to continue to grow

in importance in the future.

4. KEY DONOR ENGAGEMENTS

Ongoing Projects and Organizations

World Bank Projects

Mainstreaming Disaster Reduction for Sustainable Poverty Reduction:

Mozambique (GFDRR)

Economics of Adaptation to Climate Change (EACC) – Mozambique Case Study

(funded by DFID and Netherlands and executed by the World Bank) will be

launched shortly

Pilot Program for Climate Resilience (under preparation)

Donor Projects

UN Joint Programme for Strengthening Disaster Risk Reduction and Emergency

Preparedness

UN Joint Programme on Environment Mainstreaming and Adaptation to Climate

Change

UNDP/GEF: Coping with Drought and Climate Change

(Special Climate Change Fund)

UNDP: Climate Risk Management Technical Assistance Support Project (CRM-

TASP) (executed by Asian Disaster Preparedness Center, ADPC)

UNDP (funded by Government of Japan Africa Adaptation Programme)

Mainstreaming Climate Change Adaptation Mechanisms in Policy, Development

and Investment Framework in Mozambique

GTZ: PRO-GRC Institutionalizing DRR in Mozambique (Projecto da

Institucionalização da Gestão de Risco de Calamidades em Moçambique)

UNDP, Denmark, GTZ: Impact of Climate Change on Disaster Risk Study

(executed by INGC)

DIPECHO Projects: several disaster preparedness project implemented by UN-

Habitat, Oikos, OXFAM GB & Intermon OXFAM, Concern, German Agro Action)

Indicative budget

(where available, details

on years covered)

USD $900,000

US$800,000

USD $30-70 million

(2009- )

USD $10 million

2007-2009

USD $7 million

2008-2010

USD $ 1.8 million

2008-2011

US$2.75 million

2008-2009

US$ 5.0 million

2009-2011

USD $ 3.9 million

2007-2009

USD ~0.5 million

USD $ ~3.1 million

HFA activity

area(s)10

1, 2, 4

1,2,3,4

1, 2, 3, 4, 5

1,2,4

1, 2, 4, 5

1,2,4

1, 4, 5

1, 3, 4, 5

40 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given the substantial number of donor engagements, it is essential to consider GFDRR within the broader

framework of a disaster risk management and adaptation program in Mozambique. While the framework

below is still preliminary and centered on Hyogo Framework for Action priorities, it helped identify areas where GFDRR

was best placed to leverage its expertise and resources.

Hyogo Framework For Action Area

Major Partner

1. Policy, Strategy, and Institution Building

Master Plan, Policy, NAPA, Regulations

UNDP

Mainstreaming DRM and Adaptation

into Development

Capacity Building

UNDP and WB/

AfDB (PPCR)

UNDP and GFDRR

2. Risk Identification, Assessment, and Monitoring

Climate Trends, and Hazard Risks

UNDP, Denmark,

GTZ, World Bank

GFDRR

Risk Mapping

UNDP/GRIP,

FEWS/NET, UEM

GFDRR

Early warning system

UNDP, GFDRR

3. Education and Awareness to build a Culture of Resilience

DRM School Education Programs

GTZ/INWENT

Community Awareness

DIPECHO

4. Reduction of Underlying Risk Factors

Revision of Hazard norms

GFDRR

Risk mitigation using revised

infrastructure norms

Flood protection

Water management in arid areas

Fisheries adaptation

Health adaptation

Risk financing and Transfer

GFDRR

PPCR, Others

GFDRR

PPCR, Others

GFDRR

PPCR, Others

UNDP

PPCR, Others

UNDP

PPCR, Others

UNDP, GTZ

GFDRR

5. Strengthening Disaster Preparedness

Emergency Preparedness

UNDP, DIPECHO

Post Disaster Needs Assessment

GFDRR

Comment

Already developed, except for law and regulations (under

preparation with assistance from UNDP)

Considered to be adequately covered by UNDP and PPCR

UNDP to finance capacity building for CTGC and regional

DRM committees

GFDRR to fund specialized and academic training in DRM

Completed by Stage I study.

Economic impact to be completed by WB study.

GFDRR to help fund Stage II Study (Adaptation Options)

Risk atlas completed for Limpopo

UNDP/GRIP will fund data harmonization

GFDRR to fund mapping of key assets at risk

UNDP to fund information sharing platform

GFDRR to optimize use of radars in early warning

GFDRR to fund promotion and awareness of revised norms

as part of Hyogo 4 activity below.

GFDRR to help revise safety norms for earthquakes,

cyclonic winds, and floods

GFDRR to pilot

PPCR and other larger investments to expand

GFDRR to pilot along Zambeze

PPCR and other larger investments to potentially expand

GFDRR to pilot

PPCR and other larger investments to potentially expand

UNDP to pilot

PPCR and other larger investments to potentially expand

UNDP to pilot

PPCR and other larger investments to potentially expand

UNDP and GTZ helping to develop contingency funds

GFDRR to assist in exploring catastrophe insurance

mechanisms

Considered to be adequately covered

Capacity Building in Damage, Loss and Needs

Assessment

MOZAMBIQUE / 41

The program areas identified for GFDRR financing and indicative funding are listed below. Once the detailed

proposal is developed, an estimated 10 percent of the budget will be earmarked for project management. The project

would be Government-executed, for a duration of five years (2010-2015).

Indicative New Program Areas

and Projects for GFDRR

Funding

1. Policy, Strategy, and

Institution Building

1.A. Strategy, Policy and Institutional

Coordination

Partnerships

INGC, UNDP, PPCR

1.B. Studies for National Program of

Disaster Risk Management and

Adaptation to Climate Change

1.C.Strengthened Sector Capacity

in Disaster Risk Management

INGC, UNDP, GTZ,

Denmark

INGC, UNDP

2. Risk Identification, Assessment and Monitoring

2.A.Risk Mapping for Vulnerable

Assets

INGC, UNDP

2.B. Participatory Urban Mapping

INGC, MICOA, Urban

Municipalities

2.CEarly Warning System Radar

Applications

INAM, UNDP

Indicative

Budget

for GFDRR

Funding

and years covered

(USD)

Potential outcomes and comments

150,000

(2010-2015)

200,000

(2010)

350,000

(2010-2015)

500,000

(2010-2013)

150,000

(2010-2011)

500,000

(2010-2013)

This would be a limited budget for

strategic activities of the CTGC UNDP

and PPCR would take the lead role in

this area.

This would be a complementary support

to Phase II of the INGC study, focusing

on risk reduction options and strategies.

UNDP would fund most of the capacity

building for CTGC and regional DRM

committees; GFDRR funding would

focus on specialized training and

seminars, and in selected master level

degrees not available in Mozambique

(e.g. hydrology modeling).

This financing would complement ca.

US$200,000 in UNDP/GRIP funding

to enable INGC to complete its geo-

referencing of vulnerable assets in key

sectors (e.g. schools, health centers,

transport infrastructure), and thereby

build an integrated platform for risk

mapping

This would involve participatory urban

rezoning of the cities of Maxixe and

Inhambane taking into account major

hazards. Most of the studies would be

financed by a reallocation of Track II

funds (US$400,000).

This would include calibration of the

two existing radars of Xai-Xai and Beira,

development of software, technical

assistance and training to optimize their

use for the early warning system serving

the southern and central regions. UNDP

would co-finance some of the training.

(Cont.)

42 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Indicative New Program Areas

and Projects for GFDRR

Funding

Partnerships

4. Reduction of Underlying Risk Factors

4.1.Review of Hazard Norms

INGC, MOPH, MICOA,

INAM

4.2. Pilot Demonstration Projects

Applying New Norms

INGC, MOPH, MICOA

4.3. Flood Protection for Vulnerable MOPH, INGC, MINAG

Communities (pilot)

4.4.Water Management in Arid

Areas (pilot)

4.5.Risk Transfer Mechanisms

MOPH, MINAG

Ministry of Finances,

INGC, UNDP

5. Strengthening Disaster Preparedness

5.1.Specialized Training

INGC and CTGC

UNDP

Total Funding Requested from

GFDRR

Indicative

Budget

for GFDRR

Funding

and years covered

(USD)

Potential outcomes and comments

350,000

(2010-2012)

800,000

(2011-2014)

600,000

(2010-2013)

600,000

(2010-2013)

600,000

(2010-2013)

Revised construction norms taking

cyclone winds, earthquake hazards and

inundation risks into account.

Revised infrastructure norms taking

flood risk into account

These would focus on social

infrastructure (e.g. schools and health

centers) as well as low-cost houses in

highly vulnerable areas able to serve as

models to stakeholders

The pilot is envisaged to focus along

the Zambezi. While dykes have been

the measure of choice, other flood

management measures would be

considered on a pilot basis

This could involve small water reserves

(for livestock) and other water and rain

retention measures

While UNDP assistance has focuses

on establishing a contingency fund,

GFDRR would focus on the feasibility of

catastrophe insurance (both private and

sovereign mechanisms)

250,000

(2010-2013)

5,050,000

This would target primarily Damage,

Losses and Needs Assessment (UN/

ECLAC Methodology) as well as other

specialized disaster response training.

UNDP is funding most activities under

Hyogo Priority 5.

Leveraged Funding:

ca. US$58 million

TOGO

TOGO / 43

To prepare the Country DRM Note, consultations were undertaken with

members of the World Bank’s Togo Country team and the Ministère

de l’Environnement et des Ressources Forestières, Ministère de la

Coopération, Développement, Aménagement du territoire, Secrétariat

de la Stratégie Internationales des Nations Unies pour la prévention

des Catastrophes (ONU/SIPC), Croix Rouge Togolaise, Ministère de

l’Enseignement Supérieur et la Recherche, Université de Lomé,

Ministère Administration Territoriale et Collectivités locales, Ministère

de l’Urbanisme et de l’Habitat, UNDP, Ministère de la Sécurité

et de la Protection Civile, Coopération Française, Commission

Européenne, Associations des ONGS, Ministère du Commerce et de

la Promotion du Secteur Privé, Ministère de l’Agriculture, de l’Elevage

et de la Pèche, Secréterait Technique du Projet de Développement

Communautaire, Agence d’appui aux Initiatives de Base—AGAIB

Région Savanes, Agence d’appui aux Initiatives de Base—AGAIB

Région Kara, Agence d’appui aux Initiatives de Base—AGAIB Région Centrale, Agence d’appui aux Initiatives de

Base—AGAIB Région Plateaux, Agence d’appui aux Initiatives de Base—AGAIB Région Maritime.

1. Disaster Risk Profile

A poor country which suffered from years of weak governance. Togo is a country of 54,400 km2 located in West

Africa on the Atlantic coast of the Gulf of Guinea. The country’s population was estimated at 6.1 million in 2006 with

an average annual growth rate of 2.4 percent. The political movement toward more democratic institutions that started

in the early 1990s resulted in socio-political unrest that peaked in 1993 and lasted more than a decade. This period of

prolonged political instability was also marked by serious economic and financial management problems that led to the

deterioration of the economy and the withdrawal of donors’ support to the country. In fact, the cumulative effect of this

political and economic instability led to reduced public investments which fell from 13.8 percent of GDP in 1990 to 3.3

percent in 2005; public spending in social sectors decreased dramatically. The annual growth rate of GDP averaged 1.1

percent during the same period, well below the annual growth rate of population of 2.4 percent. As a result, the living

standards of the majority of the population declined sharply. Income per capita (US$350 in 2006) is low compared to

Sub-Saharan Africa (US$842) and Low Income Countries (US$650) averages. Moreover, Togo now ranks 152nd out of

177 countries in terms of human development, according to UNDP’s 2007 Human Development Report.

The prolonged political turmoil and governance shortfalls had adverse impacts on the environment and on

natural resources. As the highly centralized public administration system crumbled in the wake of civil unrest, so did

the associated policy tools that should have ensured the sustainable exploitation of natural resources and the protection

of environmental services and infrastructure. Because of the crisis, there was an expansion of the informal sector, which

resulted in adverse environmental consequences as rural and urban households resorted to survival strategies that relied

on non sustainable exploitation of natural resources (forest resources, wildlife, fisheries) and environmental services. Key

environmental challenges facing the country include land degradation and deforestation.

44 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Natural Hazards in Togo

Percentage of people reported

affected by disaster type, 1983 – 2008

Epidemic

Drought

45%

Flood

54%

Natural disaster occurrencereported, 1983 – 2008

Drought

Epidemic

Flood

Within Togo, there is locational differentiation of risks associated with flooding and soil and coastal

erosion. In general, all watersheds are vulnerable to flooding. The northern half of Togo shares the Upper Volta River

Basin with Ghana and Burkina Faso and is therefore vulnerable to water resource management decisions made in these

countries. Both rural and urban areas in Togo are vulnerable to flooding. Areas along the coast, like Lomé, are subject to

coastal flooding due to high levels of coastal erosion. Phosphate mines, located near the coast, also create a precarious

situation in natural disasters. Deforestation is a major concern in Togo and exacerbates the effects of flooding. Trees

have been cut down by individuals, communities, and companies to create farmland and to use and sell the wood. The

removal of trees and other plants and the soil erosion that results from this practice can intensify flooding and worsen its

effects on the land and on infrastructure.

In the past ten years, there have been no major droughts, but there have been six major floods that have

had negative environmental, social, and economic impacts on the country. Both the scale and intensity of

the floods, the weakness of government contingency plans and the lack of ex-ante risk mitigation measures, led to

infrastructural damage and to high numbers of people affected by the floods.

Recent Flooding and its Consequences

Though Togo experiences flooding almost every year, the past two years have witnessed particularly

widespread and devastating floods. In 2007, when floods occurred in most West African countries, Togo was one of

the hardest hit. Most of the people affected were from the northern regions of the country with the Savanes region worst

affected.1 In particular, 127,880 people were affected, 13,764 people were displaced and 23 died as of 17 October

2007.2 In 2008, severe rains led to heavy flooding in the southern, northern, and central regions (Maritime, Savanes and

Centrale), with 24,500 people affected, 4,000 people were displaced in six camps, and 4 people killed as of August 4,

2008.3

Floods can have severe environmental consequences. Recent flooding in Togo led to increased soil erosion which

contributed to the destruction of infrastructure and cultivated land. This soil erosion also contributes to a decrease in

the arability of land by washing away essential nutrients in the topsoil. Erosion of river banks can expose the country to

increased flooding in the future.

1 A person affected by the floods is one whose house, farmland, livestock, or food stock is damaged by flooding.

2 West Africa Floods map 2007, UN Office for the Coordination of Humanitarian Affairs, 17 October 07, http://www.reliefweb.int/rw/

fullMaps_Af.nsf/luFullMap/4D732D0EA69F879985257378004875E2/$File/ocha_FL_afr071017.pdf?OpenElement

3 West Africa Floods map 2008, UN Office for the Coordination of Humanitarian Affairs, 2 September 2008, http://www.reliefweb.int/rw/fullMaps_

Af.nsf/luFullMap/5598E04D6AF1AB19C12574B900467E0F/$File/ocha_FL_afr080902.pdf?OpenElement

TOGO / 45

Social infrastructure like schools and health centers can be destroyed in floods due to soil erosion, water

damage, and fragile building materials. Four schools were reported as completely destroyed in the 2008 floods,

and there was substantial damage to many more schools, classrooms and teachers’ quarters. The destruction of a

number of key bridges made it difficult for many students to reach schools and complicated access to health facilities,

making it difficult for health centers to restock their supplies. Though there was no report of an outbreak of waterborne

diseases during the floods of 2007/08, the proliferation of waterborne diseases is a risk of future flooding.

Floods can cause severe economic distress to a country, especially one like Togo with an economy that

is heavily reliant on agriculture. Preliminary assessments estimated that 11,688 hectares of cultivated land were

washed away by the rains in the floods of 2008. Many farmers lost an enormous portion of their annual income (if not all),

and the affected areas suffered from food shortages. The destruction of crops and the increased price of transportation

resulting from both the flooding of 2007 and 2008 combined with high global food prices will most likely continue to

have a negative impact on food availability into the future. The price of transportation increases during floods because

of the destruction of roads and bridges. In the 2008 floods in Togo, eleven major bridges were destroyed.4 Many more

small bridges and culverts were swept away by swollen rivers and streams. Over 300 km in rural roads were seriously

damaged. Destroyed transportation infrastructure has inhibited the ability of rural Togolese to engage in economic

activities—including the purchase of basic necessities. The destruction of roads and bridges has also hurt the national

economy. Large companies working within Togo that the government relies on for tax revenue were hurt by the spike in

transportation costs. Additionally, Togo lost customs and entrance fees from landlocked countries like Burkina Faso, Mali

and Niger that rely on the port of Lomé for their importation and exportation of goods.

Climate Change and Hazards in Togo

Climate change is expected to have greater impacts on poorer countries such as Togo, due to their

vulnerability to hazards, particularly droughts andfloods. Given that the impacts of climate change are expected

to exacerbate some existing hazards, as well as result in the emergence of new hazards and risk patterns, Togo needs to

address climate change hazards related to the existing flood and drought risks, as well as sea-level rise. Specific fragile

environments in the North and Central Regions of Togo, in particular those most exposed to soil erosion, require specific

focus and attention since they are at the origin of some of the extreme consequences of recent floods.

Sea-level rise and coastal erosion are also major hazards. Moreover, the low-lying coastal area of Togo is narrow

and covers an area of 1,710 square kilometers. According to the IPCC’s “Climate Change 2007: Impacts, Adaptation

and Vulnerability” report, low-lying coasts are likely to be especially affected by climate change, being threatened by 1)

sea-level rise leading to increased risk of flooding and groundwater salinization; and 2) increased frequency and severity

of storms and tidal surges. The coastal area in Togo represents an important economic zone for the country with more

than 90 percent of the country’s economic activities, and more than 42 percent of the country’s population. Lomé, a large

and growing city located on the sea, is particularly vulnerable due to overcrowding and extremely fragile structures in the

unplanned parts of the city. Beach erosion is also a serious ecological problem in West Africa. Along the eastern section

of Lomé harbor, an annual erosion rate of 20 m has been recorded.

4OCHA, West Africa Floods Special Update, 2 September 2008.

46 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

2. Disaster Risk Management Framework

The institutional framework is fragmented but the Government is committed to mainstream disaster

prevention in all development instruments, starting with the I-PRSP. Despite the above-mentioned highly

fragmented situation, the Government is determined to strengthen the country’s policy and institutional framework for

environmental management. The renewed Government commitment to address the causes of environmental degradation

and to make disaster prevention a priority is evidenced in the 2008 I-PRSP where the policy objectives in the area of

environmental management are described under Strategic Pillar 2: Consolidation of Economic Revival and Promotion

of Sustainable Development. Under this pillar, it is stated the Government’s efforts towards promoting sustainable

development will aim to:

• Reduce the pressure on natural resources mainly through more effective means to control land degradation and

to promote biodiversity conservation;

• Promote the integrated coastal zone management, including the control of coastal erosion;

• Strengthen the capacity of national institutions for sustainable environmental management;

• Adopt effective policy instruments to control and monitor pollution and nuisance from wastes and chemical

substances in order to protect the quality of life and human health in urban and rural areas; and

• Promote disaster prevention and management through the establishment of an appropriate policy and institutional

framework, the development of technical capabilities for disaster prevention, preparedness, and monitoring.5

The I-PRSP (2007) also indicates that, as part of the social protection policy, the Government will focus on

improving management of the vulnerability to different shocks and to disasters. Advanced drafts of the full PRPS

(2009-2011) discuss the plans of the Government in the areas of management of natural and technological disasters

and suggest two main areas of intervention: a) improvement of the political and institutional framework for the prevention

and management of disasters; b) strengthening of the technical capacity (and human resources) in the areas of planning,

monitoring and early warning and in the areas of managing the emergencies related to natural disasters.

The 2008-2012 UNDAF mentions the importance of disaster risk prevention, management and response. The

paper states that existing climate change, urbanization and population movements expose certain regions to the effects

of natural disasters, particularly floods which typically appear each year. The section on institutional capacity building and

democratic management indicates that, with reference to refugees and IDPs, the UN agencies have consolidated efforts

to assist the Government to reinforce national capacity for disaster preparation and response (population displacements,

floods, epidemics, etc). This work will lead to: 1) an evaluation of the capacity of emergency management structures, 2)

a reinforcement of capacities and structures, and 3) direct assistance to affected populations.

3. activities under the hyogo framework of action

Togo is a signatory to the Hyogo Framework for Action (HFA), which outlines a global strategy for disaster

risk reduction from 2005 to 2015. A 2007 document prepared by the Ministry of Environment and Forest Resources,

“Report on the Implementation of the HFA in Togo,” states that a risk assessment is necessary in order to develop a

national risk reduction strategy. Togo’s 2008 Interim National Progress Report on the Implementation of the Hyogo

5 Ibid.

TOGO / 47

Framework for Action states that as of September 2008, little progress had been made on the implementation of the five

HFA priority actions.6 The remaining of this section is organized around the five HFA priorities.

HFA Priority # 1. A strong institutional framework for implementation

There have been some encouraging progresses in this area. Successes in the implementation of this priority

include: (i) the creation of the national platform for disaster risk reduction; (ii) the amendment to the national environmental

policy framework to incorporate the definition of strategies of disaster prevention and risk reduction; and (iii) components

of a climate change policy have been recently elaborated by the Ministry of Environment

National Platform

The national platform for disaster risk reduction and prevention was created on April 17, 2007 by the

Togolese Ministry of Environment and Forest Resources. The platform is charged with developing a national

strategy for disaster risk reduction, mainstreaming the strategy into sector plans, and monitoring its implementation. It is

also responsible for promoting information dissemination related to disaster risk reduction, coordinating the work of the

government and non-governmental actors, and mobilizing funding from national and international donor for support in the

domain of disaster risk reduction.

The platform has been active but there has been delay in developing a national strategy. The platform, which

functions as a committee, is composed of representatives from ministries, scientific and learning institutions, NGOs,

the Red Cross and Red Crescent societies, the private sector, and other actors in the field of disaster risk management

and reduction. The platform has been active, but the development of a national strategy for disaster risk reduction has

been delayed by the floods of 2007 and 2008, which forced the platform to focus its attention on disaster response and

reconstruction.

There were recent attempts to revitalize the national platform. On March 3, 2009, the Ministry of Environment

with the support of UNDP organized a workshop on the revitalization of the national platform. The objectives of the

workshop, led by a representative from the United Nations International Strategy for Disaster Reduction (UN-ISDR),

were to operationalize the platform and explain HFA and the directing principles of national platforms to Togo platform

members and the role played by the actors involved in risk prevention and reduction. At the end of the workshop, several

priority actions for the platform were outlined:

• Prepare a work plan for the development of a national strategy for disaster risk management and prevention;

• Improve the quality of early warning systems;

• Decentralize the platform to the regional level;

• Establish a National Institute of Cartography;

• Establish a support fund for use in case of emergencies and disasters.

Policy and Institutions for Environmental and Natural Resource Management

The Ministry of Environment and Forest Resources is the body charged with the implementation of the

disaster prevention strategy, according to the national law on environment management in Togo (law 2008-005,

6 The five Hyogo Framework of Action (HFA) priority action areas are: 1) Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation; 2) Identify, assess, and monitor disaster risks – and enhance early warning; 3) Use knowledge, innova-

tion, and education to build a culture of safety and resilience at all levels; 4) Reduce the underlying risk factors; 5) strengthen disaster preparedness

for effective response at all levels.

48 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

article 113). Current environmental policy in Togo is based on the national environmental policy framework adopted in

1998. The policy framework has two main objectives: (i) to promote the sustainable management of natural resources

and the environment, and (ii) to consolidate the measures aimed to integrate environmental aspects into economic

reforms.7 This framework was supplemented by the National Environmental Action Plan (NEAP) finalized in 2001. The

NEAP guided the formulation of the national environmental management program that includes three sub-programs (i)

capacity building for environmental management, (ii) natural resources management, and (iii) coastal zone management

and environmental quality improvement.8 Other policies related to environmental management have been developed, but

with little implementation. The National Action Programme against Desertification (PAN) takes disaster risk reduction into

account, but has not yet been implemented due to lack of financial resources.

Climate Change Policy

The Government is committed to elaborate specific policies to address the impact of climate change. In

order to reduce the vulnerability of the population to the negative effects of climate change, the Government of Togo is

committed to integrate measures addressing climate change issues into national policies and interventions. A National

Plan for Adaptation (NAPA) has been recently elaborated by the Ministry of Environment in collaboration with the UNDP.

The NAPA aims at identifying the most urgent interventions needed to face the negative impacts of climate change. The

Ministry of Environment is the institution in charge of the follow up and implementation of the NAPA process9.

HFA Priority # 2. Enhance Disaster Risk Assessment, Monitoring, and Early Warning

A comprehensive study on the assessment of risks and vulnerabilities in Togo has not yet been conducted,

mainly due to financial constraints. Togo’s Interim National Progress Report on the Implementation of the Hyogo

Framework for Action states that as of September 2008, little progress had been made on priority area 2 of the HFA,

“to identify, assess, and monitor disaster risks and enhance early warning.” According to the progress report, the lack

of a comprehensive risk analysis is one of the main constraints to implementing priority areas 3, 4, and 5. Some initial

steps toward risk mapping have taken place. The Government of Togo, with the support of UNDP, is currently working

on finalizing the TORs for mapping risk zones. The NGO Plan-Togo completed a minor risk analysis in 2006.

HFA Priority # 3. Use Knowledge, Innovation and Education (Priority area 3)

No significant progress in Priority area 3. According to the 2008 Interim National Progress Report on the

Implementation of the Hyogo Framework for Action, Togo has made no significant steps forward in meeting Priority Area

7Concept Note for Togo Country Environmental Analysis, TTL: Remi Keni, AFTEN

8Ibid.

9 The NAPA identifies 7 priority actions. Those actions have been ordered according to their impact in terms of vulnerability reduction, their contribu-

tion to sustainable development and their cost. The actions identified are the following:

1. Adaptation of the agricultural production system in three regions through the promotion of climate change resistant farming techniques and the

enhancement of the agro-meteorological information system.

2. Setting up an early warning system to inform the local population on the risk of floods in the Savanes and Maritime regions.

3. Reinforce the protection mechanisms of the seaside on the eastern section of Lome harbor against the coastal erosion.

4. Support the rural communities in the Savanes and Plateaux regions to prevent and reduce waterborne diseases.

5. Develop small irrigation systems for group of farmers in the Centrale, Kara and Savanes regions in order to reduce rural migration.

6. Develop income generating activities for the communities of small farmers and fishermen in the coastal region in order to respond to the nega-

tive effects of climate change on their economic activities.

7. Support the development of water retention systems in the Savanes and Kara regions through the construction of appropriate water manage-

ment infrastructures.

TOGO / 49

3 of the HFA, “use knowledge, innovation, and education to build a culture of safety and resilience at all levels.” Several

constraints were identified to the development of research methods and tools for multi-risk assessments and cost benefit

analysis, and the dissemination of disaster risk information. These constraints include the lack of information on risk

areas, along with the types of risks, as well as the lack of capacity of the national platform and researchers in the areas

of methodologies and adequate risk assessment instruments.

There has been little reported progress in terms of the incorporation of information on risk reduction in

school programs or trainings. However, a documentary project entitled “Prevention of Disasters Begins at School” is

being developed with the support of development partners. The NGO Plan Togo is reportedly developing a program to

develop a “culture of disaster prevention” within schools. Financing is considered the chief constraint to this indicator.

HFA Priority # 4. Disaster Risk Reduction and Financing

There has been limited progress in Priority area 4. In terms of HFA priority area 4, “strong policy, technical and

institutional capacities and mechanisms for disaster risk management, with a disaster risk reduction perspective are in

place,” the country reports little progress in the 2008 Interim National Progress Report on the Implementation of the

Hyogo Framework for Action. Some achievements cited by the report include the integration of risks into the PRSP

and into the legal framework and the forestry code, the creation of the national platform, and the development of Plan-

ORSEC. Although Plan-ORSEC outlines response plans (see below), financial reserves are not included in the national

budget to ensure that disaster assistance will be available. Thus the Government is often obliged to launch a Flash

Appeal to the UN system.

HFA Priority # 5. Foster Disaster Preparedness and Recovery

Togo has a Plan in place to deal with natural and man-made disasters. In May 2008, the Ministry of Security

and Civil Protection, in coordination with the UN, finalized Plan-ORSEC (Le Plan de l’Organisation des Secours), which

outlines the Government’s response in case of a natural or man-made disaster. The objective of the Plan is to identify the

potential risks to people and goods, and to define the roles and responsibilities of organizations responding to disasters

in prevention, response, and reconstruction. On a national scale, the plan institutes the CNPS (Comité National de

Planification des Secours), a body that coordinates emergency response mechanisms at the national level.

The Plan has some shortcomings. While Plan-ORSEC is a useful guide to natural disaster response mechanisms in

Togo, it has three main shortcomings:

1. The plan prescribes the same response mechanisms for all five regions without any consideration of differentiation

between regions.

2. The plan does not foresee a role for communities in disaster management.

3. The plan appears to be highly complex to manage, especially if one considers the limited availability of capacity

and technical means.

Togo has completed an Inter-Agency Contingency Plan (IACP) with OCHA, UNHCR, UNICEF, and other

agencies of the United Nations system to coordinate the assistance of development agencies to national response

efforts but the institutional and physical infrastructure for emergency management remains limited.

Discussions are on-going to finalize a National Contingency Plan. In April 2009 the Ministry of Security and Civil

Protection in collaboration with the UNDP organized a workshop in order to elaborate a National Contingency Plan. The

50 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Plan will be finalized in a short period of time. The objective of the National Contingency Plan is to identify the major risks

that the country faces and to plan appropriate mechanisms to face them.

4. Key Donor EngagementS

Some existing projects implemented by the main donors agencies and organizations contribute to the

achievement of the various HFA priority actions. Here are the main engagements of the international community in

areas directly or indirectly related to prevention and response to natural disasters.

Ongoing Projects and Organizations

World Bank – Emergency Infrastructure Rehabilitation and Energy

Project (EIREP) (to be approved)

World Bank – Community Development Project (CDP)

UNDP – Risk Prevention and Management program

GEF- NAPA implementation

AFD- EU- BOAD- Urban Environment project in Lome

German Red Cross- Enhance early warning

Indicative budget

$26.8 m

$17.2 m

$160,000

$3 m

Euro 11 m

FCFA 119 m

HFA activity area(s)

1-5

3-5

World Bank

Emergency Infrastructure Rehabilitation and Energy Project (EIREP). The proposed grant would help finance

the following activities: Component A—Infrastructure Rehabilitation, including: (i) drainage; (ii) urban roads rehabilitation;

(iii) urban water supply; (iv) energy equipment rehabilitation and light bulb replacement; and Component B—Institutional

Strengthening. The proposed support will address urgent and immediate needs to improve pedestrian and vehicular

access to some of the city’s poorest neighborhoods, and support Government efforts to reduce their periodic flooding.

Community Development Project (CDP). The main objective of the CDP is poverty reduction, through the establishment

and strengthening of basic socioeconomic infrastructure geared towards poor communities in Togo, mainly in the areas

of health, education, water and sanitation, and revenue-generating activities.

UNDP

UNDP is assisting the Government of Togo through the Ministry of Environment to enhance the coordination

mechanisms of the national platform and involve ministries, UN agencies, NGOs, and other civil society actors.

UNDP is also assisting the Government of Togo in the development of a national strategy for disaster risk management

and prevention, a national risk/hazard mapping, a contingency plan and an early warning system.

GEF- NAPA

The Global Environment Facility financed the elaboration of the National Adaptation Plan of Action (NAPA)

in collaboration with the UNDP. Once the NAPA approved by the Government, the GEF will finance part of the priority

projects, for a total amount of $3m. The Project Identification Forms will be submitted at the GEF probably at the end

of 2009/beginning of 2010. The NAPA process has an estimated cost of $23m and it will need the financial assistance

of others donors in order to be fully implemented. Some of the NAPA priorities of action, as the risk assessment, the

enhancement of the early warning system and initiatives aimed at reducing the vulnerability of the population to natural

hazards, are strictly related to the GFDRR program.

TOGO / 51

AFD (French Development Agency)

Urban Environment project in Lomé. This project has a component that finances the drainage of the exceeding rainy

water from the lagoon of Lomé. This project will help to overcome the floods caused by the water of the lagoon during

the rainy season in some particularly exposed area of the capital city. The project is co-financed by the European Union

(Euro 5m) and the West African Bank for Development, BOAD (Euro 3 m).

UNISDR

The UNISDR is supporting the National platform in preparing the DDR strategy. During the Togo National

Platform meeting held in Lomé on March 3, 2009, the national platform requested assistance from UNISDR and

ECOWAS for the development of the DRR strategy and to conduct an “institutional diagnostic.”

UN OCHA

UN OCHA is a partner of the Government in supporting response mechanisms. UNOCHA works closely

with the Government of Togo through the Ministry of Environment and the Ministry of Security and Civil Protection to

strengthen preparedness and response mechanisms in case of emergency. OCHA provided guidance and assistance

during the 2008 floods and ran a simulation exercise recently between Togo and Benin.

Other projects and support

There are other projects – smaller in size and scope – being implemented or prepared. A project entitled

“Resource Mobilization Project for the Implementation of the National Action Programme against Desertification (PAN),”

funded by the Global Mechanism of the UN Convention on Desertification, is in development. The UN-SPIDER program

will conduct an evaluation mission in Togo to review and draft recommendations on the use of geospatial data for DRR.

The project financed by the German Red Cross and implemented in collaboration with the Togolese Red Cross aims

at improving the early warning system in about 100 targeted communities. The project will put in place a mechanism to

control the level of the water in some rivers and it will establish an early warning system for the communities living nearby

in case of emergency. After the floods of 2007, the International Committee of the Red Cross worked with the Togolese

Red Cross to prepare a National Contingency Plan. The plan includes a pilot early warning system for floods. Other

organizations involved in the response to the 2007 and 2008 floods include UNICEF, Caritas, WFP, WHO, FNUAP and

FAO, OCHA, TRC, OCDI, and PLAN-TOGO. These organizations have been incorporated into the disaster response

mechanism outlined by the Plan-ORSEC.

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Togo is susceptible to natural disasters that have enormous destructive potential on environmental, social,

and economic levels. Though a plan for natural disaster response and reconstruction exists in the Plan-ORSEC, there

is no strategy for disaster risk reduction and prevention, although it is now being discussed and key actions have been

indentified, which are all in need of additional support and financing in particular. The proposed program is prepared with

the support of the following ministries:

• Ministry of Environment and Forestry

• Ministry of Security and Civil Protection

• Ministry of Social Action, Promotion of Women and Protection of Children and Elderly

• Ministry of Internal Affairs, Decentralization, and Local Communities

• Ministry of Cooperation, Development, and Local Planning

• Ministry of Higher Education and Research

52 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Recently, the government of Togo has been involved in the revitalization of some of the efforts to mitigate

the impact of natural disasters. The Government is working on operationalizing the national platform, mapping risk

zones, developing a national strategy for disaster risk reduction along with other activities. Moreover, the national platform

in collaboration with the UNDP will conduct over the next months two studies in order to identify the national priorities

on risk management and reduction on the short, medium and long term. A document outlining a preliminary strategy for

disaster risk reduction will be ready in approximately 5 months. The results of this analysis will serve as a basis to better

define the interventions financed under the GFDRR plan. In addition to that, the Government of Togo is making the effort

to integrate climate change adaptation measures into national policies. The NAPA process identify the priority actions

needed to face this phenomenon, among others the enhancement of the early warning system and the reduction of the

vulnerability of the population to natural risks related to climate change.

The proposed program seeks to fill the gaps in these on-going activities and complement them - over a

three years period - in close collaboration with other donors, in particular the UNDP. The initiative financed

under the GFDRR will contribute also to the achievement of some of the NAPA priorities, mainly to set up an early

warning system and initiatives addressing the issue of vulnerability to climate change. The institutional arrangement

for project implementation is not yet defined, although the project will be implemented in close collaboration with the

national platform on disaster risk reduction.

It is proposed that the GFDRR finances the following activities:

Component 1. Institutional and capacity building for effective natural disaster risk management and

preparedness.

Risk and Vulnerability Assessment. A comprehensive risk assessment will be conducted in all regions of Togo, encompassing

a hazard, asset and vulnerability analysis that takes into account locational, structural, operational, and socio-economic

vulnerabilities. The assessment will include hydrologic modeling as floods are one of Togo’s most frequent natural hazards

and will incorporate various climate change scenarios. The objective of this assessment is to identify appropriate disaster

mitigation investments and/or risk transfer mechanisms to inform the development of a natural disaster risk reduction strategy

and to inform the strengthening of the national platform and the Plan-ORSEC. An update of the national cartography is also

necessary in order to assess the risks and enhance the early warning system. This component will finance the purchase of

satellite images receiving antennas and consulting services to update the cartography. This will also give the opportunity

to have real-time images during a natural disaster. The component will finance also some equipments needed to monitor

risks and meteorological conditions (measure of the pluviometry, the wind, the hydrometric network) in order to give to the

country the means to conduct independent risks assessment in the future.

Capacity Assessment of the institutions involved in risk management. The national platform in collaboration with the UNDP

is conducting a preliminary institutional assessment in order to analyze the existing arrangements and key institutions on

disaster risk prevention and management. This component will complete this analysis and it will finance a study assessing

the technical competencies in terms of financial management, procurement and human resources management of the

main key institutions identified. This will highlight the strengths and weaknesses of existing institutional arrangements

with the purpose of simplifying them.

Follow up of the National Platform and Implementation of Disaster Risk Reduction Strategy. The national platform is

already operative but it will need some technical support (equipments, training, financials means) to assure its well

functioning. A national disaster risk reduction strategy will be ready in the next months. This strategy will outline the

reforms needed and the actions to be taken over the short and medium term. Once this analysis done, the platform

will identify the priority of actions for the implementation of the strategy and further initiatives that will need the financial

support of the GFDRR.

TOGO / 53

Training and equipment will be provided to key national, and regional, local and community actors that engage in disaster

prevention, mitigation, preparedness, response and recovery based on the natural disaster risk reduction strategy and

the Plan-ORSEC. A general awareness campaign about the disaster risk reduction and the new national risk reduction

strategy will be undertaken within the government and the general public. The objective of this activity is to ensure human

resources are prepared and equipped to implement the natural disaster risk reduction strategy and the Plan-ORSEC.

Component 2. Strengthening resilience in multi-sectoral investments.

This component will finance prefeasibility studies and other analytical work to support the upgrading of future investments

to better withstand the effects of natural disasters and climate change effects. In particular this component will finance

(i) Upgrading of building codes for climate/risk resilient infrastructure and buildings;

(ii) A study on the integrated flood prevention and watershed management strategy, in particular on the northern half of

Togo which shares the Upper Volta River Basin with Ghana and Burkina Faso. This study will be conducted in close

collaboration with the Ghana authorities in charge of the watershed management strategy for the Volta basin.

Component 3. Support to local development activities to reduce vulnerability to natural disasters and

climate change.

Incorporation of Risk Management in the Community Development Project

A US$17.2 million IDA financed Community Development Project (CDP) in Togo was approved by the board on June 26,

2008. The objective of this project is to provide poor communities with improved basic socio-economic infrastructures

and income generating activities, by financing at least 350 subprojects that are identified and implemented directly by

communities. Community subprojects will be implemented by poor rural communities with the support of the AGAIB

(Agences d’Appui aux Initiatives de Base). Currently, there are no guidelines in place on incorporating disaster risk

reduction into the design and implementation of these subprojects.

In order to assist AGAIB with the incorporation of disaster risk reduction measures into the Community Development

Project, it is proposed that the Global Facility for Disaster Reduction and Recovery (GFDRR) fund:

a. Community Assessments and Training

1. Community Risk Assessment. A consultant will be hired to conduct a risk assessment of communities in which

the CDP operates. This assessment will gather information on the risks communities face and the way in which

communities respond to such risks. This assessment will include also a sociological analysis that will identify the

traditional early warning systems existing in the communities, the reasons behind the resistance of the population

to respond in case of emergency and the role played by local authorities in this process.

2. Development of Guidelines for Incorporating DRR into the CDP. Advisory services are requested to establish a

set of guidelines to incorporate disaster reduction and recovery into CDP.

3. Training and Capacity Building. Training and capacity building will be provided to key AGAIB and community

actors involved in the implementation of subprojects.

b. Pilot Project

4. Community based pilot activities to mitigate impact of extreme events in fragile areas. Extensive soil-degradation,

deforestation and other human activities have had a serious negative impact on agricultural productivity and on

income of poor rural communities. Preliminary studies have already identified some very fragile areas, where

selected public works focused on soil and water conservation activities can help mitigate the effects of floods

and other extreme events, and provide an example to replicate in other sites of Togo. Interventions would

include: soil embankment construction; stone embankment construction; pond construction and maintenance;

54 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

spring development; land rehabilitation though area enclosure; small-scale irrigation canals; tree nursery site

establishment; rural road maintenance; and tree planting. The pilot project will include early-recovery safety nets

initiatives after a disaster.

Component 4: Project Management.

This component will finance project management costs relating to monitoring and evaluation, incremental operating

costs for project management and costs related to project reporting and audits.

Results of activities both at the national and community level will be measured against indicators associated

with HFA priorities for action. Key outputs of activities will include reports on the findings of the risk assessments

(both national and community) a report on the findings of the national institutional assessment, a national cartography, the

guide to incorporating disaster reduction and recovery into the Community Development Project, and the assessment

of the pilots.

The program will be conducted in partnership with existing and prospected activities and partners and a

US$ 8.1 million budget is proposed. The table on page 52 gives an overview of the activities under each component,

the envisaged partnership for their implementation and the HAF priorities each intervention addresses. A provisional

budget to finance the interventions proposed in the Disaster Risk Management Action Plan is of US$8.1m.

HFA Priority areas

Key Partners

HFA 1: Strengthen national disaster risk management strategies and institutions

Estimated

Budget for

2010-2013 in

US$

Notes

1.1 Institutional and capacity building for effective natural disaster risk

management and preparedness

1.2 Support to establish plans to reduce risks at all administrative

levels

1.3 Develop community participation approaches through

decentralization of authority and transfer/mobilization of

resources to local level

1.4 Functioning multi-sectoral platform for risk reduction is in place

with institutional assessment of basic implementation functions of

key agencies and capacity building/systems development

National Platform

Ministry of Environment

UNDP

CDP Technical

Secretariat

700,000

500,000

400,000

650,000

(Of which

1,500,000

at the

national

level and

750,000

at the local

level)

TOTAL HFA 1

2,250,000

HFA 2: Ensure risk and vulnerability assessments, early warning and contingency planning and financing – in both

rural and urban areas

2.1 Risk assessment (national and local) based on data and

information on hazards/vulnerabilities

2.2 Updated cartography

National Platform

Ministry of Environment

UNDP

University of Lome

National Platform

University of Lome

500,000

Includes

technology

support

1,000,000

Includes

technology

support

(Cont.)

TOGO / 55

HFA Priority areas

Key Partners

Estimated

Budget for

2010-2013 in

US$

Notes

2.3 Study on the integrated flood prevention and watershed

management strategy, in particular on the northern half of Togo

National Platform

University of Lome

Other institutes

300,000

2.4 Early warning systems are in place on the majority of natural

hazards and are transmitted to communities

National Platform

Ministry of Environment

UNDP

Plan ORSEC

University of Lome

Civil society

organizations

500,000

Includes

technology

support

TOTAL HFA2

2,300,000

HFA 3: Increase and sustain awareness creation, education and capacity building

3.1 Information on hazards are accessible at all levels and to all actors National Platform

UNDP

300,000

3.2 Information campaigns to promote a culture of prevention

National Platform

CDP Technical

Secretariat

200,000

TOTAL HFA3

500,000

HFA 4: Reduce underlying risk and vulnerability (and integrate DRR into sector planning and practices for example

in water, agriculture, health, environment)

4.1 Community based pilot activities to mitigate impact of extreme

events in fragile areas

Technical Secretariat of

the CDP

Ministry of Youth and

Youth Employment

AGAIB

2,000,000

4.2 Upgrading of building codes for climate/risk resilient infrastructure

and buildings.

National Platform, CDP

Technical Secretariat,

ministry of Public works,

Ministries of Education

and Health,

300,000

TOTAL HFA4

2,300,000

HFA 5: Improve emergency preparedness and response through capacity strengthening

5.1 Development of Guidelines for Incorporating DRR into the CDP

and training

Technical Secretariat of

the CDP

UNDP

AGAIB

Civil society

organizations

250,000

5.2 Support to Emergency/contingency plans at all administrative

levels and drills are taking place

Plan ORSEC National

Platform

500,000

TOTAL HFA5

TOTAL GFDRR

750,000

8,100,000

56 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES AFRICA

Annex: Hyogo framework – Togo – Update on actions (as of March 2009)

Hyogo priority

1. Ensure that disaster risk reduction is a national and a local priority with a strong institutional basis for imple-

mentation

Indicator

Status

Constraints

1.1 National policy and legal framework

for the mitigation of risks is in

place. With clear decentralized

responsibilities and capacity at

different levels

Weak systematic commitment at the

institutional/political level although some

progress in recent times (March 2009

workshop)

Financial constraints

1.2 Sufficient resources are allocated to

establish plans to reduce risks at all

administrative levels

Limited progress (no budget line to

prevent disasters)

Financial constraints

1.3 Community participation is ensured

through decentralization of authority

and of resources to local level

Institutional commitment is in place.

Implementation is still incomplete

Financial constraints

1.4 Functioning multi-sectoral platform

for risk reduction is in place

Institutional commitment in Place and

legal framework in place. Some progress

made during the recent workshop (March

2009)

Financial constraints to mobilize all

stakeholders

2. Identify, assess, and monitor disaster risks – and enhance early warning

Indicator

Status

Constraints

2.1 Risk assessment (national and local)

based on data and information on

hazards/vulnerabilities is available

Institutional commitment is in place.

Implementation is still incomplete. With

support from UNDP some studies will be

launched on the assessment of risks at

the national/local level

Lack of resources to prepare more

realistic regional maps

2.2 Systems in place to asses, archive

and disseminate information on

hazards and vulnerabilities

Institutional commitment is in place.

Implementation is still incomplete.

“Journal L’environment” is the newsletter

on natural disasters

Strengthen the capacity of the technical

secretariat of the National platform

2.3 Early warning systems are in place

on the majority of natural hazards

and are transmitted to communities

Institutional commitment but no system

in place.

Financial constraints

2.4 Trans-national risks are taken into

account by the national/local risk

assessment strategy

Institutional commitment but no system/ Financial constraints

action in place.

3. Use knowledge, innovation, and education to build a culture of safety and resilience at all levels

Indicator

Status

Constraints

3.1 Information on hazards are

accessible at all levels and to all

actors

Limited progress (waiting for a

diagnostic)

Identification of risk areas and types

3.2 School curricula, textbooks and

training include modules on risk

reduction and concepts and best

practices on reconstruction

Limited progress. Documentary on

“prevention of disasters begins at school”

currently being designed

Financial constraints

3.3 Research methods and technical

capacity are in place to asses

multiple risks (and cost analysis)

Limited progress

Strengthen the capacity of the technical

secretariat of the National platform and of

researchers

3.4 Information campaigns to promote a

culture of prevention

Limited progress. Plans to promote the

documentary and other programs with TV

channels and other media

Financial constraints

(Cont.)

TOGO / 57

Hyogo priority

4. Reduce the underlying risk factors

Indicator

Status

4.1 The reduction of risk of disasters is

an integral part of policies and plans

in the environment sector (planning,

management of natural resources

and adaptation to climate change)

Major progress include: parliamentary

vote, National plan on the environment,

National plan to adaptation, etc.)

4.2 Policies and social plans are in place

to reduce vulnerabilities of specific

groups

Institutional commitment but system/

action limited.

4.3 Policies and sector (economic) plans

are in place to reduce vulnerabilities

of specific groups

Institutional commitment but system/

action limited.

4.4 Planning and management of human

settlements integrate risk reductions

consideration and construction

standards

Some progress with the creation of a

special association of architects

4.5 Risk reduction of disasters is part

of the reconstruction/rehabilitation

process

Institutional commitment but

implementation is limited/incomplete

4.6 Procedures are in place to assess

the impact of risk reduction on all

development projects, especially in

infrastructures

Institutional commitment but

implementation is limited/incomplete

(there is a decree on type of projects to

be monitored/assessed)

5. Strengthen disaster preparedness for effective response at all levels

Indicator

Status

5.1 Policies, mechanisms and capacity

are in place to manage risks

Institutional commitment but

implementation is limited/incomplete

5.2 Emergency/contingency plan are in

place at all administrative levels and

drills are taking place

Institutional commitment but

implementation is limited/incomplete

5.3 Financial emergency/contingency

plan are in place to support

emergency/reconstruction

Limited progress. Plan Orsec is in

place, but no contingency financing for

emergencies

5.4 Procedures to exchange information

on hazards are in place with the aim

of conducting post-disaster analysis

Institutional commitment but

implementation is limited/incomplete

Constraints

Financial constraints to move forward,

especially in the implementation of the

National plan of adaptation

Financial constraints to finance priority

project as included in the PRSP

No statistical information

No real policy in spatial/habitat planning

Financial constraints (to prepare TOR/

manuals)

Financial constraints (especially to

monitor the implementation of the

decree)

Constraints

Operationalization of the National

platform

Financial constraints

Source: Rapport national intermédiaire du suivi de la mise en œuvre du Cadre d’Action de Hyogo, Ministère de l’Environnement et des Ressources Forestières, Septembre

2008 and update by the Focal Point of the Ministère de l’Environnement et des Ressources Forestières (April 2009).

/ 59

Progress Towards GFDRR Financed

Disaster Risk Management Programs

in the Five Remaining Priority Countries

in the Africa Region

Burkina Faso, Madagascar, Malawi, Mali, and Senegal

The interactive planning process for the country disaster risk management programs requires additional dialogue

with the governments, UNDP and other critical in-country stakeholders in the countries of Burkina Faso, Madagas-

car, Malawi, Mali, and Senegal. The five programs are scheduled to be completed by the end of this calendar year.

The taken approach strongly addresses poverty and sustainable growth issues in these countries. It requires further na-

tional policy coordination for the three areas of disaster risk reduction, climate change adaptation, and poverty reduction

led from high political and organizational levels with a focus on climate risk reduction as a means to promote sustainable

development. The process is placing considerable demand on governance systems from national to local levels across

a set of ministries to lay the foundation for genuine plans with clear ownership by the government.

All five countries rank very high amongst African countries most exposed to risks from multiple weather related hazards, in

particular drought and floods (Sahel and Malawi) and cyclones (Madagascar). Epidemics, pests and infestations are also

widespread. Wildfires have become an increasing concern in several of these countries. Coastal erosion - in part related

to storm surges - is a particular issue in Senegal and to some degree in Madagascar. Current development dynamics

and demographic changes in each of these countries put more people at risk of disasters, due to, for example, rapid ur-

banization and weak urban governance as well as declining ecosystems and ecosystem services. The high dependence

on natural resources in rural areas, the lack of secure livelihoods and limited safety nets add to these vulnerabilities.

Climate change will gradually increase these problems and especially the agricultural sectors - including fisheries, water

resources, plantation crops, food crops, and livestock - will be negatively impacted. Few of these countries have as-

sessed risk and vulnerabilities of people, infrastructure and ecosystems to any substantive degree. Policy development,

institutional capacity and investment commitments at different levels for the reduction of risks and vulnerabilities are only

just beginning. The country programming is addressing these and other deficiencies.

DISASTER RISK MANAGEMENT

East Asia and Pacific

Indonesia / Marshall Islands / Papua New Guinea / Solomon Islands / Vietnam

There are ongoing negotiations to include Timor Leste for this round of GFDRR programming.

62 /

INDONESIA

In preparing this DRM Country Note, a series of consultations were carried out with the National Disaster Management

Agency (BNPB) and with the National Development Planning Agency (BAPPENAS) to determine priority areas that

could be supported if more funding are available. Upon identification of the scope for scalled up support, another

consultation was carried out with international development partners working in Indonesia, and who also have major

support programs for the country such as AusAID, JICA, the European Commission, DFID and UNDP. This consultative

process is part of on-going partnership to build synergy, avoid duplication and increase leverage. The final proposal was

also discussed by a visiting high official of the World Bank and the Minister/Head of

the National Disaster Management Agency (BNPB) on 18 May 2009.

1. DISASTER RISK PROFILE

Indonesia ranks 12th among countries at relatively high mortality risks from multiple hazards. Indonesia is

situated in one of the most active disaster hot spots where several types of disasters such as earthquake, tsunami, vol-

canic eruption, flood, landslide, drought and forest fires frequently occur. According to a global risk analysis by the World

Bank1, Indonesia is among the top 35 countries that have high mortality risks from multiple hazards with about 40 percent

population living in areas at risk. For a country that has more than 230 million population, this percentage gives a very

large nominal number of more than 90 million population potentially at risk creating a major humanitarian catastrophe

should large disasters occur.

Disaster Occurence in Indonesia

450

400

350

300

250

200

150

100

2001

2002

2003

2004

2005 2006

Source: DiBi-BNPB

Mortality From Disaster in Indonesia

1000000

100000

10000

1000

100

2001

Source: DiBi-BNPB

2002 2003

2004 2005 2006

2007

EARTHQUAKE

FLOOD

DROUGHT

FOREST FIRE

LANDSLIDES

TIDAL WAVE & TSUNAMI

VOLCANIC ERUPTION

WINDSTROM

2007

Windstorm

Floods

Earthquake

Tsunami

Forest Fire

Drought

Social Conflict

Volcanic Eruption

Landslides

COUNTRIES AT RELATIVELY HIGH MORTALITY

RISK FROM MULTIPLE HAZARDS1

(Top 35 Based on Population)

1. Taiwan, China

2. El Salvador

3. Costa Rica

4. Dominica

5. Philippines

6. Antigua and Barbuda

7. Guatemala

9. Dominican Rep.

10. Jamaica

11. Nicaragua

12. INDONESIA

16. Bangladesh

17. Colombia

35. Panama

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005),

table 1.2

INDONESIA / 63

GoverGnmoevnetrnExmpeenndtitEuxrepeonndDiitsuarseteor RneDspisoansseter Response

3000

2500

2000

1500

1000

500

569

892

1,019

1,324

2,125

2,459

coastal Protection and Mitigation

lava Flow control

Flood Mitigation

Prevention of land, Water, Forest Degradation

Dev. of national Disaster Mgmt. system

capacity Building of local Gov.

Early Warning

spatial Planning of Hazard Zones

research and Mapping

Disaster Preparedness

Total Expenditure (HK 2005)

Total Expenditure (nominal)

2001

2002

2004

source: Budget Disbursement Database, Min. of Finance

2005

2006

2007

Increasing frequency of disaster impacting public expenditures. According to the Government’s disaster data2,

between 2001 and 2007 alone there have been more than 4,000 occurrences of disasters including floods (37%),

droughts (24%), landslides (11%), and windstorm (9%). As the disasters damage public infrastructure and people’s

homes, mostly uninsured, they created an enormous burden on public expenditure to restore those facilities.

Hazard Profile

Geologic

Situated in the earthquake belt and pacific ring-of-fire Indonesia is highly vulnerable to earthquakes and

volcanic eruptions. The areas most vulnerable to earthquakes are Sumatera, Java, Bali, Nusa Tenggara, Maluku, Su-

lawesi and Papua. Sumatera alone has suffered from over 15 large earthquakes in the past 100 years. Indonesia also

has 129 active volcanoes, 70 of them are classified as dangerous. Between 2001 and 2007 alone, 26 volcanic eruptions

were recorded mostly in Java. In 1815 the Tambora volcano on the northern coast of Sumbawa, West Nusa Tenggara

Province erupted claiming more 92,000 lives, whereas on 1883 the Krakatoa eruption claimed more than 36,000 lives

and created tsunamis as far away as South Africa. The islands of Java and Sumatra are also prone to landslides because

of their topographic and unstable soil conditions.

Hydro-meteorologic

High rainfall regime in the west and dry zone in some eastern provinces are are subject to recurring floods

and droughts. Within the past century, floods have been the most frequent disaster for Indonesia. The floods often

hit major population centers such as Jakarta (with population more than 13 million), Medan (more than 2 million), and

Bandung (more than 4 million). The Government estimated that the 2007 flood that hit Jakarta created total damage

and losses amounting to more than $900 million3. According to the Ministry of Public Works, the annual flood in the

Bengawan Solo watershed that occurred in 2007 cost the government more than $200 million or equal to the total

emergency allocation for all disasters for the entire year of 20084.

Climate variability and change

Deforestation and prolonged drought intensify the occurrence of forest fires. The wildland fire and smoke-haze

2 DiBi database (Data and Information on Disaster in Indonesia), National Disaster Management Agency (BNPB). http://dibi.bnpb.

go.id

3 Laporan Perkiraan Kerusakan dan Kerugian Pasca Bencana Banjir Awal Februari 2007 di WIlayah Jabodetabek, National Devel-

opment Planning Agency (BAPPENAS) 2007.

4Source: Center for Strategic Assessment of the Ministry of Public Works, April 2009.

64 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

episodes in Indonesia during the 1980s and 1990s were the first documented influence of drought impact triggered by

the El Niño-Southern Oscillation (ENSO). In East Kalimantan alone, nearly 3.5 million hectares of forests were affected

by drought and fire. Nearly 0.8 million ha of primary rain forest was burned, but impacts were more widespread in logged-

over and secondary forests (mainly in the vicinity of settlement areas)5. The climate anomaly brought by El Nino also

induced the decrease in rainfall impacting food production by an average of 3.06 percent6.

Factors of Vulnerability

Population increase and urbanization. As in many other developing countries, economic growth in Indonesia has

shown a strong correlation with urbanization, both in the sense of people moving from rural areas to the cities and in

terms of the urbanizing of the rural settlements. By 2008, at least 50 percent of the population was living in the cities

and urban areas were increasing at 4.4% per year, well beyond national population growth. This had placed more than

110 million people in around 60 cities mostly located in the coastal areas, exposing them to common hazards such

as earthquakes, flooding and communicable diseases. The high population density in many of the larger cities also

increased the vulnerability of the population in case of large-scale disasters.

Increased exposure due to poorly enforced zoning and poorly maintained infrastructures. The high rate

of urbanization in Indonesia in the midst of limited capacity of the urban centers to provide adequate shelters and

infrastructure has led to the emergence of many unplanned settlements. Poor quality and enforcement of land use zoning

in turn led to many hazard prone locations being occupied by settlements, increasing the exposure of the population

to disasters. The Ministry of Public Works estimated that a quarter of the population in the cities (or around 25 million

people) are living in the slums and informal settlements7. The combination of the poor quality settlements and inadequate

infrastructure has made Indonesia vulnerable, especially when larger scale hazard events occur.

Overall Risk Profile

More frequent events, increased exposure, lower coping capacity hence higher impacts. A combination

between the uniqueness of Indonesia’s geological setting and the complexity of its population settlements has generally

led to increased disaster occurrence with a tendency for significant human impacts (e.g., loss of life as well as economic

consequences). Although the natural events that cause hazard cannot be stopped, the severity of their consequences

can be minimized or even avoided through better community preparedness and resilience. Overall, Indonesia’s population

is at higher risk due to increased exposure and weaker resilience.

The climate factor. Climate variability and change increase the level of risk to disaster for Indonesians. In addition to

higher intensity of the meteorologically influenced events such as floods and droughts, climate has also influenced the

food production pattern and outputs, bringing additional uncertainty in the event of disaster which could further exacerbate

its impacts. While awareness of the importance of taking into consideration the impact of climate variability and change

is increasing, more evidence-based response and adaptation measures need to be developed and explored.

5 Fire Situation in Indonesia. IFFN No. 26, January 2002, p. 37-45.

6 Fenomena Anomali Iklim El Nino dan La Nina: Kecenderungan Janga Panjang dan Pengaruhnya Terhadap Produksi Pangan. Bam-

bang Irawan. Forum Penelitian Agro Ekonomi, Vol. 24 No 1. Juli 2006: 28-45.

7 Toward Developing Slum Free Cities 2025 (in Bahasa Indonesia). Djoko Kirmanto, Minister of Public Works. Keynote Speech delivered on the

commemoration of World Habitat Day 2008. Bali 30 October 2008.

INDONESIA / 65

2. DISASTER RISK MANAGEMENT FRAMEWORK

A comprehensive legislative framework has been put in place, but implementation remains a major challenge.

After the 2004 Indian Ocean Tsunami, Indonesia enacted a new Law on Disaster Management (Law 24/2007) that

outlines the principles, division of labor, organization and implementation of the national disaster management system,

including the role of international organizations. The Law has been further elaborated by the issuance of three key

Government Regulations, one Presidential Regulation and numerous implementing guidelines. While the issuance of

the legal framework is an important first step, more work needs to be carried out to ensure that the regulations are

disseminated and implemented by the respective institutions and observed by the public.

A new National Disaster Management Agency has been created but only six out 33 provinces have

established provincial disaster management agencies. A major shift brought by the new Disaster Management

Law is the establishment of a dedicated agency to deal with disaster, the National Disaster Management Agency (BNPB),

where previously there was only an ad-hoc inter-ministerial council. BNPB is empowered with a strong mandate to

coordinate line ministries on the entire cycle of disaster management from pre, during, and post disaster stages. While

the Law clearly mandated the creation of disaster management agencies at the provincial (mandatory) and districts

(depending on needs and capacity) levels, to-date only six out of 33 provinces and six out of more than 450 districts and

municipalities have actually established their disaster management agency (BPBD). This necessitates further formulation

of both the governance and the policy incentive for the provincial and local government to comply with the mandate of

the Law.

The first three-year National Action Plan for Disaster Risk Reduction (NAP-DRR) is nearly concluded, and

there is a need to develop a new action plan based on risk assessment. Indonesia was among the first few

countries in Asia that formulated their national actions plan for disaster risk reduction (NAP-DRR), which is the first

priority of the Hyogo Framework for Action (HFA). This first NAP-DRR covering the period of 2006-2009, which was

formulated through multi-stakeholder processes, is nearly concluded. With the issuance of Government Regulation

21/2008 on the Implementation/Conduct of Disaster Management, the next NAP-DRR will have to refer to the National

Disaster Management Plan (DM Plan) currently under formulation. The Government Regulation also stipulates that both

the DM Plan and the NAP DRR would be based on risk analysis and be part of the broader development program.

This new policy would require significant support in its follow up, both in terms of detailed institutional and technical

procedures, and in terms of capacity for field implementation.

Government budget on DRM has quadrupled in amount, but comprehensive risk financing has not been put

in place. The Government of Indonesia quadrupled its spending on disaster related activities between 2001 and 2007

as a response to two major disasters in Aceh (2004) and Java (2006). However, further analysis by BAPPENAS8 on

sectoral budget allocations indicated that the amounts in the last three years from 2007 to 2009 actually decreased with

the budget for 2009 back to one third of the spending in 2007, suggesting that most of the spending was for response

and recovery. The analysis also noted that further tracking of sectoral allocation was still not possible to determine if DRR

is fully mainstreamed in regular development programs. A new Government Regulation No 22/2008 on Funding and

Management of Disaster Assistance has also stipulated three categories of funding namely: contingency fund, on-call

budget, and social assistance fund through grant. However, in broader risk financing terms, other forms of financing such

as risk insurance and contingency line of credit in the event of a large scale disaster are only recently being considered

and are still under discussion.

8 “Planning and Budgeting for Disaster Management Plan in Indonesia”. Dr. Suprayoga Hadi, presentation to UN/NGO/DONOR/Red Cross Con-

vergence Workshop, February 2009.

66 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Capacity building for local government and communities in disaster risk reduction requires major

development investment. To fully transform the reactive mindset into one that reduces risk and prevents catastrophic

impacts, systematic investment is required to build the capacity of local actors including governments, civil society and

community organizations and the private sector. The current approach, which is still reactive in allocating resources

for spending on disaster management, will have to be gradually shifted into investment for reducing risk and achieving

sustainable development. This will require continuous improvement to build competent human resources and organizations

to manage disaster risks.

Implementation of comprehensive disaster risk management measures requires both consensus and major

rehabilitation works. Indonesia’s efforts to build a national system for disaster risk management under Law 24/2007

have provided more room for concrete actions to reduce risks. Relevant laws on spatial planning, on environment as well

as on natural resource management have provided the legal basis. But, detailed implementation still requires both more

specific consensus and new innovation for rehabilitating the current pattern of development and human settlement to

build physically and socially safer and more resilient communities.

3. ACTIVITIES UNDER HYOGO FRAMEWORK OF ACTION9

HFA Priority #1: Policy, Institutional Capacity and Consensus Building for Disaster Management

Focus on national institutional, legal and resource frameworks. Based on the first National Action Plan for

Disaster Risk Reduction (NAP-DRR) covering the period of 2006-2009, Indonesia has put particular emphasis on

the establishment of the proper legal, institutional and resource frameworks as part of building the national disaster

management system. A new Law on Disaster Management (Law 24/2007) was recently enacted followed by the

issuance of four key implementing regulations on the establishment of a new National Disaster Management Agency/

BNPB (Presidential Regulation No 8/2008); on the implementation of disaster management (Government Regulation No.

21/2008); on Funding and Management of Disaster Assistance (Government Regulation No. 22/2008); and on the role

of international institutions and international NGOs in disaster management (Government Regulation No. 23/2008).

Development of human resources in disaster management. Through the current NAP-DRR, the Government of

Indonesia has also actively facilitated the participation of stakeholders to build the capacity of human resources in disaster

management. The Evaluation Report of the NAP-DRR recorded that 26 government ministries/agencies, 14 donor agencies

and international NGOs, 4 universities and 3 local governments were actively implementing training and capacity building

programs. These include, among others, training of disaster management volunteers, disaster management information

system for local governments, disaster victim identification, as well as the basics of disaster management.

Fostering consensus and participation of broad stakeholders. In addition to the engagement of stakeholders

in capacity building, the Government of Indonesia is also actively promoting the involvement of local governments and

communities in disaster management. In cooperation with the IFRC and the Indonesian Society for Disaster Management

(MPBI), a framework and several symposia on community based disaster risk reduction and disaster management had

been developed and carried out. There have also been active collaborations between UN agencies, international NGOs,

and national stakeholders on various aspect of disaster management through a Convergence Group that has established

a mechanism for regular consultation and exchange of information. A National Platform for Disaster Risk Reduction

9 Most of the activities summarized in this section are based on the published government report titled “Evaluation Report on the Implementation of

National Action Plan for Disaster Risk Reduction for the 2007-2008”. National Development Planning Agency (BAPPENAS) and UNDP, September

2008.

INDONESIA / 67

was also recently established comprising of representatives from the civil society, private sector, academia, and the

government. The National Platform’s first task would be to facilitate the formulation of the new National Action Plan for

Disaster Risk Reduction for the period of 2010-2012.

HFA Priority #2: Disaster risk assessment and monitoring

Risk assessment at national and regional levels. Several key government ministries and agencies have continued to

update and disseminate hazard and risk analyses within their sectoral purview. The Ministry of Home Affairs, for instance,

has developed disaster risk maps for 11 provinces as the basis for governance (institutions, local by-laws, budget

allocation) at the provincial and local levels. The Meteorological, Geophysical and Climatological Agency (BMKG) has

developed and updated the map of potentially flooded and landslide-prone areas based on historical and forecasted

data. The Ministry of Public Works has developed flood and landslide risk maps, particularly for major watersheds of

economic and social importance. Other agencies such as volcanological survey and disaster mitigation center (VSI)

and national mapping agency (BAKOSURTANAL) have also updated their risk maps. The National Agency for Disaster

Management (BNPB) is currently also preparing a guideline for the local governments to conduct their disaster risk

assessment (PARBA).

Improvement of early warning system. Since the 2004 Indian Ocean Tsunami, Indonesia has begun to more

systematically develop an early warning system for tsunamis. Several agencies under the coordination of the Ministry for

Research and Technology including BMKG, BAKOSURTANAL, and the Technology Agency (BPPT), with the assistance

of Germany, have established a network of Tsunami Early Warning System (TEWS) initially in hazard prone areas facing

the Indian Ocean, South China Sea, and the Southwestern Pacific Ocean. Several volcano monitoring systems and their

associated hazard maps have also been installed and updated by the Volcanological Suvrey of Indonesia (VSI) for active

volcanoes in Sumatra, Java and Sulawesi.

Capacity development in risk assessment and regional response. Capacity development in risk assessment and

the required regional response also continue to be important activities under the HFA. The National Mapping Agency

(BAKOSURTANAL) and the Ministry of Public Works continue to update national and regional base and thematic

maps required for regional risk assessment and monitoring. Several international organizations such as the European

Commission (through DIPECHO) and the IFRC have also provided support to building capacity in regional and local

preparedness.

HFA Priority #3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

Information management and exchange. Management and exchange of DRM information have intensified, in

particular following the 2004 Indian Ocean Tsunami. Among notable progress was the launch of Data and Information

on Indonesian Disaster (DiBi) by BNPB providing online searchable data on past disasters. Fourteen ministries/national

agencies, 3 international organizations and 2 universities have been reported as actively developing DRM information

and/or promoting information exchange.

Education, training and research. Training and education on DRM have been focused on increasing preparedness

toward more common disasters such as earthquakes, floods and landslides, tsunamis and volcanic eruptions. Seventeen

stakeholder groups have been reported as active in this area including 8 from government ministries and agencies, 6

from the international community, 2 from universities, and 1 local government. Research on DRM is mostly focused

on field surveys, risk assessment and area-based piloting of disaster management approach/model. A Consortium on

68 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Disaster Education (CDE) consisting of members from national civil society organizations, international NGOs, the Red

Cross and UN agencies has also been active in promoting DRR through its mainstreaming in education.

Public Awareness. Increasing awareness of the general public about the importance of reducing risks from disaster

through prevention and preparedness has been an important focus for the last three years. Many pocketbooks, leaflets

and video clips have been produced providing easily digested DRM information to the general public. Innovative media

such as community radio have also been used in rural agricultural villages located near the active Merapi volcano in

Central Java and in rural Aceh province providing the community with continuous situational update while conducting

their livelihood on their agricultural lands.

HFA Priority #4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase resilience)

Sustainable natural resource and environmental management. Improved natural resource and environmental

management is a key theme in addressing the underlying factors of flood, the most frequent disaster occurring in Indonesia.

Key government ministries such as Public Works, Forestry, Environment, and Marine Affairs are actively advocating the

importance of forest rehabilitation and the proper establishment and management of greenbelt areas buffering the

hazard risk zones from the population.

Economic and social development. Poverty and the weak coping capacity of the community to respond to disaster

is one of the major issues exacerbating the impacts of many recent disasters in Indonesia. In the last three years, efforts

have been initiated to address food security, hospital preparedness, and piloting of safe school buildings. The Ministry

of Marine Affairs has also piloted a micro-insurance for coastal communities as part of micro–credit scheme aimed at

enhancing the economic resilience of the community in facing natural disasters such as tsunamis or weather-related

events such as tidal waves and high seas.

Land use, spatial planning and zoning. Land use zoning, disaster resistance standards compliance, and enforcement

are the main underlying factors for population exposure and risk to major disaster such as flood, earthquake and tsunami.

The Ministry of Public Works, which has the mandate and capacity to manage this system, continues to promote the

incorporation of disaster risk in the spatial plans (as mandated by Law 26/2007 on Spatial Planning), and local zoning

regulations, as well as improving building standards and codes. As Indonesia is now highly decentralized, the enforcement

of the zoning, standards and codes are in the hands of local governments. Central government agencies such as Public

Works and Marine Affairs Ministries are providing technical guidance and assistance to local governments, while several

NGOs and universities are developing pilots to showcase to the communities.

HFA Priority #5: Disaster preparedness, recovery and reconstruction at national, regional and

local levels

Policy, institution, technical capacity and coordination in disaster response. With the enactment of the new Disaster

Management Law (Law 24/2007), Indonesia has adopted a more comprehensive approach in the coordination of disaster

response covering the stages of pre, during, and post disaster. National agencies such as BNPB, Ministries of Social

Affairs, and Health, and the Indonesian Red Cross are actively updating contingency plans and providing guidelines and

training on emergency response, logistic support system, and preparedness of health crisis centers.

Regional response through risk reduction and contingency planning. As Indonesia is geographically spread out, regional

rapid response in remote areas is a major logistical challenge. The Ministries of Social Affairs and Health, and the

INDONESIA / 69

Indonesian Red Cross are also actively supporting the capacity building of regional government and logistical and health

centers, and promoting networking among regional crisis and logistical centers.

Building volunteerism in disaster management. Indonesia has witnessed a rapid growth of voluntary organizations

specializing in disaster management. In addition to the local disaster response volunteers (TAGANA) facilitated by the

Ministry of Social Affairs, the Ministry of Health and Red Cross are actively supporting the formation of volunteer brigades

by many organizations including faith-based charity organizations, Corporate Social Responsibility (CSR)-supported

groups, and even political parties. While the growth trend remains positive, the focus is still limited to emergency response

and less on risk reduction.

Lessons learned in rehabilitation and reconstruction from recent major disasters. Recent major disasters

such as the Indian Ocean Tsunami and the Yogyakarta and Central Java earthquakes provided Indonesia with significant

experience in recovery, rehabilitation and reconstruction as lessons for disaster risk reduction. The government through

BAPPENAS has established a joint secretariat for planning and management of disaster response (P3B) which has

been active in documenting and sharing development lessons. The implementation of major multi-donor funded initiatives

such as the Multi-Donor Fund for Aceh and Nias (MDF) and the Java Reconstruction Fund (JRF) offer lessons in both

donor coordination and collaborative approach among stakeholders, not to mention complex financial management.

Overall, DRR still needs to be mainstreamed in the recovery process and rehabilitation and reconstruction practices, and

to become the essence of successful recovery.

4. KEY DONOR ENGAGEMENTS

From recovery assistance to longer-term programmatic support. Following the 2004 Indian Ocean Tsunami

and the 2006 Java earthquake, Indonesia received significant size of international assistance mostly for post-disaster

reconstruction. But, as the recovery process reached completion, there have been continued support provided by the

international community on longer-term capacity building in disaster risk reduction, both as new programs and as part of

the recovery itself.

Existing Projects with Donors and

International Financial Institutions

Australia Indonesia Facility for Disaster

Reduction

Regular annual programming which include

support to DRR projects

Institutional revitalization project for Flood

Management; and Flash Flood Disaster

Management

Multi-disciplinary hazard reduction

Promoting Private Sector Role in Disaster

Risk Reduction in Indonesia

Safer Community through Disaster Risk

Reduction (SCDRR)

Funding Agency /

International Partners

Australian Agency for International

Development (AusAID)

Australian Agency for International

Development (AusAID)

Japan International

Cooperation Agency

Japan International

Cooperation Agency

US Agency for International

Development (USDAID)

UNDP

(w /support from DFID and AusAID)

Allocated

Budget and Period

(US$)

42 million

2009-2014

5 million/yr

annually programmed

2007-2010

2008-2011

2009-2011

300,000

2008-2010

18 million

2007-2011

HFA Activity

Area(s)

1,2,3,4,5

2,3,4,5

3,5

1,2,3,4,5

(Cont.)

10 Most of this funding is allocated mainly to rehabilitation and reconstruction activities. But, many of the activities include relevant DRR mea-

sures such as earthquake resistant structure, etc.

70 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Existing Projects with Donors and

International Financial Institutions

Mainstreaming DRR in Indonesia

Multi Donor Fund for Aceh and Nias

Reconstruction10

Java Reconstruction Fund10

Funding Agency /

International Partners

World Bank (GFDRR)

15 donors & managed by World Bank

7 donors & managed by World Bank

Allocated

Budget and Period

(US$)

1.25 million

2008-2010

692 million

2005-2012

94.06 million

2006-2010

HFA Activity

Area(s)

1,2,3,4,5

Building on the achievement of current GFDRR support. Indonesia has received support from GFDRR Track-II

at a relatively modest size ($1.25 million) relative to the size of the country and its disaster risks. The current funding

has supported the Government in three core areas: 1) the preparation of the new National Action Plan for Disaster Risk

Reduction, which will be more risk-based and will at the same time strengthen the newly formed National Platform as

a consultative forum; 2) capacity building of disaster management agencies in DRR, and 3) the preparation of a cata-

strophic risk insurance framework. In addition to the above core areas, the current funding also provides support to the

internal mainstreaming of DRR within the World Bank projects. While the current activities are on-going and creating a

strategic momentum for improving both the risk response planning, institutional capacity in DRR, and financing systems,

further support needs to be provided to follow through the current achievements into more concrete actions by the rel-

evant sectors and stakeholder groups.

5. GLOBAL FACILITY FOR DISASTER REDUCTION AND RECOVERY (GFDRR):

ACTION PLAN

Key development issues to be addressed. Considering the risk profile of Indonesia where hazard occurrences are

increasing while a large number of population become more exposed and vulnerable, development investment targeting

different aspects of risk reduction is urgently required. Four key issues will be addressed in the proposed scaled-up

GFDRR Track-II funded program, including: 1) the need to follow through the National Action Plan for DRR into key

targeted sectoral and regional investments, 2) the need to further strengthen disaster management agencies at the

central and local levels in building the appropriate risk analysis and risk-response systems, 3) the need to devise a more

comprehensive risk financing strategy including to incentivise concrete risk reduction measures (e.g., insurance linked to

the application of disaster resistant building standards), and 4) the need to showcase the importance of investing in ‘no-

regret’ solutions for DRR and climate adaptation (e.g., improving the quality of urban drainage and sanitation to prevent

flooding and water shortage).

Core areas for the scaled-up program. In response to the four key issues identified above, the proposed GFDRR

scaled-up program will target the following areas of engagement: 1) Mainstreaming DRR in regular development and

through post disaster recovery, 2) Capacity building of national and local DRM agencies including in risk assessment

and risk-response, 3) Supporting the Government’s effort to implement a comprehensive risk financing strategy linked to

DRR actions, and 4) Linking DRR and climate adaptation initiatives through pilot investment projects.

Leveraging national programs and donor assistance. As a global and flexible facility, GFDRR is best positioned to

leverage national programs and other donor assistance which exist in the form of larger programs. GFDRR can be used

to complement the government and donor programs to build a more integrated approach to DRM in Indonesia. Through

INDONESIA / 71

its Steering Committee mechanism for the current Track-II funding, key donor partners such as UNDP, the European

Commission, AusAID and JICA will continue to provide collective partnership under the leadership of the Government

(BNPB and BAPPENAS) in directing the program.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered

for GFDRR funding)

Implementing Agency /

International Partners

Indicative

Budget and

Period (US$)

HFA

Activity

Area(s)

I. Mainstreaming DRR in regular development and through post-disaster recovery

Support for the mainstreaming of DRR in: (i) sectoral

development programs; (ii) regional and local

development programs; (iii) World Bank and donor

financed development programs and projects

National Development Planning

Agency (BAPPENAS), Ministry of

Public Works, Local Governments,

Civil Society, World Bank

3.2 million

2009-2012

1,2,3,4,5

Support to the capacity development of Government of National Disaster Management

750,000

Indonesia’s efforts to mainstream DRR into rehabilitation Agency (BNPB), UNDP, World Bank 2009-2012

and reconstruction framework

II. Capacity building of national and local DRM agencies, including in risk assessment and risk-response

Support for the establishment and capacity building of

national, provincial and local disaster management agencies,

leveraging government and other donor programs

National Disaster Management

Agency (BNPB), Ministry of Home

Affairs, Local Governments

4 million

2009-2012

1,2,3,4,5

Technical Assistance for the development of national and

regional risk and impact assessment frameworks, tools

and methodologies

National Development Planning

Agency (BAPPENAS), National

Disaster Management Agency

(BNPB), World Bank

750,000

2,3

2009-2012

III. Support to comprehensive risk financing strategy linked to DRR actions

Technical Assistance for the development and

implementation of comprehensive risk financing

framework for Indonesia

Ministry of Finance, National

Development Planning Agency

(BAPPENAS), World Bank

1.6 million

2010-2012

IV. Linking Disaster Risk Reduction and Climate Adaptation

Support to national and local strategy for DRR and CCA

linkages

National Council for Climate

Change (DNPI), National Disaster

Management Agency (BNPB)

250,000

2009-2011

1,2,3,4,5

Pilot initiatives and investment in climate adaptation and

resilience in urban and rural communities to build alliance

among the DRR and CCA constituents and programs

National Council for Climate

Change (DNPI), National Disaster

Management Agency (BNPB), Local

Governments, Civil Society, World Bank

3.5 million

2009-2012

3,4,5

Support to implementation of disaster and climate proof

building codes and standards and micro zoning

Ministry of Public Works, National

Disaster Management Agency

(BNPB), Local Governments, Civil

Society, World Bank

1 million

2010-2012

3,4,5

Total Budget Requested:

US$ 15.050 million

72 /

MARSHALL ISLANDS

1. disaster risk profile

The Republic of the Marshall Islands (RMI) consist of 29 low lying

atolls and five islands just west of the international date line and

north of the equator. Its land area is roughly 70 sq miles compared

with 700 sq miles of ocean surrounding the islands.

The major natural hazards facing the RMI are tropical storms,

typhoons, storm surge and drought. Additional challenges/

hazards include sea-level rise, coastal erosion, pollution of the

marine environment, ecosystem degradation and food security. The

hazard that poses the most threat to RMI is sea-level rise. Its highest

point is just 10 m above sea level.

The key natural hazards – tropical storms and typhoons, high surf and drought – are all climate-related and

expected to worsen with global warming. Moreover, the RMI faces physical, demographic and socio-economic

conditions which exacerbate vulnerability to the above hazards including high population density, a substantial poverty

rate, low elevation, limited fresh water resources and wide dispersal of the islands.

Major storms do not often affect the Marshall Islands. The last typhoons which caused substantial damage to the

Islands were Typhoon Gay and Tropical Storm Axel in 1992. However RMI is impacted by high wave action and ocean

swells after hurricanes in the neighboring Pacific Islands. The last major disaster to hit RMI was in late 2008. A storm

surge/coastal flood affected 600 people.

% People Affected by Disaster Type

Storm

88%

Epidemic

Flood

According to a 2008 World Bank assessment, while the list of hazards facing the RMI is comparatively

small, their potential for damage is significant as the islands two urban areas account for 60-70% of the

population. In terms of the country as a whole, the greatest impact would be from direct typhoon hits on the urban

centers of Majuro and Ebeye. The land has low elevation and is narrow; housing and most buildings are generally of poor

construction, not well maintained and tightly packed; there are no established agreed means of evacuation or identified

shelters to seek refuge; the airport would be unusable. Climate change is likely to increase the intensity, frequency, path

and other characteristics of typhoons.

MARSHALL ISLANDS / 73

The inhabitants of the Marshall Island rely on rainwater for 95% of their fresh water.

A state of emergency was declared in 2007 after a prolonged drought depleted fresh water supplies. In 2008 the storm

surge and high tides caused widespread flooding in the capital city of Majuro and other urban centers, located at just

one meter above sea level and the government declared a state of emergency

Key Natural Hazards

Tropical Storms and Typhoons

High Surf

Drought

Key Man-made or Human-induced Hazards

Fire

Contamination of water supply

Outbreak of epidemic diseases

Commercial transport accidents

Official Language

Independence

Area

Capital

Land Use

Government

Population

GDP

HDI

Terrain

Climate

Natural resources

Major products

Main development donors

World Fact Book, World Bank Country Reports

Majuro (Delap)

Marshalese, English

October 21, 1986 (from the United States)

total: 181.3 sq km

land: 181.3 sq km

water: 0 sq km

arable land: 11.11%

permanent crops: 44.44%

other: 44.45% (2005)

constitutional government in free association with the US

64,522 (July 2009 est.)

Per capita $3070 (2007)

low coral limestone and sand islands

tropical; hot and humid; wet season May to November; islands

border typhoon b

coconut products, marine products, deep seabed mineral

copra cake, coconut oil, handicrafts, fish

United States

2. disaster risk management frameworK

In 1987, RMI passed its National Disaster Management Plan. Seven years later, the enactment of the Disaster

Assistance Act established a National Disaster Management Committee and a National Disaster Management Office

(NDMO) located in the Office of the Chief Secretary. In 1994, the RMI also passed a Hazard Mitigation Plan, a National

Disaster Manual, and an Airport Disaster Plan. A Drought Disaster Plan was passed in 1996, followed by the drafting of

a revised National Disaster Management Plan in 1997. The most recent legislative activity in disaster risk management

was the development of a Standard Hazard Mitigation Plan in 2005. The draft NAP is linked to the RMI development

policy.

The National Action Plan for Disaster Risk Management (NAP) aligns itself both with the regional policy framework (i.e.

the Pacific Regional Framework for Action on DRR & DM) and the national policy framework. AUSAID - SOPAC has

plans to support a NAP Disaster Facility to assit the RMI in establishing its DRM framework.

74 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

NAP Goals and Outcomes for RMI

Goal 1: Establish an enabling environment for improved DRM in RMI

Outcome: Well-functioning Institutions and Systems for Disaster Risk Management

Goal 2: Mainstream DRM in planning, decision making and, budgetary processes at national and local

levels

Outcome: DRM is mainstreamed in all relevant processes at all levels, and in all relevant sectors

Goal 3: Improve capacity for emergency preparedness and response at all levels

Outcome: Organizations and agencies at all levels are well prepared and resourced to respond todisasters

Goal 4: Build a strong and resilient DM early warning and emergency communication systems

Outcome: Effective early warning and communication between Majuro, Ebeye and the Outer Islands at all times

Goal 5: Access to safe and adequate clean water at all times

Outcome: Reduced vulnerability to water-related hazards and water-shortages resulting from hazards.

Goal 6: Sustainable development of the coastal area

Outcome: Reduced vulnerability to coastal hazards

Goal 7: Reduce economic dependency of the Outer-Islands

Outcome: Improved Outer-Island resilience to hazards

Goal 8: Improve understanding of the linkages between zoning, building codes, and vulnerability to

disasters

Outcome: Decision-makers and public more receptive to the need for adequate zoning and building codes in

reducing vulnerability

Goal 9: Raise the awareness of DRM amongst the public

Outcome: Public are better informed of National and Outer Island DRM issues

Goal 10: NAP implementation and impact is monitored and reviewed on a regular basis

Outcome: The NAP is effectively implemented and kept up to date

Source: GFDRR Country Assessment Marshall Islands 2008

3. activities under the hyogo framework of action

HFA Priority #1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

THE NATIONAL DRM AGENCY

The overall coordination of disaster management falls under the National Disaster Committee (NDC)

and its operational arm, the National Emergency Management and Coordination Office (NEMCO). They

have traditionally focused on post disaster response, not disaster prevention mitigation or CCA activities. The NDC is

chaired by the Chief Secretary and the NEMCO falls under the Chief Secretary Office (CSO), reporting directly to the

President.

In response to the growing importance and attention to DRR and the implementation of the National Action

Plan for Disaster Risk Management (NAP), an implementation unit (NAPIU) will be established under the

CSO. There is currently a lack of resources and funding for the NAP implementation unit.

MARSHALL ISLANDS / 75

While the NDC meets regularly, it is also responsible for other tasks outside the national disaster issues;

meetings cover a wider scope and include emergency relief coordination and planning efforts. Disaster risk

management is regularly discussed by the sub-group of the NDC which is the DRM NAP Task Force. This group also

meets regularly. The Task Force is chaired by the Deputy Secretary.

DRM LEGISLATION

In 1987, RMI enacted the Disaster Assistance Act. Several laws such as the National Environmental Protection Act

(1984), the Planning and Zoning Act (1987), and the Coast Conservation Act, 1988 all provide a good framework and

require specific measures to be undertaken to prevent further environmental degradation.

DRM AT THE SUB-NATIONAL LEVEL

Local government has been engaged throughout the development of the NAP. The NAP requires that all Atoll Local

Governments to develop their own disaster risk management action plans.

DRM IN THE POVERTY REDUCTION STRATEGY

In terms of national development policy and priorities, the Government charted the Vision 2018: The

Strategic Development Plan Framework 2003-2018 which establishes the overall development priorities

for the RMI and sets the first segment of the Government’s Strategic Development Plan for the next 15

years. The Strategic Development Plan will consist of Master Plans which are mandated under the Vision 2018 focusing

on major policy areas, and the Action Plans of Ministries and Statutory Agencies. Although Vision 2018 was drafted

before the recent attention to DRR, it is felt within RMI government that its goals remain broad and flexible enough to

accommodate the emphasis on DRR without amendment

The National Action Plan for Disaster Risk Management (NAP) aligns itself both with the regional policy framework (i.e.

the Pacific Regional Framework for Action on DRR & DM) and the national policy framework (i.e. Vision 2018 and its

Master and Action Plans).

INTERMINISTERIAL INVOLVEMENT IN DRM

The other agencies which have a role in DRM include:

• Environmental Protection Agency (RMIEPA) – RMIEPA was created under the National Environmental Protection

Act of 1984 and carries out multiple responsibilities including water quality monitoring, solid waste monitoring, public

awareness and coastal management.

• The Office of Environmental Planning and Policy Coordination (OEPPC) was established to provide policy advice to

the President and Cabinet; to ensure adequate attention is given to addressing the RMI’s international commitments

made through the international treaties; to ensure that activities arising from associated international Conventions are

linked to national priorities and to collaborate with other Government Partners/NGOs and Communities in implement-

ing environmental projects/programs.

• The Marshall Islands Marine Resources Authority (MIMRA). MIMRA is responsible for coordinating and regulating the

exploration, exploitation and management of marine resources.

• The Ministry of Resources and Development is responsible for preparing much of the adaptation and response to the

impacts of climate change as they arise.

• The Majuro Water and Sewer Company (MWSC) is responsible for the operation of the water supply, treatment and

distribution systems.

• The National Disaster Management Committee (NDC) and is for responsible of overall coordination of disaster relief

operations.

• The National Emergency Management and Coordination Office (NEMCO) is the operational arm of the NDC. It is

76 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

responsible for disaster response (not prevention); under the CSO.

• Marshall Islands National Weather Service is supported by the US National Oceanic Atmospheric Administration

(NOAA) and provides weather, hydrologic, and climate forecasts and warnings for the Marshall Islands, its territories,

adjacent waters and ocean areas.

CLIMATE CHANGE AND DISASTER RISK MANAGEMENT

RMI adopted its Climate Change Strategic Plan in 2006. It was a short term strategic plan developed in line with

the Vision 2018 and based on group and regional discussions, public consultations and needs assessments conducted

by OEPPC. This plan would lay the groundwork for establishing a longer-term climate change strategy for RMI. The

strategic focus areas of this plan are:

• Institutional strengthening and capacity building

• Initial support to existing energy programs in the context of climate change

• Meet RMI’s obligations under the United Nations Framework on Climate Change

• Clearinghouse mechanism

• Public Awareness

• Link climate change to development through policy

• Building capacity in adaptation to climate change and develop a plan

HFA Priority #2: Identify, assess and monitor disaster risks and enhance early warning

NATIONAL, REIONAL AND LOCAL SECTORAL RISK ASSESSMENTS

Factoring in climate change into RMI’s risk mapping is an extremely high priority and urgent need given

the country’s low lying atolls. The Marshall Islands Resources Authority (MIMRA) has begun with marine resources

mapping surveys which consider future climate change but is in need of both improved technology and human resource

development.

EARLY WARNING SYSTEMS

Different agencies have roles in hazard monitoring and no one agency is responsible. The National Weather

Service has an advanced warning system available for all the islands. The DRM NAP will formalize the responsibility and

give the responsibility to one agency. There is a relatively solid based of knowledge, data and tools for some sectors in

RMI particularly in terms of climate data. However there are some important gaps in mapping, monitoring and related

activities. The NAP provides a framework for implementing risk reducing activities and risk assessment which would be

founded on sufficient data and an understanding of the dynamics of the process. Therefore it is critical to develop an

information management system wherein there is a system of organization, storage and sharing of data and information,

including communication and sharing with outer islands.

FORECASTING

RMI relies on Meteorological Service Unit owned and supported by the US National Oceanic and Atmospheric

Administration’s (NOAA) National Weather Service and operated by RMI nationals contracted by NOAA. There

are two tidal gauges (the longer established gauge provided by the University of Hawaii and the more recent Sea-Frame

gauge, supported by Australia) which record sea-level data and are readily accessible. The record of temperature,

precipitation, wind and pressure data are archived and available for time periods and forms which facilitate a range of risk

and climate change reviews and assessments. These are housed at the U.S. National Climate Data Center. These data

has been used for three month climate and rainfall forecasts but could be further utilized for DRR/CCA activities.

MARSHALL ISLANDS / 77

Both the UNDP partnership in the Pacific Disaster Network and the SOPAC Pacific Disaster Network project will also

strengthen technical skills for integrating an integrated hazards information system

DATA SHARING

Developing an information management system should be a priorty for the RMI. There is no centralized

system for natural hazard information management and no method to facilitate the storage and sharing of basic and

the RMI would benefit from a low-tech” starter system to facilitate simple MIS with the goal of having all sector actors

utilizing the same data base for all phases (conceptualization, planning, implementing, benchmarking, monitoring and

follow up).

HFA Priority #3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

PUBLIC AWARENESS

There is a need for increased community awareness about natural hazards, an activity which will be

covered under SOPAC’s programming. However, in the preparation of the NAP, there was extensive consultation

with government officials, line agencies, mayors, the private sector and local communities. They were made aware of the

government’s commitment to the DRR and CCA principles as well as the opportunities and benefits of risk reduction.

There is a need to continue this participatory approach to further reinforce the message.

INFORMATION MANAGEMENT AND EXCHANGE

Regional organizations such as SOPAC provide an important networking partnership that link the DRM

NAP development and implementation processes with other organizations within and outside country.

Much needed technical assistance is also provided by the network partners. As stated above, however, there is need for

a centralized system to store and share hazards data.

RESEARCH

RMI has two institutes studying hazards and vulnerabilities. The first is the School of the Pacific Rainfall

Climate Experiment which is a collaborative field project involving schools (from elementary to university level) and local

meteorological services from the PICs, atolls and the US Mainland. Its headquarters is at the University of Oklahoma.

This program seeks to educate students on environmental issues and enhance the science programs in the participating

schools. The students collect data that is used for climatological research and are part of the study of weather patterns

in the Pacific.

The second program is the South Pacific Sea Level and Climate Monitoring project that is managed by the Flinders

University of South Australia. Under this program, 11 SEA Level Fine Resolution Acoustic Measuring Equipment

(SEAFRAME) stations were established in the Pacific Islands and one of them is located in the Marshall Islands. Data

from these monitoring stations will provide the PICs access to data on climate variability and the impact of GHG and this

will help RMI in planning and developing strategies to respond to the issues.

HFA Priority #4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

ENVIRONMENTAL AND NATURAL RESOURCE MANAGEMENT

Development in the country has not taken into account current and future risks. With its fragile eco system

and dense population, there is urgent need to safeguard the RMI’s natural resources, particularly its clean

78 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

water supply. The RMI is poised to embark on a number of projects, especially as regards bolstering water supply

systems in order to reduce the risks from drought. These include both individual and community water-harvesting

projects. However, in general, these projects are not taking climate variability and change explicitly into account in terms

of designing to acceptable levels of risk.

The SOPAC-GEF project in Integrated Water Management and Development Plan for Laura Groundwater Lens, Majuro

will go some of the way to addressing this issue with $500,000 in GEF funding and $3,362,583 in other donor funds.

LAND USE PLANNING

At the national level, integration of disaster risk into land use planning provisions may be in place, but

implementation falls short at the local level and unregulated costal development poses a serious threat

to the islands. For example, in order to avoid further coastal degradation and reduce risks, the Coastal Conservation

Act 1988 and the National Environmental Protection Act 1984 provide the enabling provisions, but local governments

who are responsible for enacting ordinances for land-use zoning requirements have not done so. As a stop-gap, the EIA

regulations have been used on selected case-by-case bases. The Coastal Management National Framework, approved

by RMIEPA but not yet endorsed by Cabinet, will hopefully provide a basis for filling the gap. In terms of fire risk, the lack

of land-use planning and zoning has resulted in houses being built too close together in overly narrow streets, resulting

in a major fire risk for parts of Majuro and Ebeye. The NAP seeks to mainstream DRM into the planning, decision making

and budgetary processes across a broader sectoral arena at both national and local levels.

BUILDING CODES

Reviewing and revising draft building codes is essential for sustainable development in the islands. Each

donor or entity is responsible for implementing its own building codes as, despite having been drafted over a decade

ago, building codes have not been enacted. There is currently no control over design and location of buildings and high

density, structurally-deficient buildings pose health and fire hazards, especially in areas of rapid urbanization.

HFA Priority #5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

RISK FINANCING

The Disaster Assistance Account was established under Disaster Assistance Act. This account is under the

supervision and control of the Ministry of Finance. When there is a disaster, the amount utilized will appropriated

in the budget for the next financial year but the fund should maintain a continuous balance of $200,000 at the beginning

of each fiscal year. However, it is very difficult to get critical capital expenditures required for risk reduction explicitly

targeted in the budget due to a lack of willingness, awareness and accountability as well as lack of available funds.

There is a stationary fund which is only drawn upon in the event of a disaster (not for prevention or

preparedness). If disaster does not strike, the funds accumulate (at present, the fund has US $2 million). The funds

are appropriated in the Annual Appropriation Act for the following year based on the amount utilized in the current year.

However, if the need arises for additional funding due to a disaster, the Chief Secretary in consultation with NDC will

submit his/her request to the Ministry of Finance.

The government does not have mechanisms for compensation either for public or private assets damaged by a natural

disaster. Compensation will be given only if the property was taken and used for coping with the disaster and only upon

order by the Cabinet or NDC. All claims shall be filed with the Office of the Chief Secretary.

MARSHALL ISLANDS / 79

Under an amended agreement, the RMI will be able to request disaster assistance from USAID in a

declared state of emergency, after utilizing the national Disaster Assistance Emergency Fund, (established

by the amended Agreement as a first resource for disaster response), and requesting international assistance through

the United Nations

EMERGENCY MANAGEMENT

National Emergency Management and Coordination Office (NEMCO) is in charge of emergency response

in RMI and is headed by the Chief Secretary. The Emergencies Act 1979 outlines the steps for declaring a state

of emergency but does not provide for an early warning protocol.

Under the COMPACT, RMI has access to the programs of the Department of Homeland Security/Federal

Emergency Management Agency (FEMA). USAID will be expanding its role in this arena and will be focusing on

training and capacity building in order for RMI to take full responsibility for DRM and even DRR.

REGIONAL APPROACHES AND PARTNERSHIPS

RMI works closely with the neighboring countries in the Pacific and is part of many regional partnerships/

treaties. Because they are vulnerable to extreme weather events which affect not only their country but also their

neighbors, it is beneficial to collaborate in responding to this common issue. One such initiative is the Micronesia

Challenge wherein the participant countries aim to conserve 30 % of marine resources and 20% of forest resources.

RMI has a mutual assistance agreement with the United States under the Compact of Free Association.

Moreover, RMI works with several key international development assistance partners in DRM, including:

the United States, Republic of China, Japan, the EU, AusAID, SOPAC and the Asian Development Bank. RMI and

the US have a strong relationship of mutual assistance covered under the Compact of Free Association (COFA). In

exchange for certain defense rights including the lease of 11 islands on Kwajalein Atoll, the US provides guaranteed fi-

nancial assistance through the Office of Insular Affairs. RMI participates in many of the TA activities under this Office and

has access to many US domestic programs including disaster preparedness, response and recovery program through

the Department of Homeland Security (DHS)/Federal Emergency Management Agency (FEMA). RMI has several on-

going projects with EU/AusAID and SOPAC. Possible future players may include UNDP, UNICEF, IFRC and regional

organizations as Secretariat of Pacific Community (SPC).

4.key donor engagements

One of the major donors in RMI is the United States. RMI has a mutual aid agreement with the US. In exchange for

defense rights, the US provides support for capital improvements and development assistance.

The Asian Development Bank (ADB, through its Regional Environment Technical Assistance Project, facilitated the

preparation of the National Environment Management Strategy (NEMS). Recently ADB prepared a Regional Technical

Assistance Report on Regional Partnerships for Climate Change Adaptation and Disaster Preparedness. This TA was

undertaken as part of ADB’s contribution to a World Bank led initiative looking at the feasibility of a catastrophe insurance

scheme for the Pacific.

The Pacific Regional Environment Programme (SPREP) conducted an in-depth study on the potential impact of expected

climatic changes (primarily sea-level and temperature rise) in the Marshall Islands.

80 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

The Pacific Islands Applied Geoscience Commission (SOPAC) provides technical assistance to RMI through its (a)

Ocean and Islands Programme for the Marshall Islands; (b) Community Risk Programme; and (c) Reducing Vulnerabilities

of Pacific ACP States.

Through the Pacific Islands Climate Change Assistance Program (PICCAP), RMI prepared its First National

Communication Report to the UNFCCC. PICCAP is funded by GEF and its main goal is to assist countries to build

sustainable capacities to accomplish the required activities under the convention.

UNDP and GEF have also been RMI’s partners in addressing climate change issues. The following programs were

either implemented/funded/overseen by UNDP Fiji MCO: (a) National Capacity Self Assessment (NCSA) (GEF-

US$225,000) provides tools/guidance in complying with their obligations to UNFCCC, UNCBD and UNCCD; (b)

Second National Communications to UNFCCC: Stocktaking Exercise and Enabling Activity (US$420,000) – provides

assistance in preparing the SDN for submission to UNFCCC; (c) Action for the Development of Marshall Islands

Renewable Energy (ADMIRE) (Budget US$2,6500,000; GEF US$1,000,000) – aims to broaden scope and utilization

of renewable energy; (d) Coconut Bio-Fuel (UNDP-US$30,000) – explores the use of coconut products as a source of

electricity for rural communities; (e) Regional Energy Program for Poverty Reduction (UNDP, Bangkok – US$2,782,500)

– aims to contribute towards MDG targets through energy initiatives. In addition, UNDP PC provides funding to SOPAC

for Mainstreaming Disaster Risk Management and Adaptation to Climate Change (ACC) into National Development

Planning (Budget US$500,000 for all PICs)

The World Bank, together with ADB and with funding provided by GFDRR and PFIII, are currently undertaking a Feasi-

bility Study Catastrophic Risk Pool. They are also conducting Regional and Country Assessments as part of the TA for

Sustainable Management through Reduced Risk from Disaster and Climate Variability in the Pacific Islands.

Existing Projects with Donors and International Financial

Institutions

Sustainable management through reduced risk from disasters and climate

(Fiji, Kiribati, Marshall Islands, Papua New Guinea, Solomon Islands,

Timor-Leste, Vanuatu )

Pacific Catastrophe Risk Pool Feasibility Study

Regional Technical Assistance Report on Regional Partnerships for

Climate Change Adaptation and Disaster Preparedness.

Funding Agency /

International

Partners

World Bank

ADB

Allocated

Budget

and Period

(US$)

2008 –

present

$1,900,000

2008 -

present

$400,000

n/a

HFA Activity

Area(s)

2,3,4,5

1,2,5

1,2,4

Preparation of the National Environment Management Strategy (NEMS)

ADB

n/a

Ocean and Islands Programme for the Marshall Islands;

Reducing Vulnerabilities of Pacific ACP States. (Fiji, Papua

New Guinea, Samoa, Solomon Islands Tonga, Tuvalu and

Vanuatu, Cook Islands, Federated States of Micronesia, the Marshall

Islands, Nauru, Niue and Palau.)

The Pacific Islands

n/a

Applied Geoscience

Commission

(SOPAC)

The Pacific Islands

Applied Geoscience

Commission

(SOPAC) /EU

1,2

(Cont.)

MARSHALL ISLANDS / 81

Existing Projects with Donors and International Financial

Institutions

Community Risk Programme

Pacific Islands Disaster Assistance Program (PDAP): The Cook Islands,

Fiji, Kiribati, Niue, Palau, Papua New Guinea, Samoa, Solomon Islands,

Tonga, Tuvalu, and Vanuatu , Federated States of Micronesia and the

Republic of the Marshall Islands.

Pacific Islands Climate Change Assistance Program (PICCAP), (Cook

Islands, Federated States of Micronesia, Fiji, Kiribati, Marshall Islands,

Nauru, Samoa, Solomon Islands, Tuvalu and Vanuatu)

EDF 9 B Envelope – Upgrading monitoring and early warning systems

Pacific Islands Climate Prediction Project

(Cook Islands, Fiji, Kiribati, Niue, Samoa, Solomon Islands, Tonga, Tuvalu,

Vanuatu, Papua New Guinea)

South Pacific Sea Level and Climate Monitoring Project (Cook Islands,

Federated States of Micronesia (FSM), Fiji, Kiribati, Marshall Islands,

Nauru, Papua New Guinea (PNG), Samoa, Solomon Islands, Tonga, Tuvalu

and Vanuatu.)

NAP Disaster Facility

Pacific Disaster Net

Project in Integrated Water Management

Funding Agency /

International

Partners

The Pacific Islands

Applied Geoscience

Commission

(SOPAC)

USAID/OFDA

SPREP

European Union

AUSAID and the

Australian bureau of

Meteorology

AUSAID

SOPAC, UNDP,

UNOCHA, IFRC

SOPAC-GEF

Allocated

Budget

and Period

(US$)

2008-12

3.2 million

euro

US$ 2.2

million

2004 -

present

1991 -

2010

2009-2011

$500,000

HFA Activity

Area(s)

3,4

1,2,3

3,5

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Based on the GFDRR funded Country Assessment of RMI, six priority areas were identified:

• Strengthening the capacity of National Emergency Management and Coordination Office (NEMCO);

• Developing an information management system;

• Enhancing community-based awareness, education and participation in risk-reduction and resilience-building;

• Climate-proofing new water supply developments;

• Reviewing and revising draft building codes; and

• Early warning response

Two of these priority areas are already or likely to be supported by other donors or agencies – awareness raising slated

to be taken up by SOPAC and early warning response has a host of interested donors coordinated by SOPAC.

The World Bank could support the remaining four priority areas as follows:

• Strengthening the capacity of the National Emergency Management and Coordination Office (NEMCO),

under which the NAP Implementation Unit (NAPIU) will operate. The support would be for Technical Assistance. The

82 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

success of the NAP will depend heavily on the NAPIU, and this, in turn, depends heavily upon ensuring that NAPIU

has strong capacity for technical advice, leadership and coordination. The NAP has been produced by an extensive,

inclusive process of consultation, including local government, civil society and the private sector, which, as a result,

has garnered significant in-country commitment. The institutional arrangements, placing the NAP within DRC/NEMCO

under the Chief Secretary’s Office within the Office of the President, gives it strong positioning within government.

Within three years, the preliminary implementation plan would be advanced and set the stage for implementation of

the longer-term action plan.

• Developing an information management system. Such a system does not currently exist. The actions under the

NAP (and other DRR and CCA actions) require cross-sectoral, cross-governmental (national to local) collaboration

and integration of effort. And that requires a systematic system of organization, storage and sharing of data and

information, including communication and sharing with outer islands. Technically, such a system could be established

well within a three-year period, and, once established, would have long term benefits in facilitating integrated action

across agencies and sectors. To be successfully implemented, the information system would have to be strongly

championed by NEMCO.

• Climate-proofing new water supply developments. The RMI is poised to embark on a number of projects,

especially as regards bolstering water supply systems in order to reduce the risks from drought. These include

both individual and community water-harvesting projects. However, in general, these projects are not taking climate

variability and change explicitly into account in terms of designing to acceptable levels of risk. Here is an excellent

opportunity, with minimal additional support required, to maximize the synergy between DRR and CCA with actual on-

the-ground risk-reducing measures. The climate-proofing measures would be “added value” to efforts that are current

getting underway to enhance water supply systems. The time-frame for implementation is short, well within three years.

The “on-the-ground” benefits, however, are long-term, and promote sustainable water resources in the face of future

climate change.

• Reviewing and revising draft building codes, ensuring that DRR and CCA are incorporated explicitly. While

RMI has had draft building codes for nearly two decades, they have never been enacted by local government. The

government of RMI, as voiced by the NRC, the OEPPC and the EPPSO, stresses the paramount importance of

getting building codes in place. While there has been failure to enact draft codes in the past, it is felt that the

circumstances are changing and are now more favorable for enactment, particularly if efforts at awareness raising and

greater participation in DRR and CCA are pursued. The reviewing and revising of draft building codes is contained

with the NAP as an action and is highlighted by the DRC as a priority. The required time-frame is short, within three

years, but the benefits, if enacted, are long-term and sustainable in terms of resultant effects.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for

GFDRR funding)

Facilitate Implementation of the NAP through providing TA support

to the NAP Implementation Unit (NAPIU)

Priority Activities:

–Establish the NAPIU to lead the NAP implementation

–Develop DRR/CCA policies and work with Govt ministries and

local Govt to build an enabling environment for mainstreaming

DRR/CCA in RMI.

Implementing Agency /

International Partners

CSO with NDC, NEMCO

Indicative

Budget and

Period

(US$)

$500,000

2009-2011

HFA

Activity

Area(s)

1,2,4

(Cont.)

MARSHALL ISLANDS / 83

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for

GFDRR funding)

Establish Integrated Hazards Information System and Tools (with

GIS capability)

Priority Activities:

– Provide TA support for the development of an integrated hazards

information system including:

–Develop and adopt a Hazards Information Policy addressing:

–Assess data needs and products for DRR/CCA

–Identify long term storage requirements, analysis tools and

mapping needs

–Acquire appropriate computer hardware, software and high speed

Internet connection

–Support capacity building through populating the information

system with available historical data and undertaking vulnerability

mapping and risk modeling for CC & risk prediction

Climate-proofing water supply systems

Priority Activities:

–Identify and establish collaborative arrangements with donors,

government agencies, private sectors, and communities involved

in water supply

–Develop and pilot a climate-proofing approach to a new water

harvesting initiative, involving:

1.Assessing the system design with respect to risks of drought

(present and future);

2. Consultation with water consumers and system designers

concerning acceptable levels of risk;

3.Assessment of options for reducing the risks;

–Build in-country capacity to implement the approach and tools;

–Incorporate the climate-proofing approach and methods into the

wider programme of water supply developments.

Review, revise and promote building codes

Priority activities:

–Review the draft building codes and identify potential areas for

improvement and strengthening with respect to risk reduction.

–Develop preliminary set of options for revision covering range of

hazards

– Hold consultative workshops with local governments and

communities in order to incorporate stakeholder views and

preferences

–Revise draft based on outcomes of consultation

–Identify key proponents of building codes within government and

promote government approval.

Total Budget Requested

Implementing Agency /

International Partners

CSO with NAPIU, EPA,

Met Services, MWSC,

R&D, MIMRA, EPPSO, IA

EPPSO, with EPA,

Weather Office, Min. of

Internal Affairs, PWD

CSO with NDC, NEMCO

Indicative

Budget and

Period

(US$)

$300,000

2009-2011

$500,000

2009-2011

$200,000

2009-2011

$1.5 million

HFA

Activity

Area(s)

84 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

6. bibliography

ADB Regional Technical Assistance Report on Regional Partnerships for Climate Change Adaptation and Disaster Preparedness.

2008 (http://www.adb.org/Documents/TARs/REG/41187-REG-TAR.pdf)

Bettencourt, Sofia, Richard Croad, Paul Freeman, John Hay, Roger Jones, Peter King, Padma Lal, Alan Mearns, Geoff Miller, Idah

Pswarayi-Riddihough, Alf Simpson, Nakibae Teuatabo, Ulric Tritz, Maarten Van Aalst ‘Not If, But When: Adapting to Natural Hazards

in the Pacific Island Region’ The World Bank. 2005

Climate Change Strategic Plan (2006), Office of Environmental Planning and Policy Coordination (OEPPC), Office of the President,

Majuro.

Coast Conservation Act 1988. Marshall Islands Consolidated Legislation. Accessed 3/26/09

<http://www.paclii.org/mh/legis/consol_act/cca1988217/>

Community Risk Programme for the Marshall Islands. Pacific Islands Applied Geoscience Commission, SOPAC. Accessed

3/26/09. <http://www.sopac.org/Community+Risk+Programme+for+The+Marshall+Islands>

Disaster Assistance Act 1987. Marshall Islands Consolidated Legislation. Accessed 3/26/09.

<http://www.paclii.org/mh/legis/consol_act/daa1987208/>

Draft Country Assessment – Marshall Islands, World Bank, 2009

Marshall Islands Interim national progress report on the implementation of the Hyogo Framework for Action 2008 (http://www.

preventionweb.net/files/7500_MarshallIslands.pdf)

Ocean and Islands Programme for the Marshall Islands. Pacific Islands Applied Geoscience Commission, SOPAC. Accessed

3/26/09. <http://www.sopac.org/Ocean+and+Islands+Programme+for+

The+Marshall+Islands>.

Pacific Environment Information Network (PEIN) Country Profile Marshall Islands. Pacific Regional Environment Programme.

Accessed 3/26/09 <http://www.sprep.org/publication/pein_marshall_islands.asp>.

PICCAP: National Activities, Coordination, Focal Point. The Republic of Marshall Islands Climate Change Website. accessed

3/26/09. <http://unfccc.int/resource/ccsites/marshall/ activity/piccap.htm>

Rei, Muligatele Joe (2008): An Assessment of the Impact of Climate Change on Agriculture and Food Security in the Pacific: A

Case Study in the Republic of the Marshall Islands. Food and Agriculture Organization.

Republic of the Marshall Islands – European Community EDF10 Country Strategy Paper and National Indicative Program (for the

period 2008-2013). European Community, 2008.

SEAFRAME: National Activities, Coordination, Focal Point. The Republic of Marshall Islands Climate Change Website. Accessed

3/26/09 <http://unfccc.int/resource/ccsites/marshall/ activity/seaframe.htm>

SOPAC-EU Project: Reducing Vulnerabilities of Pacific ACP States. Pacific Islands Applied Geoscience Commission, SOPAC.

Accessed 3/26/09. http://www.sopac.org/SOPAC-EU.

SPaRCE: National Activities, Coordination, Focal Point. The Republic of Marshall Islands Climate Change Website. Accessed

3/26/09 <http://unfccc.int/resource/ccsites/marshall/ activity/sparce.htm> .

Strategic Development Plan Framework 20013-2018, Republic of the Marshall Islands.

Summary of Climate Change Projects Implemented/Funded/Overseen by UNDP. Pacific Regional Environment Programme

(SPREP). Accessed 3/26/09 <http://www.sprep.org/publication/

pein_marshall_islands.asp>.

PAPUA NEW GUINEA

PAPUA NEW GUINEA / 85

1. disaster risk profile

Papua New Guinea is prone to earthquakes, volcanic eruptions, tsunamis, cyclones, river and coastal

flooding, landslides and drought. It is ranked 54th among countries most exposed to multiple hazards based on

land area, according to the World Bank’s Natural Disaster Hotspot study.

120000

100000

80000

60000

40000

20000

Economic Damages by Disaster Type (1000s USD)

Flood

Storm

Volcano

Earthquake

% Population Affected by Disaster Type

Flood

39%

Volcano

11%

Storm

46%

Source: “EM-DAT: The OFDA/CRED International Disaster Database”

Earthquake

Mass

movement wet

COUNTRIES MOST EXPOSED

TO MULTIPLE HAZARDS

(Top 60 based on land area

with 2 or more hazards)

1. St. Kitts and Nevis

2. Macao, China

5. Taiwan, China

10. Guatemala

15. Somalia

18. Cayman Islands

20. Japan

25. Chile

28. Tajikistan

30. Madagascar

35. Mexico

40. Swaziland

45. Lesotho

50. Dominica

54. PAPUA NEW GUINEA

55. Jamaica

60. Armenia

Large parts of the country are extremely isolated. Most parts of the Highlands were not accessed by outsiders

until the 1930s and many settlements are still inaccessible except by very difficult overland routes. The capital city is

still not connected by road to most of the country and the range of communication, including radio, is extremely limited,

increasing the inhabitants’ vulnerability.

MAJOR NATURAL HAZARDS

Like its neighboring Pacific states, Papua New Guinea is prone to natural-caused disasters including

earthquakes, volcanic eruptions, tsunamis, cyclones, river flooding and coastal erosion, landslides, droughts

and frost. It ranks in the top 6 countries with the highest percentage of population exposed to earthquake hazards and

86 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

has the highest percentage of population exposed to severe volcanic risk. Given its topography, high seismicity and

high annual rainfall, the country ranked highest in terms of landslide hazard profiles according to the World Bank Hotspot

study.

RECENT DISASTERS

In 1994 the capital of East New Britain was rendered non-functional due to a twin-volcanic eruptions from

Tavurvur and Vulcan mountains. As a result, they moved the capital to Kokopo including the airstrip and the resettlement

scheme for the affected population. Between June 1997- February 1998 an El Nino influenced drought affected over

3,158,861 (70%) of the total population surveyed from the nation’s total population of 4.5 million in that year. Most

Papua New Guineans were immensely affected in the areas of food, water, education, economy, health and nutrition,

agriculture and cultural practices. The National Disaster Centre’s conservative estimate can put the total amount

between PNGK81.0 million and PNGK85.0 million was used directly and indirectly for the drought, frost relief efforts by

all concerned stakeholders. A total of eight (8) disease outbreaks reported but sad to admit, the National Department of

Health does not or is not in the position to provide the statistics on deaths directly or associated with drought impact.

In 1998, 3 x 10-15 meter high tsunami waves devastated coastal villages in the Aitape-Sissano coastal area. In 2007,

the island was hit by cyclone Gruba and in 2009, a landslide on a major highway paralyzed trade and transportation.

Around 40 per cent of PNG’s population lives in poverty, that is, on less than US$1 a day, increasing their vulnerability

to natural disasters.

CALAMATIES

Volcanic Activities (4)

Floods (22)

Landslides (22)

Sea Rise (1)

Famine (1)

Earthquakes (4)

Cyclone (1)

Drought & Frost

Disease Outbreak (2)

Hailstorm (3)

Tsunami (1)

Chemical Spill (1)

Kerosene Explosion (1

Total: (63)

Source: PNG NDCen

Examples of cost of disasters in PNG (5 years -1997-2002)

POPULATION AFFECTED

Total Affected

Killed

46,358

480,517

19,707

128

3,227

2,000

221,285

158,780

3,158,861

196

2,259

12,427

3,210

750

4,106,406

3,356

COST (PNGK)

4,058,870

13,709,423

1,090,000

620,000

200,000

18,674,000

4,960,760

85,000,000

250,000

31,000,000

46,000

35,826

K158,844,879

PAPUA NEW GUINEA / 87

Capital

Languages

Independence

Area

Land Use

Government

Population

Port Moresby

English, Tok Pisin, and Motu (official)

16 September 1975 (from the Australian-administered UN trusteeship)

total: 462,840 sq km land: 452,860 sq km water: 9,980 sq km

arable land: 0.49% permanent crops: 1.4% other: 98.11% (2005)

constitutional parliamentary democracy and a Commonwealth realm

6,057,263 (2009 est.)

GDP

$2,200 (2008 est. – per capita)

HDI

149th

Terrain

mostly mountains with coastal lowlands and rolling foothills

Climate

tropical; northwest monsoon (December to March), southeast monsoon (May to October); slight

seasonal temperature variation

Natural resources

gold, copper, silver, natural gas, timber, oil, fisheries

Main development partners

Australia, Japan, EC, New Zealand, the United States, The United Kingdom, the World Bank,

UN agencies, ADB

The World Fact Book, World Bank Country Reports

2. disaster risk management framework

Papua New Guinea was among the first counties to adopt the Hyogo Framework for Action in November

2005, but has been unable to integrate the actions into its national development priorities. The Disaster

Management Plan, in place since 1987, is considered outdated and not 100% relevant to the contemporary best

practices. The current operational document for response management is the 2003 National and Provincial Disaster

and Risk Management Handbook. The Papua New Guinea Disaster Risk Reduction and Disaster Management National

Framework for Action 2005- 2015 is still in draft form and has not yet been adopted by the GoPNG. However various

partners and stakeholders like UNDP (PNG) and the University of Papua New Guinea have been aligning their work

plans and teachings based on this Framework.

The National Disaster Centre (NDC) within the Department of Provincial and Local Government Affairs

was established by an Act of Parliament to coordinate rapid responses to the impacts of natural-caused

disasters. However, the NDC is not fully effective within the government and lacks sufficient budget, human resources

and government backing. The NDC has embraced the whole of hazard approach through the principles of the totality of

disaster management through Disaster Management Cycle where it spells out the importance of before disaster, during

disaster and post disaster management .That was why PNG Mitigation Policy was established in later 2003.

3. activities under the hyogo framework of action

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

THE NATIONAL DRM AGENCY

The national agency responsible for DRM is the National Disaster Centre (NDC) within the Department of

Provincial and Local Government Affairs. The NDC is the implementing arm of the National Disaster Committee.

While the NDC is tasked with coordinating all disaster risk reduction activities, in reality the budget, human resources

88 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

and government commitment to this center are insufficient to undertake risk reduction activities. Members of the

National Disaster Committee include the Commander of the Department of Defense and Police Commissioner and the

department heads for Finance, Defense, Works and Supply Matters, Health, Foreign Affairs and Trade and Provincial and

Local Governments.

Organization Structure of NDC

Secretary

Department of Provincial and Local Government Affairs

Director

National Disaster Centre

Executive Assistant

Assistant Director

Community & Government Liaison

Assistant Director

Risk Management

Logistics and

Communication

Advisor

Source: ADRC

Executive

Officer

Donor

Liaison

Officer

Education/Training

Officer

IT Officer

Research

Officer

A parallel body called the Disaster Management Team has been established by donors and stakeholders and has recently

provided disaster response coordination. The DMT is chaired by UNDP.

DRM LEGISLATION

The Disaster Management Plan has been in place since 1987 and is in need of updating. The current

operational document for response management is the 2003 National and Provincial Disaster and Risk Management

Handbook and the Draft Papua New Guinea Disaster Risk Reduction and Disaster Management National Framework for

Action 2005- 2015.

The National Disaster Management Act of 1984 (amended in 1987) is the country’s DRM law and focuses

only on preparedness and response arrangements during disasters. A National Disaster Mitigation Policy was

prepared and approved by the National Executive Council in November in 2003 and launched in early 2004. The Policy

would have created the National Environment and Disaster Mitigation Authority whose responsibilities would have

included not only disaster management but environment and disaster mitigation as well.

DRM AT THE SUB-NATIONAL LEVEL

The draft National Framework for action cites lack of capacity for disaster risk reduction at the provincial

level. The draft Framework also mentions plans to integrate DRM into provincial level planning and budgeting and include

disaster risk assessments into investment decisions at the community level. The NDM Act provides for the establishment

of Provincial Disaster Committees which should be responsible for preparing emergency plans for the provinces and

coordinate relief operations. UNDP has identified this and an opportunity for action in their future programming.

According to a World Bank draft assessment of DRM in Papua New Guinea, only four of the 19 provinces

have active disaster management arrangements. While there is reasonable awareness among provinces, there is

an extreme shortfall in resources to implement disaster risk management activities at the sub-national level, and focus

PAPUA NEW GUINEA / 89

is solely on response rather than preparedness or mitigation. As well as lack of budgetary resources, there is a lack of

human resource capacity to create sub-national disaster action plans let alone lack of office accommodation in some

provinces including support facilities like communication and office equipment.

DRM IN THE POVERTY REDUCTION STRATEGY

Disaster Risk Reduction is not explicitly identified in the Government Medium Term Development Strategy

(MTDS) 2005-2010 and there are no coordinated disaster risk reduction initiatives in current sector budgets. The

MTDS noted that previous national strategies had failed due to political instability, weak institutional capacity and lack of

ownership and commitment.

DISASTER RISK MANAGEMENT IN THE COUNTRY PARTNERSHIP STRATEGY

The World Bank Interim Strategy note for Papua New Guinea (2005) notes the country’s vulnerability to natural

hazards.

INTERMINISTERIAL INVOLVEMENT IN DRM

The other ministries and agencies which should play a role in DRM include:

• The Department of Mineral Policy and Geohazards Management which is responsible for seismology, volcanology

and geotechnical issues

• The National Weather Service which operates observation networks and provides local forecasting

• The Water Resource Management Branch within the Department of Environment and Conservation which is

responsible for water resources

• Members of the National Disaster Committee, who include the Commander of the Department of Defense and

Police Commissioner and the Departmental heads for Finance, Defense, Works and Supply Matters, Health,

Foreign Affairs and Trade; Provincial and Local Government.

There is reportedly weak coordination amongst agencies on disaster risk reduction and minimal sharing of information.

CLIMATE CHANGE AND DISASTER RISK MANAGEMENT

The agency responsible for climate change adaptation is the Greenhouse unit within the Department of

Environment and Conservation. However, a Climate Change Office is in the process of being established and will

directly report to the Prime Minister’s Office.

HFA Priority # 2: Identify, assess and monitor disaster risks and enhance early warning

NATIONAL, REGIONAL AND LOCAL SECTORAL RISK ASSESSMENTS

While there is significant historical data available, there is a lack of national, regional and local sectoral

risk assessment in Papua New Guinea. There is little government focus on risk and vulnerability assessment and

tools for analysis and monitoring are not available. Papua New Guinea does however have some limited volcanic risk

mapping according to their 2005 reporting on progress made towards commitments under the Hyogo Framework.

EARLY WARNING SYSTEMS AND FORECASTING

The newly-formed Department of Mineral Policy and Geohazards Management (DMPGM) addresses

seismology (9 staff), volcanology (16 staff) and geotechnical issues (7 staff all vacant). The department inherits the policy

and geohazard management functions from the previous Department of Mining following the formation of the Mineral

Resource Authority (MRA) in early in 2008.

90 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

In the mid 80’s there was a seismic network of 16 stations with both seismographs and accelerographs.

The system has gradually run down and is now ineffective according to a recent World Bank assessment study. There

is an EU funding proposal to install 6-10 new seismographs to resurrect a monitoring and assessment capacity. Adding

accelerographs to these proposed installations would provide capacity for identifying potential areas of high impact.

The last major magnitude 8 earthquake was in the New Ireland region in 2000. Parts of New Britain, New Ireland and

Bougainville demonstrate some of the highest seismic hazard potential in the world.

The Geotechnical unit covers landslides and slope stability, erosion (including coastal) and tsunamis. This

unit is severely depleted but makes use of MRA staff for emergency situations. Landslide potential is high over large areas,

given the combination of PNG’s steep mountain ranges, volcanism, high seismicity and high annual rainfall. According to

Geoscience Australia (2008), three of the world’s largest landslides recorded in the last 120 year have occurred in PNG.

In the Highlands area, intensified land use due to increasing population and increasing climate variability are adding to

the problem.

The Papua New Guinea National Weather Service (NWS) sits within the Department of Transport. In recent

years, its staffing has been decreased from 107 positions to 66. The Service operates three observation networks.

There is a network of 14 synoptic weather stations with data continuously contributing to the regional and international

weather systems (including the Pacific Islands Climate Prediction Project) through Melbourne. This network is very

coarse and provides only limited detail for local forecasting. Responses are thus mainly reactive, rather than being based

on predictive information. A rainfall network of 57 gauges is operated through volunteers providing monthly records of 24

hour rainfall. This network used to comprise 1000 stations, but now its usefulness for monitoring rainfall trends across

a country of highly complex terrain is seriously compromised. Finally there is a 4 station synoptic network including

measuring sea level and temperature, as part of the Pacific Island Climate Prediction Programme. There is also a Manus

Island SEAFRAME station for sea level and climate monitoring.

Overall, the NWS feels its monitoring network is falling below a credible level. Staff consider that the existing

data systems are inadequate for detailed trend analyses. They say there is little ability to identify local climate change

trends. Increasing climate variability (the threat of droughts and other extreme events) linked to the annual direction of

the Southern oscillation is becoming a major concern for the Service.

The Water Resource Management Branch (WRMB) sits within the Department for Environment and

Conservation (DEC) and is responsible for the management of national water resources under the

Environment Act 2000. The WRMB undertakes river monitoring and the allocation of ground water resources. The

Branch is not adequately equipped to carry out these functions.

The WRMB reported that over the past 10 years, river monitoring stations have been reduced from 130 stations

to less than 10 and that the national network was effectively closed. In March 2008 only one station on the Ramu

River was fully effective and two stations were to be reopened. Additionally, all four stations on the Laloki catchment were

supposed to be reopened by mid 2008 and a new station is to be constructed on the Goldie River. Some four to six

Representative Regional Stations will be required as part of the Pacific HYCOS project. A hydrological strengthening study

undertaken in the late 1990’s recommended a credible system of 72 stations was required nationally.

Although the historical record of hydrological monitoring in PNG is strong (going back to the 1960’s with an

emphasis on hydro-power project investigation), data digitizing, database development and analysis and

catchment mapping capability is deficient. WRMB reported that flood records have not been analyzed since 1997

and low flow records do not exist to contribute to understanding potential drought conditions.

PAPUA NEW GUINEA / 91

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

EDUCATION AND TRAINING

There are courses on disaster risk reduction and hazard assessment at the University of Papua New Guinea

these courses have not established strong links with the government. Other institutions such as the National

Agriculture Research Institute and the National Fisheries Institute are undertaking climate related hazard work in food

and water security.

AWARENESS RAISING

Fostering public awareness about natural hazards is the responsibility of the National Disaster Awareness

and Preparedness Committee. The committee was formed in 1999 following the lessons learned from 1997/8

drought and the Aitape Tsunami in July 1998 to prepare provincial baseline data, but meetings of the committee have

apparently lapsed recently. A World Bank assessment of disaster risk reduction in Papua New Guinea found the overall

level of awareness about natural hazards was high amongst the departments and provinces. However the study found

there was a general sense that resources and skills available were inadequate to deal with them and little appreciation

that they would impact a sector’s activity or an individual’s “job”.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

ENVIRONMENTAL AND NATURAL RESOURCE MANAGEMENT

The rapidly growing rural population is placing increased stress on land and water resources and

increasing the population’s exposure to hazards. However, the country has adopted the Environmental Act in

2000, which aims to regulate the environmental impact of development and protects national water resources.

LAND USE PLANNING

The Physical Planning Act (1989) administered by the Department of Lands (DOL) provides a strong

enabling tool for managing land use to reduce natural hazard risk. It has the ability to apply to both alienated and

customary land. In fact 97% of PNG land is customary with 3% alienated. The Physical Planning Act has been applied to

just 2% of customary land which is subject to a government lease and on-lease for development purposes. Where land

is subject to physical planning it is a requirement that both environmental and hazard issues be addressed.

A recent World Bank Assessment noted that the mainstreaming of risk reduction into development planning

is not occurring. For example, while land use legislation requires consideration of hazards and environmental impacts,

these inputs are not sought from the government hazard agencies or DEC in national or provincial land-use planning

considerations.

The Department of Works advises that consultants make their own interpretation of design parameters often

without reference to local hazard information. The WRM branch of DEC noted they have not been approached by

infrastructure consultants for hydrological data in the past two years. There are reports of new road developments being

washed out by rainstorms or landslides – even donor funded projects which are specified to be risk and climate proofed.

In the provinces it is reported that design manuals are not used.

92 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

RISK FINANCING

The Disaster Management Act mandates that the Provincial Government will bear the cost of the first

K15,000 (US $5,400) for disaster relief and any amount over K15,000 and up to K100,000 (US $36,220) will

be split between the National and Provincial Governments. Any amounts above K100,000 shall be borne by the

National Government. When reporting on progress made toward commitments under the Hyogo Framework in 2005,

Papua Guinea noted that there was a budget available for disaster risk reduction activities. However, this budget is not

readily available. Most Provinces (Sub-national) have not readily taken the DRM in proactive way to prepare themselves

for the onset of natural calamities because they still regard the DRM as the functions of the National Government. Once

the draft DM Act is reviewed by end 2009, hopefully this should be corrected and the sub-nationals should take leading

roles through planning and budgeting for any minor disaster in the province.

While disaster response appears to be under resourced given the potential economic losses which could

be caused by natural disaster, disaster risk reduction activities have no standing budget at all. Papa New

Guinea was one of the countries covered in the World Bank’s Pacific Catastrophe Risk Financing Initiative Feasibility

Study where they found the worst single year loss in Papua New Guinea was equivalent to 2.7% of the country’s GDP.

EMERGENCY MANAGEMENT

The National Disaster Centre is in charge of emergency response in the country. According to a recent UNDP

study, emergency response capacity is improving in Papua New Guinea and institutional restructuring is underway to

improve the response time and coordination of the Emergency Services. Though there has been some initiatives to

combine the National Disaster Service, the Fire Service and the Ambulance Service under one agency and to have it

come under a proposed National Disaster and Emergency Authority which will sit under the Ministry of Defense, that

initiative has been shelved pending the outcome of the improvement the current PNG disaster management protocols..

The Protocol is now wit the Government to consider.

PAPUA NEW GUINEA / 93

4.key donor engagements

Existing Projects with Donors and International

Financial Institutions

Pacific Catastrophe Risk Pool Feasibility Study (Cook Islands, Fiji, Papua

New Guinea, Samoa, Solomon Islands, Tonga, Tuvalu, Vanuatu )

Sustainable Management Through Reduced Risk from Disasters and

Climate (Fiji, Kiribati, Marshall Islands, Papua New Guinea, Solomon

Islands, Timor-Leste, Vanuatu )

Support for DRM in PNG

Pacific Islands Disaster Assistance Program (PDAP): The Cook Islands, Fiji,

Kiribati, Niue, Palau, Papua New Guinea, Samoa, Solomon Islands, Tonga,

Tuvalu, and Vanuatu , Federated States of Micronesia and the Republic of the

Marshall Islands.

Department of Environmental Conservation (DEC) Capacity Building Project

Disaster Risk Management

EDF 9 B Envelope – Upgrading monitoring and early warning systems

Pacific Islands Climate Prediction Project

(Cook Islands, Fiji, Kiribati, Niue, Samoa, Solomon Islands, Tonga, Tuvalu,

Vanuatu, Papua New Guinea)

South Pacific Sea Level and Climate Monitoring Project (Cook Islands,

Federated States of Micronesia (FSM), Fiji, Kiribati, Marshall Islands, Nauru,

Papua New Guinea (PNG), Samoa, Solomon Islands, Tonga, Tuvalu and

Vanuatu.)

Funding Agency/

International

Partners

World Bank

AUSAID

USAID/OFDA

UNDP

European Union

AUSAID and the

Australian Bureau

of Meteorology

AUSAID

Allocated

Budget and

Period

(US$)

2008 -

present

$400,000

2008 –

present

$1,9 million

2009-2012

US$ 7.4

million

$4,001,756.

1995-present

$300,000

2006-2012

2009

3.2 million

euro

AUS $ 5.5

million

2004 -

present

1991 - 2010

HFA

Activity

Area(s)

1,2,5

2,3,4,5

1, 2, 3,4,5

1,4

1,2,3,4

2,5

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Due to the weak policy and institutional frameworks currently evident in Papua New Guinea, opportunities for investment

have been restricted to those which:

• contribute to reducing actual risk

• contribute to building on existing in-country capacity

• are supported by, or contribute to, or inform sector risk reduction policy frameworks within country priority

activities.

• Have a reasonably strong change of receiving government commitment and partnership

94 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered

for GFDRR funding)

Develop a Coordinated Hazard Policy and Integrated Spatial

Hazard Risk Information and Mapping System for PNG

(National Scale)

Priority activities

(1) Provide (Technical Adviser ( TA) support to hazard departments to:

• Establish a coordinated government policy on the collection and

storage of hazard data, the development of vulnerability, risk and

trend information and it presentation and sharing across sectors for

planning and development purposes

• Assess needs and develop an integrated spatial database with

analysis tools and mapping capability

• Identify requirements and acquire appropriate map and image bases

for hazard mapping and land use management purposes for urban,

rural, coastal and highland applications

• Enter existing and historical datasets across all hazards and develop

initial vulnerability and risk information

• Enhance seismometer network installation (EU funded) with

installation of accelerogram equipment.

Implementing Agency/

International Partners

Min of Mineral Policy and

Geohazards Management

with Geohazards Division,

National Weather

Service, Water Resource

Management Branch,

National Mapping Bureau,

DL&PP, DEC, NDC

NDCen

Indicative

Budget and

Period

(US$)

2009-2011

$550,000

$1,500,000

HFA

Activity

Area(s)

1, 5

Capacity Building on National Disaster Centre & Key agencies

in the areas of:

• Finance Management

• GIS & Remote Sensing Skills for Hazard Mapping & Risk

Management (national scale)

• DRR Trainings for provinces and community based DRR

NARI, DAL, NDCen,

DEC, Geohazard Office,

NMBureau, NS Actors

2, 3, 4, 5

Conduct Hazard Maps, Digitizing and Spatial Information on

Drought, Frost, Coastal Erosion Plus Awareness in view of

Predicted Mega Drought in 2012 (Local Scale embedded into

local planning and regulatory tools)

• Drought Vulnerability Map

• Bush Fire Vulnerability Map

• Water/River catachment Map

• Food Security Information

• Training

• Awareness Information through media and stakeholders

Total budget request

$2,600,000

PAPUA NEW GUINEA / 95

6. bibliography

AUSAID Country Brief Papua New Guinea 2009

Bettencourt, Sofia, Richard Croad, Paul Freeman, John Hay, Roger Jones, Peter King, Padma Lal, Alan Mearns, Geoff

Miller, Idah Pswarayi-Riddihough, Alf Simpson, Nakibae Teuatabo, Ulric Tritz, Maarten Van Aalst ‘Not If, But When:

Adapting to Natural Hazards in the Pacific Island Region’ The World Bank. 2005

Dilley, Max, Robert S. Chen, Uwe Deichmann, Arthur L. Lerner-Lam, and Margaret Arnold ‘Natural Disaster Hotspots; A

Global Risk Analysis’ World Bank 2005

EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium 2009

Framework for Action 2005-2015: An Investment for Sustainable Development in the Pacific Island Countries Disaster

Risk Reduction and Disaster Management; Building the Resilience of Nations and Communities to Disasters.

Hyogo Framework for Action 2005-2015: I S D R International Strategy for Disaster Reduction

Priorities and Action Agenda 2006-2015 Supplementary for Mainstreaming Disaster Risk Reduction and Disaster

Management

IBRD Interim Strategy Note for Papua New Guinea 2005

Sikivou Mosese What do Pacific Developing Member Countries Want from Catastrophe Insurance, Pacific Islands

Applied Geoscience Commission, National Catastrophe Risk Insurance Mechanisms for Asia and the Pacific, November

4-5, 2008, Tokyo, Japan

Papua New Guinea Disaster Management Act 1984

Papua New Guinea Environmental Planning Act 1978

Papua New Guinea Australia Development Cooperation Strategy 2006-2010

UNDP ‘Human Development Index’ 2007

UNDP Gaps and Opportunities for DRM Programming in Papua New Guinea 2009

UNISDR, Living with Risk: A Global Review of Disaster Reduction Initiatives 2002

UNISDR http://www.unisdr.org/eng/mdgs-drr/national-reports/Papua-New-Guinea-report.pdf

The World Bank (Draft) Pacific Catastrophe Risk Financing Initiative 2009

The World Fact Book 2009

The World Bank Draft Country Assessment Report Papua New Guinea

96 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

SOLOMON ISLANDS

To prepare the Country DRM Note, consultations were undertaken

with members of the World Bank?s Pacific team and the Director of

the NDMO, and meetings were held with Ministry of Home Affairs,

Ministry of Environment, Conservation and Meteorology, Ministry

of Mines and Energy, Ministry of Planning and Aide Coordination,

Ministry of Finance, Ministry of Works and Infrastructure, European

Commission, ADB, AusAID, NZAID, UNDP, SOPAC, Red Cross.

The matrix of priority areas and actions for DRM and estimated

budget allocations were discussed and cleared with the NDMO

Director in May 2009 after consultation within Government and with

key donors and partners. There is strong support and ownership and

endorsement by NDMO for the matrix of priority areas and actions.

1. disaster risk profile

The Solomon Islands rank among 20 countries with the highest economic risk exposure to two or more

hazards. With over 992 islands stretching over 1,500 kilometers, this group of mountainous islands with some low lying

coral atolls has just over half a million people.

The Solomon Islands lie East of Papua New Guinea and north of Vanuatu. At its furthest reach, the Santa Cruz

Islands are north of Vanuatu and some 200 kilometers from the closest other island in the Solomon Islands chain.

The Islands are exposed to a wide range of geological, hydrological and climatic hazards, including tropical

cyclones, volcanic eruptions, earthquakes, tsunamis, landslides, floods and droughts. Over the past 30

years there have been six major natural disasters: two earthquakes – one with an associated tsunami – and four tropical

cyclones, directly impacting over 100,000 people with over 100 deaths.

The last disaster was the earthquake and tsunami that occurred on 2 April 2007 centered on the Western

Province and Choisel Provinces. It killed 52 people and damaged or destroyed some 6,000 homes and other

buildings including schools and hospitals. The cost of reconstruction was estimated at around US$100 million or 80%

of the 2006 national recurrent budget.

Heavy rain from 29 January to 2 February 2009 caused extensive flooding in western and eastern parts

of Guadalcanal, impacting a total population of 52,000, displacing an estimated 2,000 people and costing around

US$3m.

SOLOMON ISLANDS / 97

Provinces

Capital

Official Language

Independence

Area

Land Use

Government

Population

GDP

HDI

Terrain

Climate

Natural resources

Major products

Main development donors

World Fact Book, World Bank Country Reports

Honiara

Nine provinces: Guadalcanal, Central, Western, Ysabel, Malaita, Makira, Temotu,

Choiseul, and Rennell & Bellona.

English

July 7 1978 (from UK)

total: 28,450 sq km

land: 27,540 sq km

water: 910 sq km

coastline: 5313 km

arable land: 0.62%

permanent crops: 2.04%

other: 97.34% (2005)

Parliamentary Democracy

595,613

GDP (December 2007): $270 million.

129 out of 177

mostly rugged mountains with some low coral atolls

tropical monsoons; few extremes of temperature and weather

fish, forests, gold, bauxite, phosphates, lead, zinc, nickel

Copra, marine products, and timber. Subsistence activities dominate the lives of 80

percent of Solomon Islanders.

Australia, New Zealand, the EU, Japan, and the Republic of China (Taiwan)

2. activities under the hyogo framework of action

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

The National DRM Agency

The National Disaster Council has the primary responsibility for disaster risk management in the Solomon

Islands. Established by the National Disaster Council Act (1989) and National Disaster Plan (1987), it is supported by

the National Disaster Management Office (NDMO) under the Ministry of Home Affairs. The NDC is currently reviewing the

institutional framework for DRM as they plan to develop a National Action Plan for DRM and Disaster Risk Reduction.

A cross-section of ministries participates in the National Disaster Council: the Police Commissioner, the

Permanent Secretary of the Ministry of Home Affairs, the Ministry of Foreign Affairs, the Ministry of Infrastructure and

Development, the Ministry of Finance and Treasury, the Ministry of Communications and Civil Aviation, the Ministry of

Health and Medical Services, and the Ministry of Provincial Government. Other ministries and agencies can be co-opted

based on the nature of the emergency.

Disaster Risk Reduction needs to be owned by all government agencies rather than a single ministry. The

NDMO has limited ability to coordinate across ministries due to its location in the Ministry of Home Affairs. The Chairman

of the NDC does not report to the Prime Minister but to the Minister of Home Affairs. The proposal for the new National

Disaster Risk Management Plan and Act foresees that the NDC falls directly under the Prime Minister’s office, with the

Chairman reporting to the Prime Minister.

98 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

The country’s disaster risk management framework is currently under review and a new proposal should

be presented to Parliament by November 2009. This new plan and legislation addresses both CCA and DRM and

provides for a broader NDC membership including the Prime Minister’s Office, the Ministry of Development Planning and

Aid Coordination; the Ministry of the Environment, Conservation and Meteorology; The Ministry of Mines and Energy; the

Ministry of Agriculture and Livestock and the Ministry of Women Youth and Children.

The new proposal will establish four NDC Committees: Committees on (1) Disaster Management (lead by the

NDMO), (2) Hazards (lead by the Ministry of Environment, Conservation and Meteorology), (3) Recovery & Rehabilitation

(lead by the Ministry of Devel opment Planning and Aid Coordination), and (4) Risk Reduction (led by the Ministry of

Lands, Housing and Survey).

Legislative Framework

The current legislation does not address risk reduction. The National Disaster Council Act provides the current

institutional framework for Disaster Management (DM). The Act legally supports the creation of a National Disaster Plan.

It also spells out the use of special powers in times of disasters should the need arise. Upon Parliament’s approval of

the National Disaster Risk Management Plan, a National DRM Act will be drafted. The Solomon Islands does not have

sub-national DRM strategies or plans.

A review of the current Act and other potentially relevant legislation took place in 2006. Based on the findings,

the proposed National DRM Plan (and Act) will address current shortcomings such as moving the NDC to the Prime

Minister’s Office, strengthening the institutional structures and ensuring a more coordinated joint Government effort.

The NDC meets quarterly and in response to disasters. In the future, the four proposed Committees should meet

regularly to address their area of responsibility and report to the quarterly NDC meetings.

DRM at the Sub-National Level

The provincial disaster committees are tasked with disaster awareness, preparedness, management and

response activities. In the event of a natural disaster, they are responsible for ex-post response. However, there are no

provincial disaster plans currently in place and arrangements are minimal and lacking accountability.

Interministerial Involvement in DRM

Several key ministries participate in disaster risk management. As mentioned above, the Ministry of Home Affairs

has the primary role for disaster management in the area of preparedness and response; the Meteorological Division (Ministry

of Environment, Conservation and Meteorology) provides climate data; the Geohazards Unit of the Ministry of Mines and

Energy is responsible for data and information on geological hazards; the Water Resources Division of the Ministry of Mines

and Energy provides stream flow data; the Ministry of Agriculture and Livestock is responsible for pest control and the

Ministry of Health and Medical Service has the responsibility for pandemics and is involved in disaster response.

However, effective mechanisms for cross-sector collaboration and cooperation are absent and linkage

between national, provincial and community governance systems are weak. Sector ministries are uncertain

of their roles both before and after disasters and avoid accountability. Structures into communities beyond provincial

government are non-existent except for arrangements for distributing relief. The revised disaster risk management

framework will address all of these shortcomings with increased focus and accountability through the creation of the

four Committees and improved coordination and clarity of roles through explicit structures at the national, provincial and

local levels. To be effective, these institutional structures will need sustained support for implementation over three years

and beyond.

SOLOMON ISLANDS / 99

Climate Change and DRM

The Ministry of Environment, Conservation and Meteorology’s Climate Change Division is responsible for

climate change adaptation (CCA). Cross sector coordination is through the National Advisory Committee on Climate

Change – currently known as the TeCOM (Technical Committee on Climate Change). A policy framework for CCA is

yet to be developed and linkages across government are weak. It is intended that CCA will come within the widened

overview and scope of the new NDC. Currently MECM is only a co-opt member of the NDC. A larger role is foreseen

under the new framework and the MECM will take the lead of the Hazards Committee.

The National Adaptation Programmes of Action (NAPA) was developed in November 2008 and lays out the

following priority adaptation activities: 1) managing the impacts of, and enhancing resilience to, climate change

and sea-level rise in agriculture and food security, water supply and sanitation, human settlements, human health and

education, awareness and information; 2) climate change adaptation on low-lying and artificially built-up islands in Malaita

and Temotu provinces; 3) waste management; 4) coastal protection; 5) fisheries and marine resources; 6) infrastructure

development; and 7) tourism.

HFA Priority # 2: Identify, assess, and monitor disaster risks—and enhance early warning

National, Regional, Local and Sector Risk Assessments

Hazard maps are unavailable at sufficient fine scales for purposes of disaster risk reduction and climate

change and adaptation activities. Flood hazard maps exist for northern Guadalcanal, albeit at a somewhat coarse

scale. National volcanic and landslide hazard maps are not available. While some data exists, a detailed seismic mapping

would require analyses and additional data. However, there is a lack of capacity and tools to carry out data analyses,

hazard mapping and vulnerability and risk assessments.

The existing risk maps do not factor future climate projections and there are no comprehensive community-level risk

assessments or mapping.

The existing observation networks for hazard monitoring are degrading and are inadequate to support ongoing

understanding of the local hazard or changes due to climate change or to support local early warning arrangements.

Early Warning

There are various technical agencies charged with collecting hazard information. Data and information on

geological hazards is produced by the Geohazards Unit (MME), climate data by the Meteorological Division (Ministry of

Environment, Conservation and Meteorology - MECM), and stream flow data by the Water Resources Division (Ministry

of Mines and Energy (MME) – all of which on a national level). The Ministry of Agriculture and Livestock (MSL) monitors

pests, and Ministry of Health and Medical Services (MHMS) pandemics. MHMS is a member of the NDC, the others

are co-opted members. The proposed new framework foresees full membership for all the above ministries, and NDC

committee leadership for MECM on hazards.

Forecasting is linked to the Australian Bureau of Meteorology and Pacific Regional Meteorological Center

in Fiji, which provide the primary source of data.

In case of a cyclone for example, the Meteorological Division receives information from overseas weather

sources in Nadi (Fiji), Brisbane (Australia) and Honolulu (Hawaii/USA) (for Tsunami information, which

is however of limited use for locally generated tsunamis). The Meteorology division informs the Chairman of

the NDC, the Commissioner of Police, the Chief of Marine, the Controller of Aviation and the Chairman of the relevant

100 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Provincial Disaster Committees and Solomon Island Broadcasting Corporation.

NDMO is responsible for the activation of emergency management arrangements, coordinating the

National Disaster Operations and the issuing of public safety messages/evacuation orders through radio

and television. Issuing of cyclone warnings to the public takes place only after the approval of the NDC. The National

Emergency Operation Center contacts the Provincial Disaster Committee, while NDMO directly contacts affected

communities.

A wide range of communications systems are available for disaster information dissemination from the

more sophisticated to community-based methods High frequency (HF) radio transceiver units; VHF transceiver

units; Telephone (urban); facsimile (urban); Internet and email service; Satellite telephone; EMWIN (for warnings to the

Met Service and NDMO), Broadcasting (SIBC; Television broadcasting service) and PFNET rural e-mail services. Apart

from ENWIN these services do not have 24 hour operation. All have limited outreach to rural and remote communities.

There are severe limitations in the ability to get early warnings and information to large parts of the rural community which

makes up 85% of the population. This is also true for livelihood and development information. The lack of an effective

communication network through the approximately 10 000 small rural villages is a major constraint to effective DRM and

risk reduction – as it is also to effective rural development activities across the livelihood and welfare sectors.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

Education and Training

The National Disaster Council runs an annual Disaster and Risk Awareness Campaign through the NDMO

with input from the Meteorological Service, the geohazards and hydrology units of the Ministry of Mines and Energy, the

Ministries of Health and Education, the Police, Search and Rescue and a number of involved NGOs. The program targets

schools, villages and the business sector and addresses hazard information, preparedness and warning arrangements.

However, there is a lack of funding to support this activity.

To be effective programs need to occur in the villages and be followed up year by year. The resources and

local arrangements required are significant to address the around 10 000 villages of the Solomon Islands. In addition,

materials and content need to be developed. Core frameworks need to be developed within which to coordinate NGO

and civil society programs.

DRM is not currently integrated into school curricula. The only education programs with a DRM component is in

School of Nursing, which includes a three-day introduction into DRM for its third year students

HFA Priority # 4: Reduction of the underlying risk factors

Mainstreaming DRR integration into land use, zoning, building codes, location and con-

struction of public infrastructure

Disaster risk management is not yet integrated into the Solomon Islands’ planning and budgeting processes.

There is no mechanism for the mainstreaming of DRM into national and sector policies, plans, legislation and regulations.

If DRM is incorporated in land law, it is not enforced and land use, zoning, building codes, location and construction of

public infrastructure do not take hazards into account.

While recognizing public assets are extremely vulnerable to adverse natural events, key ministries (i.e.

SOLOMON ISLANDS / 101

transport, planning, water resources, etc) have not mainstreamed disaster risk reduction measures into their plans

and new investments. DRM is not mainstreamed into major sector investments (e.g., education, water, environment,

infrastructure, health sectors). The World Bank does not have school, hospital or roads building projects in the Solomon

Islands but disaster risk considerations are incorporated into other new projects such as rural development.

The revised scope and committee structure for the proposed NDC reporting to Cabinet will provide the mechanism to

address these issues but ongoing support for planning, capacity development and implementation at the sector level will

be necessary to achieve sustainable progress on the ground.

Private Sector involvement in DRM

The private sector is involved in response by providing and delivering relief in disaster affected areas.

However, problems with regards to payment mechanisms are a major constraint. There are no public-private partnerships,

nor is there a forum for regular consultation with the private sector on DRM. Irregular private sector engagement takes

place, for example, at the 2007 Post-Tsunami workshop. The private sector was also consulted on the proposal for the

new framework for DRM and provisions for financial management and engagement mechanisms with the private sector

(as well as for other partners) will be included.

Risk Financing Framework

The NDMO has a limited annual budget allocation for both ex-ante and ex-post activities, Financing for

disaster risk management allocation in 2009 was (1) SBD 800.000 (USD $99.400) for awareness, education and risk

reduction and (2) SBD 2M (USD $248,600) for response activities.

If unused, response activity funds cannot be carried over. In case of emergency, the SBD 2M are paid into the

National Disaster Council Fund, which also includes donations, contributions or income from sales of property. Funds

in the NDC Fund that are not required for immediate use do not lapse but are to be invested in securities – with the

exception of the annual appropriation of SBD 2M. There is also a contingency warrant to request funds in cases of

emergency.

There is no government insurance scheme in place for public assets and, common amongst many countries,

the government has no obligations to cover losses to private properties. A World Bank Pacific Islands

Catastrophe risk financing initiative that would cover losses to public and private assets in the pacific islands nations

is under consideration but should await the implementation of the new DRM framework and possibly the completion of

some rigorous assessment of national and strategic assets.

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels.

Emergency Management

The National Emergency Operations Center (NEOC), which falls within the functions of the National Disaster

Council, is in charge of the country’s emergency response. Immediate response is coordinated with the Police

Department but the current National Disaster Plan makes coordination across other agencies difficult. Systems for

assessment, planning and financial management are limited.

The Police and Fire Department includes search and rescue teams but equipment is limited. The presence

of the Regional Assistance Mission to the Solomon Islands (RAMSI) provides another response capability.

Response capacity is often dependent on international support but poor systems make coordination of this

102 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

support difficult and lead to loss of confidence in Government arrangements. The new DRM arrangements are

intended to improve this with explicit structures and accountabilities across government agencies.

Simulation exercises

Disaster simulation exercises are done as part of annual training sessions with Provincial Disaster

Committees. The Solomon Islands participates in the Pacific-wide Tsunami Exercise with communities. A nation-wide

disaster simulation exercise is planned for October/November 2009 to test the new framework as part of the proposal

for a new DRM plan.

Regional Linkages

In part due to its own limited capacity and resources, the Solomon Islands are linked in with a number of

regional facilities. The Meteorological Division receives information from overseas weather sources in Fiji, Australia

and Hawaii. Tide gauges throughout the region give tide measures, pressure, wind speed and direction and sea surface

and are all linked to the Australian National Tidal Facility in Adelaide, which was established as part of the South Pacific

Sea Level and Climate Monitoring Project.

Damage and Loss Assessment

In the past damage and loss assessments have been slow and if not inaccurate then often conflicting,

hampering relief and particularly recovery activities. With nine new Provincial Disaster Officers assessments

teams will be formed and trained as part of the new arrangements. This is a significant commitment by the Government

and on-going support will be needed.

3.key donor engagements

Existing Projects with Donors and International Financial Insti-

tutions

Pacific Catastrophe Risk Pool Feasibility Study (Cook Islands, Fiji,

Papua New Guinea, Samoa, Solomon Islands, Tonga, Tuvalu, Vanuatu )

Sustainable management through reduced risk from disasters and

climate (Fiji, Kiribati, Marshall Islands, Papua New Guinea, Solomon

Islands, Timor-Leste, Vanuatu )

Strengthening the National Disaster Management Office

Strengthening disaster management facilities in the provinces

Community level disaster risk reduction and disaster preparedness

workshop

Disaster Risk Management Advisory Support and Rehabilitation of

Damaged infrastructure

Pacific Islands Climate Change Assistance Program (PICCAP), (Cook

Islands, Federated States of

Micronesia, Fiji, Kiribati, Marshall Islands,

Nauru, Samoa, Solomon Islands, Tuvalu

and Vanuatu)

Funding Agency /

International

Partners

World Bank

AusAID through the

NDMO

The European

Union/provincial

level partners

JICA/provincial level

partners

ADB

SPREP

Allocated

Budget and

Period

(US$)

2008 - present

$400,000

2008 – present

$1,900,000

2005 – 2010:

Aus$2,500,000

1997-present

HFA

Activity

Area(s)

1,2,5

2,3,4,5

1, 2, 3, 4,

1,2,3,4

2,3,4

(Cont.)

SOLOMON ISLANDS / 103

Existing Projects with Donors and International Financial Insti-

tutions

Pacific Islands Disaster Assistance Program (PDAP):. The Cook Islands,

Fiji, Kiribati, Niue, Palau, Papua New Guinea, Samoa, Solomon Islands,

Tonga, Tuvalu, and Vanuatu , Federated States of Micronesia and the

Republic of the Marshall Islands.

Pacific Islands Climate Prediction Project

(Cook Islands, Fiji, Kiribati, Niue, Samoa, Solomon Islands, Tonga, Tuvalu,

Vanuatu, Papua New Guinea)

South Pacific Sea Level and Climate Monitoring Project (Cook Islands,

Federated States of Micronesia (FSM), Fiji, Kiribati, Marshall Islands,

Nauru, Papua New Guinea (PNG), Samoa, Solomon Islands, Tonga,

Tuvalu and Vanuatu.)

Environmental sustainability mainstreamed into regional and national

policies and planning frameworks Federated States of Micronesia, Fiji,

Kiribati, Nauru, Palau, Marshall Islands, Solomon Islands, Tonga, Tuvalu,

Vanuatu);

Funding Agency /

International

Partners

USAID/OFDA

AUSAID and the

Australian Bureau of

Meteorology

AUSAID

UNDP

Allocated

Budget and

Period

(US$)

$4,001,756.

1995-present

AUS $ 5.5

million

2004 - present

1991 - 2010

2008 - 2012

$16,831,000

HFA

Activity

Area(s)

2,5

4.global facility for disaster reduction and recovery (gfdrr):

action plan

As the islands currently lack a disaster risk management strategy and implementation plan, a key activity would be

providing technical assistance to the development of a framework for disaster risk management and developing facilities

whereby this framework can be funded. Both country specific and PIC initiatives must be considered to (i) strengthen

institutional capacity for strategic planning and coordination (ii) integrate disaster risk reduction into all development

planning and (iii) lead towards the next phase of a comprehensive risk finance strategy.

Indicative Program for GFDRR Funding

(Projects and engagement areas being

considered for GFDRR funding)

A. Support the integration of DRM, including

DRR and CCA, in Solomon Is Government

institutions, policies and plans

Priority Activities:

1. Support the implementation of the DRM/CCA

Institutional Framework through the National

Disaster Council (NDC). This could include:

support to NDC Committees and Operational

Clusters at the national, provincial and local levels;

development of policies and arrangements for

integrating DRM/CCA into national, sector and

provincial planning and budget processes.

2. Strengthen DRR/CCA planning and budgeting

capacity of sector specific institutions and develop

DRR/CCA plans within key ministries (Ministries

of Agriculture, Infrastructure, Lands, Women Youth

and Children, Health, Education, Environment, Rural

Development)

Implementing Agency /

International Partners

Prime Minister’s Office

National Disaster Council (NDC)

Ministry of Development Planning and

Aid Coordination

Ministry of Finance and Treasury

NDC Ministries

NDMO

Sector Ministries

International Partners:

AusAID 2009 Au$0.6m

Potential for cooperation and

coordination with donor and NGO

community programs in DRR and CCA

Indicative

Budget and

Period

(US$)

2009 – 2011

2009

US$0.1m

2010

US$0 .2m

2011

US$0 .2m

HFA

Activity

Area(s)

1,2,3,4,5

(Cont.)

104 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Indicative Program for GFDRR Funding

(Projects and engagement areas being

considered for GFDRR funding)

B. Implement DRR activities and pilot

investments in priority sectors and at community

level

Priority activities:

1. Implementation of priority DRR activities in selected

key sectors. Possible activities could include:

improving end-to-end early warning arrangements;

developing and disseminating risk maps, undertaking

provincial and community level DRM programs in

conjunction with NGO and local community groups,

encouraging the private sector in DRR activities and

promoting the sustainable use and management of

ecosystems - including through better regulation of

land-use and development activities to reduce risk

and vulnerabilities.

This activity and the selection of pilot interventions

will depend on the progress under Activity A and

will be coordinated with other donors and partner

institutions.

2. Support the development and implementation of a

wireless broadband communication network across

the 9 provinces to support disaster risk management

arrangements and early warning systems.

Such a network could also support hazard

observation monitoring networks and rural

development, livelihood and welfare sector programs.

The network could comprise up to 7 satellite

receiving stations, microwave spine systems with

local village networks on a village ownership

business model and be installed in association with

technical co-sponsors.

Activities would include: addressing the feasibility

of the technical and business model solutions;

implementing a satellite receiving network with

microwave spine system in three stages; and

progressively establishing local networks through

villages on a local ownership business model.

Implementing Agency /

International Partners

National Disaster Council (NDC)

Ministry of Development Planning and

Aid Coordination

Ministry of Finance and Treasury

Ministry of Communication and

Aviation

Ministry of Environment, Conservation

and Meteorology

Ministry of Rural Development

NDMO

Utility agencies

NGO’s

Private sector

International Partners:

New Zealand based technical co-

sponsor

UNDP

Indicative

Budget and

Period

(US$)

2009 – 2011

HFA

Activity

Area(s)

1, 2,3,4,5

2010

US$0.3m

2011

US$0.6m

2009

US$0.1m

2010

US$0.5m

2011

US$0.1m

(Cont.)

SOLOMON ISLANDS / 105

Indicative Program for GFDRR Funding

(Projects and engagement areas being

considered for GFDRR funding)

C. Strengthen institutional arrangements for

integrated hazard management, including

developing an integrated hazard information

system and progressively upgrading the hazard

observation networks.

Priority activities:

1. Develop a hazards strategic plan and undertake

capacity development within the hazards group

including but not limited to:

mapping of key hazards, development of an

integrated all-hazards information system with

risk and vulnerability tools, undertaking risk and

vulnerability assessments for priority and identified

sector clients

2. Establish minimum requirements for the Solomon

Is observation networks ( particularly for the

meteorological and hydrological monitoring) and

progressively upgrade in conjunction with other

regional programs

D. Develop the Guadalcanal Flood Plain

Management regime and warning system and

associated DM Arrangements

Priority activities

1. Define hazard monitoring regime and floodplain

management plan

2. Install hydrological network and warning system

3. Develop local disaster management arrangements

Total Budget Requested

Implementing Agency /

International Partners

NDC Committees for Hazards and

Risk Reduction

Ministry of Environment, Conservation

and Meteorology

Ministry of Mines and Energy

Ministry of Lands, Housing and Survey

NDMO

International Partners:

UNDP

Regional HYCOS and Meteorological

review programs Melanesian Volcanic

Network initiative.

NDC – Risk Reduction Committee

Ministry of Mines and Energy –

Hydrological Unit

Ministry of Environment, Conservation

and Meteorology

Ministry of Lands, Housing and Survey

NDMO

International Partners:

ADB

Indicative

Budget and

Period

(US$)

2009-2011

2009

US$0.1m

2010

US$0.2m

2011

US$0.2m

2009-2011

2009

US$0.1m

2010

US$0.5m

2011

US$0.1m

US$3.3m

HFA

Activity

Area(s)

1,2,3,4

2,3,4

106 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

VIETNAM

1. disaster risk profile

Located in the tropical monsoon area in South East Asia, Vietnam is

one of the most hazard-prone areas in the Asia Pacific Region.

Because of its topography, Vietnam is susceptible to typhoons,

floods, droughts, sea water intrusion, landslides, forest fires and oc-

casional earthquakes of which typhoons and floods are the most fre-

quent and most devastating hazards. The storm season lasts from May to December with storms hitting the northern

part of the country in May through June and moving gradually south from July to December.

Given the massive concentration of its population along the coastline and in the low lying deltas, disasters

take a heavy toll in lost lives and damaged livelihoods. The encroachment of economic activity and development

into marginally suitable areas such as floodplains, costal swamps, drainage channels or other natural buffers only adds

to the vulnerability of the population.

Household survey data from 2006 confirms the continued reduction of poverty in Vietnam, with the fraction

of households living below the poverty line attaining 16% (Vietnam Development Report 2008). Most of the

poor live in rural areas and while rural poverty rates are declining, urban poverty rates appear to have stagnated. Natural

disasters continually threaten the progress that has been made.

% People Affected by Disaster Type

Flood

59%

Storm

32%

Drought

1,400,000

1,200,000

1,000,000

800,000

600,000

400,000

200,000

Economic Damages by Disaster Type (1000s USD)

Flood

Storm

Drought

VIETNAM / 107

Every year, natural disasters cause an average of 750 deaths, and result in annual economic losses equivalent to

1.5% of GDP. However, damage and loss data is chronically underreported, so real totals may be much higher. As most

of the population is living in low-lying river basins and coastal areas, more than 70% of the population is estimated to be

exposed to risks from multiple natural hazards.

A 2007 assessment of the World Bank listed Vietnam as one of the five worst affected countries by climate

change, as a large proportion of the population, infrastructure and economic production including irrigated

agriculture, is located in costal lowlands and deltas. It appears that a one-meter rise in the sea level would affect

39 of the 64 provinces in six of the eight economic regions of Vietnam. About 20 percent of the communes could be

wholly or partially inundated, with the Mekong River Delta being the most seriously affected area. By one estimate, a

one-meter rise in sea level would affect approximately 5% of Vietnam’s land area, 11% of the population, and 7% of the

agriculture input.

Relative Disaster Frequency

Flood

Typhoon

Inundation

High

Medium

Hail rain/tornado

Drought

Landslide

Flash flood

Fire

Low

Earthquake

Accident (technology)

Frost

Damaging cold

Deforestation

Official Language

Independence

Area

Land Use

Government

Population

GDP

HDI

Terrain

Climate

Natural resources

Major products

Capital

Hanoi

Vietnamese

2 September 1945 (from France)

Total: 329,560 sq km

Land: 325,360 sq km

Water: 4,200 sq km.

Arable land: 20.14%

Permanent crops: 6.93%

Other: 72.93%

Communist state

86,967,524 (July 2009 est.)

$90.88 billion (2008 est.)

1. 105th out of 177 countries (HD Report 2007/2008)

Low, flat delta in south and north; central highlands; hilly,

mountainous in far north and northwest

Tropical in south; monsoonal in north with hot, rainy season and

warm, dry season

Phosphates, coal, manganese, chromate, offshore oil and gas

deposits, forests, hydropower

Agriculture products: paddy rice, coffee, rubber, cotton, tea, pepper,

soybean, cashews, sugar cane, peanuts, bananas, poultry, fish,

seafood.

Industries: food processing, garments, shoes, machine-building,

mining, coal, steel, cement, chemical fertilizer, glass, tires, oil, paper

108 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

EXPOSURE AND VULNERABILITY

An estimated 80 -90 % of the population is affected by typhoons according to the Ministry of Agriculture’s Cen-

tral Committee Flood and Storm Control. This includes both communities living along the long coastline and those living

in the upland areas who are vulnerable to subsequent flashfloods resulting from the typhoons’ heavy rains.

River plain flooding is extensive and prolonged throughout the wet season in the large deltas. Most of

Vietnam’s 2,360 rivers are short and steep, so that heavy rainfall in their basins produces intense, short duration floods.

Sizeable portions of the country and especially the Central Highlands and Central Coast are subject to heavy rainfall.

Three consecutive years of flooding in the Mekong Delta claimed the lives of over 1,000 people, mainly children.

An average of 6-8 typhoons or tropical storms of varying intensity strike Vietnam each year with more frequent oc-

currences in the northern and central coastal region earlier in the season.

In 1997, Typhoon Linda killed over 3,000 people along the southern coast.

RECENT DISASTERS

Vietnam – Major Hazardous Events of the Decade (1999-2008)

Year

2008

Event

Storm

Kammuri

No. of

people

dead

133

No. of

people

injured

No. of

people

missing

Economic loss

(VND billion)

1,939.733

Areas affected

9 North and Central provinces

2007 Storm Lekima

180

2006 Storm

Xangsane

532

3,215.508 17 North and Central provinces

10,401.624 15 Central and Southern provinces in

2005 Storm No. 7

3,509.150 12 North and Central provinces

2004 Storm No. 2

2003 Rains and

floods

298.199

432.471

5 Central provinces

9 Central provinces

2002 Flooding

171

456.831 The Mekong River Delta

2001 Flooding

393

2000 Flash Floods

(July)

1,535.910 The Mekong River Delta

43.917 5 Northern provinces

1999 Floods

595

275

3,773.799

10 Central provinces

Source: CCFSC’s Website, Historical Disaster Database, http://www.ccfsc.org.vn/ndm%2Dp/?module=800&sid=NDMP&mnid=67

2. disaster risk management framework

Vietnam’s primary DRM framework, the National Strategy for Natural Disaster Prevention, Response and

Mitigation to 2020, was approved by the Government in November 2007. The Strategy lays out Vietnam’s primary

disaster risk management objectives, focusing largely on water related disasters. MARD has estimated they will require

a budget of US $18 billion; around US $13 billion for structural measures i.e. building reservoirs, dams, dyke and US

$5 billion for non-structural measures. This figure does not include funds needed by other ministries and provinces to

implement disaster risk reduction action plans.

VIETNAM / 109

The National Strategy’s main objectives are: The integration of disaster risk management into socio-economic

development plans at the national and levels with a focus on disaster response; ensuring sustainable disaster recovery

which integrates disaster risk management; planning five different regional disaster risk management strategies for the

five geographical regions of the country; combining structural and non-structural measures in disaster risk management

and dividing implementation responsibilities and timing for risk reduction among a range of ministries.

Traditionally, Vietnam has focused on preparedness and response with a strong emphasis on structural

measures such as dykes and seawalls. Mitigation activities are slowly entering the development agenda but the

revised strategy still puts disaster preparedness and forecasting as its foremost objectives.

3. activities under the hyogo framework of action

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

THE NATIONAL DRM AGENCY

Vietnam’s national disaster risk management agency, the Committee Flood and Storm Control, is chaired by

the Minister of MARD. Established by decree 1990, it formulates all flood and typhoon related policies and mitigation

measures, with the Office of Government, the Ministry of Agriculture and the Ministry of Defense as its key members. Its

secretariat is provided by the Department of Dyke Management and Flood Control (DDMFC) of the Ministry of Agricul-

ture and Rural Development (MARD).

The CCFSC tends to convene primarily in response to natural disasters although Vietnam is making the

shift from a largely reactive to an increasingly proactive approach to disaster risk management. While

the CCFSC is responsible for a broad range of disaster risk reduction activities, its ability to focus on and coordinate

response among a wider range of ministries is limited due to its position within the Ministry of Agriculture and Rural

Development.

DRM LEGISLATION

Vietnam does not have a DRM law. The National Strategy for Natural Disaster Prevention, Response and Mitigation

to 2020 is the key document underpinning all disaster risk reduction policy and strategy. There are ongoing discussions

about drafting a disaster risk management law and this is planned as an activity in MARD’s new action plan and in the

newly-launched UNDP program on disaster risk reduction.

Disaster risk management policy is addressed in several additional Vietnamese laws and decrees.

• The Law on Water Resources promulgated in May 1998 governs water usage and the prevention of water

related disasters

• The Ordinance on Flood and Storm Control promulgated in March 1993 amended and revised in August 2000

formally created the existing institutional structure

• the Law on Dyke promulgated in November 2006 regulates the planning of flood prevention and response in

flood prone areas1

• The Environment Protection Law (1998) governs the use of natural resources as a means to prevent natural

disasters.

1 Available only in Vietnamese at www.ccfsc.org.vn/ndm-p

110 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

GOVERNMENT

Central Steering Committee for Flood and Storm Control - Vietnam (CCFSC)

Provincial Committees

for Flood and Storm

Control and Search

And Rescue

(64 provinces and cities)

Government Office

Vice Chairman

Ministry of

Agriculture and Rural

Development (MARD)

Chairman

Ministry of Defense

Vice Chairman

District Committees

for Flood and Storm

Control and Search

And Rescue

Ministry of

Planning and

Investment

Member

Ministry of

Finance

Member

Ministry of

Natural Resources

And Environment

Member

Ministry of

Fisheries

Member

Ministry of

Transportation

Member

Commune Committees

for Flood and Storm

Control and Search

And Rescue

Ministry of

Labor, Invalid

and Social Affairs

Member

Ministry of

Foreign Affairs

Member

Ministry of

Science and

Technology

Member

Ministry of

Construction

Member

Ministry of

Health

Member

Ministry of

Labor, Invalid

and Social Affairs

Member

Source: CCFSC

Ministry

of Industry

Member

Ministry

of Tele-

communication

Member

Viet Nam

Red Cross

Member

Viet Nam

Television

Member

Voice

Vietnam

Member

Other legislative instruments which incorporate disaster risk management elements are

• The Law on Forest Development and Protection2

• The 2003 Law on Fisheries3

• The Ordinance on Irrigation Structures Utilization and Protection4

• The Ordinance on Hydro-meteorological Structures Protection5

DDMFC

Member

NHMC

Member

LEGISLATIVE AND ORGANIZATIONAL GAPS

Legislation related to natural disasters is prolific—in spite of the lack of an explicit DRM law—but enforce-

ment is erratic. Much of the existing legislation lacks clear institutional arrangements for enforcement and the current

organizational structures, mandates, annual budget earmarks and working agenda focus largely on disaster response

rather than prevention. There is no professional and specialized cadre of staff who focus on disaster management. In-

stead, it is managed in an ‘as-needed’ basis, part-time, by staff of the agriculture and rural development sector, mainly

under the irrigation and dyke management sub-sectors. Some of these gaps have been addressed in the on-going World

Bank Financed Natural Disaster Risk Mitigation project and the new UNDP/One UN program.

2 Available only in Vietnamese at http://www.nea.gov.vn/luat/toanvan/Luat_BVPT_Rung.html

3 Available only in Vietnamese at http://www.nea.gov.vn/luat/toanvan/Luat_Thuysan.html

4 http://www.vncold.vn/Web/Content.aspx?distid=415

5 http://www.kttvqg.gov.vn/Default.aspx?tabid=12

VIETNAM / 111

DRM AT THE SUB-NATIONAL LEVEL

Line ministries, provinces and districts are responsible for disaster risk management planning, creating

both vertical and horizontal reporting structures. The Ordinance on Flood and Storm Control mandates the cre-

ation of provincial and other sub-national disaster risk management strategies and plans and has subordinate provincial

and district Committees for Flood and Storm Control.

All 64 provinces and cities of Vietnam are tasked with developing their own action plans to implement the

National Strategy up to 2020. As of March 2009, approximately 90% of provinces created and approved their own

action plans for incorporation into the National Action Plan. While actual implementation and funding for these action

plans varies widely from province to province, the sheer number of provinces which have undertaken the first steps in

this exercise is commendable.

Disaster risk management activities are coordinated across ministries at the national level though the

work of the CCFSC, but at the provincial and lower level, reporting is both vertical and horizontal, through

line ministries and local committees for Storm and Flood Control. For example, while a wide range of minis-

tries belong to and participate in the Central Committee Flood and Storm Control, at the provincial level, the provincial

department of construction would report upwards to the national Ministry of Construction in parallel to the Provincial

Committees for Storm and Flood Control.

DRM IN THE POVERTY REDUCTION STRATEGY

Disaster risk management is integrated into Vietnam’s Poverty Reduction Strategy and Country Develop-

ment Plans, although implementation remains uneven. Within Vietnam’s Socio-Economic Development Plan

2006-2010, the Government of Vietnam has stipulated it will halve the number of poor people falling back into poverty

due to natural disasters by 2010 as one of its primary indicators6. This is a good first start, but there is room for increased

integration of risk reduction into all levels of development planning.

DISASTER RISK MANAGEMENT IN THE COUNTRY PARTNERSHIP STRATEGY

The Vietnam Country Partnership Strategy 2007-2011 contains the following disaster risk reduction bench-

marks: “Strategy and action plan for DRM approval; 1.) Targeted communities and populations reporting improved early

warning for storms and floods; 2.) Flood forecasting with 80% preciseness on the Red River 48 hours in advance, in the

Mekong River 3-5 days in advance, and 3.) Feasibility of agricultural flood-index based insurance tested for scale-up.”

INTERMINISTERIAL INVOLVEMENT IN DRM

A wide range of government agencies and ministries are involved in disaster risk management. The National

Committee for Search and Rescue (NCSR) is responsible for search, rescue and emergency relief during and after di-

sasters; The Fatherland Front and Red Cross Society are charged with receiving and distributing emergency relief dona-

tions; The Ministry of Natural Resources and Environment (MONRE) and Geophysics Institute of Vietnam Academy of

Science and Technology are charged with disaster warning and forecasting; the Voice of Viet Nam (VOV) and Vietnam

Television (VTV) are responsible for disseminating disaster warning and forecast to the public; The Ministry of Finance

(MOF) is responsible for allocating and releasing emergency response funds and other recourses in order to meet post-

disaster needs; The Ministry of Health (MOH) is responsible for post-disaster environment health needs; The Ministry

of Transportation (MOT) is responsible for traffic safety and rehabilitation during and after disasters; The Ministry of

Post and Telecommunication is responsible for rehabilitating communication systems ex-poste; The Ministry of Labour,

Invalids and Social Affairs (MOLISA) is charged with setting disaster compensation policies; The Ministry of Industry is

6Reporting on progress made on this indicator was not available as of April 2009.

112 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

responsible for managing reservoirs in and hydro power plants; The Ministry of Foreign Affairs is responsible for disaster

related international cooperation issues. The above is not an exhaustive list, but all are members of the CCFSC.

CLIMATE CHANGE AND DISASTER RISK MANAGEMENT

The Government of Vietnam approved its National Target Program (NTP) to respond to climate change in

December 2008. The National Target Program steering committee is led by the Ministry of Natural Resources and the

Environment, with the participation of key ministries such as the Ministries of Agriculture, Transportation, and Construc-

tion. This committee cooperates and coordinates fairly well with the national disaster agency, in part due to their own

initiative, in part to external donor pressure. Both ministries participate in DRM and climate change steering committees

and are working together to ensure that their strategies are complimentary.

HFA Priority # 2: Identify, assess and monitor disaster risks and enhance early warning

NATIONAL, REIONAL AND LOCAL SECTORAL RISK ASSESSMENTS

While limited national hazard mapping exists with a primary focus on water related events, there is little if

any comprehensive risk mapping in Vietnam. Where hazard data exists, there is often insufficient exposure data.

Historically, the hazard mapping data that exists is held by different agencies and where detailed maps ex-

ist, considered sensitive by the government and not widely disseminated. There are three larger scale hazard

mapping projects but two of these projects (tsunami and drought mapping) have experienced considerable delays.

For example, where detailed flood maps exist at the provincial level, they are often not factored into new

development plans. No institution, including the Committee Flood and Storm Control, has the mandate to ensure risk

maps are taken into consideration.

Donor and NGO projects have sponsored ad hoc provincial and community level risk assessments. An

OFDA/UNDP 2003 mapping project created high resolution risk maps for eight provinces in central Vietnam. However

limited field survey data produced risk maps that were subsequently never used by most participating provinces and the

map distribution extremely limited. Community level risk mapping have been undertaken in some other projects, but data

quality is not sufficiently detailed to be of use for national level risk maps.

There is however, a high level of awareness about Vietnam’s exposure to natural hazards at both the na-

tional, provincial and commune level when related to annual river based flooding rather than floods as-

sociated with tropical cyclones. Communities living along the low lying Mekong Delta areas have experienced floods

for generations, and the government has developed a program of “living with floods.”

At some point in the future, the government should strong consider an integrated national disaster and

hazards data and mapping system as a first step to obtaining reliable data on the scale of economic ac-

tivities at risk from natural hazards. Currently MONRE’s Institute of Hydro-met and Environment has three hazard

mapping projects underway.

Project

Flash flood risk mapping at district level and 1:200.000

scale for selected mountainous provinces

Tsunami risk mapping for coastal areas

Drought hazard mapping for the Highlands and Southern

Central provinces

INDICATORS ON DISASTER RISK MANAGEMENT

Budget (USD)

$1.02 million

$384,000

$395,000

Timeframe

2006-2009

2006-2008

(not completed)

2006-2008

(not completed)

VIETNAM / 113

There shortage of data, tools and capacity to quantify natural hazard risks and to interpret them in a man-

ner which allows risk reduction to be integrated explicitly into development planning and decision-making.

Vietnam lacks a system of disaster risk and vulnerability indicators at national and sub-national scales that will enable

decision-makers to assess the impact of disasters on social, economic and environmental conditions and disseminate

the results to decision makers, the public and populations at risk.

EARLY WARNING SYSTEMS

Disaster risk management coordination is strongest, in Vietnam, for hydromet disasters. When storms ap-

proach over the South China Sea, they are monitored by the Geophysics Institute and the Central Hydro-metrological

Center, which produce forecast bulletins every two hours on the approaching event. The bulletins are immediately and

simultaneously sent to Vietnam Television/ Voice of Vietnam and the Maritime Broadcasting System for broadcasting

nation-wide, to the Department of Dike Management and Flood Control, which is the Standing Office of the Central Com-

mittee for Flood and Storm Control, and uploaded on the Center’s website for external reference. The DDMFC, based

on information received from the National Hydro-met Center, convenes meetings of the CCFSC.

Depending on the severity of the disaster, the CCFSC will be chaired by the Minister of MARD or the Deputy

Prime Minister/Prime Minister. Its other core members, the National Committee for Search and Rescue, MOT,

MOH, VTV, VOV and others participate based on the scale and requirements of the event.

When a storm is incoming or following a natural disaster, the CCFSC convenes once a day, or more fre-

quently if necessary. It prepares directive telegraphs which are dispatched to relevant ministries and localities af-

fected by the disaster, asking for appropriate actions i.e. population evacuation, return of fishing boats, securing critical

assets, etc. These directives are also broadcast through VTV and VOV nation-wide.

MONRE is the state agency charged with hazard monitoring through its Department of Hydro-meteorology

Central Hydro-

Meterological

Forecasting

Center

Delivery of hydro-meeterological forecasts and warnings

Telephone, Fax

Government agencies, CCFSC

Media

International centers

GTS

Web: nchmf.gov.vn

GTS, Maritime Broadcasting Radio,

Internal Hydro-Met. radio

Fishing boats

Regional

Hydro-Met.

Specialized services

Media

Provincial forecasting centers

Source: MONRE

Telephone, Fax

Local government

Media

114 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

and Climate Change. The tasks of weather forecasting (mainly hydrological and metrological phenomena) observa-

tions and issuing early warning sits with the National Center of Hydro-meteorology which has networks at the regional

and provincial levels. The National Center of Hydro-meteorology is a member of CCFSC, responsible for providing early

warning and forecasts for the CCFSC’s action.

FORECASTING

Vietnam has nine regional hydro-met forecasting centers, 54 provincial hydro-met forecasting centers, and the following

observation station networks:

Description

Surface meteorological station

Rain gauge sites

Hydrological station

Marine meteorological station

Radio stations

Weather radar stations

Wind-gauge by theodolite

Ozone and UV stations

Weather radars

Radiation

Quantity

174

764

248

Insufficient coverage and distribution of the observation centers as well as outdated equipment is cited by

the national hydro- meteorology centers as an impediment to accurate forecasting. It is not only a problem of

equipment. Were more modern equipment in place, it would still need to be accompanied by a comprehensive human

resource development program.

DATA SHARING

Vietnam has linkages to numerous regional and international climate forecasting centers including. It has been a mem-

ber of the WMO since 1955 and is participating in the Regional Association II (Asia). Vietnam also participates in the

UNESCAP/WMO Typhoon Committee (member since 1979, TC chair: 2006-2007), the ASEAN SCMG (member since

1995), the Mekong River Commission (member since 1957; signed the Agreement on the cooperation for the sustain-

able development of the Mekong river basin in 1995), the North-west Pacific Tsunami Advisory Center (NWPTA), Japan,

the Pacific Tsunami Warning Center (PTWC).

Vietnam has a number of bilateral forecasting agreements, including agreements with: China: (since 1993): exchange of

weather forecast expertise, instrumentation in calibration, communication using PCVSAT, research, training; the United

States: (since 2001) for technology transfer (NWSRFS, ETA models), training: Asia Pacific Desk, AMS annual meetings,

training courses in Vietnam and US; Australia: (since 2002) for technology transfer, training; Lao PDR for technology

transfer: providing Data receiving, processing and plotting systems; 6 meteorological and hydrological stations to DMH,

training; Cambodia; Japan (GAME, SOWER/Pacific, MAHASRI); ADPC (Multi-hazard early warning system, application

of climate information and prediction) and APEC (APEC Climate Center).

COMMUNICATIONS

Vietnam’s communications system is relatively developed and functional before and after disasters. Viet-

nam has a telephone and fax hotline which connects the meteorological service with the CCFSC, the NCSAR, and the

VOV/VTV in the event of emergencies. The CCFSC is also connected via phone and fax with the Standing Offices for

VIETNAM / 115

Flood and Storm Control which is often housed in the Department of Agriculture in the provinces. They also make use

of village/neighborhood speaker systems to broadcast warnings at the community level.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

EDUCATION AND TRAINING

Increasing community awareness about disaster risk reduction is undertaken primarily though donor-fund-

ed projects rather than through the Government of Vietnam, although the two work in close cooperation.

Vietnam runs natural disaster awareness raising pieces on its state-run television and radio stations and NGOs sponsor

community events on disaster risk management.

Scaling up its Community based Disaster Risk Management program is a main priority for Vietnam in the

next decade. As a part of their CBDRM programs, they plan to train all staff at central, provincial and commune level on

disaster risk management, establish disaster risk management centers at the province level and engage in a large-scale

community awareness raising programs. Support for this activity is being requested from a wide range of donors.

The National Strategy for DRM up to 2020 has a component on integrating disaster risk reduction into

school curricula. While not yet on the curricula, it is acknowledged as an important area with several NGOs already

working on pilot programs.

INFROMATION MANAGEMENT AND EXCHANGE

Vietnam has several academic research institutions designated to studying different hazards. The Institute

of Hydro-Meteorology studies flood and storms, the Institute of Geography focuses on geo-hazards and the Institute of

Geophysics is in charge of studying and providing warnings about earthquakes and tsunamis.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulner-

ability and increase of resilience)

ENVIRONMENTAL AND NATURAL RESOURCE MANAGEMENT

Mangrove forests, which have traditionally provided a barrier against flooding and seawater intrusion,

have steadily been decreasing in acreage as Vietnam’s population expands. However, the government has

been making a concerted effort at mangrove reforestation as well as passed appropriate legislation (such as the Law on

Forest Protection) to reforest vulnerable areas and encourage the sustainable use and management of ecosystems. They

have also offered advice and financial assistance to communities who use adaptive special plants in flood-prone areas.

LAND USE PLANNING

Land use planning incorporates some risk reduction policies but exposure to natural hazards is inconsis-

tently taken into consideration. For example, while new developments must factor in earthquake and other hazards,

a site’s location in an area prone to flash flooding will not necessarily preclude major development. Increasing provincial

level awareness about factoring natural disasters into land use planning is a priority for sustainable development.

Vietnam’s building codes factor in certain natural hazards (for example, typhoons, earthquakes, sea level

rise, wind loading) but their enforcement varies widely from province to province. While construction codes

are stringent about earthquake resilience, flood resistance for buildings is more loosely enforced. In the highly storm and

flood prone provinces of Quang Nam, for example, approval is contingent on considering the impact of a wide range of

116 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

natural hazards. In other equally hazard-prone provinces, this is not compulsory. Instead, it is frequently dependant on

the level of awareness of the particular province, investor or developers and their interest in safeguarding their develop-

ment. Pre-construction environmental impact assessments sometimes consider flooding as a factor. The existing build-

ing codes mainly apply for major public works. There is almost no enforcement of the building codes in construction of

private housing.

SOCIAL AND ECONOMIC DEVELOPMENT PRACTICE

Households living in disaster prone areas have been active in diversifying their income sources so as to

reduce risk (Vietnam Development Report 2008). By correlating daily rainfall data from 172 weather stations with

household survey data, it appears that farmers in higher rainfall areas facing more volatile conditions areas diversifying

their labor inputs more to safeguard their assets against risk (i.e. not relying on only crops but on crops and livestock).

But they do not self-insure by accumulating livestock or asset holding. The Vietnam Development Report also suggests

that farmers in these disaster prone areas have fewer diversification options, perhaps because they do not have good

access to land or credit.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

RISK FINANCING

Most budgetary allocations in Vietnam are intended for response. Three percent of both the central and prov-

ince level budgets are allocated for response contingent funds. These funds cannot be carried over from year to year and

are in principal, supposed to be returned to the state budget. They are rarely used for mitigation activities, but frequently

spent each year. There is an annual budget line at central and province level for both the relocation of people living in

high risk areas and for the maintenance of the dyke systems.

Under the Ordinance on Flood and Storm Control, the Vietnamese Government is responsible for losses to

public assets caused by natural disasters. There is also limited compensation for private assets, housing and livestock

(but, as in most countries, insufficient to cover the entire loss). Vietnam does not have a disaster insurance scheme in place.

Currently, MOF and MARD are considering a pilot agricultural insurance scheme which will be submitted to the Govern-

ment by end of June 2009. The World Bank is also undertaking an initial study about risk transfer instruments currently in

place in Vietnam.

When a disaster is declared, provinces use their contingency fund and may later ask the state for reim-

bursement if damage is in excess of the provincial contingent fund. They are also reliant on funds from line

ministries. Funds are usually transferred from state to provincial treasuries for expenditure at the local level.

There is no comprehensive data available for total disaster relief expenditure nor origin of these funds. Post

disaster funding is a complex web of state and provincial budging, line ministry reallocations, donors’ funds outside the

annual line items, private companies and individuals who donate through the mass organizations such as the Fatherland

Front. The CCFSC tries to track funding data on its website.

DAMAGE AND LOSS ASSESSMENTS

Following a natural disaster, key ministries (usually the Ministries of Agriculture, Transportation and Health)

send missions to the worst affected areas to investigate the situation and direct their respective sectors

on appropriate response and recovery actions. The DDMFC receives and consolidates damage data from local

levels on a daily basis following a natural disaster. The consolidated data is sent to the CCFSC/Prime Minister for the

VIETNAM / 117

Government’s decision on the level of support provided to the affected areas. Following the initial disaster and damage

reports, the Ministry of Finance allocates budget support from the State Treasury to provincial Treasuries in accordance

to the Government’s decision.

The broader socio-economic impacts of disasters are acknowledged by the government. But the Govern-

ment’s damage and loss assessments can be inconsistent across sectors and provinces and total loss

figures difficult to substantiate. Damage reported by communes – for instance to housing - may be in excess of

government assistance allowances and so revised downwards to match available funds. Available norms for valuing

damages – as in many countries - do not take loss into consideration and may significantly underestimate the total impact

of natural hazards. Nevertheless, the government does send out teams from central ministries to assess damages in

major sectors as well as relied on commune and provincial damage estimates.

EMERGENCY MANAGEMENT

Vietnam has a central, provincial, district and commune level emergency response plans for storms and

floods which are reviewed and updated annually. Vietnam is particularly strong at evacuations pre-storm and has

moved up to half a million people from the coastline within the space of a few hours.

Search and Rescue is embedded in the Ministry of Defense and its garrisons around the country. Responsi-

bility falls under the National Committee for Search and Rescue located in and led by Ministry of Defense and composing

of a number of relevant ministries such as the ministries of transportation, health, agriculture and rural development.

The National Committee for Search and Rescue has three ‘Centers of Sea Search and Rescue’, three ‘Cen-

ters for Oil Spill Response’ and a number of emergency units at military airports. There is interest on behalf of

the government in improving its search and rescue capacity, particularly in terms of training and equipment. At present,

following a natural disaster, locally based army garrisons are mobilized, often young soldiers with-no professional skills

for search and rescue. As a part of its effort to strengthen key technical capacity across the sector, Vietnam would like to

focus on improving the capacity of its search and rescue cadre.

4.key donor engagements

Existing Projects with Donors and

International Financial Institutions

Natural Disaster Risk Mitigation Program involves prevention and

mitigation investments, community based disaster risk management, post-

disaster reconstruction support and institutional strengthening.

Hazard Risk Management Institutional Development Advocacy and

Capacity Building Program provides technical assistance for capacity

building in risk finance, CBDRM, urban drainage designs, climate resilient

cities, and integration of DRM into poverty reduction activity.(* see chart

below for additional details)

Emergency Rehabilitation of Calamity Damage Project for a rapid

resumption of livelihoods and reduction of vulnerability to natural disasters

in the affected areas (primarily infrastructure repair).

Funding Agency /

International

Partners

World Bank,

Netherlands, Japan

and AusAID

GFDRR

ADB

Allocated

Budget and

Period

(US$)

$110 million

$914,000

$76 million

HFA Activity

Area(s)

1, 2, 3, 4, 5

1,3,4,5

4,5

(Cont.)

118 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Existing Projects with Donors and

International Financial Institutions

Strengthening Institutional Capacity for Disaster Risk Management in

Vietnam, including Climate Change related disasters program provides

institutional capacity building TA for DRM and climate change related

issues in Vietnam.

-Supporting evidence-based national and local Disaster Risk

Management legislation, strategies and policies and plans developed,

approved and integrated in socio-economic and sectoral strategies and

plans.

-Strengthening Institutional systems and processes to enhance

coordinated and integrated DRR actions and adaptation to global

climate change, at national and provincial level.

-Strengthening national and local capacities to minimize the adverse

social, economic and environmental impacts of climate-related disasters.

Program for Hydrometeorological Risk Mitigation in Asian Cities

(PROMISE): (Chittagong, Bangladesh; Hyderabad, Pakistan; Dagupan

City, the Philippines; Kalutara, Sri Lanka; and Da Nang, Vietnam,

Semarang in Indonesia)

Asia Flood Network (AFN): (Cambodia, China, Laos, Thailand, and

Vietnam in the Mekong river basin and Bangladesh, India, Nepal, and

Pakistan in the Ganges-Brahmaputra-Megna )

Drought Preparedness in Southeast Asia: (Cambodia, East Timor, and

Vietnam.)

Project for Building Disaster Resilient Societies in Central Region of

Vietnam supports storm and flood mitigation infrastructure works in the

three central provinces of Quang Ngai, Thua Thien Hue and Quang Nam.

Joint Advocacy Network Initiative(JANI – formerly Dani) program

works to improve the effectiveness of Community-based Disaster Risk

Management (CBDRM) in Vietnam

Capacity Building for Mitigation and Adaptation of Geodisasters

Related to Environment and Energy Development in Vietnam project

aims to building capacities for Vietnamese experts in the areas of

geodisaster adaptation and mitigation.

Community Based Disaster management in the Mekong Delta/

Mountainous areas

Mangrove Plantation, disaster preparedness and climate change

Funding Agency /

International

Partners

UNDP/One UN

Allocated

Budget and

Period

(US$)

$4.5 million

USAID/OFDA

$1,855,286

2005-present

USAID/OFDA

$2,579,927

USAID/OFDA

JICA

$1,200,000.

$4.5 million

ECHO

Norway

$2.2 million

Oxfam UK/Hong

Kong

Vietnam Red Cross

HFA Activity

Area(s)

1,2,3,4,5

1,2,3,4

2,3

1,2,3,4,5

1, 2, 3, 5

2,3,4,5

2,3,4

Ongoing GFDRR Activities

(Current GFDRR Portfolio)

Study on existing transfer activities

Study on drainage system for coastal cities

Climate resilient cities, pilot in Ha Noi,

Can Tho and Dong Hoi

Documentaries to promote CBDRM

DRM integration into the Bank’s poverty

reduction project

Capacity support to DRR and CCA

Budget

(years covered)

165k

154k

320k

HFA Activity Area(s)

HFA Priority #4: Reduction of the underlying risk factors

65k

110k

HFA Priority #3: Use knowledge, innovation and education

to build a culture of safety and resilience at all levels

HFA Priority #4: Reduction of the underlying risk factors

68k

VIETNAM / 119

5.global facility for disaster reduction and recovery (gfdrr):

action plan

By putting forth the National Strategy and National Action Plan, the Government has shown a strong interest in mov-

ing forward with the DRM agenda. Vietnam currently has a $110 million IDA program. Although DRM is a priority for

the government, lessons learned from this activity show there is extremely weak capacity for client implementation so

Bank execution is proposed for much of the next round of GFDRR grants. Moreover, there is a strong need to integrate

DRM into many of Vietnam’s new investment projects. The Government has proposed integrating DRM into its socio-

economic planning and, in partnership, the World Bank Hanoi would like to integrate DRM into its upcoming and existing

projects.

The areas proposed have been identified in consultation with local authorities and reflect HFA priories. They will build

on activities started in the first round of GFDRR programming (such as expanding support for CBDRM and undertak-

ing a more broad reaching risk finance strategy) and will contribute to the development of the future lending program in

Vietnam.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for

GFDRR funding)

I Integration of Disaster Risk Reduction into Pipeline

World Bank projects in Vietnam

Priority activities:

1.Identification of pipeline projects suitable for DRM integration

2. Mainstreaming disaster reduction activities (structural

improvement and non structural activities such as assessments,

awareness raising etc) and into upcoming projects such as

roads, schools, hospitals, the Northern Mountains program etc.

during the preparation phase

3. Developing guidelines for a detailed disaster risk assessment

checklist for future Vietnam projects

4. Integration of DRR into upcoming and existing CAA Activities

4. Preparation of the next IDA lending program for Disaster Risk

Reduction in Vietnam which is expected to get on board in FY

2012.

II Risk Financing Options – Supporting the Development

of Vietnam’s Strategy

Priority activities:

1.Identification and assessment of catastrophe risks (e.g. wind,

earthquake, flood),

2. Collection of relevant existing hazard, vulnerability and exposure

data

3. Support development of a catastrophe risk finance model for

Vietnam that would allow for risk transfer and risk sharing

mechanisms

4. Support development of draft legislation and regulations that

would allow implementation if such a scheme in Vietnam.

5. Explore development of supplemental multi-hazard risk maps

6.Strengthen Ministry of Finance and National Planning capacity

for understanding and bringing a focus to this issue

7. Establishment of an umbrella contingent component for the

Bank’s investment projects that can be mobilized for disaster

recovery

Implementing Agency

/International

Partners

WBOH

Ministry of Finance,

Ministry of Agriculture

and Rural Development

Indicative

Budget and

Period

(US$)

2009-2011

$2 million

2009-2011

$3 million

HFA Activity

Area(s)

1,2,3,4,5

(Cont.)

120 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for

GFDRR funding)

III Support Vietnam’s NAP Implementation

Priority activitie may includes

1.In close coordination with other donors, provide TA for the

preparation of the National Action Plan to implement the

National Strategy on DRM

2. Support sub national DRM structures, in coordination with

UNDP, including both establishment of centers and staff

capacity building

3. Update and developing risk maps and related information in

conjunction with activity II

4. Support Vietnam’s planned national DRM training and

awareness raising activities

5. Improving development and enforcement of building codes

which incorporate disaster risk reduction measuress

IV Strengthen the hydrological and meteorological

capability for Vietnam

Priority activities

1.Review the meteorological and hydrological observational

networks, data collection, processing and information

dissemination systems.

2. Based on identified gaps and establish requirements for

effective meteorological and hydrological monitoring, forecasting

and end-to-end warning system and service delivery, at the same

time addressing hazard management and climate change needs.

3.Review and develop institutional arrangements to support a

sustainable level of service

4.Implement institutional and sustainable service arrangements.

5.Design and implement systems support purchase of and tools

to support regular meteorological and hydrological monitoring,

forecasting, end-to-end warning and effective service delivery.

6.Enhance the climate database and operational systems for

effective climate change monitoring, prediction and evaluation.

7.Identify skills gap and assist with training and capacity building.

Implementing Agency

/International

Partners

WBOH

Central Committee for

flood and Storm Control,

MONRE, Provincial

authorities

MONRE, Department

of Hydro-meteorology

and Climate Change,

National Center of

Hydro-meteorology

Indicative

Budget and

Period

(US$)

2009 -2011

$6 million

2009-2011

$3.9 million

HFA Activity

Area(s)

1,2,3,4,5

Support to program monitoring, evaluation and oversite

Total Budget Requested:

WBOH

3 years

100,000

US$15,000,000

DISASTER RISK MANAGEMENT

Europe and Central Asia

Kyrgyz Republic

122 / Disaster Risk Management Notes for Priority Countries 2009-2015 EUROPE AND CENTRAL ASIA

Kyrgyz RepubliC

To prepare the Kyrgyz Republic Country DRM Note, the team built upon a technical assistance project supported by

GFDRR. This project, —An Action Plan for Improving Weather and Climate Service Delivery in High-Risk, Low-Income

Countries in Central Asia—, involved support from the Kyrgyz Hydrometeorological service, which facilitated the work of

technical missions in Bishkek and Naryn oblast. The Country Note benefitted from ongoing collaboration with the entities

of the sectoral ministries and agencies of the Kyrgyz Republic; in particular, the Ministry of Emergency Situations, the

Ministry of Agriculture, Water Resources and Manufacturing industry, the Ministry of Transport and Communications,

and the Ministry of Industry and Energy. In advancing the Kyrgyz Republic’s hydromet services, the project team

benefited from constructive dialogue with representatives of stakeholders during a consultation workshop in Bishkek

(December 16, 2008). The World Bank’s Bishkek office provided support for these consultations and representatives

of donor organizations such as the Swiss Cooperation Office actively participated and supported the underlying technical

assistance work.

1. disaster risk profile

The geography and topography of the Kyrgyz Republic makes it a highly hazard prone country. These include hydro-

meteorological, geological, geo-physical, and biological hazards. Natural hazards include earthquakes, land and mud-

slides, avalanches, squalls, downpours, icing, frosts, droughts, breakthrough of glacial lakes, floods, rise of sub-soil

waters, epidemics, pests, crop diseases and river erosion. Heavy snowfall in winter leads to spring floods which often

cause serious downstream damage. Some hazards, e.g. floods and landslides, are seasonal and occur annually; oth-

ers, e.g. earthquakes, are rarer events but potentially highly destructive. The country is classified as the most seismi-

cally dangerous territory in Central Asia and 3,000 to 5,000 earthquakes are registered annually. Devastating seismic

catastrophes occur every 5-10 years. On average, natural disasters cause approximately $30- 35 million of damage and

losses annually.

Meteorological Hazards. Kyrgyzstan is located in the center of the largest Eurasian continent, away from significant

water bodies, and close to deserts, which defines the drought-prone continental climate of the country. On average, 3-4

extreme meteorological hazards (drastic changes of weather, frosts, heavy precipitation) occur annually covering the ma-

jority of the country, there are about 7-10 high-impact mudflows and avalanches, and seasonal river floods happen every

year. Destructive mudflows and floods, and large avalanches occur once in several years. Major weather-related risks to

agriculture include droughts (especially associated with low water flow in the rivers), late spring and early fall frosts, winter

thaws (risks for winter grain cereals), and hailstorms. Floods and mudflows generated by snow-thaw and rainstorms de-

stroy residential houses, dams, other irrigation facilities, roads, bridges and agricultural crops. Over the last few decades the

entire Central Asian region (including the Kyrgyz Republic) has experienced an increase in hydro-meteorological disasters.

This trend is likely to continue as the consequences of climate change - particularly increases in temperature - will likely in-

crease the frequency and severity of floods and droughts. Climate change may also cause a higher prevalence of infectious

diseases. Approximately half of Kyrgyzstan’s GDP is weather and climate sensitive and would benefit from more

reliable hydrometeorological and climate information to improve day-to-day operations and planning. Current economic

losses are estimated to vary between 1.0 - 1.5% of GDP. Agriculture is the leading sector of the economy and most

vulnerable to extreme weather, especially droughts and frosts. Other sectors at risk include transport and communication,

construction, energy production and distribution, including domestic heating, health and mining.

Kyrgyz RepubliC / 123

Seismic Events. As per the Global Seismic Hazard Assessment Program (GSHAP), most of Kyrgyzstan lies in

a region with very high seismic hazard (see map below). When fully operational, the national system of seismic

monitoring registered from 2,000 to 5,000 earthquakes each year. Among them, 5 to 10 per year are considered strong

(felt, but no major damage), while a destructive earthquake (causing infrastructural damage) takes place every 3 to 5

years, and a catastrophic one (causing infrastructural damage and death) every 35 years, on average. During the 20th

century more than 500 earthquakes were registered in Kyrgyzstan with a magnitude greater than 5 on the Richter scale.

Seismologists also warn of the possibility that strong earthquakes with magnitudes of eight on the Richter scale could

strike the capital Bishkek. The most recent destructive catastrophic earthquake (Magnitude 6.6 on the Richter scale)

hit the southeast of the Kyrgyz Republic on 5 October 2008. The village of Nura was the most severely damaged, with

74 people killed, including 43 children; 157 people were injured. An estimated 90% of the village infrastructure was

destroyed and more than 850 people left homeless.

Landslides. Extensive areas of the Kyrgyz Republic are characterized by the presence of very large landslide hazards.

There are about 5,000 potentially active landslide sites, about 3,500 of which are in the southern part of the country.

Stability of most landslides is satisfactory in dry conditions. Landslides are typically activated due to temporary develop-

ment of significant ground water pressures along the slip planes, with actual mass displacement sometimes initiated

within minutes or hours of activation. Such conditions are likely to occur following significant rainstorms and snowmelt.

Furthermore, seismic forces large enough to displace landslides may develop during strong motion earthquakes that are

rather common in Kyrgyzstan. None of the major landslide areas that threaten villages are equipped with monitoring and

warning instrumentation, leaving their populations vulnerable to landslide hazards. Every year landslides cause damage

to buildings, roads, power lines, and water supply, heating supply, and sewerage systems, as well as the death of tens of

people. On average, about 700 houses are damaged or destroyed per year. The last major landslide disaster occurred

on April 20, 2003 when a landslide near Uzgen in Osh Oblast killed 38 people, while 84 families lost their houses.

Uranium Mine Tailings, Rock Dumps and Landslide Hazards. With independence, the Kyrgyz Republic inherited

a legacy of environmental damage caused by many years of output-focused mining development, with little regard to

124 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EUROPE AND CENTRAL ASIA

either economic viability or environmental impact. There are five significant locations in the country with old mine tailings

and waste rock dumps. A particularly dangerous location is Mailuu-Suu – an impoverished town of about 23,000 people,

including about 6,000 in surrounding villages - near the Uzbekistan border upstream of the densely populated and highly

productive Ferghana Valley. There was active uranium mining in Mailuu-Suu from 1946 until 1968, leaving behind 23

radioactive tailings and 13 waste rock dumps. The tailings were constructed conveniently near the mill plants and are

mostly within the flood plain of the Mailuu-Suu River, which is a tributary of the Syr-Darya. The total tailings volume is

about 1.96 million m3. The total waste dump volume is 0.8 million m3.

2. disaster risk management framework

Institutional Setup for Disaster Hazard Management and Emergency Response. The Ministry of Emergency

Situations (MES) is responsible for disaster hazard management and emergency response. MES has established depart-

ments responsible for preparedness, mitigation, response, and recovery. There is the understanding within government

and MES for the need to focus on hazard mitigation efforts designed to reduce the loss of life and injuries, and the eco-

nomic and social impacts of future events. A detailed set of risk maps has been developed and potential disasters have

been classified. The outline of a declaration process was developed to define when each successive level of government

becomes involved if a disaster event occurs. Government is, however, anxious to improve the practical effectiveness of

its emergency management and response efforts, and there are a number of critical issues that must be addressed and

resolved in order to successfully build on the current foundation. Since Independence in 1991, the technical capacity

of MES has been reduced considerably and it currently does not have adequate and modern operational procedures in

place, or sufficient levels of resources allocated to carry out its mandates. Emergency intervention criteria have not been

developed in detail, and there is no well-defined system of functions and responsibilities between the various depart-

ments in MES and regional and local administrations to allow for quick and effective intervention in case of emergencies.

Also, staff has not received necessary training to adequately respond to emergencies, and most local communities have

not been involved in disaster response training thus far.

Legislation and Strategies. Several pieces of relevant legislation have been approved in the Kyrgyz Republic. Some

of the important ones are the Law on Tailings and Waste Rock Dumps, the Law on Radiation Safety of the Population

of the Kyrgyz Republic, the Law of the Kyrgyz Republic on Protection of the Population and Territories from Natural and

Man-Caused Emergency Situations, and the Law of the Kyrgyz Republic on Civil Defense. The legislation is generally

acceptable, as it defines authorities, roles and responsibilities at all levels of government and in the private sector. Cur-

rent issues relate to a lack of regulations to support the primary legislation and the lack of coordination, technology, and

resources to implement necessary measures. The Kyrgyz Government sees the National Strategy for Sustainable Human

Development, adopted in May 1997, as the appropriate framework for risk management of disaster hazards with the

broad objective to reduce the vulnerability of the population and the economy to hazardous processes. In this respect,

five specific goals have been set: (i) to provide timely warning to the public of the threat of natural and manmade disas-

ters; (ii) to reduce and mitigate human and material losses from disasters; (iii) to establish a single monitoring system to

ensure safety of the population; (iv) to improve disaster preparedness by training the population; and (v) to improve res-

cue preparedness against disasters. The Kyrgyz Government recently developed a draft National Emergency Response

and Management Plan (NERMP) that will, when approved, serve as a much better structured and funded Government

framework for disaster management.

Status of Hydrometeorological Services. An extensive technical review (financed by GFDRR in 2008-2009) of

observational networks and other hydrometeorological infrastructure of the Kyrgyzhydromet has shown that the current

condition of the hydrometeorological service fails to meet the needs of the government and the weather and climate-

sensitive social and economic sectors for hydrometeorological services, and fails to fulfill the country’s international and

Kyrgyz RepubliC / 125

regional obligations for weather and climate information including those under the World Meteorological Organization’s

Global Observation Network. In particular, (i) there is a persistent downward trend in the quantity and quality of measure-

ments at most stations of the ground-based meteorological network, (ii) the condition of the hydrological observational

network is unsatisfactory resulting in insufficient quality of the runoff forecast; (iii) the snow survey network is almost

destroyed; (iv) no aerological observations are performed which, given the lack of temperature and wind sounding data

from Tajikistan and Turkmenistan, significantly affects the quality of weather forecasts, as well as the results of global and

regional meteorological model calculations for the Central Asian Region; (v) there is a lack of appropriate communication

between stations and monitoring sites of the observational (meteorological and hydrological) network, data collection

center, and regional and district-level users; and (vi) the means of forecasting and production of information products,

possibly except automated technologies of runoff forecasting in the Syr-Darya River basin, developed with Swiss as-

sistance, fail to meet modern requirements for hydrometeorological services provided to public authorities, the economy

and communities. There is an urgent need for hydromet modernization to reduce the risks to human life and potential

damage to Kyrgyzstan’s economy as a result of weather and climate events.

Reducing the financial vulnerability of homeowners and SMEs to natural hazards. Despite major loss po-

tentials from natural disasters, the level of catastrophe insurance penetration in Kyrgyzstan is much too low to mitigate

the adverse financial consequences of future natural disasters on the economy, central government and households

budgets. In addition, the lack of adequate risk management and risk underwriting skills in the local insurance industry

severely impairs the ability of insurers to pay claims in case of catastrophic events. In this context, the Government needs

to develop mechanisms for risk transfer and sharing through public-private partnerships, engagement of the insurance

industry and consider setting up a catastrophe insurance pool. Unfortunately, the analysis of the insurance markets in the

Kyrgyz Republic suggests that the creation of a stand-alone individual country catastrophe insurance pool is unlikely to

be economically and technically feasible. The Kyrgyz Republic would thus benefit from the creation of a regional catastro-

phe insurance pool that would act as a regional aggregator of catastrophe risk and help governments access the global

reinsurance market on better pricing terms. The risk pooling arrangement for the Central Asian countries can be modeled

after the regional catastrophe insurance facility for Southeastern and Central Europe which is currently being developed

by the World Bank, the UN ISDR and the Regional Cooperation Council for SEE countries. The relatively large size of

the Kazakhstan economy and the more advanced state of development of its insurance market may also provide for the

development of a regional catastrophe insurance scheme on the basis of a national Kazakh catastrophe insurance pro-

gram. Such a program could be then extended to the Kyrgyz Republic and other countries of the region.

Systemic Issues. Under the overall disaster risk management (DRM) approach, risk identification, risk reduction and

mitigation, capacity building, risk transfer and emergency preparedness need to be examined for a more effective overall

response. In this regard multi-hazard risk assessments need to be carried out on a priority basis and effective early

warning systems need to be developed and strengthened. The institutional arrangements from the national level down

to the community level need to be operationalized and corresponding capacity needs to be built. This needs to be

complemented by introducing disaster risk reduction curricula in various national institutions along with general public

awareness-raising. A National Emergency Response and Management Plan was recently prepared under the WB-

funded Disaster Hazard Mitigation Project. The Plan changes the way emergency response should be implemented.

What is needed now is for government to consider the Plan and decree to put it in action. If this is not done, emergency

response and management will remain ad hoc. In most disasters sub-standard construction techniques cause substan-

tial fatalities, therefore the Government should review existing building codes and strengthen enforcement. Learning from

the recent Nura earthquake, it is recommended to integrate DRR into sector policy, planning and implementation during

the reconstruction phase. The Government should also develop a methodology and system for common post-disaster

damage, loss and needs assessment so that a better coordinated and rapid needs assessment could be carried out in

case of any future disaster.

126 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EUROPE AND CENTRAL ASIA

3. activities under the hyogo framework of action

HFA Priority # 1: Policy, institutional capacity and consensus building for disaster risk

management.

A range of activities have been carried out in the frame of the Disaster Hazard Mitigation Project (DHMP) such as a

review of the current functions of MES and its regional administrative agencies involved in disaster management and

response, development of a draft of the NERMP, development of a manual with guidelines for emergency management,

and development of training programs for civil servants (including simulating an earthquake and a dam breach) and the

population. The Emergency Response Centers, both in Bishkek and Osh, were fully equipped with computer and video

equipment, which serves as an important place to manage the emergencies not just during disaster events but also for

regular transfer of monitoring data from rayons to the GIS center that will be the part of the ERC. The next step for the

Government would be approving the NERMP at earliest convenience, together with an action plan for its implementa-

tion, for which support for institutional development would be needed.

HFA Priority # 2: Disaster risk assessment and monitoring.

Under the DHMP some activities have been completed including supply of the laboratory equipment to assess basic

parameters in water as pH, electric conductivity, oxidation reduction potential and temperature and automated monitor-

ing and sampling unit with data transmission radio telemetry transceiver units. A regional seismic network utilizing digital

data acquisition and telemetry will be developed to provide a means of detecting and locating earthquakes in real time

enabling the immediate notification of MES about a potential risk or immediate damage. The MES ERC has a GIS center

that collects data on potential risk areas, especially related to landslides. Books and atlases were prepared by MES.

Every year, field inspections of dangerous landslide areas are conducted, however, assessments and monitoring of other

potential disasters, e.g. floods is much less structured due to continued weak capacity of Kyrgyzhydromet.

HFA # 3: Use of knowledge, innovation, and education to build a culture of safety and resilience at all lev-

els. Several training programs were carried out for state employees and selected villagers under DHMP. Much more is

needed, which would be done after the acceptance of the NERMP. At the moment, DRM is very much an ad hoc activity

by responding to a disaster, with little focus on prevention and preparedness.

HFA # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerability and increase of

resilience. There is little budget available to make structural improvements to reduce the risk of disasters, e.g. by flood

protection embankments and landslide stabilization.

HFA # 5: Disaster preparedness, recovery and reconstruction at national, regional, and local levels. A man-

ual on essential principles of comprehensive emergency management was elaborated and presented to the ministry.

It includes the integrated approaches to emergency management, local planning, communications and involvement of

NGOs and UN in emergency management processes. Again, the NERMP would put some structure in this.

Kyrgyz RepubliC / 127

4. key donor engagements

The Kyrgyz Republic receives support for hazard risk management (HRM) from the ADB, the European Union, Swiss

Agency for Development and Cooperation (SDC), the UNDP, and the World Bank.

Existing Projects with Donors and International Financial

Institutions

Country Programs

Reducing Vulnerability of the Poor to Natural Disasters, to improve

the capacity of the national and local authorities for reducing the

vulnerability of the poor to frequently occurring natural disasters.

Water Management and Disaster Risk Reduction, which includes

awareness training on integrated DRM, grants for disaster reduction,

and an earthquake safety project.

DRM programme that focuses on preparing for, mitigating and

responding to natural disasters, particularly in the south of the country.

Investigation and Analysis of Natural Hazard Impacts on Linear

Infrastructure in South Kyrgyzstan.

Improving Weather, Climate and Hydrological Services Delivery in

Kyrgyz Rep. (TA project).

Disaster Hazard Mitigation Project (DHMP) to: (i) remediate

abandoned uranium mine tailings in the Mailuu-Suu area; (ii) improve

the effectiveness of emergency management and response by national,

sub-national authorities and local communities; (iii) reduce loss of life

and property in key landslide areas.

Regional Programs

Central Asia Regional Disaster Preparedness Programme, under the

5th DIPECHO Action Plan for Central Asia (July 08) to enable local

communities and institutions to better prepare for, mitigate and respond

adequately to natural disasters.

Central Asia Regional Disaster Management Initiative, including (i)

disaster mitigation, preparedness and response; (ii) disaster financing

and risk transfer; and (iii) hydromet modernization.

Funding Agency

International

Partners

ADB (Japan Grant)

Swiss Development

Corporation (SDC)

UNDP

World Bank (GFDRR)

World Bank (IDA

Grant $6.9m), Japan/

PHRD, GoKR

Directorate General

EC Humanitarian

Office (DG ECHO)

UNISDR, WMO,

CAREC/ADB, World

Bank, GFDRR,

bilaterals.

Allocated

Budget and

Period(US$)

1,000,000

2004-

N.A.

2007-2011

N.A.

2008-2010

50,000

2008-2009

75,000

2008-2009

11,760,000

2004-2010

€7,325,000 for

all Central Asia);

2008-

155,000

(GFDRR track

1) in 2008-

2009

HFA

Activity

Area(s)

1, 4, 5

1, 2, 5

1, 2, 4

5.global facility for disaster reduction and recovery (gfdrr):

action plan

As noted earlier, the Kyrgyz republic faces a variety of natural hazards – earthquakes, floods, hail, landslides,

mudflows, drought, erosion and desertification. Over the past few decades, these natural hazards have caused extensive

damage, and will continue to negatively impact the Kyrgyz Republic unless proactive measures are taken to mitigate and

prepare for these hazards.

(i) Building upon GFDRR-funded country and regional studies (to be completed by June 2009), modernize

Kyrgyzhydromet services under a regional framework, to reduce the risks to human life and to the economy

as a result of weather and climate events;

(ii) Building upon the WB-financed DRM project (closing in 2010) and other donor activities, and to complement

ongoing/planned SWAps in health and education sectors, strengthen overall capacity to prepare and respond

128 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EUROPE AND CENTRAL ASIA

to disasters, with a focus on the mitigation of a potential major earthquake in the capital Bishkek and/or

another large city; and

(iii) Support further assessment and studies to develop of a risk financing framework for the Kyrgyz Republic, including a

regional catastrophe insurance pool that would benefit the Kyrgyz Republic and other Central Asia countries.

Component I: Reducing the risks to human life and to the economy as a result of weather and

climate events

Modernization of National Meteorological and Hydrological Services (NMHS) is primarily aimed at reduc-

ing the risks to human life and potential damage to Kyrgyzstan’s economy as a result of weather and climate events. It

is also intended to fulfill of the country’s regional and international obligations, first and foremost, the assessment and

management of regional water resources, the improvement of cooperation between the NMHS and final users of hydro-

meteorological data and information products, and the maintenance of the NMHS capacity by improving its institutional,

staff and financial sustainability.

Under the GFDRR-funded study, three modernization options were considered. The moderate cost option was preferred.

It is a high impact program designed to achieve many of the objectives of the large scale option, but with less investment

in automation of the observing network and implementation of information technologies. Specifically it would allow Kyrgyz-

hydromet to:

• Achieve the key objective of the modernization, i.e. reduce the risk to life and damage to the economy caused by

weather and climate-related events through higher accuracy and longer lead time warnings provided to relevant

emergency agencies;

• Fulfill regional and international obligations of Kyrgyzstan through improved quality and reliability of

meteorological and hydrological (water discharge/runoff) measurements;

• Provide reliable hydrometeorological data and forecasts to users;

• Achieve a level of Kyrgyzhydromet close to “satisfactory” in terms of technology; and

• Retain Kyrgyzhydromet capacity by enhancing its institutional, staff and financial sustainability.

√ GFDRR would co-finance the “moderate cost” option, together with contributions from Government

and other donors, possible including IDA. Because Kyrgyzhydromet is critically dependent on the

strengthening of the regional hydromet framework for its investments, operations, data sharing

and training, GFDRR would also support regional level activities that benefit the Kyrgyz Republic.

Estimated GFDRR financing USD 7.5 million, complementing support from Government and other

donors.

Component II: Improving overall capacity to prepare and respond to disasters, and overcome

a major earthquake.

There is a need to consolidate and continue enhancing the institutional and technical capacity for disaster management

and emergency response supported by the Government and various donors, ensuring a common approach and strength-

ening critical partnerships and platforms. This would be achieved through the implementation of the National Emergency

Response and Management Plan (NERMP).

At the same time there should be more focus on critical gaps: (i) making public facilities such as schools, hospitals and

large residential buildings more earthquake resistant, (ii) develop risk assessment methodologies for commercial, indus-

Kyrgyz RepubliC / 129

trial and residential buildings and (iii) enhance enforcement of building codes.

In particular, a seismic risk mitigation assessment should be carried out for critical public facilities in large cities such

as Bishkek and Osh, to reduce the risk of future earthquake damage to priority public facilities such as hospitals, clin-

ics, schools, administrative buildings and infrastructure. The assessment should also review coordination mechanisms

with local, regional, international and non-governmental partners, equipment and training needs, and the establishment

of a functioning operations center (at local and regional levels). The result of this assessment would be incorporated in

ongoing and planned SWAps in the Health and Education sector, financed by the World Bank and several other donors.

Depending on the availability of funding, GFDRR might co-finance the implementation of priority retrofitting/reconstruc-

tion of selected public facilities on a pilot basis.

In addition, innovative approaches should be supported to better enforce building codes and compliance with land use

plans, notably (i) supporting public awareness of the importance of compliance with building codes and land use plans,

(ii) studies to support the enhancement of guidelines and regulations aiming at better enforcement of building codes

and land use plans, (iii) initiating voluntary certification of engineering professionals, and (iv) supporting selected district

municipalities in enforcement of building codes and land use plans through initiatives streamlining issuance of building

permits and introducing transparency measures in issuance of building and settlement permits.

√ GFDRR would support the implementation of the National Emergency Response and Management

Plan (NERMP) to prepare and respond to disasters, focusing on the mitigation of a potential major

earthquake in the country’s largest cities such as Bishkek and Osh, through a seismic risk mitigation

assessment and the design of a retrofitting program of critical public facilities. In addition, GFDRR

would support regional level activities that benefit the Kyrgyz Republic in this area, through the

proposed regional Disaster Preparedness and Response Center1. Estimated GFDRR financing

needs: USD 1.5 million.

Component III: Reducing the financial vulnerability of homeowners and SMEs to natural hazards

Despite major loss potentials from natural disasters, there is an almost non-existent level of catastrophe insurance cover-

age among homeowners and SMEs in the Kyrgyz Republic. In this context, the Government needs to develop mecha-

nisms for risk transfer and sharing through public-private partnerships, engagement of the insurance industry and reduce

financial exposure through a combination of internal resources and catastrophic insurance facilities. Unfortunately, the

analysis of the insurance markets in the Kyrgyz Republic suggests that the creation of a stand-alone individual country

catastrophe insurance pool is unlikely to be economically and technically feasible.

The Kyrgyz Republic would thus benefit from the creation of a regional catastrophe insurance pool that would act as a

regional aggregator of catastrophe risk and help governments access the global reinsurance market on better pricing

terms. The risk pooling arrangement for the Central Asian countries can be modeled after the regional catastrophe insur-

ance facility for Southeastern and Central Europe– the SECE CRIF – which is currently being developed by the World

Bank, the UN ISDR and the Regional Cooperation Council for SEE countries. A relatively large size of the Kazakhstan

economy and the more advanced state of development of its insurance market may also provide for the development

of a regional catastrophe insurance scheme on the basis of a national Kazakh catastrophe insurance program. Such a

program can be then extended to the Kyrgyz Republic and other countries of the region.

1 The principal objectives of the Center would include: (i) further development of national systems of disaster prevention and response, (ii) emer-

gency planning, coordinated management of regional services and resources, (iii) development of effective information-communication systems

for collecting, processing and analyzing information in real time, (iv) creation of uniform information-sharing space, (v) involvement in international

monitoring systems and networks, including assessment of the seismic hazard in the region, and (vi) cooperation with foreign partners, arrangement

of international seminars, trainings, workshops and conferences.

130 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EUROPE AND CENTRAL ASIA

√ GFDRR would support further assessment and studies to develop of a risk financing framework

for the Kyrgyz Republic, including a regional catastrophe insurance pool that would benefit the

Kyrgyz Republic and other Central Asia countries. Estimated financing needs including regional

component: USD 1 million.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for GFDRR funding)

Component I: Hydromet Services Modernization

• Develop the technical design of the hydromet monitoring and

telecommunication system

• Improve the system of hydromet monitoring to provide timely warnings of

extreme and hazardous weather events and to manage water resources:

(i) restoration and technical upgrading of the meteorological observational

network, (ii) resume temperature-wind atmosphere sounding, (iii) renew key

observation sites of the hydrological network, and equip operating posts

with the required additional instruments and devices, (iv) restore snow

avalanche observation network, (v) establish quality control of hydromet data

and products, (vi) strengthen IT base

• Institutional strengthening and capacity building, to enhance service delivery,

staff training and professional upgrading

Component II: Capacity building for DRM and seismic risk

mitigation

• Institutional development and technical capacity to support the

implementation of the NERMP2

• Carry out seismic risk mitigation assessment for Bishkek and Osh, including

design of priority retrofitting and reconstruction of selected public facilities

(schools, hospitals), to prepare for future implementation under separate

donor/counterpart funding

• Enforce building codes and compliance with land use plans

• Support to regional DRR center

Component III: Disaster risk financing and transfer

Develop a risk financing framework for the Kyrgyz Republic, including a

regional catastrophe insurance pool that would benefit the Kyrgyz Republic

and other Central Asia countries

Total Budget Requested:

Potential Imple-

menting Agency

/ International

Partners

Govt. , WMO,

IFAS, Switzerland,

Germany, Finland,

UNISDR, World

Bank

Govt., CAREC/

ADB, UNISDR,

UNDP, JICA,

UNOCHA (for

regional center),

World Bank

Govt., CAREC/

ADB, GFDRR,

World Bank

Indicative

Budget and

Period

(US$)

7,500,000

2009-2012

HFA

Activity

Area(s)1

1, 2, 3, 4, 5

1,500,000

2009-2011

1, 2, 5

1,000,000

4, 5

2009-2010

US$ 10 million

*Calendar year.

1 GFDRR support through the NERMP would complement and help consolidate other donors’ support. A more precise scope of GFDRR sup-

port under this component would be discussed and agreed at an upcoming workshop coinciding with the formal approval of NERMP. GFDRR

support could include capacity building initiatives on all levels, national and decentralized in oblasts and communities and development of civil

society participation.

Kyrgyz RepubliC / 131

Expected Benefits of GFDRR Support:

GFDRR support would provide the following systemic benefits:

• Consolidate and leverage donor support for greater impact, benefiting from the catalytic role GFDRR can play

in bringing together key stakeholders

• Mainstream disaster risk management within sector programs and projects, such as the Health and Educa-

tion SWAps supported by several donors, the Bishkek/Osh urban project

• Enable Kyrgyz Republic to benefit more from activities carried out at the regional level, through its increased

participation in a regional hydromet center, regional DRR center, and a potential regional CAT insurance pool.

More specifically, GFDRR support would:

• Help the Kyrgyz Republic fulfill its regional and international obligations, first and foremost, the assessment and

management of regional water resources, the improvement of cooperation between the NMHS and final users of

hydrometeorological data and information products, and the maintenance of the NMHS capacity by improving its

institutional, staff and financial sustainability.

• Help operationalize the National Emergency Response and Management Plan (NERMP) through institutional and

technical capacity development, and in particular help the vulnerable better prepare for future disasters notably

earthquakes.

• Lay the technical and institutional foundation for a potential regional catastrophe insurance pool to benefits

Kyrgyzstan’s economy, businesses and households through risk pooling, resulting in diversification of risks and

reduced insurance premiums.

DISASTER RISK MANAGEMENT

Latin America & Caribbean

Haiti / Panama

134 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

HAITI

The Country DRM Note was prepared following consultations with members of the World Bank´s Haiti Country team and

the TTLs overseeing projects in Haiti, the ministry of Planning and External Cooperation, the Ministry of Interior (the Civil

Protection Directorate), the key financial and technical partners (IADB, European Commission, UNDP, USAID, ACDI,

and AECID).

The priority action plan for DRM was discussed and cleared in May with all institutions and organizations mentioned

above. There is a strong interest and ownership of the plan from the Ministry of Planning and a significant support from

financial and technical partners to join resources and expertise to mainstream DRM into the development programs.

1. disaster risk profile

Haiti ranks as one of the countries with the highest exposure to multiple hazards, according to the World

Bank’s Natural Disaster Hotspot study1. Haiti lies in the middle of the Caribbean Basin and has the 5th

highest mortality risk to two or more hazards. With 96% of its population living at risk, Haiti has the highest

vulnerability rating in terms of cyclones2 among the region’s small island states (12.9 on a scale of 13)3. The effects of

cyclones include wind damage, flooding, land/mudslides and coastal surges.

Economic Damages by Disaster Type4

1500000

1125000

750000

375000

Storm

Earthquake

Population Affected by Disaster Type5

Floods

Drought

30%

Storm

62%

COUNTRIES AT RELATIVELY HIGH MORTALITY

RISK FROM MULTIPLE HAZARDS1

(Top 35 Based on Population)

1. Bangladesh

2. Nepal

3. Dominican Republic

5. HAITI

6. Taiwan, China

8. El Salvador

9. Honduras

10. Guatemala

12. Costa Rica

13. Trinidad and Tobago

15. Antigua and Barbuda

16. Dominica

17. Nicaragua

19. Cuba

26. Ecuador

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005), table 1.2.

2Includes tropical depression, storms and hurricanes.

3Reducing Disaster Risk, a Challenge for Development, UNDP 2004

4 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

5 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

HAITI / 135

Severe environmental degradation and the presence of settlements in low lying areas and floodplains are

key contributing factors towards the country’s vulnerability. Further contributing factors include high levels of

poverty, weak public infrastructure, a history of ineffective governments and serious fiscal problems. In addition to the

hydrometeorological hazards, Haiti is also located in a seismically active zone, intersected by two fault lines. The country’s

high population density (up to 40,000 km2 in Port-au-Prince) coupled with the large number of informal structures, and

weak public and private infrastructure, render the state and its population particularly vulnerable.

Economic losses from adverse natural events are increasing in Haiti. As more assets are created and concen-

trated, losses from adverse natural events are increasing. This is demonstrated by the events of August and September

2008, which Tropical Storm Fay and Hurricanes Gustav, Hannah and Ike6 affected Haiti during a three week period re-

sulting in damage and losses equivalent to 15% of the country’s GDP. FGHI represented the largest evaluated disaster

in Haiti’s history.

The implications of climate change on the intensity and frequency of adverse natural events underscores

the importance of a proactive approach to disaster risk reduction (DRR) According to the report of the Climate

Investment Fund’s Pilot Program for Climate Resilience Expert Group, Haiti is one of the 10 global climate change

hotspots. The inability or failure of a government to address its vulnerability and to support the mitigation of risk can

drastically undermine its natural rate of growth and overall poverty reduction efforts.

Major Natural Hazards

Haiti lies in the middle of the Caribbean basin and according to the World Bank’s Natural Disaster Hotspot study7, Haiti

is one of the most at risk countries in the world. With 96% of its population living at risk, Haiti has the highest vulnerability

rating in terms of cyclones8 among the region’s small developing island states (12.9 on a scale of 13)9. The effects of the

cyclones include wind damage, flooding, land/mudslides and coastal surges.

Much less known, is Haiti’s seismic risk. With two active seismic fault lines, Haiti has experienced a number of severe

seismic events. The frequency for earthquakes of 7 or above on the Richter scale is estimated at once every 150-200

years and the most recent quake occurred in 1842. The recent collapse of several buildings, most notably the La

Promesse School, which resulting in over 90 deaths, is a sharp reminder of the weak and unregulated public construc-

tion sector and the potential implications should a significant seismic event occur.

Exposure and Vulnerability

Located in an active cyclone and seismic region, Haiti is exposed to frequent adverse natural events. Due

to its high level of physical, environmental, socio-economic and political vulnerability, Haiti suffers from

a very low disaster threshold10. Haiti’s principal physical vulnerability factor is its topography. With more than 60%

of the country covered by mountains, most of the population and economic assets are concentrated in low laying flood

prone coastal areas.

Haiti suffers from severe environmental degradation, as evidenced by only 2% forest coverage and the

overall degradation of the country’s watershed. In past decades, water catchment areas in upper watersheds have

suffered an accelerated process of expansion of the agricultural frontier and deforestation to satisfy local food, energy

and other income generating demands. Most of the forested lands have been converted to agricultural and livestock

6 Herein referred to as “FGHI”

7See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005).

8Includes tropical depression, storms and hurricanes.

9 Reducing Disaster Risk, a Challenge for Development, UNDP 2004

10 As evident during May 2004 when localized rains in Fonds Verrettes triggered flash floods resulting in over 1500 deaths.

136 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

use, or simply deforested for charcoal production, without replanting, provoking reductions in the filtration capacity of

water and leading to extensive erosion. This combined with strong demand pressure in urban areas further reduces the

availability of potable water from surface and underground sources.

These pressures, exacerbated by Haiti’s mountainous topography, changing climatic environment and

the movement of small land title holders to increasingly fragile upland soils, have resulted in extensive

deforestation, accelerated erosion, depleted fertility, reduced water retention and widespread silting of

waterways. This in turn diminishes the carrying capacity of the land and contributes to a downward economic and

environmental spiral contributing to near catastrophic events such as Tropical Storm Fay and Hurricanes Gustav, Hannah

and Ike (herein after referred to as “FGHI”).

With 77% of the Haitian population living on less than 2$/day and 52% living on less than 1$/day, extreme

poverty represents a significant social vulnerability. This translates into precarious living conditions for the majority

of the population, which drastically decreases their coping abilities and thus resilience to the impact of adverse natural

events. The vicious circle existing between the frequency of adverse natural events and the decreasing coping capacities

of the population further fuels the non-sustainable exploitation of Haiti’s natural resources and rapid urbanization of the

country. Currently, upwards of 50% of Haiti’s 9.8 million inhabitants live in urban areas. The high population density (up

to 40,000 km2 in Port-au-Prince) coupled with unregulated construction, weak social and economic public infrastructure,

and lack of land use planning, further aggravates the extensive social vulnerability.

Additionally, Haiti suffers from significant governance issues that further increase its vulnerability to

disasters. Haiti’s long history of political instability has greatly weakened its state institutions and governance mechanisms

(Haiti has the lowest index of corruption perception11) which contribute to, inter alia, serious fiscal, regulatory and

planning issues. The lack of political stability has a significant impact on the continuity and effectiveness of the National

Disaster Risk Management System (NDRMS), in particular its risk reduction components. Often the GoH often is not

afforded the time to develop the strategic policies, programs and ensuing coordination, monitoring and evaluation tools,

to successfully implement an effective DRR program. Rather GoH chooses short-term reactionary actions to cope with

the disaster rather than develop longer-term strategies and programs to address their causes.

Recent Disasters and Tendencies

Recent disasters in Haiti confirm an increasing level of vulnerability facing the country and its hard won

development gains. During the 20th century, Haiti experienced 56 internationally recognized disasters of the hydro-

meteorological nature. Approximately 80% of disasters happened after 1954 and 44% occurred in the 1990s alone.

This trend is expected to continue both in terms of frequency and impact due to climate change, continued concentration

of assets and expected seismic activity. In the last few years alone, a number of particularly significant disasters affected

Haiti. In 2004, Tropical Storm Jeanne affected over 300,000 people, and in 2008, FGHI affected more than 865,000

people. The impact of the disaster on the national economy in terms of damage and losses for Tropical Storm Jeanne

(2004) was evaluated at 7% of the GDP12, and at 15 % of GDP for FGHI (2008)13.

Climate change will also be important with Haiti classified as one of the 10 global climate change hotspots14.

With a projected increase in the frequency and severity of storms and a decrease in average rainfall associated with

climate change, the potential impact on populations and livelihoods will require a comprehensive and integrated approach

towards the management of the risks associated with changing global and regional weather patterns.

11 Transparency International, 2006 classifies Haiti as 163rd among 163 countries

12Le cyclone Jeanne en Haïti: dégâts et effets. CEPALC, 2005

13 Post Disaster Need Assessment (PDNA). UN, World Bank, European Commission, 2008

14 Report of the PPCR Expert group – Proposal for selection of pilot programs, Climate Investment Funds, 2009

HAITI / 137

2. DISASTER risk management framework

The National Disaster Risk Management System (NDRMS) in Haiti was signed into effect in 2001 by 10 key

line ministers and the President of the Haitian Red Cross. The NDRMS has achieved significant results in the

areas of disaster preparedness and response since its inception. While the 2004 hurricane season resulted in 5,000

casualties over 300,000 affected people, FGHI resulted in less than 800 casualties over 865,000 affected people.

Strong collaboration between the key members of the NDRMS and its technical and financial partners (TFP15) was

critical to improving the speed and efficiency of the response capacity.

While efforts to further strengthen the NDRMS’ preparation and response capacities continue, there is a

greater need to focus on protecting investments as well as livelihoods in order to transition from a ´living at

risk´ to ´living with risk´ approach. Disaster Risk Reduction (DRR) has been included as a key cross cutting priority

in the Government of Haiti’s (GoH) Poverty Reduction Strategy Paper (PRSP: 2008-2011) and as a principle pillar of

the United Nations Development Assistance Framework (UNDAF:2009-2011), as well as the World Bank’s Country

Assistance Strategy (CAS: 2009-2011). This demonstrates a growing consensus within the GoH and amongst its TFP

of the importance of integrating DRR as a critical component of a successful poverty reduction and economic growth

strategy.

Haiti’s hard won development gains are often jeopardized by adverse natural events. To ensure a rapid and

effective transition from the emergency response phase to the rehabilitation and reconstruction phase, it is important

to account for the intermediary social and economic recovery needs. The recovery phase presents an opportunity to

begin integration DRR activities and sets the foundation for a successful rehabilitation and reconstruction process. This

process ensures DRR is mainstreamed not only in the post disaster plan but is also a core component of sustainable

poverty reduction and economic growth program.

3. activities under the hyogo framework of action

HFA Priority # 1: Policy, institutional capacity and consensus building for disaster

risk management

Haiti’s National Disaster Risk Management System (NDRMS) was signed into effect in 2001 by 10 key line

ministers and the President of the Haitian Red Cross. The National Disaster Risk Management Plan (NDRMP)

provides the operational framework for the NDRMS and identifies the specific roles and responsibilities of the participating

institutions. The system is headed by the National Risk and Disaster Management Committee (CNGRD), which is led by

Prime Minister16 and composed of the signatory Ministers of the NDRMP and the President of the Haitian Red Cross. At

a more operational level, the Directorate of Civil Protection (DPC) and the Permanent Secretariat of Risk and Disaster

Management (SPGRD) are responsible for the implementation of the NDRMP. Established in 1997, the DPC is the

institution most involved in the implementation of the NDRMP, yet as a line ministry Directorate, it does not have the

mandate or the technical capacity to design national or sectoral DRR strategies for adoption and implementation by the

government and its key line ministries. The SPGRD, led by the Director General of the Ministry of Interior and Collective

Territories (MICT)17, is composed of technical representatives for the signatory Ministries of the NDRMP and the Red

Cross and is divided into two branches: a disaster management branch consisting of the Emergency Operation Center;

and a risk management branch, composed of thematic and sectoral committees.

15Including International Financial Institutions (IFIs), bilateral donors, NGOs and the private sector

16Leadership delegated to the Minister of the Interior and Territorial Collectivities (MICT)

138 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

The NDRMP emphasizes a proactive approach vis-à-vis risk reduction and mitigation rather than disaster

management; however its implementation has focused so far on the latter. The NDRMP identifies the following

three axes of intervention: i) risk management at the central level, ii) disaster management at the central level, and iii)

disaster and risk management at the local level. The NDRMS has historically focused on disaster preparation and

response with the objective of reducing fatalities associated with adverse natural events. Most of the existing DRR

programs evolve around the DPC and SPGRD, but there has recently been an increase in sector integrated DRR

projects and activities.

The NDRMS has prioritized the engagement of local communities and the strengthening of their capacities

in an effort to decentralize their operations and bolster the system’s capacities. The NDRMS has established

an extensive network of DRM committees (CDRM) present at departmental level (all 10 departments) and municipal

level (more than 110 of the existing 165 municipalities). Under the leadership of relevant senior government officials (the

delegate of the President at the departmental level and the mayor at the municipal level), the CDRM are composed of

the representatives of government, civil society and international technical partners. Trained initially to focus on disaster

management activities (preparedness and response), the CDRM are acquiring the tools and capacities to assume greater

responsibility in the development of their respective DRR strategies and execution of local risk reduction activities.

Currently, most line ministries do not have the legal mandate, strategic framework or technical capacity to

effectively fulfill their DRR role and responsibilities as defined within the NDRMP. Although the NDRMP was

signed in 2001 by 10 ministries and the Red Cross, the MICT is the only institution with a clear DRR mandate. The lack

of legal framework makes it difficult to allocate financial resources and limits the involvement of the signatory ministries at

the institutional level. As a result, the NDRMS has come to rely mostly on multi-sectoral coordination committees without

the necessary corresponding institutional involvement. Several legal frameworks and decrees have been proposed to

further operationalize the NDRMS and raise the status of the DPC to the level of General Directorate.

HFA Priority #2: Disaster risk assessment and monitoring

Over the last 8 years, the NDRMS has improved its data collection for risk assessments. Although there

is currently no updated national, departmental or sectoral comprehensive risk assessment, there exists a number of

significant initiatives, namely: i) Oxfam elaborated in 2002 the first national natural hazard and disaster vulnerability maps,

ii) the National Center for Geospatial Information has developed two pilot local flood maps, and iii) the Ministry of Planning

and External Cooperation (MPCE) and several line ministries are interested in developing sectoral risk assessments to

better inform their strategic investment program decisions. At the local level, risk assessment has improved significantly

over the last 5 years. The close collaboration between the DPC and its technical and financial partners (TPF)18 has

allowed for each CPC to develop a rudimentary risk map based on available data.

Haiti relies on limited hazard specific data collection and monitoring capacity and there is currently no

structured national early warning system for natural disasters. Several data collection and monitoring systems

are operational, but fail to provide the coverage required. Haiti’s National Meteorological Center (NMC) relies on 2

weather-monitoring stations and a network of volunteer observers around the country to provide the data necessary to

supplement the United States’ National Oceanic and Atmospheric Administration’ National Weather Service (NWS)

forecasts. With 13 unique microclimates, their capacity to accurately forecast the local weather conditions and provide

timely early warning is limited. Although several institutions and organizations have local rainfall monitoring capacity,

a formal network to gather and action the data does not exist thereby undermining the ability of the NMC to fulfill

17Leadership delegated to the Director of the Directorate of Civil Protection

18Including International Financial Institutions (IFIs), bilateral donors, NGOs and the private sector

HAITI / 139

its mandate. Similar situations exist for other major hazards like seismic activity, where the combination of a lack of

equipment, formal networks, databases, and limited institutional capacities constitute a challenge.

The NDRMS has successfully managed to reduce mortality rates associated with hydro-meteorological

events from thousands to hundreds as a result of better diffusion of warning messages and increased

local awareness. The current flood and hurricane warning system depends heavily on the regional data provided by the

NWS’s Hurricane Center in Miami and from local observers. More work is needed to improve the forecasting capacities

and decentralize further the monitoring capacity. After the elaboration of 2 pilot activities for flood early warning systems

(FEWS) financed by USAID and UNDP, the Inter-American Development Bank is now financing a national program

covering the installation of FEWS across 13 priority watersheds. The European Commission (EC) is also providing

assistance for the installation of seismic stations on the main active faults.

While numerous analyses, studies and data collection mechanisms exist, there are no established

mechanisms to update or integrate them. Due to the tightly coupled relationship between Haiti’s different vulnerability

factors, it is essential to create a work dynamic among the numerous ongoing topical observatory initiatives (poverty,

environment, food security etc.) under one platform that can be used as the basis for formulating a comprehensive risk

assessment. The implementation of such an initiative will require considerable funding, technical assistance, networking

and partnership building. With all the required resources not yet mobilized and the urge for quick and visible interventions,

this may take some more time.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

The NDRMS has benefited from significant increases in financial and technical support from the GoH’s

TFPs, for the purposes of, inter alia, institutional strengthening activities. The technical expertise mobilized in

support of the institutional strengthening agenda has resulted in improved procedures and products and the development

of new tools as well. To ensure that the acquired knowledge and tools are institutionalized, thus contributing to long-

term impact of the outputs, the implementation of a knowledge management system is essential. While there exists an

ongoing initiative to set up a disaster management database (following the guidelines of the Regional Center for Disaster

Information) with support from UNDP, more resources are required to establish a dynamic knowledge management

system for the promotion of a culture of vulnerability reduction.

Through the CDRM network and efficient partnership with the media, the NDRMS has made significant

process in raising the public’s awareness of DRR. The NDRMS has targeted national, departmental and local

government officials, the general public and the vulnerable groups (women, elderly and children) with specific messages

for preparedness and response. The NDRMS also disseminates general DRR information through the media on various

occasions. The thematic committee working on public awareness and education is developing a more structured public

communication strategy and plans for raising awareness in schools. In addition, the thematic committee is supporting the

development of a DRR module for integration into the national curriculum.

A major challenge remains to develop the human capital with the necessary strategic and technical

expertise. In order to capitalize on the improved institutional capacities and effective outreach programs, additional

human capital with DRR expertise is needed in order to successfully promote a culture of safety and resilience. This is

also critical to protect against the potential loss of knowledge and expertise through the anticipated turnover of the limited

staff working within the NDRMS. Through an academic partnership between the University of Florida and the University

of Quisqueya Haiti, 20 people completed a DRR master program during the 1990’s. Unfortunately this partnership no

140 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

longer exists, however recent efforts to reestablish new university level graduate and postgraduate programs partnership

are underway.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

The PRSP represents a significant opportunity for the integration of DRR into the national development

process, with the objective being to transition from “living at risk” to “living with risk”. Following FGHI

in 2008, which resulted in economic damage and losses equal to 15% of Haiti’s GDP (or the equivalent of the sum

of disbursements made by the GoH’s TFP from 2004-200819) the GoH revised the PRSP to place a much greater

emphasis on the integration of DRR into the national and sectoral strategies and investment programs as a means of

securing its investments.

The integration of DRR at the strategic level translates into more effective operations at the sectoral level.

In addition to the Ministry of Planning and External Cooperation (MPCE) and the Ministry of the Environment (MEF),

numerous line ministries are interested in strengthen their respective DRR capacities as evident by emerging ministerial

rhetoric. The GoH’s TFP have taken notice and are beginning to support the shift in the GoH’s strategy by allocating

significant portions of post disaster recovery and reconstruction assistance towards mitigation and DRR capacity

building activities. While the World Bank is working with select line ministries through its existing portfolio to begin the

mainstreaming of DRR20, it has launched an advocacy campaign - in support of the NDRMS - to further orient pipeline

investments of the GoH’s TFP to include DRR activities.

Risk reduction activities at the departmental level have increased, yet they require additional technical and

financial support to successfully address the high levels of vulnerability. Departmental and local governments

are acutely aware of the risks they face, yet struggle to implement a comprehensive DRR program due to limited technical

and financial resources. The World Bank, the EC and the UNDP currently finance local risk reduction activities (using

a community driven approach) and capacity building activities at departmental level. However additional resources are

required to ensure the integration of DRR in local governance activities, i.e. through land use planning, local development

plans, etc.

The next step on the risk reduction agenda is a multilayered approach to strengthen both the institutional

capacities at national, sectoral and local levels and to increase the volume of investment and projects

taking into account DRR factors. For the institutional component, the objectives are to: i) establish a central strategic

and coordination capacity within the ministries of Planning and Economy, ii) build up the sectoral DRR capacities of

line ministries and support investment securing activities, iii) strengthen local governments for the integration of DRR in

their plans and the execution of risk reduction activities through the sectors. For this, the World Bank is working in close

collaboration with the most relevant TFP, including UNDP, EC, IADB, USAID.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

The NDRMS has achieved significant results in the areas of disaster preparedness and response, effectively

reducing the mortality rate. While the 2004 hurricane season alone resulted in 5,000 casualties and 300,000 people

19 Budget support excluded

20 Emergency Recovery and Disaster Management Project, Emergency Bridge Reconstruction and Vulnerability Reduction

Project, Emergency School Reconstruction Project

HAITI / 141

affected, FGHI affected over 865,000 people yet caused less than 800 casualties. Although the mortality remains high,

significant advances were made based upon an effective strategy encompassing the following areas: i) strengthened

local capacities, ii) increased early warning capacity and effective public awareness campaigns, iii) development of

partnerships with key actors, iv) establishment or strengthening of the NDRMP coordination mechanisms, and v)

development and operationalization of technical tools for disaster preparedness and response.

At the local level, the establishment of the CDRM has been effective to develop local knowledge and

capacity. With close to 4,000 people involved through the departmental and local CDRM, the true operational capacity

of the NDRMS is at the decentralized level. The CDRM bring together the local actors to plan for the hurricane season

and coordinate and conduct disaster response operations with support from the NDRMS’ TFP.

The NDRMS has significantly improved its warning system capacity, allowing it to save many lives at risk

from disasters. The number of evacuated people (6,000 in 2006; 33,000 in 2007 and 122,000 in 2008) is an indicator

of the improved structuring and dissemination of warning messages and the public responsiveness to the warnings.

The establishment of warning protocols and their application by the majority of institutions involved in the NDRMS has

also contributed to a faster and more efficient mobilization for response operations. The next steps are: i) to increase

the forecasting capacity at the local and central levels through installation of additional FEWS (IADB supported), ii) to

improve the link between the warning system and shelter management, and iii) to extend the public awareness campaign

to cover additional natural hazards.

To increase its span of work, the NDRMS has established or strengthened a number of coordination

mechanisms as defined in the NDRMP. To support the DPC and the SPGRD, the two central institutions in charge

of DRR activities, the NDRMS has strengthened the thematic committees (early warning system, public awareness and

education, environment, shelter management) and plans to establish several more. These committees are composed

of all interested institutions and partners to work on a specific theme for strategy development, activity planning and

coordination. The committees often need technical assistance, as most of the expertise is not available. The NDRMS has

also put in place and improved the Emergency Operation Center (EOC), with one at the central level and several at the

departmental level, enabling faster and more efficient initial disaster response.

The NDRMS is actively developing operational strategies, technical tools and emergency procedures

for disaster preparedness and response activities. At a strategic level, the NDRMS has developed hurricane

preparedness strategies (revised annually) and post -hurricane season evaluations. On a more technical level, the NDRMS

has: i) strengthened its training delivery capacity through the standardization of training modules, by establishing a pool

of nationally recognized instructors and introducing a training certification processes; ii) developed and disseminated

tools to guide DRM activities, and iii) increased the technical capacities of its members. As for emergency procedures,

they remain of limited use due to weak sector specific DRM capacity and institutional involvement. Generally speaking,

the expertise level allows for greater response efficacy compared to a few years ago, yet work remains in terms of the

institutional prearrangements and allocation of financial resources to allow for greater efficacy in the deployment of the

established tools and procedures.

One of the greatest challenges facing the NDRMS is to facilitate a rapid and smooth transition from recovery

to development following the disasters. Typically, emergency response operations begin immediately following a

disaster. However, as evident by the results of the GoH and their TFP’s response to Jeanne in 2004, failure to identify

and launch recovery activities designed to bring the affected communities back to a self-sustainable situation through

social and economic activities can prove disastrous for the reconstruction effort. Furthermore, the reconstruction suffers

from the lack of land use planning and normative tools and often fails to reduce the underlying risk factors. The next

142 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

steps would be to strengthen the recovery planning capacities through institutional support and work at strategic and

technical level to raise awareness for such needs and their critical role to ensure proper return from crisis management

to development.

Reconstruction and

rehabilitation phase

Recovery phase

Emergency phase

The GoH has successfully introduced DRR as a condition for sustainable development and has built

consensus among its institutions and partners. The consensus represented within the respective strategic

documents is of particular importance because the international community finances more than 60% of the investment.

More work lies ahead to ensure the DRR priorities identified in the national development plans are

integrated within sectoral agendas. There is currently no ministry integrating DRR into their respective strategies,

although key coordination ministries such as the MPCE and MEF and several line ministries have expressed interest. The

next steps consist of building the necessary institutional capacity (both strategic and technical) and foster consensus

among the actors involved in each specific sector. Among the TFP, there is a clear adjustment of overall strategy with

more organizations integrating DRR in their plans. In addition to the World Bank and UN system, IADB and USAID are

planning for greater investment in DRR over the coming years: USAID in the form of technical assistance to the Ministry

of Agriculture, Rural Development and Natural Resources (MADRNR) and the Ministry of the Environment (MEF) in the

context of national risk reduction through a watershed rehabilitation program.

HAITI / 143

4. key donor engagements

Existing Projects with Donors and International

Financial Institutions

Emergency Reconstruction and Disaster Management

Project

Risk Management Program

Funding Agency /

International Partners

World Bank (IDA)

UNDP, European Commission

European Commission

NDRMS Development Program

National Early Warning System Program

Haiti Integrated Growth through Hurricane Emergency

Recovery

Emergency Bridge Reconstruction and Vulnerability

Reduction Project

Emergency School Reconstruction Project

Haiti Transportation and Territorial Development Project

Haiti Catastrophe Risk Insurance Project

Hurricane Noel Reconstruction Project

UNDP

World Bank

IADB

UNDP

World Bank

USAID

UNDP, IADB,

World Bank

World Bank (IDA)

IADB, UNDP

World Bank (IDA)

Canadian International Development

Agency, IADB

World Bank, European Commission,

Agence Française de Développement,

IADB, Canadian International

Development Agency

World Bank (IDA)

Canadian International Development

Agency

European Commission

Technical Assistance to Support the Creation of the

DRR Unit at the Ministry of Planning and External

Cooperation (MPCE)

World Bank (GFDRR)

Ministry of Planning and External

Cooperation

Allocated

Budget and

Period

(US$)

19.4 million

2005-2010

7.8 million

2006-2009

4 million

2009-2011

6 million

2006-2010

HFA

Activity

Area(s)

1, 2, 3, 4, 5

1, 2, 3, 4

1, 2, 3, 5

2, 3, 5

96 million

2009-2011

1, 3, 5

20 million

2009-2012

5 million

2009-2013

1, 2, 4

1, 3, 4

16 million

2007-2012

9.4 million

2006-2010

3.9 million

2009-2011

500,000

2009-2010

4, 5

1, 2, 4

144 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given Haiti’s risk profile and its existing framework for disaster risk management, the key priority in Haiti

is to reduce the level of extreme vulnerability through a comprehensive disaster risk reduction approach

targeting all phases (recovery, reconstruction, prevention, and mitigation). Strategic actions are needed in

the following areas to enhance disaster risk management in Haiti: (i) strengthen institutional capacity for

strategic planning and coordination at central and local levels, (ii) mainstream DRR in specific sectors, and

(iii) develop a comprehensive risk assessment and monitoring capacity.

The following activities have been identified in consultation with local authorities and reflect HFA priority action areas.

These actions support Haiti’s disaster risk management program.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for

GFDRR funding)

Implementing Agency /

International Partners

Indicative

Budget and

Period

(US$)

HFA

Activity

Area(s)

Technical Assistance to Strengthen Central Capacity

through DRR Unit within the Ministry of Economy and

Finance (MEF)

Ministry of Planning and External

Cooperation

400,000

2010-2011

1, 2, 4

Strengthening Sector Specific DRR Institutional

Capacities (Ministries of Agriculture, Public Work,

Social Affairs, Education, Environment)

Ministry of Planning and External

Cooperation, IADB, UN System

1.3 million

2010-2012

1, 2, 4

Development of local DRR expertise through pilot DRR

activities within priority sectors*

Ministry of Planning and External

Cooperation, UNDP, European

Commission, USAID

1.8 million

2010-2012

1, 2, 4

Building Risk Assessment and Monitoring Capacity*

Ministry of Planning and External

1.1 million

Cooperation, UNDP, IADB, USAID,

2010-2012

European Commission

Total Budget Requested: US$ 4.6 million

* The local DRR pilot activities and the risk assessment and monitoring capacity will focus on the same priority sectors in order to complete the institutional strengthening

efforts previously identified programs for GFDRR financing: Agriculture, Public Work, Social Affairs, Education, and Environment.

This initial step aims to build capacity at the central planning level and on the priority sectors with a dual approach: institu-

tional strengthening at the central level and DRR pilot activities at local level. The pilot activities will focus on designated

vulnerable communities, which will receive technical assistance aiming DRR mainstreaming in local development plans.

After the initial step, the second phase will focus on expanding the scope of work to other line ministries (such as Com-

merce and Trade, Health, Tourism, Culture, etc.) and increasing the geographic coverage of vulnerable communities. A

request for additional financing will be elaborated for this next step.

PANAMA

PANAMA / 145

1. disaster risk profile

Panama ranks 14th among countries most exposed to multiple hazards based on land area, according to

the World Bank’s Natural Disaster Hotspot study1. Panama has 4.4% of its total area exposed and 2.9% of its

total population vulnerable to up to three hazards. The same study ranks Panama 35th among countries with the highest

percentage of total population considered at a “Relatively High Mortality Risk from Multiple Hazards”.

Population Affected

by Disaster Type2

Earthquakes

Storms

Economic Damages by Disaster Type

(1000s USD)2

80000

60000

Drought

28%

40000

Flood

59%

20000

Storm

Relative Vulnerability and Risk Indicators3

Flood

COUNTRIES

MOST EXPOSED

TO MULTIPLE HAZARDS

(Top 15 Based on Land Area

with 3 or more hazards)1

1. Taiwan, China

2. Costa Rica

3. Vanuatu

4. Philippines

5. Guatemala

6. Ecuador

7. Chile

8. Japan

9. Vietnam

10. Solomon Islands

11. Nepal

12. El Salvador

13. Tajikistan

14. PANAMA

15. Nicaragua

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005).

2 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

3Relative Vulnerability and Risk Indicators are adapted from IADB-IDEA (2007), Programa de Información e Indicadores de Gestión de Riesgos

(Manizales, Colombia, 2004), Annex (2009). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries

found in IADB-IDEA (2007). Risk Management Index is presented as the negative (ie 0 = optimal, 100 = incipient) of IADB’s Risk Management

Index: measures country’s risk management capability in (i) risk identification (ii) risk reduction (iii) disaster management (iv) financial protection.

Resilience, fragility and Exposure are taken from the component indices of Prevalent Vulnerability Index

146 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Major Natural Hazards

Due to its geographical location and geotectonic characteristics, Panama is exposed to a variety of natural hazards,

including hydrometeorological and geophysical. The Isthmus of Panama is barely 60 to 90 km wide between the

Caribbean Sea and the Pacific Ocean, with a mountain divide well known for its slope instability, intense rainfall and

active tectonics.

Panama is characterized by very intense and long lasting rainfalls, windstorms, floods, droughts, wildfires,

earthquakes, landslides, tropical cyclones, tsunamis and ENSO4/El Niño-La Niña episodes. Natural Disaster

Data from Panama published on the Prevention website5 indicates that the country experienced 32 natural disaster

events between 1983-2008, with total economic damages estimated at US$86 million, and a total of 249 people killed

by these events.

The country is located over a segment of the Caribbean tectonic plate, namely the Panama Deformed Belt

(also know as the Panama micro-plate), at the border of the Cocos and Nazca Plates, with influence from the nearby

South American Plate. This is one of the most important seismogenic sources in the region as part of the Circum-Pacific

Belt.

Earthquakes have continued to strike Panama. The most recent incident occurred in 2003 of a 6.0 magnitude

at a depth of 22km in Armuelles, near the Costa Rican border; more than 60 aftershocks (of magnitude higher than

4.0) occurred in the subsequent month. Soil liquefaction occurrences were widespread creating more damage to the

infrastructure and at least three fatalities6.

Volcanism and tsunamis are also present in Panama with a volcanic range stretching from the border with Costa

Rica to the East, dividing the country into two main North-South watersheds (Caribbean and Pacific). Chiriquí volcano,

also known as Barú, is the highest mountain peak of the country reaching 3,475m7. Tsunamis have been recorded as

affecting both Panama’s Caribbean and Pacific shores with up to 5m surge wave height.

Exposure and Vulnerability

Vulnerability to floods, landslides, earthquakes, windstorms, wildfires and storm surges has resulted in

the most important recent disasters in Panama. A high proportion of the low income population in Panama lives in

areas most exposed to natural hazards and resides in poorly designed and inadequately built structures. Absence of land

use regulations, uncertainty about the compliance with building codes, rapid demographic growth and random urban

and industrial expansion are responsible for most of the current and significant increases in vulnerability. Panama City’s

skyline is growing steadily and concerns are widespread about adherence to construction codes.

In light of significant economic growth, the Government of Panama must be proactive to ensure the country

reduces its long-term exposure to hazards. The integration of disaster risk management is essential in activities

such as the Panama Canal expansion and the large infrastructure investments in buildings, urban development, and

roads. In 2000, the Panama Canal and its cluster of related operational and economic activities contributed about US$2

billion to the Panamanian economy, about 21% of its GDP. In 2004, the Panama Canal generated direct and indirect

4 El Niño-Southern Oscillation; commonly referred to as simply El Niño, a global coupled ocean-atmosphere phenomenon.

5 Prevention Web. Panama. Data and Statistics. http://www.preventionweb.net/english/countries/statistics/?cid=131 accessed: March 2009.

6 Damage caused by the 2005 earthquake: http://www.igc.up.ac.pa/info.jpg

7 Volcanoes in Panama: http://www.igc.up.ac.pa/index.php?option=com_content&task=view&id=28&Itemid=49

PANAMA / 147

contributions totaling 25% of the revenues received by the National Treasury8. Special attention in Panama is required to

protect these assets by reducing the country’s increased vulnerability.

Global climate change models9 have predicted that Panama will undergo several climatic shifts such as

increases in temperatures, droughts, higher intensity rainfalls and storms, and rising sea level. It is known that ENSO

events have already severely impacted water availability and canal operations. It is also known that inter-annual climate

variability of either the Pacific (i.e. ENSO) or Atlantic (i.e. North Atlantic subtropical highs) causes a significant amount of

the total variance in rainfall in the Caribbean and Central America10. There are studies of geology, geomorphology, and

hydrometeorology, developed or sponsored by the Panama Canal Authority that can be interpreted as studies on natural

hazards exclusively for the Panama Canal watershed.

As is the case in most Central American countries, cities in Panama have grown steadily and have thereby

heightened vulnerability due to the increased concentration of the population, infrastructure and production of goods

and services. Meanwhile, the implementation of earthquake-resistant parameters in new buildings and towers is uncertain,

despite being essential measures to reduce disaster risk in Panama.

2. disaster risk management framework

Panama has improved its legal and institutional framework for disaster risk management (DRM). The

authority for Panama’s DRM National Platform stems from Law No. 7, Resolution 28 which created the National Civil

Protection System (SINAPROC) in 2005. SINAPROC is responsible for coordinating DRM in Panama as the highest

ranking authority in the event of a natural catastrophe or man-made emergency. SINAPROC is also charged with

executing the actions, regulations and directives towards the removal or reduction of the negative effects of disasters

on human lives, goods and society.

As the leading DRM authority in Panama, SINAPROC maintains responsibility for the National Emergencies

Plan and the country’s Risk Management Plan. The mandate of the National Emergencies Plan is to define roles,

responsibilities and general procedures for institutional preparedness and response, establish an inventory of resources,

coordinate operational activities, and assessments in order to safeguard life, protect property, and restore normalcy as

soon as possible after the occurrence of a dangerous phenomenon. The role of the Risk Management Plan is to guide

risk reduction activities and preparations for emergencies and disaster recovery efforts. These measures are intended to

improve safety against various risks while greatly reducing material losses and social consequences from disasters.

Panama is active in several regional and international forums for DRM, including participation in the Central

American Coordination Center for Natural Disaster Prevention (CEPREDENAC) and the United Nations International

Strategy for Disaster Reduction (UN-ISDR).

Panama has nationwide networks of volcanological and meteorological monitoring stations and has

implemented regional and local flood early warning systems. The country also has a national emergency line

“335” that integrates several ICTs11 to alert the public.

8 PCA 2006A

9 Hadley Centre Coupled Model, Version 2 (HADCM2), as reported in M. Mulligan, “Downscaling” Global Climatic Futures for Hydro-impact Stud-

ies, King’s College London, 2003. Same modeling data as used by the Intergovernmental Panel on Climate Change (IPCC).

10 Giannini, Kushner, and Cane 2002

11ICT: Information and Communication Technologies

148 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

While DRM is not explicitly reflected in Panama’s national development plan and the FY2008-2010 Panama

Country Partnership Strategy states that the country is not seriously affected by natural disasters, the Government of

Panama has made some initial efforts to mainstream DRM in its planning processes. The National Environment Authority

and the Canal Watershed Inter-Institutional Committee have integrated DRM and climate change in its national agenda. This

is in recognition of the fact that each year during the rainy season, from May to November, floods and landslides are the most

destructive natural disasters in the country, affecting people and communities, agriculture productivity, the road system and

housing. In addition, the Panama Canal Watershed is particularly vulnerable to wildfires and the canal itself is vulnerable

to earthquakes that can cause floods, damages to dams, and loss of life and property. Contingency measures have been

developed to retrofit infrastructure, train staff, acquire necessary equipment and enhance inter-institutional coordination.

Panama has adopted the recommendations and priority actions of the “Hyogo Framework of Action 2005-

2015: Building the Resilience of Nations and Communities to Disasters” as part of the Government of Panama’s efforts

to improve its DRM capacity. However, Panama is confronted with the challenge of strengthening its existing institutional

capacities for DRM under policies of decentralized authority and resources in accordance with recommended best

practices within the Hyogo Framework.

3. activities under the hyogo framework of action

HFA Priority # 1: Policy, institutional capacity and consensus building for disaster risk manage-

ment

SINAPROC is in charge of planning, scientific research, direction, supervision, assessment, information,

education, organization, public policy implementation and all DRM actions in Panama. The execution of the

National DRM Plan, including proactive initiatives and coordination with all national and international entities, is also

within SINAPROC’s responsibilities. Emergency management and disaster response are prescribed in Articles 6, 7 and

8 in Panamanian Law.

Emergencies are managed by the Center for Emergencies Operations (COE12). This entity was created in 2000

with funding from the Southern Command of the United States Army. Although equipped with the latest technology

and theoretically managed by civil servants, it has a military hierarchical structure that is vertical and centralized. Alerts,

supervision and command-control operatives are executed during emergency situations for both natural and man-

made hazards. A recent assessment of emergency and disaster responses revealed weaknesses related to financial

sustainability, training, organizational aspects, inter-institutional linkages and cooperation, information dissemination

and operational structures. The vision and organizational structure remain emergency and disaster-driven, while the

assessment also detected gaps, breaches and overlaps in activities13.

According to the Government of Panama’s June 2007 statement14, some of Panama’s accomplishments and

outcomes within HFA1 are as follows:

• The Regional Plan for Disaster Reduction was updated at the national level in accordance with national priorities

on risk management. Other institutional guidelines, rules, and policies were also improved upon by incorporating

risk reduction into development plans.

12COE: http://www.sinaproc.gob.pa/index.php?option=com_content&task=view&id=26&Itemid=120

13SINAPROC, 2007

14 “Intervención de la S.E. Una Alfú de Reyes. Embajadora Representante Permanente Adjunta de la Misión Permanente de Panama, ante la Primera

Sesión de la Plataforma Global para la Reducción de Riesgo de Desastres. Junio 2007. Ginebra” http://www.preventionweb.net/files/2271_Pana-

maStatementGP07.pdf

PANAMA / 149

• Efforts have been made to develop and strengthen cooperation between the National Commission of the

Coordination Center for Natural Disaster Prevention in Central America (CEPREDENAC) and the Executive

Secretary.

• A coordinating network was created for the National Civil Protection System and CEPREDENAC-PANAMA

National Commission’s members to enable effective management of disaster risk reduction projects.

• Best practices for DRM and sustainable development have been developed through the involvement of private

companies and public institutions.

• Through community-based efforts, a platform for local risk management was developed in vulnerable

communities.

Some effort has also been made to mainstream DRM into the development of sectoral policies. There are

several environmental policies that address DRM in an attempt to foster sustainable environmental development, such

as the national policies for water, climate change, cleaner production, environmental monitoring, and environmental

information, among others. Health policy and related strategies are also designed to take into consideration the

economic, political, social, cultural, and environmental dimensions that determine the health condition of the population

in Panama.

HFA Priority # 2: Disaster risk assessment and monitoring

Earthquakes are monitored by two seismological networks: the Earthquake Western Observatory (OSOP15)

and the National Seismological Network (RSN16). Earthquake hazard has been probabilistically assessed in Panama

through the RESIS II Project (NORSAR, 2008). Volcanic hazards have only been preliminarily assessed in the western

region, near the Barú volcano17.

The Hydrometeorological Management Office of the Electric Transmission Company (GH-ETESA18) acts as

the national climatologic, meteorological and hydrological monitoring service in Panama. Hydrometeorological

hazards are also assessed at this bureau with coordination links to SINAPROC and COE.

According to the Government of Panama’s June 2007 statement19, Panama reported the

following accomplishments and outcomes within HFA2:

• The disaster inventory database was updated and refined.

• Flood-prone and landslide-prone areas were identified in the district of San Miguelito: Villa Greece and 8

communities of Bocas del Toro province.

• Several early warning systems for floods were implemented in vulnerable communities prone to floods from the

Mamoni, Cabra, and Chico rivers.

• Monitoring tools were customized for the Cabra, Tocumen and Tatar rivers and hazard maps of floods were

developed to support decision-making in vulnerable districts. Additional hazard maps were created for rainfall,

temperature, runoff patterns, and volcanic risk to benefit communities and enhance DRM activities.

15OSOP: http://www.osop.com.pa/index.html

16RSN: http://www.igc.up.ac.pa/

17 Volcanoes in Panama: http://www.igc.up.ac.pa/index.php?option=com_content&task=view&id=28&Itemid=49

18 Hidrometeorología-ETESA: http://www.hidromet.com.pa/sp/InicioFrm.htm

19 “Intervención de la S.E. Una Alfú de Reyes. Embajadora Representante Permanente Adjunta de la Misión Permanente de Panama, ante la Primera

Sesión de la Plataforma Global para la Reducción de Riesgo de Desastres. Junio 2007. Ginebra” http://www.preventionweb.net/files/2271_Pana-

maStatementGP07.pdf

150 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Advances have been made to develop structural and non-structural risk assessment and risk reduction

programs pertaining to health infrastructure. All hospitals exposed to natural or human threats must be retrofitted

to withstand the impact of a disaster and to assist victims during the critical period that follows. This requires the

timely reduction of the vulnerability of the infrastructure, in addition to preparedness for providing a timely and effective

response. National risk assessments of hospitals and health centers have been supported through the Social Security

Fund and 95% of related staff has been trained in risk management.

Monitoring systems and related networks have been advanced in Panama. The University of Panama’s

Geosciences Institute has a real-time data gathering system with 20 seismological stations that continuously monitor

seismic activity at national and local levels. Also, twelve research projects were implemented to develop monitoring

networks of urban hazards throughout Panama.

Inspections have been conducted by the National Civil Protection System in prevention and mitigation

activities, developing changes in home building processes, erosion control in urban development, and integrated

watershed management, towards reducing the impact of flooding in the most vulnerable areas of the country.

The hydrometeorological network was implemented and expanded through the Electric Power Company to

monitor climatic conditions and support DRM initiatives. Long-term, weekly and daily weather forecasts have also been

prepared. These forecasts are provided to the Ministry of Agrarian Development to support decision-making and are

shared with the Ministry of Health, Smithsonian Institution, National Civil Protection System, the National Environmental

Authority, and international organizations.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

The National Secretariat for Science and Technology and Innovation (SENACYT) is charged with fostering

all research, development, training and education efforts related to natural hazards, risk, and DRM in Panama.

According to the Government of Panama’s June 2007 statement20, Panama reported the following

accomplishments and outcomes within HFA3:

• An initiative was proposed to develop a National Strategic Education Plan for Risk Management and

Sustainable Development in order to mainstream a culture of prevention that strengthens the Panamanians’ way

of life and advances sustainable development.

• The inter-agency coordination between the Social Investment Fund, the General Accounting Office, the Tomy

Guard Institute, and SINAPROC was strengthened to facilitate the management of scientific and technical

DRM information.

• Disaster Risk Prevention campaigns were developed through health fairs, newspapers, and radio broadcasting.

The National System of Civil Protection and the Ministry of Education have begun incorporating risk

management and disaster topics in the programs and curricula of early childhood education, primary, middle and

high schools, and the first DRM manual has been released for teachers of primary education. The National System of

20 “Intervención de la S.E. Una Alfú de Reyes. Embajadora Representante Permanente Adjunta de la Misión Permanente de Panama, ante la Primera

Sesión de la Plataforma Global para la Reducción de Riesgo de Desastres. Junio 2007. Ginebra” http://www.preventionweb.net/files/2271_Pana-

maStatementGP07.pdf

PANAMA / 151

Civil Protection and the University of Panama’s Faculty of Education initiated coordination activities towards developing

qualified DRM personnel to strengthen the Operative Plan for School Safety Program.

Community outreach on environmental concepts, information and actions was done through World

Meteorological Day celebrations and other activities. For instance, a training project between the Electric Power

Transmission Company and the Ministry of Education called “Rain Source of Life” sought to develop awareness of

the natural environment among fifth and sixth graders, facilitating the training of teachers. Also, a “decimal” contest

was developed for children as a tool to raise awareness about disasters, the environment and how to protect the area,

sponsored by the ETESA Electric Transmission Company and the Ministry of Education.

The Technological University of Panama has integrated DRM topics by delivering programs on safe housing

construction, quality control of construction materials, and seismic instrumentation for high-rise buildings.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

Panama’s June 2007 statement21 indicated the following activities as some accomplishments and outcomes

within HFA4:

• Climate change scenarios were adapted for the Santa Maria River Watershed to facilitate the identification and

implementation of adaptation measures.

• The “Strengthening of Forest Fire Prevention and Control Management” program was developed in the

Soberania and Camino de Cruces National Parks.

In the context of community capacity development for disaster risk prevention and mitigation, the National

Civil Protection System has strengthened local capacity for DRM and emergency response capabilities in several

communities. DRM Local Civil Protection Committees have been established in twenty-nine vulnerable communities.

Communal Civil Protection bases have also been created to foster effective DRM practices and response in the event of

a disaster or emergency in areas identified as high risk. These areas include the province of Panama, western Panama

and the countryside, Chiriquí, Bocas del Toro, Colón, Herrera and Los Santos.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

According to the Government of Panama’s June 2007 statement22, some of Panama’s accomplishments and

outcomes within HFA5 are as follows:

• Based on a regional plan, the Ministry of Public Works developed a risk reduction master plan and Emergency

Operation Centers were established in the Provinces of Chiriquí and Coclé.

• Panama implemented the first early warning system in Central America that integrates voice and text messaging

for communities at risk. This service, known as “Line 335”, is free for landlines and mobile phones for all users

21 “Intervención de la S.E. Una Alfú de Reyes. Embajadora Representante Permanente Adjunta de la Misión Permanente de Panama, ante la Primera

Sesión de la Plataforma Global para la Reducción de Riesgo de Desastres. Junio 2007. Ginebra” http://www.preventionweb.net/files/2271_Pana-

maStatementGP07.pdf

22 “Intervención de la S.E. Una Alfú de Reyes. Embajadora Representante Permanente Adjunta de la Misión Permanente de Panama, ante la Primera

Sesión de la Plataforma Global para la Reducción de Riesgo de Desastres. Junio 2007. Ginebra” http://www.preventionweb.net/files/2271_Pana-

maStatementGP07.pdf

152 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

requesting information about emergencies and disasters. This information is accessible 24 hours a day, 365

days a year.

• Six technical cooperation agreements, on the topics of disaster risk reduction, preparedness, and emergency

response have been signed with government agencies and international organizations (e.g. the Southern

Command of the United States, Water Center for the Humid Tropics of Latin America and the Caribbean,

Japan’s International Cooperation Agency and the United Nations Development Program).

• Significant effort was made to improve emergency response capabilities at the local level by training water

rescue personnel, providing courses on the Incident Command System, and piloting a project to promote

procedures for standard search and rescue and pre-hospital care.

Panama will benefit from building on these initial efforts to ensure local governments are accountable

for the implementation of critical DRM activities, such as the design and enforcement of building codes and

establishment of an adequate regulatory framework for the zoning of urban and industrial developments.

It is expected that Panama will continue mainstreaming the concepts of risk reduction into the national

planning process while promoting further integration of DRM into development plans. It is also expected that

improving strategic risk management planning in relevant sectors such as health, environment, education, agriculture,

public works and investments, housing, and human settlements will continue.

4.key donor engagements

Existing Projects with Donors and

International Financial Institutions

Integration of adaptation measures in the management

of natural resources in priority watersheds

Development of disaster risk management capacity at

the local level

Strengthening of CEPREDENAC and National

Commissions for disaster vulnerability reduction in

Central America

Earthquake Risk Reduction In Guatemala, El Salvador

and Nicaragua with regional cooperation support to

Honduras, Costa Rica and Panama (RESIS II)

Regional Program of Environment in Central America

(PREMACA)

Program for the Reduction of Vulnerability and

Environmental Degradation Panama (PREVDA)

Support to advance a Regional Plan for Disaster

Reduction (PRRD)

Mesoamerican coordination system for territorial

information

Strengthening of Information and Communication for

CEPREDENAC and National Commissions

Funding Agency /

International Partners

UNDP

Japan International Cooperation

Agency

Spanish International Cooperation

Agency

Norway

Danish Cooperation (DANIDA)

European Commission

Norway, Spanish International

Cooperation Agency

IADB

World Bank (Institutional

Development Fund)

Allocated

Budget

(US$)

Not available

2009-2012

300,000

2008-2011

130,000

2005-2009

2.4 million

2007-2010

Not available

3.34 million

2007-2011

400,000

2006-20011

800,000

2009-2011

446,000

2007-2009

HFA

Activity

Area(s)

2,4

2,3

1,2

PANAMA / 153

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given Panama’s disaster risk profile and its existing framework for disaster risk management, the key

priority in Panama is to mainstream disaster risk reduction at the sectoral level. Strategic actions are needed

in the following areas to enhance disaster risk management in Panama: (i) strengthen institutional capacity of members

of the national system, (ii) reduce vulnerability in urban areas, and (iii) develop a comprehensive risk assessment and

monitoring capacity.

GFDRR has no ongoing or completed projects in Panama at the moment; however, Panama is becoming a core country

of the GFDRR program. The most immediate activity envisioned for Panama is its incorporation of a comprehensive Risk

Assessment Platform by joining efforts with other regional countries that are actively involved with the Central American

Probabilistic Risk Assessment.

The following activities have been identified in consultation with local authorities and international donor agencies. These

actions support Panama’s disaster risk management program and reflect HFA priority action areas.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered

for GFDRR funding)

Implementing Agency /

International Partners

Indicative

Budget and

Period

(US$)

HFA

Activity

Area(s)

Support for the development of a Risk Assessment

Platform for Panama

SINAPROC, Universities, Minister of

Finance

914,000

2009-2011

1,2,3

Support capacity building and integrate risk reduction

into national planning systems to mitigate urban risk

SINAPROC, Municipality of Panama,

Other Municipalities, UNDP

2.2 million

2009-2012

1,2,4

Technical assistance to mainstream disaster risk

management in the water and transport sectors

Ministry of Health, Ministry of

Transport, SINAPROC

600,000

2009-2011

1,2,4

Support to mainstream disaster risk management in

other priority sectors

Minister of Finance, SINAPROC

980,000

2009-2012

1,2,3,4,5

Technical assistance to raise public awareness and

proactively engage the private sector in disaster risk

reduction activities

SINAPROC, Private Sector Entities

500,000

2009-2011

1,3,4

Total Budget Requested: US$ 5.194 million

In addition to the above-mentioned activities, there is ongoing dialogue with national and local officials to identify disaster

risk management measures that consider climate change as part of adaptation strategies in Panama.

DISASTER RISK MANAGEMENT

Middle East & North Africa

Djibouti / Republic of Yemen

156 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

DJIBOUTI

The Djibouti Disaster Risk Management (DRM) program is the result of active collaboration between the World Bank and

five leading Djibouti DRM agencies. The following are the national agencies engaged: (i) the Djibouti Center for Study and

Research (CERD); (ii) the Executive Secretariat for DRM (SEGRC); (iii) the Ministry of the Habitat, Urbanism, Environment,

and Land Management (MHUEAT); (iv) the Meteorology Division of the Airport; and (v) the University of Djibouti.

1. DISASTER RISK PROFILE

Djibouti is a resource scarce country. Measuring 23,000 sq km, it is located at the juncture of the Red and

the Aden Sea, which serves as a vital regional and international trans-shipment port. According to 2003

national statistics, the country’s population is estimated at 734,000 people, 85 percent of which live in urban coastal

areas1 and roughly 65 percent in Djibouti-ville, the capital city. In 2008 Djibouti’s real GDP grew by 5.9 percent, driven

mainly by foreign direct investments (FDI) in construction and maritime services. According to the World Bank, Djibouti’s

strong externally financed public investment and the growing diversification of maritime services will allow Djibouti to

decrease its dependence on Ethiopian trade and will support real GDP growth of about 5 percent in 2009.

Figure 1. Map of Djibouti

Djibouti is vulnerable to a range of natural hazards: i) extended dry multi-annual droughts that result in water

scarcity for agriculture and domestic uses; ii) frequent intense flash floods with a variable but approximate recurrence of

7 years; iii) frequent earthquakes ranging in magnitude between 4 and 5 on the Richter scale iv) volcanism originating

along the Afar rift area; and v) fires fueled by droughts and exacerbated by precarious construction materials.

Data from recent disasters (Table 2) demonstrates that Djibouti’s economic growth and sustainable

development have been heavily affected by natural disasters. According to the World Bank Natural Disaster Hot

Spots Study2, Djibouti is characterized by a relatively high economic risk from multiple natural disasters. Approximately 33

percent of its population lives in areas of high risk3, and 35.3 percent of the economy is vulnerable to natural disasters.

1 The majority of Djiboutian population is located near the coast, and is particularly at risk from sea level rise and flash floods (as seen in 1927, 1989,

1994, and lately in 2004).

2 World Bank, Natural Disaster Hotspots: A Global Risk Analysis. 2005.

3 According to UNDP, the drought of 1999 affected more than 150,000 nomadic herdsmen, and the scarcity of rainfalls resulted in the loss of 30

percent of the cattle.

DJIBOUTI / 157

Djibouti’s disaster risk vulnerability is worsened by scarce water resources management, insufficient land

use planning, non-systematic building codes enforcement, as well as by the country’s limited capacity to

prevent and respond effectively when a natural disaster occur. Furthermore, at present the country is experiencing

a water crisis due to the pressure placed on its renewable freshwater resources by population growth, as well as by

climate change. With less than 400 m3/yr/per capita (in 2005), the country is classified as water scarce (according to

World Health Organization definition of <1000 m3/yr/per capita) (Table 1).

Table 1. Country snapshots

Index

Population (1000)

Growth rate (%)

Water per capita (m3/yr)

GDP agriculture (%)

Rural water access (%)

Djibouti

793

2.1

378

Source: United Nations Statistic Division (2005)

Morocco

31,478

1.5

921

Yemen

20,975

1.1

195

Droughts have been exacerbated by two consecutive failed rainy seasons, which resulted in the insufficient

replenishment of water catchments. According to the Emergency Events Database (EM DAT), 2008 drought damage

and loss affected roughly 50 percent of the population. As the drought worsened food prices for staples reached record

levels, worsening the situation for poorer households. Poor urban households can currently buy only 68 percent of their

daily minimum food requirements4. According to the Food Security and Nutrition Working Group, 284,000 people (41

percent of total population) are food insecure or at risk of food insecurity due to droughts.

A recent World Bank study indicates that annual economic losses resulting from the April 2004’s flash

floods at Oued d’Ambouli, exceeded DJF 1.8 billion (approximately US$ 11.1 million), caused 230 fatalities

and severely affected about 20,000 households. The flash floods caused grave damage to services, roads, bridges,

health facilities, and schools.

Table 2. Main Natural Disasters in Djibouti 1970 – 2007

Natural Disaster

Flood

Drought

Flood

Drought

Flood

Epidemic

Wind storm

Drought

Epidemic

Year

1977

1978

1980

1981

1984

1988

1989

1993

1994

1995

1996

1997

Total Dead

145

Number of

Affected People

91,000

106,000

145,000

102,000

80,000

30,000

15,0300

20,000

120,000

239

775

100,000

2,424

Damage

US$ million

2,500

1,100

2,119

(Cont.)

4 World Bank, Djibouti Economic Monitoring Report, Social and Economic Development Group MNA. April 2008.

158 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

Natural Disaster

Epidemic

Drought

Epidemic

Flood

Drought

Year

1998

1999

2000

2001

2004

2005

2007

2008

Total Dead

230

Source: UNDP, Disasters for LDCs (2004); GFDRR (2009)

Number of

Affected People

2,000

100,000

150,000

419

95,000

115,000

42,750

150,000

284,000

Damage

US$ million

1,600

2. activities under the hyogo framework of action

HFA Priority # 1: Institutional Capacity and Consensus Building for Disaster Risk Reduction

Djibouti’s main DRM strategy objectives includes the following pillars: (a) increase national leadership

and commitment to the sustainability of DRR through the implementation of the HFA; (b) enhance collaboration and

coordination among national stakeholders in order to increase DRR knowledge and understanding; (c) increase national

commitment to protect disaster vulnerable households; and (d) serve as national focal point in the United Nations

International Strategy for Disaster Reduction (ISDR) system, and strengthen links with its secretariat.

Table 3. Djibouti’s DRM Legal and Policy Framework

Date

Oct-06

Jul-06

Mar-06

Jun-05

DRM Legislations/Documents

National Action Program for Climate Change Adaptation; Ministère de l’Habitat, de l’Urbanisme, de l’Environnement et

de l’Aménagement du Territoire, UNEP, GEF, UNFCCC

Decree No. 2006-0192/PR/MID. Institutional framework for disaster and risk management

Exécution of the National Strategy for DRM; Ministère de l’Intérieur et de la Décentralisation

Coastal Environmental Profile of the Republic of Djibouti; Ministère de l’Habitat, de l’Urbanisme, de l’Environnement et

de l’Aménagement du Territoire

Feb-05

Aug-04

Jun-04

Dec-01

Jul-01

Dec-00

Prescription No. 2005-0147/PR. Creation of the Post-Flooding Rehabilitation Program Steering Committee

Prescription No. 2004-0579/PR/MID. Creation of a Technical Committee to prepare and elaborate a national strategy

for disaster and risk management

Law No. 58/AN/04/5ème L. Creation and status definition of the Civil Protection Bureau

Republic of Djibouti First National Communication to the UNFCCC; Ministère de l’Habitat, de l’Urbanisme, de

l’Environnement et de l’Aménagement du Territoire

Study of Vulnerability and Adaptation to Climate Change; Ministère de l’Habitat, de l’Urbanisme, de l’Environnement et

de l’Aménagement du Territoire

National Environmental Plan; Ministère de l’Habitat, de l’Urbanisme, de l’Environnement et de l’Aménagement du

Territoire

Source: World Bank 2009

DRM is a priority of the Government of Djibouti, and is an integral part of the processes of development

planning and poverty reduction. However, disaster prevention, mitigation and preparedness are new to the country

and need to be further strengthened. The institutional structure for DRR and DRM is headed by the National Committee,

DJIBOUTI / 159

presided by the First Minister responsible for: (i) policies and strategies formulation; (ii) international aid mobilization, and

(iii) integrating DRM activities with poverty reduction.

In 2006 Djibouti’s Government established the Executive Secretariat for Risk and Disaster Management

(SEGRC). SEGRC advises the National Committee on natural disaster technical matters, coordinates prevention,

mitigation, and response activities. Moreover SEGRC controls the crisis center, promotes and coordinate the preparation

of sectoral and regional plans for risk and disaster management. Although SEGRC capacity is limited (it consists of three

staff members), a plan for its expansion is envisaged, increasing staff members to 6 by the end of 2009.

The National Inspectorate for Civil Protection has been operational since 1970. In 2004 a new law has been

approved in order to expand and better define the Civil Protection core DRR competencies. The Civil Protection

has two main functions: (a) fire risk management and prevention; and (b) emergencies operational management. The

Inspector manages all relief operations either from the command post of the Civil Defense Inspectorate or, in most cases,

from the field. The Government of Djibouti has been enhancing the Civil Protection capacity and is currently establishing

regional Civil Defense offices.

Djibouti’s main think tank is the National Center for Scientific Study and Research (CERD). CERD is a

multidisciplinary scientific research development institute which provides policy makers and citizen’s access to training,

workshops and knowledge on: (i) environmental studies; (ii) social sciences; (iii) international strategic studies; (iv)

cartography and geography; and (v) information technologies. CERD has led the first phase of GFDRR technical

assistance, and would be one of the key partners in the development of the second phase.

In terms of DRM Institutional Capacity and Consensus Building for DRR, several multilateral organizations

are engaged in strengthening DRM capacity in Djibouti. These organizations are: USAID, UNEP, UNDP, UNICEF,

and the EC. In addition, the MNA DRM Team is currently seeking to establish regional partnership with IGAD in order to

foster disaster preparedness.

HFA Priority # 2: Disaster Risk Assessment and Monitoring

Djibouti has not regularly assessed the country’s exposure to natural disaster risk, nor to climate variability.

In spite of the country technical sectoral expertise (meteorology, seismology, hydrogeology, geology, and geography)

Djibouti lacks risk assessment and evaluation capacity. There have been limited attempts to assess risk in probabilistic

and financial terms, and there are no local, national and regional hazard risk maps available. Policy makers have therefore

limited access to risk evaluation tools.

The MNA DRM Team has carried out preliminary activities to develop a comprehensive risk assessment

system for the country, in partnership with CERD and the MHUEAT and in close coordination with SEGRC.

The activities developed are: (i) establishment of detailed TORs for the system; and (ii) undertaking of a detailed inventory

of vulnerability data existing in Djibouti.

In 2006 MHUEAT in partnership with GEF, and the United Nations Intergovernmental Panel on Climate

Change (UNIPCCC) led the preparation of a national action program for adaptation to climate change:

The National Adaptation Program of Action (NAPA)5. The key objectives of this report were: (i) establish a climate

adaptation framework; and (ii) improve the government effectiveness to tackle climate variability challenges.

Following April 2004 devastating flood that stroke Djibouti-City, the Government applied for USAID funding

to establish a flash flood early warning system. In January of 2009 the Government of Djibouti began the installation

5UNEP, GEF, et al. National Adaptation Program of Action. 2006

160 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

of a surveillance system in the Ambouli River Basin, and several Government officials are currently undertaking training

at CERD prior to the system becoming operational in the fall of 2009. SEGRC needs to develop alert and shelter

protocols, as well as set up a simulation system in order for the surveillance system to be upgraded to an early warning

system. SEGRC is also working with USAID for the establishment of an additional early warning system for the region

of Oued d’ Amis.

In 2001 Djibouti developed its first disaster vulnerability, as well as climate change adaptation study on the

vulnerability and adaptation to climate change impact.

HFA Priority # 3: Reduce the underlying risk factors

DRR awareness dissemination is limited, and does not comprise university curricula, school training, or

text books for primary or secondary education. The SEGRC, with funding from the IDA-financed Flood Emergency

Rehabilitation Project, developed some activities to raise awareness, notably training of technical staff from various

government agencies, creation and training of regional disaster prevention committees, and launching of general

awareness radio emissions. Nevertheless these efforts have been limited in scope and have lacked a framing long-term

strategy. The dissemination of disaster and environmental information, best practice and lessons learned in Djibouti has a

long way to go. There is a lack of information and knowledge regarding: the country’s natural resources; potential natural

disaster and environmental impacts. Furthermore, there is no systematic DRR training provided to decision makers,

neither is risk knowledge disseminated to vulnerable rural and coastal communities.

HFA Priority # 4: Reduction of the underlying risk factors

Disaster response has improved considerably as a result of combined national and international efforts,

as well as because of Djibouti increased financial allocation to disaster planning and emergency response.

Nonetheless, DRR is not systematically incorporated into the design and implementation of emergency, response,

recovery and rehabilitation processes of the national policy framework. Consequently, risk reduction policies struggle to

find due consideration and justification, needed to encourage investment in prevention.

Although some efforts to introduce building codes standards have taken place, law enforcement is limited.

DRR elements are not systematically included in land use development plans; additionally technical construction

standards are not always elaborated and implemented.

With regard to climate change adaptation, in February 2009 the World Bank, with support from the Bank

Netherlands Partnership Program (BNPP), issued a report on climate change risks and adaptation options

for the Republic of Djibouti6. This report aims to identify Djibouti most climate change vulnerable sectors, and to

outline potential priority adaptation measures that could help develop national capacity to understand and adapt to

climate change impacts.

HFA Priority # 5: Strengthen disaster preparedness and response at all levels

There are currently limited disaster preparedness and risk transfer activities. However the Government

is planning to increase funding for the development of the following activities: (i) creation of a contingency fund; (ii)

elaboration of emergency planning at all levels and; and (iii) enhancement of emergency and crisis related institutional

capacities.

6 Wilby, R. Climate Change Risk and Adaptation Options for the Republic of Djibouti. February 2009

DJIBOUTI / 161

3. INTEGRATION OF Disaster risk management IN DEVELOPMENT STRATEGIES

To address its social and economic challenges, in January 2007 the Government of Djibouti launched the

“Initiative Nationale pour le Développement Social (INDS)”, replacing the Poverty Reduction Strategy

Paper (PRSP). The INDS will promote access to basic social services and improve the quality and effectiveness of

delivery. In terms of DRR, INDS aims to streamline DRR in priority sectors by strengthening DRM institutional capacity,

risk mitigation and preparedness.

The current Country Assistance Strategy (CAS) for the Republic of Djibouti (FY 2009-2012) recognizes

natural disasters as one of the main causes of poverty. Djibouti CAS proposes to tackle disaster vulnerability by

integrating DRR into sectoral activities, increasing investment in the water sector in order to retain water for agriculture,

to prevent floods, and to recharge water aquifers. This is very relevant given that most disasters in Djibouti are of water

born nature.

UNDAF 2008-2012 emphasized Djibouti’s risks exposure to natural disaster and proposes to strengthen

national institutions responsible for poverty reduction, with a special focus on DRR, and epidemics. More

concretely UNDAF envisaged a framework for a better management of natural resources. This framework will include the

establishment of: (i) an integrated environmental safeguarding strategy; (ii) a framework for fighting desertification; (iii)

an early warning system; and (iv) and the active involvement of rural communities in the prevention and management of

natural disaster activities.

4. KEY DONOR ENGAGEMENTS

Table 4. Key Donors and International Financial Institutions Engagement

Ongoing Projects

Developed Countries Fund (LDCF) project grant

Flood Emergency Rehabilitation Project: Establish SEGRC

Preparatory activities and methodology to develop a comprehensive

system for risk assessment

Climate modeling and risk management (Multi country project)

Urban Poverty Reduction Program

DRM Strategy

Drought Prevention Water Management

Ensure that a national multi-sector platform for DRR is operational

UN, Donor, IFI

Cooperation

Global Environment

Facility (GEF)

World Bank

Global Facility for

Disaster Reduction

and Recovery

(GFDRR)

GFDRR

World Bank

United Nations

Development

Program (UNDP)

European

Commission (EC)

World Bank, UNDP,

UNEP, EC

Indicative

Budget (US$)

10,500,000

6,500,000

70,000

43,900

3,000,000

50,000

769,000

800,000

National Adaptation Program of Action (NAPA)

Climate Change Risks and Adaptation Options for the Republic of

Djibouti (Final Report)

MHUE, UNEP,

GEF

World Bank, BNPP

200,000

60,000

HFA Activity

Area(s)

HFA 2-4-5

HFA 5

HFA 1-2

HFA 1-5

HFA 1

HFA 1-2-3

HFA 1-2-4

HFA 2-3-4

HFA1-2-3-4

162 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Although Djibouti has made considerable progress in DRR, significant challenges remain unaddressed.

Understanding of natural hazards remains limited, and natural disasters are predominantly dealt in an

ex-post manner. The following strategic actions are necessary in order to streamline DRR: (i) increase technical

capacity, awareness and equipment of national DRM institutions; and (ii) mainstream DRR in priority sectors. Given the

limited capacity in the country, the task team proposes that the second phase of the technical assistance be focused on

improving risk assessment and monitoring capacity, targeting the following organizations: CERD, SEGRC, the University

of Djibouti, MHUEAT, and the METEO.

The task team proposes country execution for this activity in order to ensure the highest transfer of DRM

capacity to Djibouti agencies. However, in order to ensure effective project implementation, key national agencies

seek to establish an implementation unit which will be housed in CERD and will be responsible for activity coordination,

financial and administrative management. By working with the five identified institutions through a structured technical

assistance, we will gain further coordination and we will provide support to data analysis, which is indispensable for

developing prevention activities.

MNA DRM team will seek GFDRR financial assistance to continue strengthening Djibouti risk assessment

and monitoring capacity. The second phase of GFDRR Track II activity aims to develop Djibouti’s comprehensive

system for risk assessment. This activity will further strengthen CERD, SEGRC and MHUEAT DRM capacity, and reinforce

stakeholders understanding of the country’s exposure to natural disasters and its social, economic, environmental and

physical vulnerabilities. The TORs for the Comprehensive Risk Assessment activity in Djibouti are inspired by The Central

American Probabilistic Risk Assessment (CAPRA). CAPRA seeks to develop appropriate standards and methodologies

for probabilistic risk evaluation, and incorporates state of the art models into a geographic information platform.

Strengthen SEGRC DRM capacity. SEGRC has limited staff, consisting of three staff members: the executive secretary

and two administrative assistants. Under the second phase of GFDRR work, the task team plans to strengthen SEGRC

DRR capacity by developing an activation and crisis management protocol, as well as broadening the development of

disaster simulations at national and community levels.

In terms of climate change adaptation, MNA DRM team aims to strengthen MHUEAT, as well as National

and Local Government capacity to understand and adapt to climate change. The climate adaptation activities

options under consideration seek to build on existing efforts such as the NAPA, and the 2008 World Bank Climate

Change Risk Adaptation Options for the Republic of Djibouti. This activity will consist of a coastal climate adaptation

pilot project, which will seek to reduce the adverse effects of climate change through raising climate risk awareness, and

by increasing the understanding of available climate adaptation options.

Broaden DRR training programs for country stakeholders through the involvement of the University of

Djibouti, public schools, and key national think tanks. This activity aims to develop DRR training modules and

a master’s degree for students as well as specialized training for teachers. This component will ensure that university

curricula, education material and relevant trainings include DRR and recovery concepts and practices. By incorporating

disaster risk-related issues into existing university curricula, the DRR team contributes to continuous learning and

sustainability of the program, as well as reinforces DRR knowledge in the country.

Enhance the Division of Meteorology knowledge of meteorological risks, and quality of data access in order

to strengthen the METEO climatic risk analysis. This will be obtained by establishing between 7 and 15 automatic

weather stations throughout the seven climatic regions of Djibouti and by providing specialized training to staff.

DJIBOUTI / 163

Djibouti is looking to engage in the GFDRR South-South Cooperation Program. South-South Cooperation will

expand partnership with disaster-prone countries facing similar challenges, by tapping into technical know-how, sharing

experiences and lessons learned of governments, institutions, and NGOs, leading to efficient solutions to challenging

disaster risk and climate change problems.

Table 5. Planned DRM Activities

Indicative Program for GFDRR Funding

(engagement areas being considered for

GFDRR funding)

Development of a comprehensive risk assessment

platform (CARAD), within CERD and provide

technical assistance and equipment to use and

maintain the platform

Implementing

Agency

CERD

Indicative Budget

Year

(US$)

1.000.000

2009-2012

HFA Activity

Area(s)

HFA 1-2-3

Establish an implementation unit to facilitate project

implementation

CERD

60,000

2019-2011

HFA 1-2-4

Strengthening institutional DRM and DRR capacities

of national organizations

1,538,000

2009-2012

HFA 1-2-3

Elaboration and activation of alert and shelter

protocols, and development of a simulation program

SEGRC, Regional

DRM Committees

300,000

2010-2011

HFA 1-3-5

Develop a climate adaptation pilot in the northern

coast of Djibouti

MHUEAT

350,000

2009-2011

HFA 3-4

Develop DRM module training and master for

professional and students

University of

Djibouti, University

of Montpellier, WB

480,000

2009-2012

HFA 1-3

Total indicative budget requestedUS$3,728,000

164 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

REPUBLIC OF YEMEN

The Yemen Country Note is based on vigorous consultations undertaken with various governmental agencies, the UN

agencies, and the World Bank country office staff to understand the current organizational structure for managing disasters

in Yemen and identify possible areas of support for strengthening Disaster Risk Management (DRM). Major governmental

agencies consulted include the ministries of Planning and International Cooperation, Oil and Minerals, Communications

and Information Technology, Transport, Public Works and Highways, Civil Defense, Water and Environment, Agriculture and

Irrigation, Health, and Local Administration. The findings of the consultations were presented to a cabinet level meeting,

held on April 23rd 2009, chaired by the Deputy Prime Minister, Ministry of Planning and International Cooperation. During

the meeting, the Government of Yemen provided guidance and identified priority areas of interventions for DRM.

1. DISASTER RISK PROFILE

The Republic of Yemen, covering an area of nearly 528,000 km² on the Arabian Peninsula near the Horn of Africa,

is home to a population of about 22 million that is growing at over 3 percent per annum. Yemen’s urban population,

currently about 27 percent of the total, has a much faster growth rate than the overall population growth rate, and is

growing at about 5 percent per annum. The country’s topography of rugged mountains, highlands, deserts, and coastal

plains, coupled with arid weather conditions, render Yemen highly susceptible to desertification and floods, and make it

a disaster prone country that has experienced at least one disaster per year over the last two decades.

Floods are the most recurrent natural disaster in Yemen, followed by landslides and earthquakes. The most recent

major floods occurred in 1996, 2000, and 2008. While regular flooding has traditionally been beneficial for agricultural

practices in Yemen, when flooding occurs in areas that are densely populated, there are significant economic damages

that occur due to loss of lives, damage to livelihoods, property and infrastructure. With an estimated per capita GDP of

US $870 and therefore limited financial resources, Yemen can ill afford the losses it currently sustains from recurrent

disasters. Table 1 provides an overview of the natural disasters reported in Yemen over the last 28 years, while Table 2

provides estimates of loss from the ten most major disasters over the last twenty years.

Table 1. Natural disasters reported from 1980-20081

Table 2. Top 10 natural disasters reported (1988-2008)2

No of events

No of people killed

No of people affected

Economic Damage (US$ X 1,000)

Economic Damage per year (US$ X 1,000)

908

1,064,592

2,849,500

101,767

Disaster

Flood

Earthquake

Flood

Drought

Date

2008

1991

1993

1999

1996

1998

2006

2007

1988

Affected

700,000

40,039

30,000

21,500

19,750

5,000

3,000

2,000

1 Provention Web and WB DLNA: October 2008 Tropical Storms and Floods, Republic of Yemen 2009.

2Ibid.

Killed

Cost

(US$ X 1000)

1,638,000

10,000

1,500

REPUBLIC OF yemen / 165

Floods are the major natural disaster in Yemen

Loss of human life has been the greatest from floods and the economic damage from the 2008 flood was very severe

(Figures 1 and 2). Floods occur almost every year in Yemen with major floods reported in 1991, 1993, 1996, 1999,

2000, 2006, and 2008. The 2008 flood affected two governorates in Yemen, which received 90 mm of rainfall in 30

hours, almost eighteen times greater than the normal rainfall of 5mm to 6mm. The rain fell over a catchment area of 2

million hectares, and the nearly 2 billion cubic meters of water caused severe flash floods in the valley, with water surges

exceeding 10 meters in some areas.

Figure 1. Percentage of reported people killed

by disaster type

Figure 2. Natural disaster occurrences reported

Flood 83%

Epidemic 4%

Erthquake* 1

Earthquake* 1% Mass mov. wet 1

Storm 4%

Mass mov. wet 8%

Volcano 1

Epidemic 2

Storm 2

Flood

Source: WB DLNA: October 2008 Tropical Storms and Floods, Hadramout and Al

Mahra, Republic of Yemen

The last flood was caused by a level-three tropical storm that affected the two eastern Governorates of Al-Mahara

and Hadramout3. 73 people were killed, over 25,000 people were displaced, and about half the population in these

Governorates lost their livelihood. Consequently, the poverty rate in these two Governorates is expected to increase

from 28 to 51 percent, and the national poverty rate is expected to go up by 1.1 percent. The overall damage and loss

assessment from this flood was estimated to be about US$1,638 million, or about 2.8% of Yemen’s GDP4.

Spatial distribution of floods, earthquakes, and landslides in Yemen

Floods: The areas that are at risk from flooding are largely the densely populated areas of western Yemen, that include

governorates of Sada’a, Sana’a, Dhamar, Ibb, Taiz, Lahz, Mareb, and Abyan (Figures 3 and 4)5. In central and eastern

Figure 3. Population Density

Figure 4. Flood Hazard

3 Yemen is divided into 19 governorates

4Source: WB DLNA: October 2008 Tropical Storms and Floods, Hadramout and Al Mahra, Republic of Yemen

5 Preliminary risk maps from WHO e-atlas of disaster risk for Eastern Mediterranean Region, 2008; population density map from LandScanTM Global

Population Database (2006). Oak Ridge National Laboratory. Available at http://www.ornl.gov/landscan/.

166 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

Yemen, the Hadramout Valley and the southern coastline of Yemen are also at risk from flooding. Floods in Yemen mostly

result from high-intensity rainfall, and sometimes from coastal storm surges and tsunamis.

Earthquakes: Yemen is located in the seismically active zone between the Arabian and African tectonic plates. The

western and southern portions of Yemen (Figure 5)6 around the rifts of the Red Sea and Gulf of Aden, are at risk from

earthquakes. This is where the Arabian and African plates are pulling apart.

Landslides: Unstable geological conditions, including the development of extensive cracks due to natural aging and

extreme weather conditions, exist in several mountainous regions of Yemen such as Al-Dhafeer Al Gayah and Al-Semah.

In such regions, heavy rains, storms, earthquakes, or volcanic eruptions, as well as mining and inappropriately sited

infrastructure, can combine to trigger landslides. Since the terrain of Yemen is mostly mountainous, the entire country is

at risk of landslides (Figure 6)7.

Figure 5. Seismic Hazard

Figure 6. Landslide Hazard

Three main factors that exacerbate Yemen’s vulnerability to natural disasters

Climate change is expected to increase exposure to drought and flash floods, leading to a trend: While there is no

international consensus on the impact of climate change on precipitation levels in Yemen, Global Climate Models (GCM)

predict a three to four degree centigrade increase in mean temperatures8 by the 21st century. Climate change induced

impacts may include a rise in sea levels, and increased exposure to droughts and flash floods in the country.

Depletion of water resources: The availability of water in Yemen stands at 150 cubic meters per capita, and is well

below the threshold of 1000 cubic meters per capita established by the United Nations for classifying countries as water

scarce countries. In fact, the availability of water in Yemen is much lower than the average figure for the Middle East and

North Africa Region, which is about 1250 cubic meter per capita. This limited availability of water is further exacerbated

by three factors: (i) seasonal and temporal changes in the pattern of rainfall that Yemen receives; (ii) both expansion of

the area under cultivation as well as water intensive agricultural production; and (iii) higher ground water extraction and

reduced ground aquifer recharge as a result of increased urbanization which in turn has resulted in an expansion in built-

up areas. The depletion of water resources is increasing aridity, which could lead to reduced economic prospects in the

future, thereby making Yemen more vulnerable to natural disasters.

6Source: http://mrnathan.munichre.com.

7 Preliminary risk maps WHO e-atlas of disaster risk for Eastern Mediterranean Region, 2008

8 Values are for changes in mean temperature between 20th century (1961-1990) to 21st century (2070-2099) as projected by nine climate-change

models and reviewed by IPCC Third Assessment Report (2001).

REPUBLIC OF yemen / 167

Ineffective urban planning and development in hazard prone areas: Ineffective and weak land-use planning coupled with

a lack of building codes not specific to withstanding the impacts of natural disasters, has exposed both urban and rural

households in Yemen to greater risk of losses. Much of the expansion of built-up areas in Yemen’s cities is taking place in

unplanned settlements, located predominantly in environmentally sensitive zones where land values tend to be low, e.g. low

lying flood prone areas, steep hillsides, etc. Development in such zones often blocks existing natural drainage channels,

rendering them much more prone to damage when these areas get flooded due to inadequate drainage. In rural areas

too, as observed in the Hadramout valley, traditional mud structures on the edge of river beds are starting to give way to

concrete structures often built inside river beds, which impede the natural flow of water. Such man-made obstructions

obstruct to the natural flow of rain water, which can lead to floods and increase Yemen’s vulnerability to disasters.

Moving from a reactive to a preventive approach to disaster management in Yemen

Yemen’s approach to managing disasters is currently reactive, focused on post disaster relief and recovery activities.

Post disaster relief activities consist of emergency relief, and recovery & reconstruction programs. Such programs involve

the army, international relief agencies, various branches of technical ministries, and utility agencies at Governorate level.

Recovery and reconstruction activities are currently financed through specialized Recovery and Reconstruction Funds

(e.g. the recently established Fund for Recovery and Reconstruction in Hadramout and Al Mahara). The branches of

line ministries, other specialized agencies such as the Public Works Program, the Social Fund, and the Social Welfare

Fund contribute to recovery and reconstruction activities in keeping with their specific institutional mandates and

implementation capabilities.

The concept of disaster risk management (DRM) is new to the country. As a result of a current focus on post-disaster

relief, Yemen has relied largely on central government agencies to mobilize for relief activities. Going forward, however,

as Yemen’s commitment to proactive risk management is translated into re-mapping of administrative responsibilities of

central agencies and the forging of essential partnerships horizontally between and amongst central agencies, there will

be a need to establish effective vertical linkages between central and sub-national levels of government that penetrate

effectively down to the level of communities.

Donors have begun supporting the rationalization and clarification of roles and responsibilities for various central agencies

that are either already contributing to, or have the capability to contribute to the design and development of a cohesive,

coordinated, and efficient program for proactive risk management. While efforts to improve and enhance the horizontal

linkages between central level agencies is an excellent start, there is a long way to go before there is an established disaster

risk management program with a specific focus on (i) the prevention of disaster, (ii) the mitigation of the impacts of a

disaster, and (iii) and the preparedness needed to deal with disasters when they occur. The planning and execution of such

a program will require functional linkages, both horizontally and vertically, between national and sub-national government

agencies, local communities, international development agencies, as well as non-governmental organizations.

168 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

2. Progress towards Hyogo Framework for Action

Yemen is a signatory to the Hyogo Framework for Action9 and in keeping with the five priority areas for action, Yemen

has committed to:

1. Ensuring that the reduction of risks from disasters is a national and a local priority with a strong institutional

basis for implementation;

2. Identification, assessment, and monitoring of risks from disasters, and enhancing its early warning system;

3. Use of knowledge, innovation, and education to build a culture of safety and resilience at all levels.

4. Reduction in the factors that make Yemen more vulnerable to disasters; and

5. Strengthening disaster preparedness for effective responses at all levels.

The next section describes the state of progress that Yemen has made in the above mentioned five Hyogo Framework

priority action areas, along with the gaps and possible next steps.

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

Yemen has accorded high priority to disaster risk reduction, and has established two focal agencies to take

the lead in this area. These are:

(i) The National Disaster Management Unit (NDMU), housed within the Civil Defense General Directorate

(CDGD) under the Ministry of Interior (MoI); and

(ii) The Directorate of Environmental Emergencies and Disasters (DEE) under the Ministry of Water and

Environment (MWE), established in 2004 through a ministerial decree.

The Unit in the Civil Defense Directorate has the mandate to focus on disaster management and response in Yemen,

while the Department of Environmental Emergencies under the Ministry of Water is responsible for reporting on progress

in Yemen on the five priority areas of action outlined in the Hyogo Framework for Action, to the UN International Strategy

for Disaster Risk Reduction (UNISDR) – UNISDR being the agency that is responsible for monitoring progress on the

Hyogo Framework. Although the DEE has represented Yemen at several international forums, it has limited resources.

The Unit in the Civil Defense Directorate, on the other hand, is better resourced as it has been responsible for providing

emergency relief after disasters.

Yemen has established an institutional basis for implementation of actions related to disaster risk

reduction. There is a legal foundation for the creation of an organizational structure for managing the risks from

disasters, and Yemen has designated its Ministry of Interior to lead the structure. The 1997 Civil Defense Law defines

the responsibilities of the Civil Defense General Directorate with respect to for disaster management10. Subsequently,

the Executive Bylaw and the Republican Decree (N°386) became the basis for the Supreme Council of Civil Defense.

The Council is responsible for providing policy direction, approving plans for disaster preparedness and response,

and defining the tasks and responsibilities of each ministry/agency, actors and stakeholders before and during any

9 The Hyogo Framework for Action (HFA) 2005-2015: Building the Resilience of Nations and Communities to Disasters was developed during

2005 World Conference on Disaster reduction in Kobe, Japan. The HFA aims to substantially reduce disaster losses, in lives and in the social,

economic and environmental assets of communities and countries by effectively integrating, in a coherent manner, disaster risk considerations into

sustainable development policies, planning, programming, and financing at all levels of government.

10 Protecting the population from natural and general disasters and securing methods of safety and communication during peace and war (source

Law N° (24) of 1997 on Civil Defense).

REPUBLIC OF yemen / 169

emergency. It is chaired by the Minister of Interior, and includes key ministries as members11. However, when the floods

occurred in 2008, the Supreme Council was chaired by the Prime Minister himself on two occasions.

There is progress on the identification, assessment, and monitoring of risks from disasters, and the

establishment of an early warning system is in its infancy. The UN agencies and the Government of Norway

have provided support to initiate disaster risk management related activities in Yemen. They supported the Disaster

Preparedness, Management and Recovery project in 2003, which established under the Civil Defense General Directorate

the National Disaster Management Unit. However, the Unit needs technical, and financial strengthening, in addition to an

improved internal re-organization that enables it to develop the necessary vertical mechanisms for coordination with sub-

national entities and communities (which will also need strengthening). In order to develop an effective, comprehensive

and integrated disaster risk management system, the Civil Defense General Directorate was accorded the status of

an authority, with greater managerial and financial autonomy. However, it still functions as a ministerial department,

and its budget is approved by the Ministry of Interior. The National Disaster Management Unit has a National Disaster

Management Team that consists of focal staff from various ministries. It developed a National Disaster Management Plan

in 2006. This Plan, in addition to proposed initiatives for capacity building, GIS mapping, and rescue operations, includes

a checklist of activities to be undertaken in the event of a disaster, as well as a list of key contacts. This Plan is awaiting

approval by Yemen’s Cabinet.

There is a need to further strengthen the organizational structure for managing the risks from disasters, streamline agency

functions, and improve functional coordination and information sharing for an early warning system. Other prominent

agencies that play an important role in disaster risk management are the Public Works Program, the Geological Survey

and Mineral Resources Board, the National Water Resources Agency, and the Vulnerability Assessment Mapping Unit

under Ministry of Health. These agencies are active in risk assessment, early warning, and post disaster reconstruction &

recovery according to their specific institutional mandate and implementation capabilities. Figure 7 provides an institutional

map of agencies that are active within the different categories of activities that together constitute a comprehensive

disaster risk management program, and their relationship with the National Disaster Management Unit.

Yemen has to make rapid progress towards making disaster risk management a priority at the local

level. Sub national governments, their agencies, and local communities need to be integral to the planning and execution

of disaster risk management activities, so that there is more ownership which can lead to more effective implementation.

There is already progress towards decentralization in Yemen, and Yemen’s decentralization policy12 has mandated local

governments with disaster risk management and reduction. The legal foundation for developing and implementing

disaster risk management programs at the local level already exists.

11 The ministries currently and proposed to be represented are: Public Health and Population, Electricity and Energy, Commerce and Industry, Com-

munications and Information Technology, Transport, Finance, Oil and Minerals, Education, Justice, Public Works and Highways, Deputy General

Staff for Training Affairs and the Chairman of Civil Defense Authority, Planning and International Cooperation, High Education and Scientific Re-

search, Foreign Affairs, Local Administration, Information, Youth and Sport as well as the Chairman of the NGO Yemeni Red Crescent and Chair-

man of Federation of Commerce and Industry

12 The Local Authorities Law No. 4 of 2000

170 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

Figure 7. Organizational Map of Government agencies for disaster risk management in Yemen

Ministry of Interior

Supreme Council

Risk Assessment

NDMU

Risk Reduction

Land Survey

& Urban Planning

Geological Board

Public Works

RS and GIS Center

Agriculture

NDMU

Governorate level

Early Warning

CAMA-

Transportation

NWRA- Water &

Environment

Awareness

Social Affairs

Education

Earthquake Center

Health

Earthquake Center

Water & Environment

Local Council

Housing

Health- GIS Center

EWS and Community

Preparedness Cell

NGOs

HFA Priority # 2: Identify, assess, and monitor disaster risks, and enhance early warning systems

Implementation of initiatives that identify disaster risks is well underway, although a formal early warning

system does not so far exist. A National Probabilistic Risk Assessment of Yemen, as well as detailed risk assessment

for the Governorate/s of Hadramout & Al-Mahara governorate, and Sana’a are underway13. These studies will provide a

risk atlas for various kinds of hazards in early 2010, and be the basis for planning and execution of various initiatives for

disaster risk management in the country. The atlas will enable informed political debate on difficult choices that Yemen

may have to make for both planning and retrofitting sectoral infrastructure in various spatial locations, and help the

country develop a strategy that can be supported by donors, including possibly through additional IDA operations.

The identification of risks and their mapping is underway in Yemen. Several agencies are preparing digital

risk maps of Yemen (Table 3). There is, however, no mechanism to either ensure compatibility between the data formats

being developed by the agencies, or to avoid duplication of functions for optimizing the use of resources. There is also no

institutionalized mechanism that links these agencies which are the critical suppliers of critical data, with the sub-national

agencies and communities that are the users of this data. Unless such coordination and integrative mechanisms are in

place, the design and implementation of disaster risk management activities will be ineffective and yield sub-optimal

results.

13 $700,000 study under TF #091825 and TF#091190

REPUBLIC OF yemen / 171

Table 3: Agencies active in risk mapping

Agencies

Geological Survey Board Ministry of Oil

and Minerals

Relation to Risk Assessment

Landslide and earthquake risk mapping

Remote Sensing and GIS Center

Min. Telecommunications

GIS cell in NDMU

Ministry of Interior

Health Sector Mapping, Ministry of Health

National depository of base maps for

Yemen and satellite imagery

Preparing maps of hospitals and

emergency shelters

Health vulnerability assessment maps

Comments

Good infrastructure, over 15 years

experience. Need consistent budget and

capacity building

Good infrastructure, 4 years experience

Location within NDMU, just started

working with UNDP staff

Good infrastructure, developing health

facility maps with WHO guidance and

support

Establishing a formalized early warning system in Yemen will require functional linkages between

agencies as well as substantial support to procure modern technology. A number of agencies are involved

in collecting weather, seismic, and hydrological data useful for early warning system. These include the National

Seismological Observatory Center, the Civil Aviation and Meteorology Authority, the Maritime Affairs Authority, the

Desert Locust Monitoring and Control Center, the General Directorate of Animal Resources, Yemen Red Crescent, UN

agencies, and local/international organizations. The National Water Resources Agency is developing a proposal for early

warning system at river basin levels both for warning communities about hazards, as well as for optimal management of

flood control structures.

The Government of Yemen has allocated funds for the development of a formal early warning system.

Although there is no formal early warning system at the national or local level, the Government has allocated US$7.5

million to the Civil Defense General Directorate for the development of emergency control rooms in fifteen governorates.

An emergency room, possibly for an early warning system and rescue operations, has become partially operational in

Aden. A control room established in Sana’a is not yet operational due to financial and technical constraints. There are

plans to establish emergency rooms are in Mukalla, Taiz, and Hodeida.

An initiative to strengthen the capacity of the National Disaster Management Unit to enable it to deliver

early warnings to coastal communities and enhance their preparedness is underway. This initiative,

known as the Disaster Preparedness, Management, and Recovery Project is being supported by the UNDP. An initial

assessment report from this project highlights a list of priority actions and priority intervention locations which are Al-

Mahara, Hadramout, Aden, Shabwa, Abyan, Lahz, Taiz, Hodeidah, and Hajja. It also lists the key players that need to be

involved in these areas. The project has supported community awareness programs in two pilot areas - Al Mahara and

Socotra Island. The National Disaster Management Unit may partner with Oman to share early warnings about tsunamis

with coastal communities.

HFA Priority # 3: Use knowledge, innovation, and education to build a culture of safety and re-

silience at all levels

The Government of Yemen is extremely receptive to integrating knowledge and innovation into its disaster

management program. The recently completed 2008 Damage and Loss Needs Assessment was well received by the

Cabinet of Yemen and is being widely disseminated within the country. Similarly, the Government of Yemen is seeking

to collaborate actively with Gulf Cooperation Countries in developing a regional mechanism in areas related to disaster

mitigation like early warning systems and post-disaster response.

172 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

Initial educational efforts to start building a culture of resilience is underway in Yemen. A national strategy

for awareness, targeting school children specifically and the public more generally, is being developed by the National

Disaster Management Unit. The literature that is being developed for the awareness campaign includes advice on ‘what

to do during emergency’. Also included are interactive games for children.

Much progress remains to be made on building a culture of resilience at all levels. So far there exist no

formal institutions or programs that can deliver training on adapting to climate change at a scale that is needed to

build resilience at all levels. The National Disaster Management Unit is trying to include the concept of disaster risk

management as well as the importance of environmental protection in reducing risks from disasters, in the curriculum

of schools. The Ministry of Water and Environment, the Ministry of Health, and the Ministry of Social Welfare are also

developing communication material that can effectively reach out to the larger public and inform on the appropriate

response needed during a disaster or an emergency. With multiple agencies developing communication strategies and

tools, efforts are needed to ensure adequate coordination and avoid duplication so that there is optimum impact on

building a culture of resilience at all levels.

HFA Priority # 4: Reduce the underlying risk factors

Sectoral ministries are working towards reducing the risks posed by the three main factors that exacerbate

Yemen’s vulnerability to natural disasters: (i) climate change, (ii) depletion of water resources, and (iii)

ineffective land use planning that are contributing to development in hazard prone areas. Table 4 maps the

various national and sub-national entites that have a crucial role in limiting risks from the three underlying factors. There

is a need to develop clear guidelines for mainstreaming disaster risk reduction into the sectoral planning and investment

cycles of these ministries. Discussions amongst policy makers are underway to include in the institutional mandates of

these agencies, an explicit focus on reducing the risks from disasters, so that appropriate initiatives can be mainstreamed

and supported. These agencies have already embarked on some steps to reduce the risks from disasters, for example,

the incorporation of flood plain protection in strategic land use planning, the development of appropriate building codes,

and environmental impact assessment procedures.

Table 4. Agencies active in risk reduction

Agency

Governorates/Director of Districts

General Authority on Land Survey

and Urban Planning

Ministry of Public Works

Ministry of Agriculture and

Irrigation

Ministry of Water and Environment

Relation to Risk Reduction

Implementation and

Enforcement

Master Plans in accordance

with flood plain location

Building codes, permits, design

and construction

Flood protection works, Dikes/

Dams

Environmental Impact

Assessment (EIA)

Comments

With decentralization, the role of these agencies is crucial

for the development of strategic land-use planning and their

enforcement.

Has advisory role, need actual implementation at local level

Needs greater implementation at local level

Ministry would like to focus in the areas of desertification

and locust storms

By law all infrastructure projects should follow EIA to

ensure no alteration in hazard prone areas

Implementation of specific measures that impact the underlying risk factors will not be possible without

significant ownership of necessary actions at the community level. At present disaster risk reduction efforts

in Yemen are far from being coherently organized vertically. Without decentralization, there will be little empowerment

of sub national levels of government and their communities to develop an effective and balanced program to reduce

REPUBLIC OF yemen / 173

risks. Effective disaster risk management strategies will be difficult to develop, and the implementation of policies and

programs developed centrally will be difficult and inefficient.

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels

Disaster preparedness for effective response at all levels has not as yet received attention in Yemen,

as the planning focus has been on disaster relief and recovery operations. Although there is no institutional

mechanism to ensure adequate preparedness levels for natural disasters and an emergency response to them, as stated

earlier, the National Disaster Management Unit in the Ministry of Interior has developed a National Disaster Management

Plan. This plan spells out in detail, the role of key line ministries before, during, and in the post disaster emergency

phase. It provides checklists for essential activities to be executed in the different phases of a disaster, as well as a list

of essential contacts. This plan, however, is yet to be approved by Yemen’s cabinet.

In the absence of attention to the pre-disaster planning, the only central government practice that exists

is for an area to be declared a “Disaster Affected Area” before resources can be mobilized. In the event of a

disaster, the President of Yemen declares the affected areas as “Disaster Affected Areas”. Only after this declaration can

relief funds are allocated, with relief efforts coordinated through a high level inter-ministerial committee. Such a committee

was organized under the Prime Minister’s Office after 2008 floods to coordinate national and international relief efforts. This

committee coordinates the efforts of the army, international relief agencies, the branches of technical ministries, and utility

agencies at governorate level, which are the main actors during the disaster relief phase of disaster operations.

Immediate recovery and reconstruction activities, i.e. post emergency relief, are coordinated at the governorate level by

branches of line ministries (chief being Ministry of Public Works) and local NGOs. Long-term recovery and reconstruction

activities are mostly coordinated by specialized Recovery and Reconstruction Funds (e.g. recently established Fund

for Recovery and Reconstruction in Hadramout and Al Mahara). There is a need to develop and adopt early warning

protocols and preparedness plans at regional and local levels.

3. key donor engagements

Since 1990s the World Bank (WB) has supported more than seven operations (approx. US$ 200m), largely focused

on post-disaster reconstruction, in addition to flood reducing activities under other operations. The most significant

projects are the Taiz and Sailah (Sana’a) flood management projects that have dramatically transformed the cities and

reduced the risks associated with floods. In 2008, in response to floods in Hadramout and Al-Mahara Governorates

in Yemen, the Bank completed a Damage, Losses and Needs Assessment (DLNA), established the Yemen Recovery

and Reconstruction Fund (YRRF), and got approval of the Yemen Flood Protection and Emergency Reconstruction

project (US$ 41 million). To enable a shift from a an existing reactive approach towards a preventive approach for the

management of disasters, the Bank is supporting three activities focused on mapping disaster risks at the national level

as well as for Al-Mahara & Hadramout, and Sana’a. GFDRR has provided about US$ 1.2 million in support for various

activities in Yemen since 2007. Almost two decades of sustained Bank support for post-disaster reconstruction has

resulted in the emergence of a strong and trusting partnership between the Government of Yemen and the Bank, and

there exists today a high level of awareness on the importance of pre-disaster planning amongst policy-makers.

Yemen’s Third Socio-Economic Development Plan (2006-2010) explicitly recognizes the need to reduce risks from natu-

ral disasters and focuses on mainstreaming risk reduction from natural disasters in development. The current Country

Assistance Strategy (CAS) for the period 2009-2013 therefore includes the “management of natural resource scarcity

174 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

and natural disaster risk” as an explicit CAS goal. IDA has provided substantial support over the last three decades, for

post-disaster and pre-disaster investments in drainage and flood protection or flood reduction, building resilience for

climate change particularly in rural areas, water resource protection to tackle one of the three underlying risk factors14.

The World Bank has been involved in lending operations in the area of flood protection in Yemen through the Taiz

Municipal Development and Flood Protection Project (TMDFPP) since 2002. More recently, in March 2009 the World

Bank approved an IDA Grant for $35 million for the reconstruction and rehabilitation of selected key infrastructure

damaged by October 2008 floods. On the request of the Government of Yemen, the World Bank under TMDFPP is also

preparing packages for financing priority infrastructure works in the governorate of IBB.

Table 5. Donor Support for disaster related activities in Yemen: on-going and closed

Projects

1. UNDP: Disaster Preparedness, Management and Recovery

Project

2. WB/GFDRR – Strengthening Yemen National System for

Disaster Risk Reduction and Recovery

(Disaster Risk Reduction Institutional Mainstreaming

Strategy and Priority Intervention Areas in Sana’a, National

Probabilistic Risk Assessment Study including Al Mahara

and Hadramout)

3. WB/GFDRR – Comprehensive Damage and Loss Needs

Assessment

Implementing

Agency

Civil Defense General

Directorate/ UNDP/

Government of Norway

Ministry of Planning

and International

Cooperation

Budget and

Timeline

(US$)

1,469,372

(GOY - 700,000 &

GO Norway - 28,812)

2003 - extended to

2008

1,200,000

2007- ongoing

($700,000 currently

committed)

Ministry of Planning

and International

Cooperation

199,000

2008-2009

HFA

Activity

Area(s)

1,3,5

1,2,4

4.global facility for disaster reduction and recovery (gfdrr):

action plan

Thw World Bank participated in a cabinet level meeting to discuss the way forward for Yemen to move from a reactive

approach to disasters to a more pro-active approach that enables the reduction of risks posed by natural disasters. This

proposal is based on guidance provided by the cabinet level meeting chaired by the Deputy Prime Minister, Ministry of

Planning and International Cooperation. The Government of Yemen has established the following principles to guide the

development of a comprehensive program for reducing the risks from disaster:

• No new institution will be created. Rather, to embed mainstreaming into regular government work, the focus of

donor support will be to support existing institutions to improve their organizational structures and operations.

• Donor support should focus on strengthening coordination mechanisms both before and during disaster

• The existing National Disaster Management Unit should remain small and efficient, so that it is able to attract and

retain highly qualified staff within its budget.

• Donor support for developing local level initiatives to help communities better plan, prepare and respond to

disasters before, during and after a major event, is welcome.

14 (Annex on this should be developed and attached with inputs provided by all Country Team members to bring sectoral colleagues into the picture

and start to build ownership)

REPUBLIC OF yemen / 175

• Sequencing of activities, as well as their spatial location, will be determined by targeting those governorates as

priority, that are at severe risk of experiencing floods and landslides, which appear to be the following based on the

analysis available to date: Abyan Aden, Al Mahara, Hadramout, Hajja, Hodeidah, Ibb, Lahz, Shabwa, and Taiz.

Based on the above, Yemen’s profile of risk from natural disasters, as well as a rapid assessment of the existing institutional

organization of government agencies active in the area of disaster risk reduction, this proposal for support over five years

(2009-2014), has two strategic objectives:

(i) strengthen Yemen’s institutional capacity for planning, coordinating, implementing, and monitoring disaster risk

assessment and risk reduction activities from the national to the community level, and

(ii) jump-start the implementation of a national civil works program for reducing the risks from floods.

Table 6 provides an overview of the proposed activities that are expected to be supported by this proposal, the focal

agency that will be responsible for their execution, estimated costs, and finally the which of the five priority action areas

of the Hyogo Framework for Action, the proposed activities can be mapped to.

Table 6. Proposed GFDRR DRM Program

Proposed activities

Focal

Agency

Budget

US$ m

I). Strengthening institutional capacity for planning, coordination, monitoring, and reporting at both central and

local levels (Hyogo Framework for Action Priority Areas 1, 3, 4 and 5)

1. Development of legal framework

2. Technical capacity assessments of key central agencies

3. Technical capacity assessments of key sub-national agencies in five Governorates

4. Analysis, consensus building and implementation of an action plan for any re-mapping of inter-

agency functional links, inter-ministerial coordination, monitoring and reporting. The action

plan will include actions that enhance horizontal and vertical organizational links to improve the

preparedness and response to disasters.

5. Development of focused training and communication tools, dissemination, as well as the design and

delivery of courses targeting government and non-government audiences.

6. Development of an inter agency, data portal that integrates data both horizontally and vertically, and

enables real time information sharing by multiple users.

NDMU

0.8m

II). Design and execution of a National Awareness Campaign (Hyogo Framework for Action Priority Areas 1 and 3)

7. Design and execution of a national communications program and implementation of a

communications and public participation program at the community level in five Governorates.

8. Design and execution of the delivery of key messages to school going children, stratified by region.

9. Program targeting political leaders & civil society

10. Design and Execution of an internal inter-agency communications strategy for disaster risk and

preparedness (with eventual links to enabling strategic electronic communications linked to the

data portal) amongst them, as well as the delivery of cohesive messages to an external audience.

11. Design and delivery of a communications program targeted to political leaders and civil society

stakeholders.

NDMU/

MoE/ MWE

0.3m

III). Development of a risk assessment forum (Hyogo Framework for Action Priority Areas 1, 2 and 3)

12. Institutionalization of a structured forums at central and governorate levels (e.g. annual national

disaster risk awareness events)

13. Technical national and international forums/ exchange programs for knowledge sharing

14. Development, management and mainstreaming of the use of risk maps linked to the data portal

15. Satellite/ aerial imagery of hazard prone areas Scaling up of current risk assessment studies

NDMU/

GSMRB

0.8m

(Cont.)

176 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES MIDDLE EAST & NORTH AFRICA

Table 6. Proposed GFDRR DRM Program

Proposed activities

Focal

Agency

Budget

US$ m

IV). Design and establishment of a National Early Warning System (Hyogo Framework for Action Priority Area 2)

16.Review and analysis of existing elements of the system (human as well as technical resource

needs).

17. Procurement of goods and training for central and sub-national agencies.

NDMU

1.0m

V). EWS and community preparedness (Hyogo Framework for Action Priority Areas 1, 3, 4 and 5)

18.Targeted action plans designed specifically for the communities at risk, as identified by the risk

assessments underway, will be executed for at risk communities in Hadramout, Al Mahara, Ibb, and

Taiz Governorates.

19.A specific action plan will be developed and executed for the at-risk communities in Sana’a

Min. of Loc

Admin.

with local

partners

1.2m

VI). Jumpstarting national civil works program (Hyogo Framework for Action Priority Areas 4 and 5)

20. Financing of priority investments to protect at-risk areas from floods in Ibb.

Min. of

Public

Works /

NDMU

5.5m

TOTAL

10.56m

(Note: NDMU- National Disaster Management Unit, MoE- Ministry of Education, MWE- Ministry of Water and Environment, GSMRB- Geological Survey and Mineral Resources Board)

Preconditions essential for results from this program for disaster risk management

For a successful implementation and maintenance of the proposed program, the following preconditions are required:

• Adequate yearly budget allocations should be made for salaries and operating costs of agencies involved in

disaster risk assessment, prevention and preparedness activities.

• Staff of the involved government agencies should meet proper qualification criteria and be motivated by proper

compensation, a stimulating work environment and a career growth plan.

• Institutions and people responsible for disaster risk prevention and preparedness should be held accountable for

any possible failure, as failure in DRM can have catastrophic consequences.

DISASTER RISK MANAGEMENT

South Asia

Nepal

178 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

NEPAL

To prepare the Country DRM Note, consultations were undertaken with members of the World Bank’s Nepal Country

team. Meetings were held with the Ministry of Home Affairs (MoHA) and other key ministries and departments involved

in Nepal’s disaster management system including Ministry of Water Resources, Ministry of Finance, Ministry of Local

Development, Ministry of Public Works, the Department of Water-Induced Disaster, Ministry of Environment, Science and

Technology, Ministry of Education, Ministry of Health, the Department of Hydrology and Meteorology, and the Kathmandu

Fire Brigade. Additionally, meetings were held with selected NGOs, including the National Society of Earthquake

Technology, Nepal and the Nepal Centre for Disaster Management. The World Bank Kathmandu office convened a

roundtable meeting of a broad segment of the Donor Community—ADB, FAO, UN OCHA, European Union, and the

Nepal Red Cross Society.

There is strong support and ownership for the matrix of priority areas and actions from the MoHA and other key ministries

and departments engaged in disaster management.

1. disaster risk profile

Nepal is a landlocked country lying between India and China. It is divided into three ecological zones, the “Terai” low-

lying plains and marshy area in the south, the “Hills” in the middle and the “Mountains” in the north. Nepal’s landscape is

predominantly composed of hills and mountains covering about 83 % of the total area of the country.

Nepal faces several types of natural disasters every year, the most prominent being floods including glacial lake outburst

flooding (GLOFs), drought, landslides, wildfires and earthquakes. Nepal ranks 11th in the world in terms of vulnerability

to earthquakes and 30th in terms of flood risks.1 A combination of rough topography, steep slopes, active seismic zone

and intense impact of monsoon rains makes Nepal extremely vulnerable to disaster impacts.

% Popu lation Affect ed (190 0-200 7)

1,200,000

Floods

37%

Landslides

1,000,000

800,000

600,000

Earthquake

Drought

51%

Wildfires

400,000

200,000

Drought

Damage in USD ‘000 (1900-2007)2

Earthquake Floods Landslides Wildfires

There are more than 6,000 rivers and streams in Nepal. On reaching the plains, these fast-flowing rivers often overflow

causing widespread flooding across the Terai region as well as flooding areas in India further downstream. Another

potential hazard is Glacial lake Outburst Flooding (GLOF). In Nepal, a total of 159 glacial lakes have been found in the

1UNDP, A Global Report: Reducing Disaster Risk, 2004

2 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, www.emdat.net (disclaimer from EM-DAT

regarding the reliability of the economic damage data)

NEPAL / 179

Koshi basin and 229 in the Tibetan Arun basin. Of these, 24 have been identified as potentially dangerous and could

trigger a GLOF event. In the period from 1935-1991, Nepal has experienced 14 GLOF events.3 Seismic records for

Nepal date back to 1255. In 1934, Nepal experienced a major earthquake which claimed more than 8,500 lives. There

followed other earthquakes in 1980 and 1988 further highlighting the extreme vulnerability that Nepal faces regarding

earthquakes.4

Exposure and Vulnerability

Out of 21 cities around the world that lie in similar seismic hazard zones, Kathmandu city is at the highest risk in terms

of impact on people. Studies conducted5 indicate that the next big earthquake is estimated to cause at least 40,000

deaths, 95,000 injuries and would leave approximately 600,000 – 900,000 people homeless in Kathmandu. Haphazard

urban growth, poor construction quality and non-enforcement of building codes further add to the vulnerability faced by

the people regarding earthquake risk.

People affected by disasters per District (1971-2007)

Affected

n No Data

n Less than 10,000

n 10,000 – 20,000

n 20,000 – 30,000

n 30,000 – 40,000

n Above 40,000

Frequency of Disaster Events by District (1971-2007)

Number of Events

n < 100

n 100 – 200

n 200 – 3000

n 300 – 400

n 400 – 500

n > 500

3ICIMOD, Impact of Climate Change on Himalayan Glaciers and Glacial lakes, 2007

4NSET, Global Assessment of Risk: Nepal Country Report, 2008

5 Nepal’s hazard profile, Sumesh Kumar Bhattrai, The Kathmandu Valley Earthquake Risk Management Action Plan, National Soci-

ety for Earthquake Technology [NSET]-Nepal and GeoHazards International, 1999

180 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Nepal has a population of over 27 million people, of which 84 % live in rural areas. Almost 31% of the population is

below the poverty line and Nepal ranks at 1426 in the Human Development Index country ranking, the lowest in South

Asia. Poverty and a large reliance on agriculture for livelihoods increase the vulnerability of rural communities in getting

impacted by disasters and in being able to recover socially and economically from disaster events.

As effects of climate change become more pronounced through increased seasonal variability, extreme weather events and

glacial melt, Nepal is amongst those countries that will be most severely affected by the impacts of climate change.

2. disaster risk management framework

The current institutional framework of the Government of Nepal is more oriented towards disaster response and relief. The

government organization responsible for disaster management is the Disaster Management section within the Ministry of

Home Affairs. The Ministry collaborates with Nepal Police and the Royal Nepalese Army. Through Chief District Officers,

the Ministry has a network throughout the country that extends to the district level. Although the Ministry of Home Affairs

holds the overall responsibility of emergency preparedness and disaster management, it is still primarily concerned with

the provision and distribution of emergency relief to disaster victims.

The Central Disaster Relief Committee (CDRC) is the apex body of the disaster response system in Nepal. The

Central Disaster Relief Committee is headed by the Minister of Home Affairs, consists of the Minister of Health, the

Minister of Physical Planning & Works, Secretaries of other ministries, representatives from the Royal Nepalese Army

and the Nepal Police, the Director Generals from the Department of Mines & Geology and from the Department

of Hydrology & Meteorology, as well as representatives from the Social Welfare Council, the Nepal Red Cross Society

and the Nepal Scouts. Following a disaster, the CDRC meets as required to address the needs of the affected

population. The committee controls a Central Disaster Relief Fund (CDRF), which is occasionally supplemented by

the Prime Minister’s fund.

At the district level, the District Disaster Relief Committee (DDRC) is the nodal body for coordinating relief efforts.

The District Disaster Relief Committee is chaired by the Chief District Officer, consists of representatives from public

sector organizations such as the District Health Office and the Nepal Red Cross Society. The Natural Calamity (Relief)

Act, 1982 also accommodates the provision for the establishment of regional and local disaster relief committees as

required.7

3. Progress towards Hyogo Framework for Action

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with

a strong institutional basis for implementation

The Natural Disaster Relief Act enacted in 1982 (though having been revised twice) is primarily focused on post disaster

relief and recovery. The Ministry of Home Affairs (MoHA) has recently taken up revision of the 1982 Disaster Relief Act

towards formulation of a Disaster Management Act. The MoHA has also initiated the development of a National Strategy

for Disaster Risk Management covering all aspects of DRM. However the strategy is still not approved by the final

authorities in the government and thus still remains a conceptual document.

6 Human Development Report, Human Development Index, Nepal ranked 142 out of 177

7NSET, National Strategy for Disaster Risk Management in Nepal, 2008; www.drrgon.gov.np

NEPAL / 181

Central Natural Disaster Relief Committee

Relief and Treatment

Sub-committee

Relief and Treatment

Sub-committee

Supply, Shelter and

Rehabilitation

Sub-committee

Regional Natural Disaster Relief Committee

District Disaster Relief Committee

Local Disaster Relief Committee

The Government of Nepal allocates 2.5 billion Nepal rupees (US$ 36 million, which is approximately 1.5 percent of the

total annual budget) every year in the annual budget for disaster management. There is also a provision of Prime Minister

Relief Fund and Central Disaster Assistance Fund for Disaster Management. However these are primarily for relief and

rescue activities. Resources for disaster risk reduction are not allocated on a priority basis.

The Local Self-Governance Act (1999) has given the authority and responsibility to the local government authorities

(District Development Committees (DDC), Municipalities and Village Development Committees (VDC)) to design and

implement DRR activities at the local level. However, there is no systematic and assured mechanism of resource allocation

to the local authorities from the center.

The Ministry of Home Affairs has already initiated a process to establish a multi-sectoral national platform with

representatives from concerned government agencies, UN agencies, donors, INGOs, NGOs, media, academic

institutions, private sector and CBOs.

HFA Priority # 2: Identify, assess, and monitor disaster risks – and enhance early warning

There has been some effort in hazard mapping by UNHABITAT and Department of Mines and Geology in 1993. There

is no national level multi-hazard risk assessment covering regularly occurring disasters. However, there is a historical

record of disaster occurrence and their impact for 37 years available in Nepal. This database based on the “DesInventar”

system is managed by NSET and UNDP. International organizations such as International Centre for Integrated Mountain

Development (ICIMOD) have initiated a process to assess the socio-economic impacts of GLOFs and flash floods

through case studies.

The Government of Nepal has also established a seismic monitoring system within the Dept. of mines and geology. Few

localized single hazard-oriented early warning systems managed by Department of Hydrology and Meteorology and

some I/NGOs are in existence in a few places. However, there is no early warning system in place for major hazards with

outreach to disaster-prone communities.

182 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

National and local level risk assessment is still a new phenomenon in the country. The need for regional cooperation and

especially real-time data sharing has been recognized by most stakeholders in different forums. With the support from

UNISDR, the Government of Nepal is undertaking the disaster-poverty interface study.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

The Department of Water Induced Disaster Prevention, Nepal Red Cross Society and other I/NGOs have been collecting

and disseminating national level information. However, as of now there is no designated and fully functional central and

district-level data clearing house. Similarly, there is no established mechanism to share such available information.

The current school curricula have a limited amount of information on disaster management. In 2008, the secondary level

of education curriculum has recently incorporated the disaster management component with the support of WWF and

other institutions. Several I/NGOs have been supporting the MoE to incorporate DRR in to school curricula, teachers

training on DRR, awareness building classes, publication of various IEC (Information, Education and Communication)

materials on DRR.

Science based disaster risk reduction/ management is a new phenomenon in Nepal. Organizations such as The World

Bank, Asian Development Bank and ICIMOD have initiated empirical research on cost-benefit analysis and mitigation

practices in Nepal. The World Bank is carrying out four different studies8 in the area of risk reduction in the country. With

support from UNISDR, Nepal is undertaking a national level study on the relationship between poverty and disaster. Nepal

is practicing some internationally accepted and practiced tools for retrofitting of buildings and vulnerability assessment.

HFA Priority # 4: Reduction of the underlying risk factors

The existing natural resources management Acts and Acts related to climate change does not include disaster

management as an integral part of it. However, the National Disaster Management Plan developed in 1993 and endorsed

by the Government in 1996 emphasized that the need to bring the natural resources management, climate change and

development together with disaster management. It is anticipated that the forth coming National Strategy for Disaster

Risk Management will bring synergy to integrate natural resources management (NRM) and climate change along with

sustainable disaster management.

The Ministry of Health with technical and financial support from WHO and NSET has initiated the non-structural

vulnerability assessment of hospitals. However, this initiative has covered only few hospitals. The Ministry of Agriculture

has been involved in vulnerability reduction activities such as drought risk reduction, food security, etc. Insurance in the

agriculture sector is still under developed.

Implementation and monitoring of Land-use is extremely weak. Building Codes have been made compulsory in municipal

areas. The National Shelter Policy, 1996 and the National Urban Policy 2007 have incorporated disaster risk reduction

to some extent. However there is a serious lack of enforcement of the codes. Unplanned urbanization and construction of

unsafe houses can be clearly seen in the Katmandu Valley. The absence of land-use planning and management of human

settlement in the valley has increased the vulnerability of people to earthquakes by many folds.

As of now there is no systematic Disaster Impact Assessment carried out in any major development projects, even in

most of the key infrastructure projects. However, there is a strong recommendation in the proposed National Strategy for

Disaster Risk Management in making Disaster Impact Assessment a practice.

8 1)Study of glacial lakes for potential GLOFs with ICIMOD, 2) a study on school earthquake safety with NSET, 3) Hazard risk assessment of Nepal

and 4) Emergency response system in Nepal.

NEPAL / 183

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels

The Disaster Management Act (1982) focuses primarily on post disaster activities. The proposed new DRM act and the

strategy encompass all elements of disaster management, long term and sustainable disaster risk reduction and linking

disaster with development. The proposed Act and the strategy also strongly emphasize the establishment of a national

framework for disaster risk management that includes establishment of autonomous DRM authorities from the central

level (NADRM as an apex body) through all levels. Institutional commitment is required for the effective implementation

of the plans and policy.

Few districts of Nepal had developed District Disaster Management Plans (DDMP) based on GIS information during the

early 2000s. However, due to lack of coordination and technical capacity these plans were not fully implemented and

monitored. On an ad hoc basis, several organizations organize lessons learnt sessions after the occurrence of any disaster

in the country. There is no any concrete and well established forum for sharing such knowledge and experiences.

4.key donor engagements

Some of the ongoing DRM initiatives are supported by multilateral assistance. These initiatives are listed below:

UNDP: In relation to disaster risk management, UNDP Nepal is actively assisting in the development of a legal and

institutional framework on disaster risk management; incorporating DRM into national development planning and assisting

through emergency grants for flood and landslide response projects.

UNICEF: Mainly engaged in preparedness and risk assessment in the water & sanitation and emergency health &

nutrition sectors.

FAO: Engaged in food security and the livelihoods sector, especially post-disaster.

UN OCHA: Engaged in disaster preparedness, response preparedness and emergency coordination.

WHO: engaged in DRM in the health sector through its Emergency and Humanitarian Action (EHA) Programme. WHO

Nepal has been an active partner in the heath sector emergency planning and preparedness activities. WHO along with

NSET is leading the Safe Hospitals campaign in Nepal.

DIPECO: Supporting different organizations of whom, Practical Action, an I/NGO, has developed community based

early warning systems that can be managed by local communities and have long-term sustainability as a key consideration

in their design and operation.

NSET: Focusing on Earthquake Risk Management. NSET is substantively engaged in the area of Earthquake Engineering

& Research, School Earthquake Safety Program, Urban & Community Based Disaster Risk Management Preparedness

& Emergency Response, Program for Enhancement of Emergency Response.

Action Aid: Working on hazards and vulnerability reduction through community awareness and capacity building

programs. They have been active in developing school curriculums with disaster risk management elements.

Oxfam: Mainly engaged in humanitarian response post-disaster.

Nepal Red Cross Society (NRCS): NRCS is the largest humanitarian organization in Nepal with a nationwide network

of volunteers. Main focus is on disaster risk reduction as well as response (relief) and recovery.

184 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Ongoing GFDRR Funded Activities

Ongoing GFDRR funded activities

Disaster Risk management Program, Nepal

TA and analytical work on GLOFs,

earthquake safety and emergency response

capacity amongst others

Nepal: Agricultural Insurance Feasibility

Study

Partnerships

MoHA, NSET,

ICIMOD

Insurance Board,

MoHA, Min. of

Agriculture

Budget

$ 914,000

$159,400

HFA priority area(s)

HFA Priority 1: Ensure that disaster

risk reduction is a national and a local

priority with a strong institutional basis

for implementation

HFA Priority 4: Reduction of the

underlying risk factors

Indicative New Program Areas and Projects for GFDRR Funding

Institutional Strengthening and Building Technical Expertise

The Ministry of Home Affairs needs a lot of support towards building technical expertise of staff involved in DRM

activities. Needs range from foundational training in Incident Command, Emergency Operations systems, Resource

Management, Search and Rescue, Building Code Enforcement, Fire Management, and Structural Retrofitting. Training

programs organized in-house and in foreign institutions will allow knowledge sharing and capacity strengthening of some

key personnel.

Flood Management Project - Rapti River Basin

Given the annual flooding issues faced by Nepal, the project will focus on a pilot river basin towards developing a

comprehensive flood management project. The project will focus on the hardware aspect of installation of better

equipment towards collection of real-time precipitation data and assisting the ability of climate scientists in the

Department of Hydrology and Meteorology towards improved 3-5 day weather forecasts. The project will also focus on

the softer aspects of awareness, mobilization, preparedness and risk reduction for floods and other disasters for targeted

communities living in the Rapti basin. The project will develop a pilot flood early warning system to focus on effective and

efficient information dissemination down to the community level.

Enhancing Emergency Response Capacity

Majority of Nepal’s population is rural while more than 80% of the country is hilly and mountainous. A disaster emergency

at times makes it very difficult to access the affected areas from Kathmandu, the capital, where most of the resources

are located. This entails a strong network of emergency search and rescue and relief supplies to be strategically located

across the country. This also entails developing a strong logistical and distribution system in case of a calamity. The

project will support the MoHA and the Nepal Red Cross Society in strengthening the emergency relief supplies network

through strategically located warehouses across the country.

Deployment of a more robust emergency communications network, or construction of a national emergency operations

center, will prove effective if there is an enhanced understanding of Incident Management and Emergency Operations

processes and procedures. The UNDP has been working towards establishment of an Emergency Operations Centre.

The proposed funding will complement activities planned by the UNDP in helping strengthen communication linkages

between the center and districts.

Enhancing Weather Forecast for Disaster Preparedness

Extreme weather events and severe weather conditions often wreak havoc and impact peoples’ livelihoods across Nepal.

NEPAL / 185

Presently, the Nepal Department of Hydrology and Meteorology has limited capabilities in making weather forecasts

beyond 24 hours with acceptable accuracy. Improving the capacity of the department in being able to make reliable

1-5 day weather forecasts would greatly enhance the capacity of the MoHA and the district level government officials

in being better prepared against extreme events. Advanced information dissemination to communities can also greatly

benefit their coping strategies against disaster impacts. The project will undertake a study to identify existing gaps and

needs within the Department of Hydrology and Meteorology and will provide technical assistance through a partner

international climate forecast organization in building the technical expertise of Nepal’s climate scientists. In addition,

this component includes the purchase of equipment.

School and Hospital Emergency Planning and Safety Initiative

The Department of Education (DoE) expressed the need for development of a comprehensive plan covering all aspects

of safe schools, including capacity building towards retro-fitting including training of masons, training of technical

personnel, development of safe schools guidelines and creating community awareness. The DoE also needs support in

the elaboration of a National Action Plan on Safe Schools.

The WHO in collaboration with the Ministry of Health has developed a project towards Strengthening Initiatives for Safe

Heath Facilities in Nepal. The project will focus on assessing the safety of primary health care centers; develop checklists

similar to the existing Safe Hospital Checklist and pilot test in one heath care center in each health region. The Safe

Hospital Checklist will be applied in all public hospitals. Safety improvement plans will be developed for health facilities.

The project will also support the development of a GIS to facilitate the use and application of space-based technologies

and related services for DRM activities in the health sector, including the national safe hospitals program. In addition, this

component would include structural strengthening measures of selected health facilities.

Indicative new program areas

and projects for GFDRR funding

Institutional Strengthening and Building

Technical Expertise

–DRM skill training for MoHA staff

–Damage & needs assessment methodology

training

–Specialized training for Incident Command,

emergency operation system, Building Code

enforcement, Resource management, Fire

Management, Search & Rescue

Partnerships

MoHA, UNDP, relevant

national & international

training institutions

Flood Management Project – Rapti River Basin

–Real-time collection of precipitation data

–Improved and reliable 1-5 day weather

forecast capability

– Community preparedness and pilot flood

early warning system

Dept. of Hydrology

& Meteorology, other

relevant international

organizations

Indicative Budget

or GFDRR funding

$ 750,000

(3 years)

HFA priority area(s)

HFA Priority 1: Ensure

that disaster risk

reduction is a national

and a local priority with a

strong institutional basis

for implementation

$ 1,250,000

(3 years)

HFA Priority 3: Use of

knowledge, innovation,

and education to build

a culture of safety and

resilience at all levels

HFA Priority 2: Identify,

assess, monitor disaster

risks, enhance early

warning

HFA Priority 5:

Strengthen disaster

preparedness for

effective response

(Cont.)

186 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Indicative new program areas

and projects for GFDRR funding

Enhancing Emergency Response Capacity

–Strengthening network of emergency relief

supplies and distribution system across the

country

–Support development of emergency

communications system and an Emergency

Operations Centre

Enhancing Weather Forecast for Disaster

Preparedness

–Technical assistance for building expertise

of Nepal’s climate scientists towards

development of reliable 1-5 day forecasts

– Purchase of equipment

School & Hospital Emergency Planning and

Safety Initiative

–Developing a comprehensive safe schools

program and piloting specific activities

–Strengthening initiatives for Safe Health

Facilities in Nepal

TOTAL

Partnerships

MoHA, UNDP, Nepal

Red Cross Society

Dept. of Hydro &

Met, WMO, relevant

international climate

institution,

Department of

Education, NSET,

Ministry of Health, WHO

Indicative Budget

or GFDRR funding

$ 3,500,000

(3 years)

$ 2,500,000

(3 years)

$ 2,400,000

(3 years)

$ 10,400,000

HFA priority area(s)

HFA Priority 2: Identify,

assess, monitor disaster

risks, enhance early

warning

HFA Priority 5:

Strengthen disaster

preparedness for

effective response

HFA Priority 2: Identify,

assess, monitor disaster

risks, enhance early

warning

HFA Priority 3: Use of

knowledge, innovation,

and education

HFA Priority 3: Use of

knowledge, innovation,

and education to build

a culture of safety and

resilience at all levels

DISASTER RISK MANAGEMENT

East Asia and Pacific

Cambodia / Lao PDR / Vanuatu

188 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Cambodia

In order to prepare the Country DRM Plan for Ghana the Africa

DRM Team agreed with UNDP on beforehand to undertake a joint

UNDP-World Bank mission. The mission was also accompanied

by a representative from ECOWAS and a member of the donor

coordination group on Environment. This joint mission held extensive

meetings with the National Disaster Management Organization

(NADMO), and met representatives of the Ministry of Interior (MoI),

Environmental Protection Agency (EPA), Ministry of Lands and Natural

Resources (MoLMNR), Ministry of Food and Agriculture (MoFA),

Ministry of Local Government and Rural Development (MoLGRD),

Ministry of Water Resources (MoWR), Ministry of Finance (MoFEP),

National Meteorological Agency, and various development partners,

including UNICEF, WFP, the Danish Embassy and UNDP. The team

undertook a field visit to a District Office of NADMO. The Mission

also met with the technical team leading the development of the

Northern development Initiative (NDI), and included a one

day workshop with staff of the Country Management Unit.

1. Disaster risk profile

Cambodia today presents an environment that is favorable, but a bit of urgency, to support its disaster risk management

initiatives: Efforts made by the country in recent years to manage its natural disasters provide a strong foundation for

taking concerted steps towards reducing vulnerability of its people and economy from natural disasters. Post-conflict

Cambodia has made good improvements in its socio-economic conditions: by managing its disaster risks more effectively,

there is opportunity to improve further the living standards and preserve the development gains.

Table 1. Top 5 Natural Disasters in Cambodia for the Period

1980-2009/5 (sorted by numbers of total affected population)

Disaster

Drought

Flood

Date

June 1994

July 2000

August 2001

August 2002

June 1996

No Total

Affected

5000000

3448053

1669182

1470000

1300000

Damage

(000 US$)

100000

160000

15000

100

1500

Source: “EM-DAT: The OFDA/CRED International Disaster Database; www.em-dat.net-Université

Catholique de Louvain – Brussels – Belgium

The year 2009 marks a milestone year for Disaster Risk Management in Cambodia The Strategic National Action Plan

for Disaster Risk Reduction (2008-2015) which sets out clear priorities was launched by the Government in March. The

country has been freshly assessed of its disaster preparedness response capacity by UNDAC. Moreover it is the 15th

CAMBODIA / 189

year of the establishment of the National Committee for Disaster Management, the apex body for coordinating disaster

risk management activities in Cambodia. NCDM and its provincial and district units are making efforts to transform them-

selves from their traditional disaster managers to disaster risk managers. Thanks to years of effort by numerous local,

national, regional and international organizations, the concept of Disaster Risk Management (contra disaster manage-

ment) is trickling down from national to the local level, and there is an appreciable amount of understanding of ideas and

concepts surrounding Disaster Risk Management in the country.

The field of Disaster Risk Management in Cambodia is also crisscrossed by a host of actors The field appears

uncoordinated and external support fragmented; it remains saturated with reports containing good recommendations

that wait to be implemented; and interventions that are yet to make sustainable impact.

2. disaster risk management framework

The major natural disasters Cambodia faces are floods and droughts: The southwest monsoon begins around mid May

and lasts until end October and brings over three quarters of the country’s annual rainfall. As a result floods along the

Mekong River, the Tonle Sap Lake and the tributaries are recurrent and often convert into major disasters. Mekong river

floods affect the provinces of Kandal, Kampong Cham, Kratie, Prey Veng, Stung Treng, Svay Rieng and Takeo. Flash

floods in tributaries around the Tonle Sap Lake affect several other provinces as well. Delays or early ending of the

Monsoon rains and erratic (volume and period) rainfall have contributed to agricultural droughts.

A large segment of the population lives in the flood plains of the Mekong and Tonle Sap watersheds: Natural disasters

have had significant impact on the country’s people and economy. For example, floods accounted for 70% of rice

production losses between 1998 and 2002, while drought accounted for 20%. Cambodia is one of the countries which

at relatively high economic risk from multiple hazards. About one tenth of the total area of the country is estimated to be

at risk from two or more hazards. Moreover 31.3% of the population and 34.5% of GDP are estimated to be at areas of

risk from two or more hazards (Dilley et al. World Bank 2005).

Urban vulnerabilities are accumulating: As the population in the Mekong floodplain of Cambodia continues to increase

mainly due to rural-urban migration, and as major cities such as Phnom Penh and Siem Reap urbanize rapidly with—often

without adequate land use planning—newer vulnerabilities continue to accumulate. Lack of building codes that respond

to country context and their weak enforcement, as well as lack of proper drainage in urban centers have increased the

vulnerabilities of urban dwellers.

Increasing rural vulnerability: On the rural front, where about four fifths of the population (and 90% of the poor) resides,

livelihoods—agriculture, fisheries and forestry—are subject to increasingly more frequent floods and drought. Deforestation

and subsequent soil erosion; inadequate irrigation systems and water conservation measures to protect against drought;

have all contributed to increase rural people’s vulnerability to natural disasters.

190 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

3. Progress towards Hyogo Framework for Action

HFA Priority # 1: Ensure that disaster risk reduction is a national and local priority with a strong

institutional basis for implementation

Strategic National Action Plan for Disaster Risk Reduction in Cambodia 2008-2013

The Strategic National Action Plan for Disaster Risk Reduction in Cambodia 2008-2013 (herein after SNAP-DRR) was

launched in March 2009. Prepared by NCDM and Ministry of Planning (MoP), this strategy has been formulated to serve

as the “road map” for development and strengthening of institutions, mechanisms and capacities of disaster management

committees at all levels, enable them to effectively and efficiently implement disaster risk reduction in the country.

The SNAP-DRR identifies six key DRR components and outlines DRR priorities in four levels-critical, first, second

and third level. The six components follow the HFA and are: (1) Ensure that DRR is a national and a local priority; (2)

Strengthen sub-national and community based disaster risk management; (3) Identify, assess and monitor hazard risks

and enhance early warning; (4) use knowledge innovation and education to build a culture of safety and resilience;

(5) mainstreaming DRR into policies and programs for relevant government ministries and (6) Strengthen disaster

preparedness for effective response at all levels.

The critical priorities which correspond to HFA 1 seek to ensure that DRR forms an integral part of the government’s

development agenda. Specific activities under this priority include formulation of national disaster risk management

policy and legislation, creation and strengthening of national DRR coordination mechanism; integration of DRR into the

national development planning.

First level priorities set out by the SNAP-DRR are strengthening sub national and community disaster risk management

capacities; mainstreaming DRR into policies and programs of relevant government ministries mainly the Ministry of Land

management, Urban Planning and Construction (MOLLMUPC); Ministry of Agriculture, Forestry and Fisheries (MOAFF),

Ministry of Education, Youth and Sports (MOEYS), Ministry of Environment (MOE); Ministry of Health (MOH) and Ministry

of Rural Development (MORD); and strengthening disaster preparedness for effective response at all levels.

Second Level priorities include DRR projects that enhance component 2 and component 6; DRR projects related

to component 3 that require greater technical expertise and specialization; and DRR projects aimed at raising public

awareness corresponding to Component 4. The last level of priorities are those deemed “not feasible” within a short

span of time such as establishment of a disaster fund, risk financing instruments, and establishing partnership with local

and international scientific institutions.

• National, Provincial and District Disaster Management Committees (NCDM, PCDM, DCDM): The National

Committee for Disaster Management (NCDM) was established as the lead coordinating agency in 1995 by

Sub-decree 35ANKR-BK signed by the Prime Minister (amended in 1999 under Presidential Decree 1566, Sub

decree 54ANKR-BK). Chaired by the Prime Minister, its members are 22 government ministries and agencies

such Economics and Finance, Agriculture, Forestry and Fisheries; Water Resources and Meteorology; Rural

Development, Health, Defense, Police, etc. NCDM is replicated at lower levels--each province also has a PCDM

and each district a DCDM which are chaired respectively by provincial governors and district chiefs; and the

committee members are government line ministries and agencies. The NCDM is responsible for managing disaster

risk data and providing reporting on disasters, securing resources for emergency response, DRM capacity building

and human resource development in DRM, coordinating the implementation of disaster management policies and

information sharing on DRM.

DRM Coordination Mechanism in Cambodia

National Committee for Disaster Management (NCDM)

CAMBODIA / 191

Cabinet of President

Provincial Committee for Disaster Management

General Secretariat

Disaster Management

Working Group

of Ministries and

Institutes

District Disaster Relief Committee

PCDM Secretariat

Commune Committee for Disaster Management

DCDM Secretariat

CCDM Secretariat

• Emergency Management Policy and National Disaster Management Bill: The NCDM is finalizing a national

Emergency Management Policy and National Disaster Management Bill that will provide a strong basis for

coordinated and effective disaster risk management in the country. Both these documents are awaiting approval

from the Council of Ministers.

• The country’s National Poverty Reduction Strategy (NPRS) identifies natural disasters—floods and droughts—as

critical factors in increasing the vulnerability of rural poor and placing a disproportionate burden of coping with

the effects of disasters on women.

• The National Strategic Development Plan (NSDP) for 2006 -2010 incorporates issues of disaster risks in

sectors such as social welfare, water resource management and agriculture and rural development, including the

protection of rural areas from floods and droughts, community based disaster preparedness and risk reduction

and vulnerability reduction for the poor.

HFA Priority # 2: Identify, assess and monitor disaster risks and enhance early warning

• Cambodia has limited scientific information of its risks. Available information is not regularly developed, updated,

and disseminated and also remains fragmented amongst national authorities and partner agencies. Ministry of

Water Resource and Meteorology (MoWRAM) through Department of Hydrology and River Work (DHRW) and

Department of Meteorology is responsible for establishing, maintaining and disseminating weather and flood

forecast and early warning systems. Human resources and equipments appear as major constraints for risk

assessment and monitoring. Several of the Early warning systems are not well functioning; systems face

192 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

problems such as poor dissemination mechanism of forecast and early warning to the end-users at community

levels; poor maintenance.

• Some progress in risk assessment and monitoring and EWS can be found in the works of the Mekong River

Commission which is developing flood and drought vulnerability indices for Lower Mekong basin. The MRC has

also produced some flood maps for flood-prone provinces. Mekong River Commission has flood forecasting

and early warning for the river flood plains which is complemented by community-based flood EWS projects of

Cambodian Red Cross. Further, local risk assessments through Vulnerability and Capacity Assessment undertaken

by NGOs such as Oxfam, Care and ActionAid. Also, in 2003, the NCDM and the UN World Food Program

(WFP) developed risk maps of 500 of the most at risk communities. Of these 260 prone to floods and 293 prone

to drought. This represents about one third of the total number of communes in the country.

HFA Priority # 3: Use knoweldge, innovation and education to build a culture of safety and resil-

ience at all levels

• Several NGOs involved in managing disaster (risks) have created a Disaster Risk Reduction Forum with support

from DIPECHO.

• With assistance from DIPECHO and ADPC Ministry of Education Youth and Sports has piloted mainstreaming

of disaster risk reduction measures into education sector. The work includes mainly developing and integrating

DRR into school curriculum.

• NCDM has formulated a national disaster risk communication strategy.

• Several NGOs have conducted local public awareness campaigns as part of community based projects.

HFA Priority # 4: Reduce the underlying risk factors

• Numerous small scale (ponds, culverts, safety boats, etc) flood and drought mitigation projects implemented by

NGOS and MoWRAM has developed flood protection structures in few provinces.

• MRC implementing long term Flood Mitigation and Management Programme (FMMP) for lower Mekong basin No

risk financing strategy and extremely limited insurance penetration

• Tonle Sap Basin Authority created for sustainable use of lake ecosystem with ADB support Limited efforts to

address DRR across sectors

• MRC is in the process of producing flood proofing guidelines. However in general there is lack of national

building codes, standards and technical specifications that response to Cambodian disaster contexts and lack of

enforcement

• Comprehensive norms and standards not established for integration of disaster risk reduction measures into post

disaster recovery and rehabilitation processes

• National Adaptation Program of Action to Climate Change (NAPA): Approved by the government in 2006, the

NAPA presents 16 priority adaptation activities in key sectors such as agriculture, water resources and coastal

zone management. Do far a very few projects proposed in NAPA have been taken up. SNAP/DRR presents

mainstreaming of DRR into the NAPA as a first order priority under Mainstreaming DRR into policies and Programs

of Ministry of Environment. Both SNAP/DRR and the NAPA seek to address community vulnerability to hazards.

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels

• There is a national working group on disaster coordination, response and recovery chaired by NCDM. Also, as

CAMBODIA / 193

mentioned under HFA 1, the draft of the National Emergency Management Policy has been formulated by NCDM.

However there is still lack of a Standard Operating Procedure for national and local emergency response.

• Svae Rieng and Takeo Provinces have formulated Flood preparedness Plans while the provinces of Prey Veng,

Kandal and Kratie are being supported under Flood Emergency Management Strengthening (FEMS) program of

ADPC/ADB.

• United Nations Disaster Management Team, IFRC, Oxfam and Care have well established regional response

mechanisms in place.

4. key donor engagements

Regional Initiatives

1. The ARPDM (ASEAN Regional Program on Disaster Management (2004-2010) and subsequent AADMER

(ASEAN Agreement on Disaster Management and Emergency Response) signed by member states in 2005,

Standard Operating Procedure for Regional Standby Arrangements and Coordination of Joint Disaster Relief and

Emergency Response Operations (SASOP)

2. The Regional Consultative Committee on Disaster Management (RCC) RCC Program on Mainstreaming Disaster

Risk Reduction into Development (MDRD) Phase I (2004-2007) and Phase II (2008-2012)

3. ASEAN, UNISDR and WB 5 year Memorandum of Cooperation (2009-2014)

4. Forthcoming Memorandum of Understanding between Asian Disaster Preparedness Center (ADPC), and World

Bank, sets forth the framework for a collaborative alliance between the two organizations.

5. Mekong River Commission: Created as an intergovernmental body by the countries of the Mekong Basin, MRC is

supporting member countries in the following five areas: Flood Management and Mitigation programme, including

Establishment of Regional Flood Management and Mitigation Centre (RFMMC); Structural Measures and Flood

Proofing; Enhancing Cooperation in Trans-boundary Flood Issues; Flood Emergency Management Strengthening;

and Land Management.

6. Asian Disaster Preparedness Centre: The Asian Disaster Preparedness Center (ADPC) is a regional non profit

resource center based in Bangkok, with substantial experience in implementing disaster risk management projects

in countries of the region including Cambodia. Some of the projects which it helped implement in Cambodia are

Capacity Building for Integrated Disaster Management in Cambodia (UNDP support), Community Based Flood

Mitigation and Preparedness 1995-2004 (under the Asian Urban Disaster Mitigation Program), Flood Emergency

Management Strengthening 2004-2007 (with MRC and GTZ) and mainstreaming DRR in the education Sector

(with NCDM, ECHO, UNDP and MoEYS).

Donors/IFIs

• AusAID: Reducing the vulnerability of the poor to natural disasters is one of the three themes for Australia’s

engagement in development cooperation with Cambodia. Australia has been a

• DIPECHO: Ongoing funded projects include Promoting and Strengthening Disaster Resilient in Cambodia

DIPECHO Partners include several NGOs including Action Aid, Lutheran World Federation (LWF-Cambodia),

Cambodian Red Cross, Danish Red Cross, Netherlands Save the Earth, etc. DIPECHO South East Asia Action

Plan (Subject to availability of funds) will support DIPECHO projects beginning April 2010 and will have a

duration of maximum 15 months.

• ADB - Community Based Disaster Risk Reduction Strategy for Flood and Drought (2007 – 2012) Implemented

194 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

with ADPC, in partnership with MoWRAM. Promoting community level action and developing CBDRM plans.

• UNDP: UNDP is engaged in supporting the NCDM and Mekong River Commission as well as in developing

climate forecasts and applications, and flood mapping and early warning initiatives

• World Bank: The GFDRR/WB is preparing a Technical Assistance to ensure better coordination and

implementation of SNAP-DRR, to integrate disaster risk reduction into national development planning, implement

the national CBDRR strategy and develop guidelines for integration of DRR into local development plans, initiate

the mainstreaming DRR into policies and programs of two ministries, support the development of provincial multi

hazard DRR plans and implement partnerships in at least two new provinces, strengthening the Management of

NCDM. Similarly past World bank engagement under the completed Flood Emergency Rehabilitation Project

(FERP) repaired and rehabilitated infrastructure damaged by floods in 2000, and provided TA to help build

capacity to more effectively manage and mitigate future water disasters

• GTZ: Providing major support to MRC; GTZ-MRC-ADPC Flood Emergency Management Strengthening

(FEMS)

• WFP: Food aid through Food For Work program targeted towards poorest communities; damage and needs

assessment (DANA) guidelines and tools for NCDM developed

• UNESCAP: Partnership for Disaster Reduction in Southeast Asia (PDR-SEA) (Phase I, II, III & IV)

NGOs

• LWF, CWF, Concern Worldwide, Care International, World Vision, ZOA, Action Aid, CRC, Oxfam GB, Oxfam

America, Oxfam Australia, DCA, Save the Earth and other local NGOs etc.

Guiding Principles for GFDRR/WB interventions

The main objective of the GFDRR/WB support will be to safeguard livelihoods of rural poor against floods and drought

risks and help address persistent poverty and maintain sustainable economic development. Following will be the guiding

principles for WB engagement in DRM in Cambodia for 2010-2012:

• Disaster types: Focusing on flood and drought risk management which is directly linked to the rural poverty;

• Promoting national strategies: Advancing priorities as set out in the SNAP-DRR and the DRR components of the

National Adaptation Plan of Action (NAPA);

• People and livelihood focus: Taking a people centered approach to safeguard their livelihoods from disaster;

• Partnerships: NCDM will be the coordinating partner at the national level and line ministries will be focal points;

PCDM/DCDM will be partners at implementation level. Where possible we will rely on respective comparative

advantages;

• Multi-sector approach: Engaging the provinces in implementing the DRR on the ground to enable a multi-sector

approach (education, transport, agriculture, water resources and health) to mainstream the DRR into the sector

policy and plan; build a cadre of disaster risk reduction champions across sectors;

• Focus on poor provinces: Focusing on provinces which are relatively poor and with less donor support;

• Regional consideration: Engaging Vietnam and MRC to address the flood and drought risk management from a

regional view.

• Emerging urban risks: While the priority is on rural, begin actions towards identifying and assessing emerging

urban risks

CAMBODIA / 195

• Risk financing: Begin actions towards disaster risk financing (private sector engagement, agricultural insurance,

credit schemes, etc);

• Capitalize on existing DRM experience (from pilots) such as in education sector

• Tie with existing World Bank projects where possible

• Promote organizations with regional expertise on disaster risk management

• Prepare engagement framework with other donors

• Prepare a cadre of Damage and Loss Assessment experts.

• Consolidate GFDRR Phase-I activities

Key Program Targets

• Key structure and non-structural measures implemented in the high priority provinces;

• DRR elements integrated into the provincial sector planning and implemented on the ground;

• Adequate capacity for disaster management built at the provincial, district, and the community level, and the

national level capacity strengthened

196 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Indicative Program for GFDRR Funding

(Projects and engagement areas)

Capacity building of Hydmet agencies for Early Warning and

weather forecast systems

Consolidate Phase I GFDRR activities in Svay Rieng and Pray

Veng provinces/

Expand to 3 provinces of Eastern Mekong Delta

Partners

MoWRAM, NCDM

Indicative

Budget (US$)

200,000

- Public consultation and preparation of risk mapping

- Capacity assessment of PCDMs for disaster risk management

-Development of Sector Adaptation Plans (transport, health,

education and agriculture)

- Contribution to National and Regional Food and Drought

Strategy

-Support for Early Warning and weather forecast systems

- Flood and Drought Vulnerability Mapping (possible co-operation

with WFP)

-Disaster-proofing existing critical infrastructures

-Support efforts by stakeholders for better coordination (AA/

Oxfam/Care)

-Support Roadmap for Developing and Implementing Flood and

Drought Risk Reduction Programs (2008-2012) for high risk/

vulnerable communities

- Climate Adaptation: Support priority projects in NAPA

-Conclusion of activities in Prey Veng and Svay Rieng as

outlined in Phase I.

Task Based Strengthening of NCDM: to make them effective in

coordinating WB support to Cambodia

Various relying

on comparative

advantages

2,400,000

-Organizational strengthening in terms of human and material

capacity

-Support NCDM to integrate disaster risk reduction in national

development strategies including National Poverty Reduction

Strategy (NPRS) and National Strategic Development Plan

(NSDP).

NCDM

Part of Above

SNAP Priority/

HFA Activity

Area

Critical/ 2, 4

First/1-5

LAO PDR

LAO PDR / 197

To prepare the Country DRM Note, consultations were undertaken with the National Disaster Management Office

(NDMO) and members of the World Bank’s Country team. Working closely with NDMO, consultations were held

with Ministry of Health, Ministry of Education, Ministry of Public Works and Transport, Ministry of Agriculture,

Lao National Mekong River Commission, Department of Meteorology and Hydrology, Mekong River Commission,

Asian Development Bank, JICA, UNDP and Oxfam-Australia. Consultations were also held with the Provincial

Disaster Management Committees in Vientiane and Khammouane provinces; and line departments representing

the committees. In Khammouane, discussions were held with Khammouance Development Project (KDP) including

Department of Irrigation; authorities of Nongbok District Disaster Management Committee. Together with ADPC

and KDP, flood prone areas were visited and consultations were also held with flood vulnerable people in Sokbo

village. The findings were presented to the National Disaster Management Committee and the guiding principles for

engagement in the country agreed upon.

1. disaster risk profile

Laos PDR has made significant gains in the area of disaster risk management in recent years and presents a suitable

environment to make further DRM initiatives: National institutions at various levels are making efforts to transform

themselves to take up disaster risk management roles (from merely managing disasters), a Strategic Plan on Disaster

Risk Management (SPDRM) was adopted in 2003 and there is considerable presence of donors willing to support

Lao PDR in the field of DRM. By managing its disaster risks more systematically, Laos PDR also has an opportunity to

preserve development gains, reduce poverty and improve the living standards of rural farmers, and ultimately graduate

out of its LDC status.

2.disaster risk management

framework

Table 1. Top 5 Natural Disasters in Lao for the Period

1980-2009 (sorted by numbers of total affected population)

Disaster

Storm

Drought

Flood

Date

August 1995

Dec-88

Aug-01

Sep-00

15/08/1996

No Total

Affected

1000000

730000

453000

450000

420000

Damage

(000 US$)

N/A

Created on: May-25-2009 - Data version: v12.07; Source: “EM-DAT: The OFDA/CRED

International Disaster Database; www.em-dat.net - Université Catholique de Louvain - Brussels,

Belgium

Source: CIA Fact book

198 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

The major natural disasters Lao PDR faces are floods and droughts: Most flooding occurs during May to September

when Monsoon rains accumulate in the upper Mekong river basin. In addition to river basin flooding, flashfloods in the

northern mountainous region are also common. It is estimated that the south and central regions, where about two

thirds of the country’s population live, face on an average of 1.5 serious floods or droughts every year. Lao PDR is also

susceptible to landslides, pest infestations and fire due to slash and burn agriculture. Most recently, the Floods of 2008

August is estimated to have affected about 204,000 people, damaged an estimated 50,000 Ha of arable land and

caused a damage and loss of over USD 9 million.

High degree of poverty in the rural areas means even low intensity natural disasters increase the vulnerability of rural

farmers: Agriculture is mostly dependent on rainfall, and a modest drought could increase food insecurity. In the urban

side, Capital Vientiane is urbanizing rapidly. As newer infrastructures are built with inadequate land use planning and

weakly enforced building codes, newer vulnerabilities are fast accumulating in the city.

3. activities under the hyogo framework of action

HFA Priority # 1: Ensure that disaster risk reduction is a national and local priority with a strong

institutional basis for implementation

• National Disaster Management Committee (NDMC), an inter-ministerial committee, is the apex body with

responsibilities for developing policies and coordinating DRM activities in the country. NDMC was established

through a prime ministerial Decree No. 158/PM in August 1999. National Disaster Management Office (NDMO)

is the secretariat of NDMC and is located in the Ministry of Labor and Social Welfare (MLSW). Roles and

responsibilities of the NDMO and each member of NDMC have been defined by the internal MLSW decree No.

097/MLSW of June 2000. Under this decree, disaster management committees are established at the Provincial,

District and Village levels.

• As a result of directions by NDMC, the Provincial Disaster Management Committees are now chaired by provincial

governor instead of vice-governor which gives them more authority to act on DRM issues. Also, more and more

line departments are being represented in the PDMCs.

• NDMC is currently represented by several important sectors such as health, education, public works, transport,

etc. A proposal is under consideration for expanding the membership of the NDMC to include additional important

sectors such as energy and mining, planning and investment, water resources and environment, science and

technology and agencies such as Lao PDR Women Union, and Lao Youth Union.

• An MLSW decree (/MLSW) of April 2003 defined the Strategic Plan on Disaster Management (SPDM)

corresponding to three different periods 2003-2005, 2005-2010 and 2010–2020. ) The SPDRM emphasizes

sustainable development through DRR, risk reduction through environmental protection, more preparedness

than relief. The Strategic Plan also aims to share the DRM responsibility between the communities and the

government.

• DRM is integrated into the Lao PDR’s Sixth National Socio Economic Development Plan (2006-2010) (NESDP)

and the National Growth & Poverty Eradication Strategy (NGPES). The United Nations Development Assistance

Framework lists DRM as a key area for cooperation and one of the critical components of poverty reduction

framework.

• NDMO, with UNDP support, is planning to prepare a Strategic National Action Plan for DRM by 2010. The draft

is planned for December 2009. The Action Plan will focus on getting more ownership by various sector ministries

in advancing DRM in the country.

LAO PDR / 199

Provincial Focal Point

in Unit (PFPU)

District Focal Point

in Unit (DFPU)

Belonging line

Coordination line

The NDMC Diagram

Prime Minister’s Office

National Disaster Management

Committee (NDMC)

Ministry Focal Point

(MFP)

Provincial Disaster Management

Committee (PDMC)

District Disaster Management

Committee (DDMC)

Village Protection Disaster Unit

(VPCU)

NDMC

National Disaster

Management Office

(NDMO)

Ministry Focal Point

in Unit

(MFPU)

Early Warning

Forecasting

Monitoring

Early Warning

Leading Agency:

WREA

Provinces

Preparedness

Community Mobilization

Structure Measures

Nos Structure Measures

Leading Agency: NDMO

Emergency Response

and Relief

Damage Mitigation

Damage Monitoring

Relief Dispatch

Leading Agency: NDMO

Early Recovery and

Term Reconstruction

Damage and Loss

Assessment

Early Recovery Support

Long Term

Reconstruction

Leading Agency:

MPI, MOF

Line Ministries

WREA

MAF

MPWT

MOH

MOE

Provinces

Before the Floods

During the Floods

After the Floods

200 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

HFA Priority # 2: Identify, assess and monitor disaster risks and enhance early warning

• Limited risk mapping in selected communes and districts have been funded under donor projects, but no

comprehensive or composite country-wide hazard or risk mapping exists.

• Department of Meteorology and Hydrology (Ministry of Agriculture and Forestry) is the main agency that produces

the early warning information and disseminates to disaster management organizations, mainly to the NDMO. The

NDMO then sends this information to the local disaster management organizations to take appropriate actions

and disseminate early warnings to communities at risk.

• When disaster occurs, information from the local level to the national level is slow. The capacity and the resources

available with the local DMCs for data collection and dissemination is extremely weak.

• Flood Vulnerability Assessment and Mapping Project (FVAMP) of the Mekong River Commission (MRC) is working

to provide flood vulnerability indices to better manage flood and drought indices

• Hazard, Vulnerability and Capacity Assessment is being carried out under Lao Red Cross project ‘Community

Based Disaster Preparedness Program (2007–2011) in 5 flood and drought prone villages in Khammoaune and

Savannakhet province.

• The World Bank’s GFDRR pipeline project will fund risk mapping in two to three provinces.

HFA Priority # 3: Use knoweldge, innovation and education to build a culture of safety and resil-

ience at all levels

• Lack of comprehensive disaster information management system. NDMO is responsible to carry out the function

but it lacks human and information management capacities. A project with Save the Children Australia/ADPC

aims to strengthen the information management system, currently being piloted in Sayaboury province.

• Phase II of the Mainstreaming DRR in the Education Sector in Lao PDR project between MOE, NDMO, ADPC,

and UNDP (with Support from ECHO), is taking up further activities to mainstream DRR in the education sector

such as supporting institutionalization of the DRR module of phase I in the national curriculum and in the teachers

training system; pilot testing of DRR teaching aid materials in six schools; developing a framework curriculum

plan to aid in the future integration of DRR in Lao PDR; and identify specific opportunities for integrating hazard

resilience school construction features in one pipeline project.

• A comprehensive national action plan for disaster resilient school systems is lacking. Further the following needs

were identified by MoE: building more trainers at all levels; sensitizing (for better understanding of DRR) high

ranking officials in MOE, heads of local education departments, head of schools and primary school children;

experience sharing with other countries; and expansion of curriculum across all technical sectors.

• Under Laos Australia NGO Cooperation Agreement (LANGCOCA), a project Tools for Disaster Risk Assessments

(TDRA) is being conducted by NDMO and Save the Children Australia with the support of ADPC. The project will

support the development of a risk assessment system for use in Sayaboury district and will support the provincial

and district capacities in hazard and risk identification, assessment, and financing.

• The national government has no specific DRM public awareness and education programs in place. However

activities under donor programs such as (i) Flood Preparedness Project ADPC-MRC (ii) Mainstreaming in

education Sector (ADPC) and (iii) DRR Project (Oxfam/SCA) have awareness and education programs.

LAO PDR / 201

HFA Priority # 4: Reduce the underlying risk factors

• Most recently the National Action Plan for Adaptation for Climate Change has been approved. The NAPA has

identified, 45 priority project proposals to implement adaptation activities in four main sectors: agriculture,

forestry, water and water resources, and public health. 12 of these projects have been prioritized as primary while

remaining 33 as of secondary priority. There is a greater need for NDMO and Climate Change Office to work

closely to advance DRR components of the NAPA.

• Some limited efforts in agriculture sector such as river embankment, protection of dams, seed stocking during

floods, maintenance and rehabilitation of irrigation canals have been carried out.

• JICA is supporting the update of Urban Development Master Plan for Vientiane capital which has a component

of improving building codes. Similarly Component 5 of the MRC project on FMMP has a land management

component.

• Capacity building for Damage and Loss Assessment is being carried out by NDMP and MPI with support of

World Bank. This capacity building effort aims to prepare a cadre of local experts for damage and loss assessment

who can be readily deployed in the event of a major natural disaster.

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels

• Practically there is very limited budget for DRM or recovery activities. Funds are mobilized from the national and local

budgets in the event of a disaster. One Billion kip, about US$ 120000 through MSWL for emergency response

per year is earmarked by government. The government does not have a national disaster relief reserve fund that

provides funding for emergency response and recovery activities when a disaster strikes. Some departments have

their own funds albeit limited such as agriculture (seed, water pump repair), public works (road repair), Social

welfare and labor (relief) etc.

• Department of Social Welfare compiles from provincial departments the loss/damage and need for assistance,

then the department makes request to Minister for use of funds.

• NDMO is inadequately mandated (resource poor) and its mandate for risk reduction is yet to be understood by

other line ministries.

• No contingency plan for natural disaster events elaborated by the NDMC. However every year NDMC meets

prior to the disaster season, collects preparedness plan from line ministries. NDMC notifies PDMCs suggesting

them to prepare response plans. Some province do well; those provinces without disaster history have difficulty

in planning. However planning is poor and there is need to strengthen the process. Information from line ministries

may or may not come. Need to have better intra governmental cooperation and inter agency-cooperation.

• There is a need for a uniform methodology for making post disaster damage and needs assessments for

consistency and coming up with nationally agreed upon damage and loss figures. Also, there is need to have a

disaster information centre at NDMO, as the NDMC secretariat.

202 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

4.key donor engagements

Regional Initiatives

1. The ARPDM (ASEAN Regional Program on Disaster Management (2004-2010) and subsequent AADMER

(ASEAN Agreement on Disaster Management and Emergency Response) signed by member states in 2005,

Standard Operating Procedure for Regional Standby Arrangements and Coordination of Joint Disaster Relief and

Emergency Response Operations (SASOP)

2. The Regional Consultative Committee on Disaster Management (RCC) RCC Program on Mainstreaming Disaster

Risk Reduction into Development (MDRD) Phase I (2004-2007) and Phase II (2008-2012). Lao PDR is an active

member.

3. ASEAN, UNISDR and WB 5 year Memorandum of Cooperation (2009-2014)

4. Forthcoming Memorandum of Understanding between Asian Disaster Preparedness Center (ADPC), and World

Bank, sets forth the framework for a collaborative alliance between the two organizations.

5. Mekong River Commission: Created as an intergovernmental body by the countries of the Mekong Basin, MRC is

supporting member countries in the following five areas: Flood Management and Mitigation programme, including

Establishment of Regional Flood Management and Mitigation Centre (RFMMC); Structural Measures and Flood

Proofing; Enhancing Cooperation in Trans-boundary Flood Issues; Flood Emergency Management Strengthening;

and Land Management.

6. Asian Disaster Preparedness Centre: The Asian Disaster Preparedness Center (ADPC) is a regional non profit

resource center based in Bangkok, with substantial experience in implementing disaster risk management projects

in countries of the region including Lao PDR.

Donors/IFIs

• Laos Australia NGO Cooperation Agreement (LANGOCA), a consortium between Australian NGOs and Lao

government, funded by AusAid is strengthening community level preparedness and response to natural disasters.

LANGOCA works closely with NDMO.

• NDMO, with UNDP support, is planning to prepare a Strategic National Action Plan for DRM by 2010. The draft

is planned for December 2009. The Action Plan will focus on getting more ownership by various sector ministries

in advancing DRM in the country. UNDP is working with NDMO to enhance capacity at all levels of government

disaster management for preparedness, response and rehabilitation.

• LNMC, ADPC and NDMO are preparing/prepared Flood Preparedness Plans for Khammouane and Savannakhet

province with financial support from GTZ and ECHO.

• Emergency Relief for the 2008 Floods has been provided by most major UN Agencies (FAO, WHO, UNICEF)

and NGOs and bilateral donors (ECHO, USAID, Japan, Singapore, Sweden, Canada and Germany (OCHA).

• Mekong River Commission (MRC) is currently implementing Flood Mitigation and Management Program (FMMP)

with the support of donors such as Japan and Denmark. Asian Development Bank is preparing a TA for flood

management project.

• A Priority Investment Plan was developed for mainstreaming DRR into Agriculture sector by NDMO and Ministry

of Agriculture with technical support from ADPC and GTZ.

• JICA is supporting Riverbank Protection in Vientiane Municipality (pilot)

• Most recently the World Bank is working with NDMO, WREA and MPI to support the operationalization of the

Strategic Plan for DRM. This includes funding a $1 million project assisting the GoL to design an implementation

plan for its DRM strategy and strengthen the hydromet, early warning and river basin management. It is also

LAO PDR / 203

helping strengthen the Government’s capacity in carrying out damage and loss national assessment (DALNA) to

measure impact of natural disasters.

Guiding Principles for GFDRR/WB interventions

The main objective of the GFDRR/WB support will be to safeguard livelihoods of rural poor against floods and drought

risks and help address persistent poverty and maintain sustainable economic development. Following will be the guiding

principles for WB engagement in DRM in Lao PDR for 2009-2012:

• Disaster types: The focus will be on flood and drought risk management that is directly linked to the rural

poverty;

• Promoting national strategies: Advancing priorities as set out in the Strategic PDM and the DRR components of

the National Adaptation Plan of Action (NAPA);

• Incorporating the DRR elements into the investment planning (PIP and NESDB);

• Engaging with the provinces in implementing the DRR on the ground.

• People and livelihood focus: Taking a people centered approach to safeguard their livelihoods from disaster;

• Multi-sector approach: Engaging the provinces in implementing the DRR on the ground to enable a multi-sector

approach (education, transport, agriculture, water resources and health) to mainstream the DRR into the sector

policy and plan; build a cadre of disaster risk reduction champions across sectors;

• Emerging urban risks: While the priority is on rural, begin actions towards identifying and assessing emerging

urban risks

• Risk financing: Begin actions towards disaster risk financing (private sector engagement, agricultural insurance,

credit schemes, etc);

• Tie with existing World Bank and bi-lateral operations where possible (Education SWAp, Transportation Sector

Project, KDP, IMWRP)

• Consolidate GFDRR Phase-I

• Partnerships: NDMO will be the coordinating partner at the national level and line ministries will be focal points;

PDMO/DDMO will be partners at implementation level. Where possible we will rely on respective comparative

advantages of other stakeholders;

• Strengthen overall capacity of NDMO and support to establish a broader engagement framework for the donors

(ADB, UNDP, LANGOCA, JICA)

• Regional consideration: Engaging riparian countries and MRC to address the flood and drought risk management

from a regional view.

• Promote organizations with regional expertise on disaster risk management

• Explore implementation of existing DRR plans (such as Flood Preparedness Plans in Khammouane, JICA work on

Urban Strategic Dev Plan) & capitalize on existing DRM experience (from pilots) such as in education sector

204 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Program Targets

• DRR elements integrated into the national and sector planning and implemented on the ground;

• Key structure and non-structural measures implemented in the high priority areas;

• Adequate capacity for disaster management built from the national, provincial, district, and the community level

Indicative Program for GFDRR Funding

(Projects and engagement areas)

Capacity building of Hydmet agency for early warning and weather

forecast systems

Develop DRM components within Sector Wide Approach (SWAp) in

Education, Health and Transport Sector

Incorporating DRM component in Mekong Water Resources Management

Project

Incorporating DRM component in Khammouane (Province) Development

Project, and Second Province Development Project

Strengthening existing technical standards and design specifications in

different sectors (transport, school)

Emerging urban risks

Identifying and assessing emerging urban risks for Vientiane Capital

Issue paper on disaster risk financing

(agriculture insurance, private sector participation, etc)

Strengthening capacity for DRM (3 years)

Total Indicative Budget

Partners

DMH, WREA, NDMO

Various relying

on comparative

advantages; MOE,

MOH, MPWT, NDMO

Various, MRC, ADB,

WREA

Various

MPWT, MOE, NDMO

JICA, MPWT, NDMO

MAF, MRD, NDMO

Indicative

Budget

(US$)

200,000

HFA

Activity

Area(s)

2,000,000

1-5

2,000,000

1-5

1,000,000

1-5

Part of Sector

SWAps

300,000

2, 4

50,000

100,000

5,450,000

VANUATU

VANUATU / 205

1. disaster risk profile

Vanuatu ranks as one of the countries with the highest

exposure to multiple hazards, according to the World Bank’s

Natural Disaster Hotspot study. Vanuatu is geographically located

in the “ring of fire” and the “cyclone belt” of the Pacific. Almost 81 %

of its landmass and 76% of its population is vulnerable to two or more

hazards including volcanic eruptions, cyclones, earthquakes, droughts,

tsunamis, storm surge, coastal and river flooding and landslides. For

this reason, Vanuatu has a UN Least Developed Country (LDC) status

despite a per capita GDP above the LDC threshold.

Vanuatu is made up of 83 islands with a total land area of

12,300 km spread over 1,300 km in a north to south direction.

The islands are located some 1,750 kilometers east of Australia

with New Caledonia to the south, and the Solomon Islands to the

northwest. The current population is 235,000, of which 80% live

in rural villages on the seven islands of Efate, Espiritu Santo, Tanna,

Malekula, Pentecost, Ambae and Ambrym.

Recent disasters include the Penama earthquake and tsunami

of November 1999, which affected over 23,000 people and

the 2002 Port Vila earthquake which caused structural and

infrastructure damage. The country is subject to climatic variability

and extremes. Vanuatu’s latitude places it in the path of tropical

cyclones, making it vulnerable to cycles of El Nino and La Nina, which, respectively, increase the risks of droughts and

floods. Future climate change and sea-level rise threaten to exacerbate the risks posed from tropical cyclones, coastal

and river flooding, coastal erosion, heavy rainfall events, and droughts.

206 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Economic Damages by Disaster Type (1000s USD)

250000

200000

150000

100000

50000

Storm

Population Affected by Disaster Type

Earthquake

18%

Storm

66%

Volcano

12%

Floods

COUNTRIES AT RELATIVELY HIGH MORTALITY

RISK FROM MULTIPLE HAZARDS

(Top 60 based on land area

with 2 or more hazards)

1. St. Kitts and Nevis

2. Macao, China

4. Hong Kong, China

6. VANUATU

7. Costa Rica

8. Philippines

9. Nepal

10. Guatemala

12. Ecuador

13. Reunion

15. Somalia

16. South Africa

17. Japan

19. Bangladesh

26. Solomon Islands

Capital

Languages

Independence

Area

Land Use

Government

Population

GDP

HDI

Terrain

Climate

Natural resources

Major products

Main development donors

Port Vila

Bislama (Pidgin), English (official), French (official), over 100 tribal languages

(from France and U.K.): July 30, 1980

-11,830 sq. km. (4,568 sq. miles) archipelago of 83 islands

arable land: 1.64%

permanent crops: 6.97%

other: 91.39% (2005)

Parliamentary democracy.

235,000 (2008)

$343.6 million. (2006)

120 out of 177 (2007)

Mostly mountains of volcanic origin, narrow coastal plains

Tropical or sub tropical

Forests, agricultural land, marine resources

Agriculture: Products--copra, cocoa, coffee, cattle, timber.

Industry: copra production, beef processing, sawmilling, tourism, financial services

Australia, the United Kingdom, France, and New Zealand Japan, Canada, Germany, and the United

States

The World Fact Book, World Bank Country Reports,

VANUATU / 207

Historic Overview of Disasters

Since 1939 Vanuatu has experienced 124 tropical cyclones, of which 45 were categorized as having hurricane

force winds. A category 3-4 Cyclone, Uma struck Port Vila, Vanuatu, in February 1987. While the insured loss was only

about USD20 million, 55 people were killed and 95% of the buildings in the capital city were damaged. Power and water

supplies were cut, 40 boats in the harbor were lost and a storm surge of 2-4 meters reached Rue Higginson, the main

street. The economic cost was estimated at around 150% of annual GDP. A natural disaster with comparable GDP

impact on Japan, for example, would have a death toll of nearly 34,000 people and a cost of around USD 5 trillion.

Other recent natural disasters include:

• Cyclone Ivy, 2004, damage of US $1.7 million in the education sector alone.

• Cyclone Danny, 1999, US $8.5 million estimated damage.

• Lake Vui volcanic activities in 2005-6, estimated damage of US $427,313.

• Earthquake 2002, US $851,628 estimated damage.

• Tidal waves generated by the 1999 earthquake, 5 lives lost.

• Penama earthquake and tsunami of November 1999, which affected about 23,000 people.

Exposure and Vulnerability

The following two figures show the mean return period of direct losses (in US $million and as percent of GDP, respectively),

due to the combined impacts of earthquake, tsunami and tropical cyclones on Vanuatu.

1000

900

800

700

600

500

400

300

200

100

150

100

Direct losses (in millions USD)

1000

900

800

700

600

500

400

300

200

100

Direct losses (% GDP)

A narrow economic base and a weakly developed economy contribute to the country’s vulnerability. While

small-scale agriculture provides a living for 65% of the population, 65% of GDP is generated by the service sector.

Agriculture and a small industry sector accounts for about 25% and 10% of GDP, respectively. The local market is small.

The growing tourism sector, with 60,000 visitors (in 2005) mainly around Port Vila, is the main foreign exchange earner.

This narrow economic base makes the cash economy particularly vulnerable to disruption by natural disasters1.

Weak inter- and intra-island communication and transport networks also increase the islands’ vulnerability.

Many areas lack national radio reception. Road transport is only well developed near population centers -only 111 km of

roads are sealed - mostly on the larger islands. While air service is daily to the main islands, there are only 5 airports with

sealed runways (out of 29 in total)4.

1 World Bank Vanuatu Country Risk Assessment (Draft) 2009

208 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Wide dispersal is a further factor in vulnerability. The 83 islands are spread over a maritime exclusive economic

zone (EEZ) of 680,000 km2. Many areas of the country are very isolated and therefore extremely vulnerability in the event

of disaster.

2. disaster risk management framework

In 2006, Vanuatu created a 10 year National Action Plan (NAP) for Disaster Risk Reduction derived from the

National Disaster Act (2000). The NAP was adopted by Government in 2007. This determines eligibility to apply for

funding for implementation under the LDC Fund, which is managed by the Global Environmental Facility (GEF).

Vanuatu is the only Pacific Island Country to complete both a National Action Plan (NAP) for disaster

risk reduction and a National Adaptation Program of Action (NAPA). In addition, a Disaster Risk Management

Framework and arrangements flowchart was adopted by the government in early 2007 as the basis for developing new

legislation, a new disaster management plan and new government organizational arrangements.

In August 2007, a 3-year Provisional Indicative Implementation Program (PIP) 2008-2010 was adopted by

the government as the means to implement the NAP. The Government has committed VT25million (US $220,887)

towards the implementation subject to discussions with donors on supporting the full implementation of the PIP at a cost

of approximately US $3.3 million.

3. activities under the hyogo framework of action

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

The National Disaster Risk Management Agency

Disaster risk management is housed the Ministry of Internal Affairs (MoIA), which supports the National

Task Force (NTF) for Disaster Risk Reduction and Disaster Management. The NTF comprises representatives

of departments with a role in disaster risk management and is co-chaired by the Director of the Meteorological Service

and the National Disaster Management Office.

The NTF for DM and DRR takes a proactive as well as reactive approach – thus it does not meet solely in

response to a disaster events.

The National Disaster Committee (NDC), established by the National Disaster Act is tasked with developing

the country’s disaster risk reduction policy and strategy. It is made up of representatives of the Director General

of the MoIA, the Commissioner of Police; the Director of the National Disaster Management Office who is to provide

secretarial support to the Committee; and three NGO representatives

The National Disaster Management Office is its secretariat; The NDMO has a staff of three, and is tasked with

implementing the strategies and policies of the National Disaster Committee (NDC). However the NDMO has no

powers to require other agencies to act on any identified prevention measures. The NDC coordinates response and

recovery activities including coordination with donors.

VANUATU / 209

Legislative Framework

The relevant legislation in this area is the National Disaster Act of 2000 which focuses primarily on

preparedness and response arrangements for disasters. While the Act includes a definition of prevention, it is not

specific about requirements and powers for addressing prevention measures. The legislation is currently administered

by the Ministry of Internal Affairs through the National Disaster Management Office.

The governance arrangements for disaster risk reduction are being reviewed at the national level and should

include explicit structures, accountabilities and connections for cross sector arrangements. Provisions should

extend to the provincial and local levels.

Disaster Risk Management at the Sub-National Level

Both the NAP and the PIP include provisions for extending disaster risk management to the provinces.

However, lack of funding prevents implementation of the NAP. Provinces are, in theory, also mandated to

prepare their own Disaster Plans which should be approved by the NDMO Director, reviewed annually, and updated as

needed.

Moreover, lack of action on the central NAP has prevented the creation of provincial action plans. Provincial

authorities are responsible for coordinating responses under the guidance of the NDMO and NDC. Each village should

have a disaster management committee which coordinates response at the local level, works in consultation with the

provincial level and is responsible for local level damage and loss assessments.

Legislative and Organizational Gaps

The current legislative, policy and organizational structures for disaster risk reduction are weak. Initiatives

like the NAP are unfunded. The Natural Disaster Act, the National Action Plan and the organizational arrangements of

NDMO should be reviewed to strengthen disaster management arrangements and mainstream disaster risk reduction.

Work on arrangements for disaster risk reduction at the national level is being undertaken but this initiative should be

extended to provincial and local levels as well.

Disaster Risk Management in the Poverty Reduction Strategy and Country Development

Plans

Disaster risk management is integrated in the country’s Priorities and Action Agenda 2006-2015. The key

priorities and strategies as it relates to environment and disaster management are as follows: Implement the environment

management and conservation act and the regulate of related activities; Encourage development of protected areas;

Improve sewage treatment and reduce pollution in the harbors and lagoons near urban centers; Conduct a solid waste

disposal study; Encourage eco-tourism as a means to protect the environment where feasible; Conduct community

awareness of the need to protect the environment; Develop and implement risk reduction programs in communities;

Prepare a Port Vila development plan which mainstreams climate change and disaster risk reduction measures.

The action agenda recognizes Vanuatu’s vulnerability to natural disasters and states that “the emphasis

in disaster management has been on making communities aware of the need for preparedness and

promoting the renewal of traditional knowledge of mitigation and preparedness”. It further states that “the

National Disaster Management Office, with the assistance of the National Disaster Committee, is mandated to develop

strategies for the prevention of, preparation for, response to and recovery from, disasters.” The Land Reform Policy which

is currently under development will lead to a five-year action plan that includes land-use zoning maps and vulnerable area

mapping, addressing both disaster risk reduction and climate change adaptation.

210 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Interministerial Involvement in Disaster Risk Management

Vanuatu’s government has a high level of awareness and appreciation of the potential risks to sustainable

development posed by the country’s exposure to geological, hydrological and climatic hazards. This is

evident across a range of ministries and departments. As a consequence there appears to be a willingness to work

across sectors to address areas of common interests in risk reduction.

A number of ministries and agencies participate in disaster risk management, including Vanuatu’s Meteorological

Department which is responsible for day to day weather forecasting, cyclone and tsunami warnings and advisories, and long

term seasonal forecasting; the Agriculture Department which is involved in disaster response; the Department of Internal

Affairs which coordinates responses between provincial authorities; the National Advisory Committee of Climate Change

which assists in raising awareness on disaster risk reduction through its climate change core team; and the Ministry of

Lands and Natural Resources (MLNR), which incorporates risk reduction into to land, water and energy planning.

Climate Change and Disaster Risk Management

Vanuatu has a National Adaptation Plan of Action (NAPA) which was adopted by Government in 2007

and was posted on the UNFCCC web site in December 2007. This determines eligibility to apply for funding for

implementation under the LDC Fund, which is managed by the Global Environmental Facility (GEF).

The NAPA identifies four priority sector areas: Agriculture and Food Security, Sustainable Tourism Development,

Community Based Marine Resource management and Sustainable Forestry Management. Climate change activities are

coordinated by the National Advisory Committee of Climate Change (NACCC). It is made up of department heads and

chaired by the Director of the Meteorological Service. The Director of the Meteorological Services is co-chair of the

National Task Force for Disaster Risk Reduction and Disaster Risk Management.

HFA Priority # 2: Identify, assess, and monitor disaster risks—and enhance early warning

National, Regional, Local and Sector Risk Assessments

Despite the multiple risks faced by Vanuatu and despite the fact that there is a moderately high level of

awareness and commitment to risk reduction at the national level, there are only rudimentary understanding

and assessments available of the degrees of risk, who is at risk, and where. For example, there are no tsunami

hazard maps available other than a single scenario inundation map for the greater Vila area, according to the World

Bank’s Draft Country Risk Assessment.

While there is some information on areas prone to flooding based on past events, there are no detailed

flood maps that would be of use in the development of flood risk and land-use zoning. For most of the

volcanoes there are volcanic hazard maps, largely derived from general understanding of specific volcanic hazards.

A National Water Strategy Plan has been prepared proposing risk assessments and vulnerability mapping.

This work has not commenced and there is very little capacity to undertake it. The biggest impediment to the development

of risk and vulnerability assessments and maps is the lack of climatic, hydrological and geophysical data.2

The Country Risk Profile prepared the World Bank and SOPAC under the Pacific Catastrophe Risk Financing

Initiative are currently in draft and will map country level risks. Currently no risk maps reflect the influence of

climate change on future risk levels. However, software has been purchased that will allow such effects to be estimated

when maps are produced in the future.

2 World Bank Draft Vanuatu Country Assessment 2009

VANUATU / 211

In general, there is a severe paucity of data, tools and capacity to quantify natural hazard risks and to

interpret them in a manner which allows risk reduction to be integrated explicitly into development planning

and decision-making. For example, for water resources and water-related risks, such as floods and droughts, there

are currently only six hydrological monitoring stations that are operational: two on Efate and four on Santo according to

the World Bank’s Draft Country Risk Assessment.

Furthermore, these were established for water supply and hydro-power purposes and in support of

developments having to do with mining, and not for long-term monitoring for risk assessment (two stations

were removed after they were no longer needed for immediate development purposes). Yet, flooding is

recognized as a major hazard, particularly in peri-urban Vila (Mele and Teuma) and Luganville (Sarakata R) and the risks

are increasing with the growing population. Long-term hydrological data to underpin risk reduction in such areas do not

exist. Moreover, the hydrological (and other) data, both digital and paper, were destroyed in a fire in 2007. Efforts are

underway to retrieve data from SOPAC and other regional and national databanks, but the retrieval will only be partial.

The variability and extremes of rainfall are central to understanding the flood, drought and water supply

risks facing the country. There is very limited rainfall intensity data and analyses of extreme rain events available.

Nonetheless, there are very few rainfall stations in Vanuatu. The monitoring network, once quite extensive prior to the

country’s independence, has dwindled. There is only one automated weather station and eight manual rain gauges, with

three-hourly readings and reporting of daily rainfall. There is a proposal for 60 manual stations (for 10 provinces), which

would need Vt 3million (approximately US$30,000) for installation and Vt 5 million (approximately US $50,000) annually

for operations.

In terms of volcanic hazards, there are nine active volcanoes which are characterized as low-probability,

high-impact hazards. However, there is only one permanent volcano monitoring station (on Tanna). There is limited

water sampling of crater lakes at Ambae, Ambrym and Tanna and no ability to provide 24/7 warning. Currently, there is

a proposed NZAID-funded project (NZD$1 M over 10 years, but not yet approved) to establish a volcanic monitoring

network on 9 volcanoes with 20 automated/telemetered stations providing real-time data, and IRD has a Euro 2 M

volcano research project. Use is being made of internationally available monitoring data for volcanoes and EQ, but these

data have limited scope for country-specific application.

Earthquakes are recognized as posing significant risks across the islands of Vanuatu. There is a reasonable

understanding of the broad seismic hazard from past studies. However, there is meager detailed understanding which

depends on data. There is a seismic hazard map available for greater Vila area, but not for other population centers such

as Luganville. In terms of seismic earthquake monitoring, there was a three-station network on Efate but it is currently

dysfunctional due to the fire in 2007 (one accelerometer was lost also).

There is extensive tsunami risk for coastal communities throughout Vanuatu, which has been well recognized

historically. The data on tsunami occurrence is sparse. There is a proposal for a paleo-tsunami study and collection of

oral histories, but currently funding can only be made available for a small pilot project.

Cyclone track data are available to calculate frequencies, but fall short of full risk estimation and evaluation

due to lack of additional data and capability. Sea-level monitoring is carried out in Port Vila and Luganville as part

of SEAFRAME, but the observational record is still quite short.

212 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

The following figure shows the path

of tropical cyclones that affected

Vanuatu since 1945. The color of the

path reflects the intensity of the storm

(reference: World Bank and SOPAC,

2008). A similar map is available for

historical earthquake activity in Vanu-

atu since 1945.

The following table shows the mean

return period for a tropical cyclone

of the given Saffir-Simpson category

passing within 100 km of Port Vila

(reference: World Bank and SOPAC,

2008).

The following table summarizes the

risk profile for Vanuatu due to future

tropical cyclones and earthquakes.

The effect of climate change is not

included. In addition to direct losses,

which reflect the cost needed to re-

pair or replace the damaged assets,

the table lists the emergency losses.

These are the expenditures that the

Vanuatu government may need to

sustain in the aftermath of a natural

catastrophe, to provide necessary re-

lief and conduct repair activities such

as debris removal, setting up shelters

for the homeless or supplying medi-

cine and food. The emergency losses

are estimated as a percentage of di-

rect losses (reference: World Bank

and SOPAC, 2008).

Saffir-Simpson Category

≥1

≥2

≥3

≥4

Mean Return Period (years

400

Mean Return

Period(years)

100

Risk Profile: Tropical Cyclones

Direct Losses

(USD million)

(% GDP)

11%

Emergency Losses

(USD million)

(% of total government

expenditures)

11%

12%

Risk Profile: Earthquake and Tsunami

Direct Losses

(USD million)

(% GDP)

11%

Emergency Losses

(USD million)

(% of total government

expenditures)

10%

250

13%

14%

13%

12%

VANUATU / 213

A map showing population and building stock (residential, commercial, industrial and public assets) exposure for Vanuatu

has been compiled. The exposure distribution is color coded by concentration of replacement value.

Early Warning

Vanuatu has the capacity to undertake accurate one, three to five, ten day and seasonal forecasts. The

Weather Forecasting Section of the Vanuatu Meteorological Service consists of eight staff. The Section is located at

the Head Office and operates 18 hours a day, 7 days a week. The Section also houses the Vanuatu Tropical Cyclone

Warning Center (VTCWC), which is responsible for disseminating tropical cyclone warnings to the public if and when a

cyclone enters Vanuatu’s area of responsibility.

The primary purpose of the Weather Forecasting Section is to provide daily weather forecast to the public,

daily marine weather forecast to the mariners, provide aviation forecast and provide warnings for severe

weather events. The center is also temporarily responsible for disseminating Tsunami information and advisories to

the public.

The islands do no current have adequate Doppler radar coverage and there is need for extended coverage

of the hydro-met centers, particularly to cover the rainfall data collection. Vanuatu does have real time data

communications. For sea level monitoring – tide gauges throughout the region which give tide measures, pressure, wind

speed and direction and sea surface are linked to the Australian National Tidal Facility in Adelaide. This was established

as part of the South Pacific Sea Level and Climate Monitoring Project.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

Information Management and Exchange

The Meteorology and Geohazard Departments provide relatively timely information to the public. For example,

the forecasting section of the Meteorology Department provides advice based on analysis of situation then an advisory

or warning is issued by the Director of Meteorology Dept which is provided to radio and TV and then disseminated

throughout the country. Cyclone warnings are issued at every stage from every three hours down to every hour.

Education and Training

While the NDMO has had a public hazard and preparedness awareness program, resources are limited

and provide for only one province to be covered each year. One day workshops are also run for government and

provincial officers for preparedness for the cyclone season and the Geohazards department runs awareness programs

across the country from time to time. Risk reduction and climate change awareness is being added to these programs

but guidance on practical application is very limited. Within the Ministry of Education, there is an element of disaster risk

reduction/disaster risk management being discussed for potential inclusion in curriculum development nation-wide, with

potential support from UNESCO for treating Vanuatu as a pilot application.

HFA Priority # 4: Reduction of the underlying risk factors

Mainstreaming Disaster Risk Reduction integration into land use, zoning, building codes,

location and construction of public infrastructure

The NAP will develop policies and legislation which would create the enabling environment for mainstreaming

through a 10 year program. However, it is still awaiting funding. Disaster risk management is not incorporated into

the national land use law but the Land Reform Policy which is currently under development will lead to a five-year action

214 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

plan that includes land-use zoning maps and vulnerable area mapping, addressing both disaster risk reduction and

climate change adaptation. Disaster risk reduction is not addressed in provincial level planning. This issue is recognized

in the policies being developed for climate change adaptation and is contained in the NAP for disaster risk reduction.

Few initiatives are underway to ensure that development is undertaken in a sustainable manner as regards

disaster and climate risks. Tourism is fast growing sector in the country and, as a main contributor to the economy. is

seen as a viable pilot for disaster risk reduction in sustainable development.

Private Sector involvement in Disaster Risk Management

The limited private sector involvement focuses on delivery of relief supplies following natural disasters but

there is no regular mechanism to involve the private sector in disaster risk management. Once a year, there

is a designated disaster week in which the private sector and NGOs participate in raising awareness. The NDMO has

had a public hazard and preparedness awareness program for a number of years, principally run as the annual National

Disaster Day with support from the Meteorological Service and the Ministries of Education and Health.

Risk Financing Framework

There is budget line item in the national government budget for disaster risk reduction but the NTF is currently

in abeyance awaiting funding at both the national budget level and through donor contributions. A Council

of Ministers (COM) commitment of Vt 25million (approximately US $225,000) to initiate the Program Management Unit

for the NAP did not reach the appropriation commitment through lack of sponsorship and so did not reach donors for

consideration of the wider package. For their part, in-country donors said they would not have considered it a priority for

bi-lateral funding but were aware of it as a regional issue, according to a World Bank assessment.

Vanuatu does not have a national disaster relief reserve fund. The national planning office in the Department of

Social and Economic Planning has had the role of monitoring budget developments against Government decisions. They

did not have disaster risk reduction or climate change adaptation in their checklist and saw these as the responsibility

of specific departments.

There is no disaster insurance scheme in place. A pilot was initiated with support from the World Bank and

AusAid and concluded that it would more beneficial to have a regional disaster insurance system because

of the high cost of a national scheme. Current legislation does not require the government to cover to public

assets. According to ND Act, “A person (“first mentioned person”) may not bring legal proceedings against the State,

a Minister or any other person or body for any damage, loss, death or injury sustained: (a) during a state of emergency;

and (b) because of anything done or omitted to be done in good faith under this ACT by an emergency services officer,

a volunteer, a police officer or any other person acting in accordance with this Act.”

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels.

Emergency Management

The country’s hazard monitoring departments - the Geohazard and Mines and the Meteorology Department

- are linked to the NDMO through the DDC, and are all departments are expected to be housed under one

roof in 2009. The country does not currently have academic research institutions designated to studying different

hazards. The Meteorological Service has primary responsibility for climate-related data and analyses, and sees the

expansion of climate data monitoring as a high priority.

VANUATU / 215

Vanuatu holds annual emergency simulation exercises.

Communications.

While the national emergency management function possess a communications system, the information

management system is weak. For weather related risks, the Meteorological Department issues warnings while NDMO

issues evacuation orders, and NDMO convenes meeting of the NDC if necessary. The Geohazard Department also

provides warnings and advisories on seismic activity and NDMO oversees evacuation.

Damage and Loss Assessment

Currently there are no procedures or capacity for systematic, consistent collection of damage and loss

data following disasters – reports based largely on anecdotal information are available for some disasters.

The consequence lack of impact data is a constraint to economic analyses of the benefits of disaster risk reduction and

climate change adaptation, evaluation of benefits and costs of risk reduction, and therefore investments by government

and donors in disaster risk reduction and climate change adaptation.

4.key donor engagements

Existing Projects with Donors and International

Financial Institutions

Pacific Catastrophe Risk Pool Feasibility Study (Cook

Islands, Fiji, Papua New Guinea, Samoa, Solomon Islands,

Tonga, Tuvalu, Vanuatu )

Sustainable management through reduced risk from

disasters and climate (Fiji, Kiribati, Marshall Islands, Papua

New Guinea, Solomon Islands, Timor-Leste, Vanuatu )

Disaster Management in Marginal Communities of Port Villa

Pacific Islands Disaster Assistance Program (PDAP): The

Cook Islands, Fiji, Kiribati, Niue, Palau, Papua New Guinea,

Samoa, Solomon Islands, Tonga, Tuvalu, and Vanuatu ,

Federated States of Micronesia and the Republic of the

Marshall Islands.

Reducing Vulnerabilities of Pacific ACP States

(Fiji, Kiribati, Papua New Guinea, Samoa, Solomon

Islands, Tonga, Tuvalu , Vanuatu., Cook Islands, Federated

States of Micronesia, the Marshall Islands, Nauru,

Niue and Palau).

Integrated Coastal Management in the Pacific

Pacific Islands Climate Change Assistance Program

(PICCAP), (Cook Islands, Federated States of

Micronesia, Fiji, Kiribati, Marshall Islands,

Nauru, Samoa, Solomon Islands, Tuvalu

and Vanuatu)

Funding Agency /

International Partners

World Bank

Allocated

Budget and

Period

(US$)

2008 - present

$400,000

World Bank

2008 – present

$1,900,000

DFID

USAID/OFDA

1995-present

$3,906,813

$4,001,756.

1995-present

HFA

Activity

Area(s)

1,2,5

2,3,4,5

1,2,3,4

SOPAC/EU

2003 –present Not available

$2,797,329

Pacific Regional

Environmental Programme

(SPREP)

Not available

SPREP

1997-present

(Cont.)

216 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Existing Projects with Donors and International

Financial Institutions

The Millennium Challenge Account

Environmental sustainability mainstreamed into regional and

national policies and planning frameworks Federated States

of Micronesia, Fiji, Kiribati, Nauru, Palau, Marshall Islands,

Solomon Islands, Tonga, Tuvalu, Vanuatu);

Pacific Islands Climate Prediction Project

(Cook Islands, Fiji, Kiribati, Niue, Samoa, Solomon Islands,

Tonga, Tuvalu, Vanuatu, Papua New Guinea)

South Pacific Sea Level and Climate Monitoring Project (Cook

Islands, Federated States of Micronesia (FSM), Fiji, Kiribati,

Marshall Islands, Nauru, Papua New Guinea (PNG), Samoa,

Solomon Islands, Tonga, Tuvalu and Vanuatu.)

Funding Agency /

International Partners

United States

UNDP

AUSAID and the Australian

Bureau of Meteorology

AUSAID

Allocated

Budget and

Period

(US$)

2006 – 2011

US$65.69

million

2008 - 2012

$16,831,000

AUS $ 5.5

million

2004 - present

1991 - 2010

HFA

Activity

Area(s)

1,4

2,5

5.global facility for disaster reduction and recovery (gfdrr):

action plan

The proposed next round of GFDRR activities will build recommendations from the country specific and regional work

undertaken under prior GFDRR projects (such as the NAPA stock-take and pilot catastrophe insurance activities).

Considering the country’s available resources, existing capacities, operational plans and procedures, specific priorities

of national authorities, identified gaps and also taking into consideration projects which may be covered under other

regional activities (such as the Pacific Catastrophe Risk Initiative and the pipeline NZ funding for early warning system

upgrades), the following key activities are proposed for the next round of funding:

Indicative Program for GFDRR Funding

(Projects and engagement areas being

considered for GFDRR funding)

Risk Mapping to Support Town Planning and Village

Development

Support a demonstration programme for the

communities of Luganville and the Mele-Teouma Plains

to:

1. Identify and map all hazards including potential

changes in climate variability

2. Assess vulnerabilities and engage with communities

in assessing risks

3. Establish development zones and other risk

mitigation measures for community assets and

infrastructure

4. Develop disaster management arrangements and

warning arrangements for flooding and storm surge

Implementing Agency /

International Partners

Ministry of Lands and Natural

Resources with Geohazards,

Rural Water Resources, Meteorological

Service, Municipalities, French, Vanuatu,

and Mele Red Cross Societies, Ports,

SOPAC

Indicative

Budget and

Period

(US$)

3 years

$ 1.6 million

HFA

Activity

Area(s)

2,4

(Cont.)

VANUATU / 217

Indicative Program for GFDRR Funding

(Projects and engagement areas being

considered for GFDRR funding)

Support to the NAP Implementation and its

integration with arrangements for CCA in the

NAPA.

Priority activities:

1.Address issues of integration of arrangements

for DRM and CCA and establish a management

structure for implementation of the NAPA and NAP

2. Support the TA role over two years to facilitate the

initial implementation.

3.Address funding issues for the on-going

implementation of the NAP

Promote disaster risk reduction and CCA in the

tourism sector for Vanuatu

Priority activities

1. Prepare hazard risk profiles for a range of existing

tourism facilities for key areas, including exposure to

climate change related risks in order to understand

the extent of risk exposure.

2. Develop a development guideline for future tourism

developments to address this risk exposure (which

has the potential to severely impact the industry

nationwide). The guideline should address:

3. Promulgating application of the guidelines in order

to demonstrate the benefits of DRR and CCA to

tourism developments and to promote nation-wide

application

Support for Ministry of Lands in reforming Land-

Use Policy and Regulation

Priority Activities

1. Develop a strategic framework for a land-use

regulatory regime related to risk, including provincial

and community consultation

2. Develop and implement an action plan to meet the

needs of the project.

3. Develop land-use policy framework and link all

Vanuatu islands in a common regulatory regime.

4. Championing, adoption and demonstration through a

pilot zoning program on one island

5. Carry out provincial and community awareness and

implementation program

Support the Ministry of Internal Affairs to

establish appropriate building code

Priority activities

1.Encourage the revision of existing and development

of new building codes, standards, rehabilitation and

reconstruction practices

2.Reinforce the capacity to implement, monitor and

enforce such codes, through a consensus-based

approach, with a view to fostering disaster-resistant

structures.

Implementing Agency /

International Partners

Dept of IA, with National Task

Force and NDMO, NACCC and

Meteorological Service

National Tourism Development Office

with NACCC, Met Service

Ministry of Lands and Natural

Resources

Dept of IA, with National Task Force

and NDMO and NACCC

Indicative

Budget and

Period

(US$)

2 years,

$1.3 million

2 years,

$475,000

3 years,

$480,000

2 Years,

$300,000

HFA

Activity

Area(s)

1,2,4

2,4

1,4

(Cont.)

218 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES EAST ASIA AND PACIFIC

Indicative Program for GFDRR Funding

(Projects and engagement areas being

considered for GFDRR funding)

Reduce energy risk by lowering dependency

on imported fossil fuels through greater use of

renewable energy

Priority activities

1.Support the Ministry of Lands to Implement the

Action Plan of the Energy Policy Framework

2. Develop a Renewable Energy Strategy

Support the Ministry of Infrastructure & Public Utilities

to Identify key infrastructure for strengthening (roads

and bridges, buildings, water storage facilities, etc.)

Implementing Agency /

International Partners

Ministry of Lands and Natural

Resources and NACCC

Ministry of Infrastructure & Public

Utilities

Indicative

Budget and

Period

(US$)

3 Years

$400,000

HFA

Activity

Area(s)

3 Years

$445000

Priority activities

1.Support the development of a regulatory regime

related to risk, including provincial and community

consultation

2. Develop and implement an action plan to meet the

needs of the project.

3. Develop land-use policy framework and link all

Vanuatu islands in a common regulatory regime.

4. Championing, adoption and demonstration through a

pilot zoning program on one island

5. Carry out provincial and community awareness and

implementation program

6. Ensure that all new World Bank infrastructure

activities integrate disaster risk reduction measures

Total Budget Requested:US$ 5 million

VANUATU / 219

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Bettencourt, Sofia, Richard Croad, Paul Freeman, John Hay, Roger Jones, Peter King, Padma Lal, Alan Mearns, Geoff

Miller, Idah Pswarayi-Riddihough, Alf Simpson, Nakibae Teuatabo, Ulric Tritz, Maarten Van Aalst ‘Not If, But When:

Adapting to Natural Hazards in the Pacific Island Region’ The World Bank. 2005

Dilley, Max, Robert S. Chen, Uwe Deichmann, Arthur L. Lerner-Lam, and Margaret Arnold ‘Natural Disaster Hotspots; A

Global Risk Analysis’ World Bank 2005

EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium 2009

Framework for Action 2005-2015: An Investment for Sustainable Development in the Pacific Island Countries Disaster

Risk Reduction and Disaster Management; Building the Resilience of Nations and Communities to Disasters.

Global Fund for Disaster Risk Reduction Vanuatu Country Assessment

Government of Vanuatu, National Disaster Plan 2004

Government of Vanuatu Supplementary PAA (Priorities and Action Agenda), 2006

Government of Vanuatu. Provisional Indicative Implementation Programme (PIP) 2008 -2010., 2007

Government of Vanuatu National Adaptation Program of Action

Government of Vanuatu Priorities and Action Agenda 2006-2015 “An Educated, Healthy and Wealthy Vanuatu”,

Department of Economic and Sector Planning, Ministry of Finance and Economic Management June 2006 (Medium

Term Development Plan)

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Hyogo Framework for Action 2005-2015: I S D R International Strategy for Disaster Reduction

Priorities and Action Agenda 2006-2015 Supplementary for Mainstreaming Disaster Risk Reduction and Disaster

Management

Sikivou Mosese What do Pacific Developing Member Countries Want from Catastrophe Insurance, Pacific Islands

Applied Geoscience Commission, National Catastrophe Risk Insurance Mechanisms for Asia and the Pacific, November

4-5, 2008, Tokyo, Japan

UNDP ‘Human Development Index’ 2007

UNDP Country Background 2009

UNISDR, Living with Risk: A Global Review of Disaster Reduction Initiatives 2002

The World Bank (Draft ) Vanuatu National Action Plan (for Disaster Management) Country Risk Profile prepared the

World Bank and SOPAC under the Pacific Catastrophe Risk Financing Initiative

The World Bank (Draft) Pacific Catastrophe Risk Financing Initiative 2009

The World Factbook 2009

DISASTER RISK MANAGEMENT

Latin America & Caribbean

Colombia / Costa Rica / Ecuador / Guatemala

222 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

colombia

1. disaster risk profile

Colombia has the 10th highest economic risk to three or more hazards in the world according to the Natural

Disaster Hotspot study by the World Bank. 84.7% of Colombia’s population and 86.6% of its assets are located

in areas exposed to two or more natural hazards. The exposure is to both low-frequency high-impact events such as

earthquakes, volcanic eruption, and an occasional Atlantic hurricane, and to high-frequency but lower-impact events,

such as floods and landslides. Climate change is already thought to exacerbate flooding and landslides in large parts of

the country.

Population Affected

by Disaster Type2

Landslides

13%

Economic Damages by Disaster Type

(1000s USD)2

80000

60000

Drought

32%

40000

Flood

55%

20000

Storm

Relative Vulnerability and Risk Indicators3

Flood

COUNTRIES

MOST EXPOSED

TO MULTIPLE HAZARDS

(Top 15 Based on Land Area

with 3 or more hazards)1

1. Taiwan, China

2. Costa Rica

3. Vanuatu

4. Philippines

5. Guatemala

6. Ecuador

7. Chile

8. Japan

9. Vietnam

10. Solomon Islands

11. Nepal

12. El Salvador

13. Tajikistan

14. PANAMA

15. Nicaragua

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005), table 7.2.

2See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005), table 7.2.

3 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

3Relative Vulnerability and Risk Indicators are adapted from IADB-IDEA (2007), Programa de Información e Indicadores de Gestión de Riesgos

(Manizales, Colombia, 2004), Annex (2009). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries

found in IADB-IDEA (2007). Major Disaster Impact taken from Disaster Deficit Index: the ratio of economic losses which country could suffer

during a Maximum Considered Event and its economic resilience. Local Events taken from Local Disaster Index: Represents the propensity of a

country to experience recurrent, small-scale disasters and their cumulative impact on local development. Risk Management Index is presented as

the negative (ie 0 = optimal, 100 = incipient) of IADB’s Risk Management Index: measures country’s risk management capability in (i) risk identifi-

colombia / 223

Geological Hazards

Most of Colombia, including all major urban areas, is located in zones of high or very high seismic activity.

Colombia is situated on the confluence of three tectonic plates - the Nazca Plate, the Caribbean Plate, and the South

American plate and is traversed by various geological fault lines: the Romeral fault line, Cauca and Magdalena, and

Palestina and Frontal de la Cordillera Oriental.4

There are six active volcanoes in Colombia distributed along the central mountain range of the country.

The six active volcanoes are: Nevado de Ruiz, Galera, Dona Juana, Purace, Tolima, and Huila. Galera and Huila have had

eruptions in the last three years causing severe damages and forcing significant evacuations.

Floods and Landslides

Large parts of Colombia’s territory are susceptible to flooding, especially in the lower basins and valleys of

the principal rivers: the Magdalena, Cauca, Sinnu, Atrato, and Putumayo. These regions are susceptible to flooding,

as demonstrated by the area’s topography and previous events that have occurred.

Landslides are the most frequently occurring disasters in the country. This is partly due to the topography

of the country, but a higher number can be attributed to hydrological phenomena. The main causes stem from

the softening of the ground from heavy rains and the flooding of bodies of water. The Natural Disaster Hotspot study

by the World Bank5 indicates that Colombia has the highest landslide risk in the South American region, in terms of the

number of fatalities per year per square kilometer.

Determinants of Vulnerability to Adverse Natural Events in Colombia

Rapidly increasing urban population has concentrated exposure to adverse natural events. As is the case in

most Latin American countries, Colombia has seen a large increase in its urban population in the last fifty years. From

1950 to 2005, the percentage of Colombia’s population living in urban areas increased from 39% to 73%6, and it is

projected that by 2020, 80% of the population, or approximately 43 million people, will live in cities. This trend will bring

with it important economic, social, and environmental challenges. 7 In Colombia, the seven most important cities house

40% of the country’s households and 60% of total household income.8 The biggest city is by far Bogota, accounting for

18% of households and 30% of the nation’s household income generation.

Unplanned urban growth has disproportionately increased Colombia’s vulnerability to adverse natural

events. Most Colombian cities have followed an unplanned growth pattern. Some of the most important challenges

in urban areas include: the predominance of unplanned expansions, a sharp increase in informal settlements, lack of

adequate construction practices, environmental degradation, poor transport infrastructure, and a lack of adequate public

spaces.

Informal settlements are a physical and spatial manifestation of poverty and inequality in cities. According

to the latest census conducted in 2005, in four of Colombia’s main cities, 18% of the residential area corresponds to

informal settlements. These areas usually suffer from a lack of basic and social services and from prevalent unemployment.

Currently close to 1.3 million homes in the country are in this situation (affecting 16% of the total urban families in

cation (ii) risk reduction (iii) disaster management (iv) financial protection. Resilience, Fragility and Exposure are taken from the component indices

of Prevalent Vulnerability Index.

4IADB (Inter-American Development Bank) and IDEA (Universidad Nacional de Colombia - Instituto de Estudios Ambientales), Programa de Infor-

mación e Indicadores de Gestión de Riesgos. Aplicación del Sistema de Indicadores a Colombia 1980-2000 (Manizales, Colombia, 2004).

5 World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005).

6 DANE (2005).

7National Planning Department, Document on amicable cities, (Departamento Nacional de Planeación, Documento Ciudades amables) (Bogotá,

Colombia, 2006).

8Including Bogota, Medellín, Cali, Barranquilla, Cartagena, Bucaramanga, and Pereira.

224 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Colombia). Of these homes, 63% suffer from poor construction quality, and 20% are located in high risk areas. It has

been estimated that 17% of homes are in such inadequate quality or high risk that it is not possible to retrofit them.

Colombia has made substantial progress through important urban reforms and comprehensive legislation

on territorial planning,9 but implementation of these laws has been weak. For example, by 2005, eight years

after the Territorial Planning Law # 388 passed in 1997, 97% of all the municipalities in the country and every major city

with more than 100,000 inhabitants had adopted a Territorial Organization Plan (POT). The quality of the POTs varies

substantially—there are a few very high-quality plans, and most are weak. Only a few of these plans have implemented

the management and financial tools made available by the legislation. For most, the relation between the POT and the

Municipal Development Plans is not very clear. The Government of Colombia is working to change the perception of

the POTs so that they are understood as a valuable tool for long-term planning and not just another document to comply

with.

2. disaster risk management framework

Colombia is widely considered a leader in instituting a policy and legal framework that enables a

comprehensive, multi-sectoral approach to disaster risk management. Colombia has built a National System for

Disaster Management and Prevention, articulated around a comprehensive National Disaster Prevention and Attention

Plan. Since the early 2000s, Colombia has decentralized disaster risk management responsibilities and made disaster

risk management a national development priority.

Under the presidency of Alvaro Uribe, the Government of Colombia has integrated disaster risk management

into its development plans. Chapter 5 of the National Development Plan 2006-2010 presents and describes the

areas of actions for disaster risk management: (i) to develop policies and strengthen institutions, (ii) to identify and

monitor risk and to disseminate its knowledge, (iii) to reduce and prevent risk, and (iv) to reduce fiscal vulnerability using

risk transfer instruments. These efforts need to continue to be supported and enhanced to ensure long-term, effective

disaster risk management in Colombia.

Investments in disaster risk management, including risk reduction, are done at three levels in Colombia

involving the national government, departmental governments, and municipal governments. Significant investments are

also carried out by the agencies dedicated to infrastructure.

For both hydrometeorological and geological hazards, Colombia is probably the most densely monitored

country in Latin America. At the same time Colombian experts and their graduate-level trainees in disaster risk

management have played an important role in developing a knowledge base and a political space for disaster prevention.

The country is a leader in such risk-reduction approaches and measures such as the introduction of building codes and

enforcement, municipal programs, and the integration of science and technology with public policy making.

In spite of great progress, the task remains to address existing disaster risk through corrective actions, while

simultaneously improving planning processes to avoid unreasonable accumulation of new vulnerability.

For a country with more than 600 declared natural disasters every year, this is a daunting task that will require continued

and improved attention by the Colombian Government.

9Law 9 on Urban Reform, 1989, and Law 388 on Territorial Development, 1997.

colombia / 225

3. activities under the hyogo framework of action

HFA Priority #1: Policy, institutional capacity and consensus building for disaster risk

management

Colombia has built a National System for Disaster Management and Prevention, articulated around a

National Disaster Prevention and Attention Plan. The system (SNPAD) has its mandate in Law 46 from 1988 and

includes both public and private agencies with responsibilities for risk mitigation and prevention as well as emergency

response and rehabilitation. The system is coordinated by the Directorate of Disaster Prevention and Management

presided over by the Minister of Government. Furthermore, the system has an operative arm coordinated by a National

Operative Committee and a technical/scientific arm coordinated by the National Technical Committee. Vertically, the

system has regional committees presided over by the provincial governors and local committees presided by mayors.

SNPAD is responsible for (a) the prevention and mitigation of risk, (b) attention to emergencies, and (c) the rehabilitation

of territories affected by disasters.

Colombia, through its National System for Disaster Management and Prevention, has been a leader in

instituting a policy and legal framework that enables a comprehensive, multi-sectoral approach to disaster

risk management. The role of Colombian experts and graduate-level trainees in disaster risk management in the

country has been important in this shift and in the effectiveness of this consolidated framework.10 The country is a leader

in such risk reduction approaches and measures as the introduction of building codes and enforcement, municipal

programs, and the integration of science and technology with public policy making.

Since the early 2000s, Colombia has decentralized disaster risk management responsibilities and made

disaster risk management a national development priority. In 2001, recognizing the high cost that disasters

extract from local authorities and the need to encourage investment in disaster mitigation, the national government

created an investment category11 for disaster prevention and response in the list of investments permitted under the

national revenue-sharing system. According to Law 715/2001, Articles 76.5, 76.9, and 79, municipalities can now

elect to spend budgetary transfers on disaster prevention and response. At the close of the Pastrana administration, a

National Policy Statement12 (CONPES, 3146 of December, 2001) followed up on the earlier decree, raising disaster

vulnerability reduction to the level of national development priority for the first time, and stipulating its inclusion in the

National Development Plan.

One institutional challenge for Colombia is to resist pressures to fall back into an emergency focus. To

resist these pressures implies the need to upgrade, integrate, and further consolidate the National System for Disaster

Management and Prevention. Though good work is being done in most institutions in the system, technical capacity

is a limiting factor in several institutions, particularly at local levels, and institutional coordination remains a challenge.

The World Bank, through a disaster vulnerability reduction investment loan is supporting improved inter-institutional

coordination and strengthening capacity building for risk management at local levels.

Despite great progress, the task remains to address existing disaster risk through corrective actions, while

simultaneously improving planning processes to avoid unreasonable accumulation of new vulnerability.

This remains a difficult challenge and will require continued and improved attention by the Colombian Government.

10See resources under La Red at www.desinventar.org.

11Indexing numbers in parentheses refer to the categories assigned in the DNP publication, “Sistema General de Participaciones—Informe de Eje-

cución Presupuestal Municipal Vigencia 2003.”

12 Concejo Nacional de Politica Economica y Social (National Council of Social and Economic Policy), or CONPES, are policy statements issued

by the Departamento Nacional de Planeación (National Planning Department) or DNP.

226 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

HFA Priority # 2: Disaster risk assessment and monitoring

Colombia has strengthened information collection and analytic capacity for early warning and risk mapping

related to hydrological, seismic and volcano events. With national budget and technical, as well as financial

support, from the World Bank, the Colombian Institute for Geology and Mining (Instituto Colombiano de geologia y

mineria – INGEOMINAS) and the Colombian Institute for Hydrology, Meteorology and Environment Studies (Instituto

de Hidrología, Meteorología y Estudios Ambientales de Colombia – IDEAM) have purchased and installed equipment to

update existing systems for monitoring catastrophic events. The three regional volcanic observatories and the national

earthquake monitoring network managed by INGEOMINAS are fully operational and provide real-time information and

early warnings also available via the Internet. IDEAM has recently modernized the hydrometeorological monitoring

network, installing close to 500 new automatic stations, in addition to the 2,500 existing conventional stations. This

likely positions Colombia as the most densely monitored country in Latin America. The new stations provide real-time

information on river levels and rainfall through satellite communication used with daily satellite imagery to provide early

warnings on flooding, forest fires land slides. Over the next three years, both agencies will continue to update and expand

their monitoring capacity seeking to enhance coverage by an additional 5-10 percent.

Colombia has improved and organized information and information flows for disaster vulnerability, risk

evaluation, and risk reduction programs. At a national scale, risk maps for the main river basins and for Galeras

volcano have been updated. At the local level, earthquake risk maps have been produced for more than 15 cities

(including Bogota, Medellín, Cali, and Manizales). Urban landslide and flooding maps have been produced for Bogota,

Medellín, Manizales and Bucaramanga. This information is publicly available and has been used for prioritizing investment

in risk reduction, such as relocating communities and retrofitting hospitals in Bogota, conducting land planning and

urban slope stabilization in Manizales, and protecting urban streams in Medellín.

Colombia has worked to build a culture of risk reduction through integration of disaster risk management

in education and research. DGPAD has worked with Colciencia and the National System of Science and Technology

(Sistema Nacional de Ciencia y Tecnología, SNCyT) to develop a strategy, adopted in 2002, to strengthen science and

technology for disaster risk management. The strategy was adopted in 2002. DGPAD has also worked with the Ministry

of Education to include risk management into environmental education.

The National Planning Department (DNP) is working with the World Bank on a proposal to expand the

Central America Probabilistic Risk Assessment system (CAPRA) to cover Colombia. This would help facilitate

a comprehensive understanding of risk and risk management. CAPRA provides a broad set of sectors with a baseline

catalogue of data required for risk evaluations, in addition to reference methodology and interactive software tools to

support risk identification and applications for risk analysis. This will help establish standards for sharing data and a

common language for understanding risk. The applications CAPRA supports are adjusted to the needs of each sector

and user, such as emergency response, land use planning, investment in mitigation, or financial protection strategies. The

transparent nature of the models and open architecture of the CAPRA system ensure that future users can understand,

adjust, and continue to evolve their tools as their needs change.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

One of the reasons for Colombia’s relative success in moving towards a proactive disaster risk management

institutional environment is the existence of a human capital base with the appropriate technical training.

There are at least 10 higher education institutions in Colombia that offer post-graduate training and specialization in

risk management. At primary and secondary school levels, the curricula include concepts and good practices for risk

colombia / 227

management. The legal basis for the inclusion of disaster risk management in school curricula is the 1991 Constitution.

The school curricula have gradually been improved, in particular since the promulgation of the National Policy for

Environmental Education (2002). The Government of Colombia has developed and implemented various tools and

strategies to train teachers and community leaders to incorporate disaster risk management in the school curriculum.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

Corrective action to address existing disaster risk is one of Colombia’s main disaster risk challenges.

Investments in risk reduction can involve both structural mitigation works, such as seismic retrofitting, and nonstructural

investments, such as relocating people from high-risk areas. Most often these decisions should be made at a decentralized

level, as close as possible to the assets and people at risk. Given that the legal responsibility for disaster risk reduction

has been placed with the municipalities and the relatively high quality of its risk identification information, the basic

conditions then exist for municipalities to make significant and efficient investments in disaster risk reduction. With such

a high exposure to natural hazards, the political challenge is to define the acceptable level of risk and to finance the

mitigation of the unacceptable risk.

Investments in disaster risk management including risk reduction are done at three levels in Colombia

involving the national government, departmental governments, and municipal governments. Compared to the national

government, municipalities invest a larger share of their total disaster risk management budgets in preventive work. The

highest volume of investments in risk reduction is also done by municipalities through their regular budgets.

In addition to investments by the three levels of core public administration, agencies dedicated to

infrastructure also invest significantly in risk reduction. The Colombian National Institute for Roads (Instituto

National de Vias – INVIAS) is responsible for risk mitigation work related to roads, ports, and riverine infrastructure.

With financing from the World Bank, INVIAS invested more than US$40 million in risk mitigation works in 2007. The

Colombian Oil Company (ECOPETROL) is seeking to retrofit all its critical installations to become seismic resistant.13

Most of the investments in risk reduction in Colombia at the municipal level are done by a handful of the

larger municipal entities. This is a logical consequence of the larger municipalities bearing most of the natural hazard

exposure and possessing the capacity to address the issue. Due to the combination of legal responsibility, capacity

and needs to invest in disaster risk reduction, the larger municipalities in Colombia are currently a good entry point for

promoting risk reduction investments. Both the proposed Bogota River Management Project and the proposed Municipal

Disaster Vulnerability Reduction Project takes advantage of this. The Urban Housing Project is national in scale, but is

planning interventions at the municipal level. GFDRR could play an important role by providing grant funds for integration

of disaster risk reduction in these projects and thereby leverage significant amounts of additional resources for reducing

disaster risk.

Much work still needs to be done in terms of building awareness and capacities among local governments

in smaller municipalities. One indicator of the status is that only 20% of municipalities reporting floods in the period

from 2004 to 2007 have invested in risk reduction measures for flood protection in the same period. This is likely to be

linked to a generally weak capacity for territorial planning. Although 97% of all municipalities in the country has adopted

a Territorial Organization Plan (POT), the quality of the POTs varies substantially—there are a few very high-quality plans,

and most are weak. Only a few of these plans have implemented the management and financial tools made available

13In accordance with the existing Colombian building code, all new construction must be seismic resistant, and existing key public buildings must be

retrofitted or rebuilt to be earthquake resistant (Law 400 of 1997).

228 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

by the legislation. For most, the relation between the POT and the Municipal Development Plans is not very clear. Both

the Ministry of Environment, Housing and Territorial Development (MAVDT) and the National Directorate for Disaster

Prevention and Management (DGPAD) have active programs in building capacity and awareness among municipalities

for disaster risk reduction and to integrate risk reduction with the territorial and development planning processes which

the Bank is supporting. These programs, supported by the World Bank through a loan with the National Government,

will expand coverage to reach up to 40% of municipalities in the country over the next three years and thereby form the

basis for more widespread and more effective investments in risk reduction at the municipal level. In addition, the DNP

is monitoring municipal investments in risk reduction to track if the capacity building efforts has any impact on municipal

decision-making with regards to risk reduction.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

In Colombia, the disaster response structure has four levels of organization. Response to a given natural event

starts with the local level determining if the event is of a magnitude that the local response committee can manage or if

help needs to be requested at the municipal, departmental or national level.

The National Directorate of Disaster Prevention and Response since 2006 has been providing training at

local, municipal, and departmental levels through the Local, Municipal and Departmental Committees for Disaster

Prevention and Response. A new plan for training municipalities was approved in 2007 and is under implementation with

support of the APL 1. In 2008, 60 municipalities will be trained and 150 will be trained in 2009.

To test existing capacity, simulations and drills have been carried out in major cities. The latest and largest

exercise was an earthquake simulation in Bogota. First responders, national and district authorities, and the general

population all participated in the exercise as part of the mass prevention campaign “with feet on the ground” (www.

conlospiesenlatirra.gov.co). Bogota has developed advanced disaster recovery plans based on sophisticated and

detailed risk assessment models.

The response capacity of all levels in the system activated at the same time has only been tested once

since its creation. This was in 1999 after the Armenia earthquake, which caused thousands of deaths and a high level

of structural damage. Immediately after the earthquake, the Government of Colombia established the Reconstruction

Fund for the Coffee Region (FOREC). FOREC reported to the Office of the President with the National Planning

Department (DNP) acting as secretariat. FOREC was to finance, execute and coordinate the economic, social and

environmental reconstruction of the disaster-affected region. Judging from the response and reconstruction after the

Armenia earthquake, Colombia has a well functioning response system.

With regard to disaster response, the main challenge for the Government of Colombia is to finance and

rapidly initiate the recovery phase in the aftermath of a natural disaster. The World Bank recently approved

a new Development Policy Loan (DPL) with a Catastrophe Deferred Draw Down Option (CAT DDO) which has been

designed to provide a financing bridge—after a disaster of a scale that cannot be funded with the internal reserve—to

other sources of relief as they become available. As part of a catastrophe risk-financing strategy, this instrument will

provide the Government with bridge financing in response to adverse natural events generating losses beyond the

capacity of the annual budget allocation to DGPAD for responding to disasters.

CONPES 3146 of 1998 raised the issue of the fiscal vulnerability of the state to natural disasters and

identified concerns for the financing of reconstruction should a major catastrophic event occur. Cardona et

colombia / 229

al. (2005)14 estimate that the Government of Colombia would face a long-term resource gap, that is, a shortfall of funding

available compared to funding needs, if confronted with a disaster with a return period of 100 years.15

The Government of Colombia is working on a series of policy documents related to the retention and

transfer of the residual risk in Colombia. In Colombia, all public buildings are required by law to be insured (Law

No. 42 de 1993). The Ministry of Finance (MHCP) is currently investigating options to design a cost-effective insurance

program for public assets and a catastrophe insurance program for private dwellings. The MHCP has conducted a series

of technical studies on earthquake risk assessment to evaluate the physical damage caused by a major earthquake on

public assets. This complements other studies carried out by the District of Bogota on the impact of earthquakes on

public buildings and private dwellings. These studies, based on state-of-the art catastrophe risk-modeling techniques,

provide the Government of Colombia with very detailed information on earthquake risk assessment.16

4.key donor engagements

Existing Projects with Donors and International

Financial Institutions

Colombia Disaster Vulnerability

Reduction Project

Bogota Disaster Vulnerability Reduction Project

Colombia Disaster Risk Management Development

Policy Loan

Support for DesInventar online disaster database

creation of National online Disaster Prevention and

Management Information System (SIAPAD)

Funding Agency /

International Partners

World Bank

European Commission through the

PREDECAN project

Allocated

Budget and

Period

(US$)

110 million

2005-2011

80 million

2006-2011

150 million

2009-2012

140,00017

2003-2009

HFA

Activity

Area(s)

1, 2, 3, 4, 5

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Although there have been significant advances in disaster risk reduction, remaining challenges have been

identified based on Colombia’s risk profile and indicative program. Strategic actions are needed in the

following areas to enhance disaster risk management in Colombia: (i) increase awareness and resilience

at local levels, (ii) mainstream disaster risk reduction (DRR) in priority sectors, and (iii) institutionalize

disaster risk financing.

14Omar D. Cardona (2005): “Indicators of disaster risk and risk management: Program for Latin America and the Caribbean,” Inter-American Develop-

ment Bank, Washington, D.C.

15See Annex 9, “Potential Economic Losses of Disasters in Colombia.”

16 These studies include: ERN (Evaluación de Riesgos Naturales), Definición de la responsabilidad del Estado y su exposición ante desastres naturales

y el diseño de mecanismos para la cobertura de los riesgos residuales del Estado (Manizales, Colombia, 2005); CEDERI (Centro de Estudios sobre

Desastres y Riesgos, Facultad de Ingeniería, Universidad de Los Andes), Estrategia para transferencia, retención y mitigación del riesgo sísmico en

edificaciones indispensables de Bogotá, D.C., (Bogotá, Colombia, 2005); and ERN (Evaluación de Riesgos Naturales), Diseño de productos de

transferencia de riesgos en el sector público para incentivar el aseguramiento en el sector privado en Manizales (Manizales, Colombia, 2005).

17 Approximate amount to support Colombia directly, although broader program has larger resource allocations

230 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

In spite of the important advances in data gathering and knowledge production and some advances in

awareness raising, Colombia still has significant challenges. The main challenge lies in knowledge creation

among decision makers and citizens at local levels. This is critical for improving urban planning processes that will

avoid development patterns that exacerbate vulnerability. Successful implementation of CAPRA will help address this

challenge. GFDRR support for CAPRA would be essential for its success.

Due to the combination of legal responsibility, capacity and needs to invest in disaster risk reduction, the

larger municipalities in Colombia are currently a good entry point for promoting risk reduction investments.

Both the proposed Bogota River Management Project and the proposed Municipal Disaster Vulnerability Reduction

Project take advantage of this. The Urban Housing Project is national in scale, but is planning interventions at the

municipal level. GFDRR could play an important role by providing grant funds for integration of disaster risk reduction in

these projects and thereby leverage significant amounts of additional resources for reducing disaster risk.

While progress has been made to institutionalize disaster risk management in general, work remains for

Colombia to institutionalize its disaster risk financing. A main challenge relates to the risk to private housing. Legally

this is private risk, but in the event of a major disaster, the Government is likely to be called upon as the insurer of last resort.

A solution is being sought that involves collaboration between the national government and key municipalities, as well as

public-private partnerships involving the national and international insurance markets. GFDRR resources would support

work among the Ministry of Finance, the Secretary of Finance of the District of Bogota, as well as the insurance association,

in an attempt to launch an insurance scheme to protect both private and public assets from natural disasters.

The following activities have been identified in consultation with local authorities and reflect HFA priority action areas.

These actions support Colombia’s disaster risk management program.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered

for GFDRR funding)

Strengthening the policy framework, tools and institutional

coordination of the national system for disaster risk

management

Implementation framework for Climate Change Adaptation

activities focused on disaster risk management

Development of a Risk Assessment Platform for Colombia

(CAPRA)

Preliminary studies to mainstream DRR in the Bogota River

Management Project (estimated at US$600 million)

Mainstream DRR by completing studies for the inclusion of

disaster risk management in the Colombia Housing Policy

Project (estimated at US$300 million)

Municipal Disaster Vulnerability Reduction Project

Implementing Agency/

International Partners

National Planning Department,

Directorate of Disaster Prevention and

Management

National Planning Department

Directorate of Disaster Prevention and

Management

Ministry of Environment Housing and

Territorial Development

Ministry of Environment Housing and

Territorial Development

Municipality to be determined

Insurance of public assets and risk financing

Municipality of Bogota

Total Budget Requested:

Indicative

Budget and

Period

(US$)

800,000

2010-2011

HFA

Activity

Area(s)

500,000

2010-2011

914,000

2009-2011

600,000

2009-2010

620,000

2009-2010

1, 2,3

2, 3

1.2 million

2010-2011

200,000

2009

US$ 4.834 million

In addition to the above-mentioned activities, opportunities are under consideration to maximize South-South cooperation

in the Andean countries with key participation of Colombia. Continued dialogue with the Government of Colombia

will lead to the prioritization of future initiatives to ensure adequate mainstreaming and implementation of disaster risk

management measures.

COSTA RICA

costa rica / 231

1. disaster risk profile

Costa Rica has the 8th highest economic risk exposure to three or more hazards, according to the Natural

Disaster Hotspot study1 by the World Bank. This study also ranks Costa Rica as 2nd among countries most exposed

to multiple hazards based on land area, with 36.8% of the total area exposed to three or more adverse natural events.

The study estimates that 77.9% of Costa Rica’s population and 80.1% of the country’s GDP reside in areas exposed to

high risk from multiple hazards.

Population Affected

Economic Damages by Disaster Type

by Disaster Type2

(1000s USD)2

Volcano

500000

Earthquakes

21%

375000

Floods

30%

250000

Storms

48%

125000

Flood Storm Earthquake Drought

Relative Vulnerability and Risk Indicators3

COUNTRIES AT HIGH

ECONOMIC RISK FROM

MULTIPLE HAZARDS

(Top 33 Based on GDP with

3 or more hazards)1

1. Taiwan, China

3. Jamaica

4. El Salvador

5. Guatemala

7. Japan

8. COSTA RICA

10. Colombia

12. Chile

14. Turkey

15. Barbados

18. Ecuador

19. Venezuela

20. Peru

24. Honduras

27. Mexico

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005), table 7.2.

2 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

3Relative Vulnerability and Risk Indicators are adapted from IADB-IDEA (2007), Programa de Información e Indicadores de Gestión de Riesgos

(Manizales, Colombia, 2004), Annex (2009). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries

found in IADB-IDEA (2007). Major Disaster Impact taken from Disaster Deficit Index: the ratio of economic losses which country could suffer during

a Maximum Considered Event and its economic resilience. Local Events taken from Local Disaster Index: Represents the propensity of a country to

experience recurrent, small-scale disasters and their cumulative impact on local development. Risk Management Index is presented as the negative

(ie 0 = optimal, 100 = incipient) of IADB’s Risk Management Index: measures country’s risk management capability in (i) risk identification (ii) risk

reduction (iii) disaster management (iv) financial protection. Resilience, fragility and Exposure are taken from the component indices of Prevalent

Vulnerability Index

232 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Geological Hazards

Due to its geographic location and geotectonic characteristics, Costa Rica is exposed to a variety of natural

hazards, including hydrometeorological and geophysical hazards. The country has recently experienced floods,

hurricanes, earthquakes, and landslides.

Costa Rica has been identified as one of the most earthquake-prone and volcanically active countries in

the world. The country is located on the subduction zone of the Caribbean and Cocos tectonic plates, and the fracturing

movements of these two plates have caused frequent earthquakes. In January 2009, an earthquake, reaching 6.2 on

the Richter scale, killed 22 people and caused more than US$100 million in losses from damage to infrastructure and

agro-industry. The country also has three mountain ranges that span the entire country—with 16 peaks of known volcanic

origin and 9 active volcanoes. Five active volcanoes in Costa Rica have caused significant damage and economic losses

in the past.

Floods and Landslides

The frequency of floods has been increasing in Costa Rica and this natural hazard currently represents the

main source of loss in the country. During February 2009, heavy rains affected the Pacific Coast and Central Valley

of Costa Rica, causing floods and landslides in at least 65 of the country’s 81 counties with 18 deaths reported. There

was serious damage reported to at least 27 major roads, including cutoffs on the Pan-American Highway. At least 2,000

homes were flooded in the northern province of Guanacaste which forced 1,500 people into temporary shelter.

Triggered by intense rainfall, earthquakes, and volcanic eruptions, landslides and torrential debris flows

are among the most costly in terms of human lives. During the heavy rains in October 2007, a total of 14 people

died in a landslide in the city of Atenas. After the January 2009 earthquake, at least 10 people died in another landslide

in Cinchona, a rural community 50 miles west of the capital city, San José.

Hurricanes

Costa Rica is also exposed to a hurricane hazard on its Caribbean coast. Hurricane Mitch, one of the most

destructive events in Central America, caused economic losses amounting to approximately US$98 million.

The following table outlines the estimated losses and budget allocations for declared emergencies between 1999

and 2007. The figures demonstrate a significant gap between budget allocations and resources needed to recover the

estimated losses incurred.

Year

Estimated losses

Budget allocation

Source: CNE.

Estimated Losses and Budget Allocation for Declared Emergencies

(US$ million)

1999

2000

2001

2002

2003

2004

2005

29.8

24.5

23.8

15.8

1.5

1.6

39.6

8.3

3.1

1.6

1.1

1.5

1.7

7.0

2006

10.8

13.1

2007

50.3

7.9

Additional Vulnerabilities

The fast growing metropolitan population in the Central Valley generates major stresses on the limited

natural resources, public utilities and municipal services. The high concentration of the Costa Rican population

in the Central Valley is the result of historical processes, exacerbated by the concentration of industrial developments

and other sources of employment. Under these circumstances, affordable housing becomes a major socio-economic

constraint that forces low income families to relocate to higher risk areas.

costa rica / 233

2. disaster risk management framework

Costa Rica has a comprehensive legal and institutional framework for disaster risk management (DRM).

In Costa Rica, the law requires all central government entities and local governments to allocate resources for relevant

disaster and risk activities in their programs and budgets. The law also establishes that 3% of financial surplus or profit

from all governmental institutions must be transferred to the National Emergency Fund (NEF).

In the event of a national emergency, the National Risk Prevention and Emergency Management Commission

(CNE4) acts as the highest ranked coordinating authority. CNE’s capacity to coordinate and incentivize disaster

risk management activities emergency was enhanced by the approval of the Emergencies and Risk Prevention Law No.

8488 in 2006.

Disaster Risk Management (DRM) was incorporated into the 2006–2010 National Development Plan

through the strategic action on land planning as part of the Social Development and Poverty Reduction component. The

incorporation of DRM in this national plan obliges all line ministries to include risk analysis and mitigation initiatives in their

annual programs. The Costa Rica National Platform has also adopted the recommendations of the strategic objectives

and priority actions of the “Hyogo Framework for Action [HFA] 2005–2015: Building the Resilience of Nations and

Communities to Disasters.”

The Government of Costa Rica (GoCR) has a specialized financial instrument in place called the Catastrophe

Deferred Drawdown Option (CAT-DDO) loan to provide bridge financing at the time of a declared emergency. This

will enable the country to maintain its development programs while mobilizing other sources of funding to address the

emergency. This is one of four lending operations agreed upon with the World Bank as part of the Country Partnership

Strategy for FY09–FY11.

The GoCR recognizes the connection between climate change and increased vulnerability and is taking steps

to build awareness throughout the country. Under the Ministry of Public Education, the “National Educational Plan for

the Reduction of Risk to Disasters”, is being incorporated into environmental education curricula. The GoCR is also

implementing the National Strategy on Climate Change, which is expected to generate important recommendations on

assessing risks of public and private investment projects.

Costa Rica has nationwide networks of volcanological and meteorological monitoring stations with highly

qualified scientists and engineers involved in a wide variety of DRM related research topics. Public universities

and research institutions in Costa Rica cooperate with leading research organizations around the world.

Costa Rica has been effective in the development of building codes that ensure private and public works adhere

to construction standards that minimize risk exposure. Under the provisions for a declaration of a state of emergency, the

phases of immediate response and reconstruction must integrate disaster risk reduction measures.

A major challenge in implementing the DRM national policies is the development of local capacity—that is,

at the municipal level—where technical and human resources can be very constrained.

4 Comisión Nacional de Emergencias

234 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

3. activities under the hyogo framework of action

HFA Priority # 1: Policy, institutional capacity and consensus building for disaster risk

management

The Costa Rica National Platform has adopted the recommendations of the strategic objectives and

priority actions of the “Hyogo Framework for Action 2005–2015: Building the Resilience of Nations and

Communities to Disasters.” In agreement with the Framework guidelines, Costa Rica has a national platform for

a DRM framework that includes the National Risk Prevention and Emergency Management Commission (CNE5), the

National Risk Prevention and Emergency Management Plan, and coordinating entities. The CNE monitors and reports

annually on the country’s progress in its “National Report on the Implementation of the Hyogo Framework of Action.”6

The Government of Costa Rica (GoCR) strengthened the institutional framework and established the legal

framework to guarantee the reduction of the causes of risk and timely, coordinated risk management in

times of disaster. Through the 2006 approval of Law No. 8488, the regulations define in greater detail the DRM

system, the mandate and role of the CNE, the GoCR’s disaster prevention responsibilities, a declaration of a state of

emergency, a general emergency plan, and financial resources. To facilitate timely coordination, the CNE’s Board of

Directors is composed of the CNE President, the Ministers of Presidency, Health, Public Works and Transport, Public

Security, Environment and Energy, Housing and Human Settlements, and Finance, the heads of the Institute of Social

Assistance (IMAS), the National Insurance Institute (INS), and a representative from the Red Cross in Costa Rica.

The GoCR’s institutional framework for disaster risk management (DRM) ensures disaster risk reduction is a

national priority. The National Risk Prevention and Emergency Management Plan recognizes the need to carry out disaster

risk reduction and mitigation activities. This involves coordinated participation of civil society and the private sector, and

national and local government institutions throughout the country. The GoCR has also developed financing mechanisms

to capitalize the National Emergency Fund, and approved financial instruments to ensure that, in the event of an emergency

resulting from an adverse natural event, there are sufficient resources for rapid response and reconstruction.

The GoCR has greatly enhanced its ability to ensure the effective and efficient allocation of resources for

disasters. All central government entities and local governments must allocate resources for relevant disaster and risk

activities in their programs and budgets. In addition, 3% of financial surplus or profit from all governmental institutions

must be transferred to the National Emergency Fund (NEF) to finance the National Risk Management System. This

strengthens the government’s capacity to effectively support disaster mitigation activities in a sustainable manner. In

the event of a declaration of national emergency, NEF funds are readily available to the CNE, which has the authority to

allocate those funds as appropriate, without having to follow the lengthy administrative processes needed for allocations

of funds during non-emergency situations. Once the emergency has passed, the CNE is still responsible for the proper

accounting of any funds disbursed.

The GoCR understands the importance of mainstreaming disaster risk management (DRM) and significant

progress has been made in Costa Rica. DRM was incorporated in the 2006–2010 National Development Plan

(NDP), through the strategic action on land planning as part of the Social Development and Poverty Reduction component.

The incorporation of DRM in the NDP obliges all line ministries to include risk analysis and mitigation initiatives in their

annual programs. A comprehensive monitoring mechanism for disaster risk prevention and reduction investments by key

5 Comisión Nacional de Emergencias

6Costa Rica National Platform. PreventionWeb (accessed January 2009) at: http://www.preventionweb.net/english/hyogo/national/list/v.

php?id=41

costa rica / 235

line ministries is being prepared, so that information on DRM mainstreaming activities in all sectors can be used in the

future for analysis. In addition, the CNE has been asked to (a) establish the National Risk Management System (NRMS),

(b) design and implement the National Risk Prevention and Emergency Management Plan (NRPEM), (c) strengthen early

warning systems, and (d) strengthen risk management at the community level. Continued efforts need to be made to

ensure that the integration of DRM priorities within line ministries and other government agencies are not relegated to

the back-burner when competing mandates arise.

Costa Rica has also integrated risk management considerations into the review process of all investment

projects for the country. The Ministry of National Planning and Economic Policy (MIDEPLAN) recently added a

disaster risk review in the project proposal format for national investments. Under this measure, government agencies

submitting investment projects for approval by MIDEPLAN are now required to conduct a disaster risk assessment of

the proposed investment and include mitigation measures in case the project is exposed to adverse natural events. This

improvement, along with the environmental review, has great potential to control and effectively address disaster risk in

future investment programs. The country is currently assessing systems that could assist public officials in the decision-

making process by assessing the disaster risk of planned investment projects.

Although significant advances in inter-institutional coordination have been made, Costa Rica has operative

and financial constraints that diminish the country’s ability to more effectively respond to emergency

situations. This was recognized by the GoCR’s self-assessment of progress and was highlighted during recent flood

events and the recent earthquake of 6.2 on the Richter scale that generated losses of more than US$100 million

according to GoCR estimates.

HFA Priority # 2: Disaster risk assessment and monitoring

The GoCR has attained significant achievements in the area of DRM and monitoring. The country has a

National Risk Atlas at the national and municipal (county) levels. Working closely with several national universities and

research institutions, the CNE develops and maintains national and local level risk assessment maps for each type of

hazard. The goal is to provide each municipality (county) with up-to-date maps that can be integrated—using computer-

based technologies such as geographic information system (GIS) mapping—as inputs for the preparation of the municipal

urban zoning and land use maps, and enforcement of zoning and building codes. The CNE, in collaboration with these

research partners, is also building databases with information on historical events to improve its prediction capabilities.

A major constraint in the process of delivering information to the local municipalities is the level of local

technical capacity to absorb this information. Some municipalities have sophisticated mapping systems, while

others have very little or no technical or human resources to fully benefit from the available information on hazards and

related risks.

The CNE coordinates a national network of early warning stations for monitoring and registering rain

data, river flows, and landslides, with the goal of providing local communities with critical, timely information about

their level of exposure to flooding events. Every station in the network has access to radios and/or phones to help relay

their data in real time. They also compile information on other threats, such as earthquakes, and relay data on intensity

and damage to infrastructure and/or personal injuries to local communities, to the CNE and first responders, using the

nationwide 911 system.

The CNE also coordinates a network of 400 community level, 100 municipal level, and 6 regional level

Emergency Management Committees. These committees are organized to allow dissemination of critical, time-

236 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

sensitive information and to receive and distribute emergency aid should a localized event occur. Depending on the

geographic scope of a given emergency, command and control escalates from the community level to the municipal level,

and so forth. The CNE is authorized by law to disburse funds to local communities in the event of a local level emergency,

and to help reduce the risk of threats such as floods and landslides by providing funding to retrofit building such as

schools, hospitals, bridges, and levees, and to dredge rivers and creeks, among other activities.

The GoCR is currently developing a set of disaster risk indicators for use in public investment projects,

along with better metrics to assess the costs of investment projects and to improve predictions of actual losses caused

by disasters.

The country is also working on the implementation of the National Strategy on Climate Change, which is

expected to generate important recommendations on assessing risks of public and private investment projects. The

implementing agency is under the authority of the Minister of the Environment, who is also a member of the CNE Board

and it is expected that important synergies between climate change and DRM will continue to evolve.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

Costa Rica has a long history of advances in scientific and technical research in areas directly related to DRM.

Highly qualified scientists and engineers are involved in a wide variety of DRM topics such as the development of national

networks of volcanological and meteorological monitoring stations and detailed geographic and geological studies. Public

universities and research institutions in Costa Rica cooperate with leading research organizations around the world.

Costa Rica has recognized the link between environmental degradation and disaster risk and is

incorporating DRM into the curricula on environmental education. To further disseminate information on DRM,

the GoCR is implementing the “National Educational Plan for the Reduction of Risk to Disasters” under the Ministry of

Public Education.

Public universities in Costa Rica are also incorporating DRM training courses in the programs of those

careers related to environmental sciences, health, geography, geology, and psychology. Public universities

are organized under the National Deans’ Commission (CONARE), which dictates general guidelines for their operation.

CONARE created a commission composed of representatives from its member institutions charged with coordinating

activities for developing DRM curricula in three main target areas: Community Outreach, Research, and Education.

Concurrently, each university develops its own internal “Risk Management Program,” consolidating relevant activities

from all ongoing research and education projects. As part of these efforts, the University of Costa Rica is offering a

Masters degree in DRM.

Several government agencies at the municipal level have developed information management systems by

incorporating GIS technologies to improve their capabilities to manage their urban development, titling, and land use

data assets. A growing number of municipalities are also developing their presence on the Internet by creating their own

websites and thereby increasing information dissemination to local and global communities.

The national government has clear policies on the development of e-government and the CNE has made

important progress in developing its own website, where up-to-date information is published and made readily available

to the general public. Important resources such as a catalogue of natural hazard maps, along with important studies

related to DRM in Costa Rica, can be accessed through CNE’s website.

costa rica / 237

Concerted efforts need to be made to overcome the unevenly distributed technical capacity at the local level,

particularly in smaller municipalities. This constraint can be overcome through enhanced use and incorporation of

available knowledge into municipal planning processes.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

Given Costa Rica’s high exposure to natural and anthropogenic hazards, there is still room for improvement

in the reduction of the underlying risk factors despite the progress that has been made. For example, continued

efforts are needed to unify the agendas on Climate Change and Disaster Risk Reduction, including the enhancement of

adaptability to changes in hydrological and water resource management issues.

Costa Rica has been effective in the development of building codes that ensure that private and public

works adhere to construction standards that minimize the risk of exposure to certain natural and man-made hazards,

such as earthquakes and fires. Along with the implementation of zoning regulations, the country is moving in the right

direction.

As noted previously, any public works performed during immediate response and reconstruction phases

under the provisions of a declaration of a state of emergency, must integrate measures aimed at removing

or reducing the conditions that created the risk in the first place. However, financing available for reconstruction

is limited while in many instances the amount of financial resources needed to effectively reduce the risk and vulnerability

to hazards is greater than the actual losses.

Increased private sector participation is essential to further reduce the underlying risk factors in Costa Rica.

The country is trying to improve participation of the private sector in the DRM process by implementing mechanisms on

a voluntary basis and also through the enforcement of the existing legal and regulatory frameworks.

The strict enforcement of building codes has become a major challenge for local authorities and it is

necessary to reduce risk exposure of vulnerable socio-economic groups living in unplanned settlements in

high risk areas. Frequent, low intensity emergency events, mostly affecting unplanned settlements in areas unsuitable

for urban development, consume an important percentage of the available resources for DRM and social assistance.

Relocating vulnerable families to lower risk areas provides a temporary solution until a new wave of squatters tend to

settle into these high risk areas, repeating the vicious cycle.

The DRM and social themes are linked and supported under the GoCR’s commitments to achieving the

goals of the Millennium Development Agenda. Although the GoCR’s social policy is not explicitly geared to

reducing vulnerability to disasters, the National Development Plan includes an annex on “Social Development and the

Fight against Poverty.” Strategic Action 9 of the annex contains several goals specifically geared to reducing vulnerability,

including community organization and development of communal infrastructure, strengthening early warning systems,

and implementing the National Risk Management Plan.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

The CNE develops and coordinates the early warning system and defines mechanisms for addressing DRM

issues at the municipal level throughout the country. The CNE also builds its own technical capacity for the data

238 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

gathering, analysis, and dissemination of knowledge about threats, and is developing maps of hazards, and databases

that are used as inputs for the preparation of municipal and local regulatory plans (zoning plans). Land use and urban

development recommendations derived from these zoning plans are legally binding, and the CNE has the authority to

stop public and private works that do not abide by them.

Many of the components of the National Climate Change Plan relate to the GoCR’s ongoing DRM efforts.

An Office of the National Strategy on Climate Change (ENCC)7 was created within the Ministry of the Environment,

Energy and Telecommunications to prepare plans to minimize the effects of climate change on the priority axes of the

strategy through: mitigation, vulnerability and adaptation, and metrics. Other important components of the National

Climate Change Plan such as public awareness and local capacity/technology transfer can further advance the existing

DRM efforts in Costa Rica.

In line with the National Development Plan (NDP), Costa Rica is confronted with the challenge of

strengthening the institutional capacities for DRM under policies of decentralization of authority and

resources, making municipal governments accountable for designing and implementing changes to the regulatory

framework for zoning and urban and industrial developments, congruent with the government’s principles on “development

in harmony with nature.” These principles translate, within the DRM, into the promotion of a culture of risk prevention

oriented toward preventing loss of human lives, protecting assets, and the reduction of environmental deterioration. This

challenge continues as it is intrinsic to a long-term vision of sustainable development requiring permanent attention.

It is expected that mainstreaming of risk reduction into the national planning process and promoting the

integration of DRM into the development plans will continue. It is also expected that improving strategic risk

management planning will continue in relevant sectors such as health, environment, education, agriculture, public works

and investments, housing, and human settlements.

Critical to this process is the updating of the national risk management plan as a strategic planning tool to

drive the actions of government institutions and to promote a more active participation of civil society and the private

sector.

7 http://www.encc.go.cr/

costa rica / 239

4.key donor engagements

Existing Projects with Donors and

International Financial Institutions

Costa Rica Public Asset Catastrophe Risk Insurance

Facility Feasibility Study

Costa Rica Catastrophe Deferred Drawdown Option

(CAT DDO)

Strengthening a Municipal Information System

for Disaster Prevention in Latin America and the

Caribbean (SIMPD) Mitigation National Disasters

Awareness Campaign on the Threat of Tsunamis

in some school districts within the Regional

Directorate in Puntarenas, Costa Rica

Disaster Risk Management in Talamanca

Funding Agency /

International Partners

World Bank (GFDRR)

World Bank

International Development Research

Centre (Canada)

Japan International

Cooperation Agency

UNDP

Web-COE Project

“Prevention is Better“ Community Intervention

Strategy

Regional Humanitarian Information Network

(REDHUM) for Latin America and the Caribbean in

the event of disasters

Regional Program for the Reduction of Vulnerability

and Environmental Degradation (PREVDA)

Southern Command of the United

States Army

ProVention Consortium, Organization

of American States, British Red

Cross, Finland Red Cross, Disaster

Preparedness Programme of the

European Commission’s Humanitarian

Aid Department (ECHO/DIPECHO)

Spanish International Cooperation

Agency (AECI), Switzerland

Cooperation Agency (COSUDE),

Government of Kuwait

European Commission

Development of disaster risk management capacity

at the local level

Regional Plan for Disaster Reduction (PRRD)

Earthquake Disk Reduction In Guatemala, El

Salvador and Nicaragua with regional cooperation

support to Honduras, Costa Rica and Panama

(RESIS II)

Regional Program of Environment in Central

America (PREMACA)

Mesoamerican coordination system for territorial

information

Strengthening of Information and Communication

for CEPREDENAC and National Commissions

* Estimated

Japan International

Cooperation Agency

Norway

Spanish International Cooperation

Agency

Norway

Danish Cooperation (DANIDA)

IADB

World Bank

Allocated

Budget and

Period

(US$)

460,000

2008-2009

65 million

2008-2009

100,000*

2006-2009

16,000

2007

100,000

2006-2008

Not available

Permanent

50,000*

2007-2008

100,000*

2006-2009

1.65 million

2007-2011

300,000

2008-2011

400,000

2006-2011

2.4 million

2007-2010

Not available

800,000

2009-2011

446,000

2007-2009

HFA

Activity

Area(s)

1,3,4,5

1,3,5

2,4

3,5

1,2,4

2,4

1,2

240 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given Costa Rica’s risk profile and its existing framework for disaster risk management, the key priority in

Costa Rica is to continue to mainstream disaster risk reduction at the sectoral and local levels. Strategic

actions are needed in the following areas to enhance disaster risk management in Costa Rica: (i) strengthen institutional

capacity at sectoral and local levels, (ii) develop a comprehensive risk assessment and monitoring capacity, and (iii)

advance risk financing strategies.

The following activities have been identified in consultation with local authorities and international donor agencies. These

actions support Costa Rica’s disaster risk management program and reflect HFA priority action areas.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered for

GFDRR funding)

Support the development and implementation of: (i) a

system to improve the planning process by effectively

addressing DRR; (ii) a monitoring mechanism for

disaster risk prevention and reduction investments by

key line ministries; (iii) a collection mechanism for the

National Emergencies Fund

Enhance CNE’s institutional capacity and DRM

activities by: (i) conducting a review of the National Risk

Prevention and Emergency Management Plan;

(ii) consolidating CNE’s restructuring plan;

(iii) strengthening DRM activities at the sectoral level;

and (iv) supporting vulnerability reduction efforts by

improving CNE’s safety and resilience programs at the

community level

Support phase II of the development of a Risk

Assessment Platform for Costa Rica

Support the Government of Costa Rica’s national

preparedness, rehabilitation and reconstruction (after

the 6.1 earthquake in January 2009)

Support for the Pilot Project on Early Warning Systems

for Hydrometeorological Hazards in Central America

Total Budget Requested:

Implementing Agency /

International Partners

Ministry of Finance, National

Emergency Commission (CNE),

MIDEPLAN, Contraloría General

National Emergency Commission

(CNE), MIDEPLAN

World Bank (GFDRR)

National Emergency Commission

(CNE)

World Bank (GFDRR)

World Meteorological Organization

Indicative Bud-

get and Period

(US$)

600,000

2009-2011

HFA

Activity

Area(s)

1,2,4

1.3 million

2009-2011

1,3,4

750,000

2009-2011

500,000

2009

2,3,4,5

262,000

2009-2011

1,2,3,4,5

US$ 3.412 million

In addition to the above-mentioned activities, it is expected that dialogue will continue with Costa Rican authorities to

assess the feasibility of a Vulnerability Reduction Plan for Crime and Violence in the City of San José.

ECUADOR

ecuador / 241

1. disaster risk profile

According to the World Bank’s Natural Disaster Hotspot study1, Ecuador ranks 18th among countries with

the highest economic risk exposure to three or more hazards. 66% of the population lives in urban areas and

96% of this population lives in the coastal and mountainous regions, exposed to seismic, volcanic, flood, landslide,

and El Niño hazards. The volcano Tungurahua is currently active. Floods and landslides occur frequently and affect the

population as well as the productive sectors.

Population Affected

by Disaster Type2

Earthquake

Landslides

16%

Volcano

16%

Economic Damages by Disaster Type

(1000s USD)2

200000

150000

100000

Drought

18%

Floods

53%

50000

Earthquake Flood Landslide Volcano

Relative Vulnerability and Risk Indicators3

COUNTRIES AT HIGH

ECONOMIC RISK FROM

MULTIPLE HAZARDS

(Top 33 based on GDP with

3 or more hazards)1

1.Taiwan, China

2.Dominican Republic

3. Jamaica

4. El Salvador

5. Guatemala

8. Costa Rica

10. Colombia

12. Chile

15. Barbados

18. ECUADOR

20. Peru

24. Honduras

27. Mexico

32. Bolivia

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005), table 7.2.

2 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

3Relative Vulnerability and Risk Indicators are adapted from IADB-IDEA (2007), Programa de Información e Indicadores de Gestión de Riesgos (Man-

izales, Colombia, 2004), Annex (2009). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries found in

IADB-IDEA (2007). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries found in IADB-IDEA (2007).

Major Disaster Impact taken from Disaster Deficit Index: the ratio of economic losses which country could suffer during a Maximum Considered

Event and its economic resilience. Local Events taken from Local Disaster Index: Represents the propensity of a country to experience recurrent,

small-scale disasters and their cumulative impact on local development. Risk Management Index is presented as the negative (ie 0 = optimal, 100

= incipient) of IADB’s Risk Management Index: measures country’s risk management capability in (i) risk identification (ii) risk reduction (iii) disaster

management (iv) financial protection. Resilience, fragility and Exposure are taken from the component indices of Prevalent Vulnerability Index

242 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Geological Hazards

Ecuador is a highly seismically active territory. The subduction zone of the Nazca and the South American plates

has been the source of the major earthquakes of Esmeraldas (1906, 1958, and 1979) and Caraquez Bay (1998).

Likewise, the continental fault system which crosses the country in the northeast direction and in the foothills of the

Cordillera Real has caused strong earthquakes (1541, 1987). The largest cities in the country (on the coast and in the

mountains) are located in areas with high seismic risk (See Figure 1). Quito, the capital, is also in a high risk area.

Ecuador is home to the greater part of the Northern Volcanic Zone of the Andes range. 41 main volcanoes

are distributed in four alignments: the Eastern Range (10), the Inter-Andean Valley (15 volcano junctions), the Cordillera

Real (12), and the East (4). An eruption of the Cotopaxi volcano is the most complex volcanic risk scenario for Quito,

the capital city. The volcanoes Tungurahua, Pichincha, and El Reventador have all been active within the past decade.

Tungurahua is currently (2009) active as well. Due to these events over the past 10 years, the country has had to deal

with population resettlement and very important economic losses, mainly in the agricultural and livestock sector

Figure 1. Seismic and volcanic hazards in Ecuador

(taken from the Instituto Geofísico de la Escuela Politécnica Nacional IG-EPN)

Hydrometeorological Hazards

Ecuador is highly vulnerable to the El Niño phenomenon due to the concentration of the development

and the population on the coast and in the mountains. This alteration of the ocean-atmospheric system develops

mainly in the Equatorial Pacific. The El Niño of 1997-1998 caused damages in the order of US$280 million, equivalent

to almost 15% of the Gross Domestic Product (GDP) in the year 1997.4 This phenomenon especially increases the

frequency and intensity of floods on the coast, and of landslides and storm surges in the mountains. According to the

historical records of events5, the most affected sectors in the central and the eastern regions of the country are health,

education, agriculture, and road infrastructure.

The floods are very frequent and have caused major emergencies in the past few years. As is typical of

the Andean region, the hydrological regime in the three natural regions (the mountains, the coast, and the jungle) has

particular conditions which favor the occurrence of floods. In Ecuador, the major floods have been associated with the El

4 “Las lecciones de El Niño 97-98 Ecuador”, Corporación Andina de Fomento

5 Base de datos DESINVENTAR, La Red 2006

ecuador / 243

Niño phenomenon (1982-1983 and 1997-1998), affecting especially the coastal region and causing major human and

economic losses. Periods of intense rains also cause important floods, the most recent along the coastline in 2008.

The concentration of development in the mountains leads to the fact that landslides form a phenomenon

that frequently affects urban areas and infrastructure. After floods, landslides are the second most frequent

phenomena. In the last two decades, they have caused several river blockages with important losses (Pisque River, 1990;

Paute River, 1993; Chanchán River, 1999; Guasuntos River, 2000)6. The road infrastructure is also often affected.

Figure 2. Landslide and flood hazards in Ecuador

(taken from the Instituto Nacional de Meteorología e Hidrología – INAMHI)

Main determinants of vulnerability to natural events

The concentration and growth of the population in the urban areas increases the level of exposure to

adverse natural events. The city populations have continued to grow over the past ten years. In 2001, 61.2% of the

inhabitants were living in urban areas (approximately 7.6 million), and it is estimated that in 2009 the number could be

around 66% of the population (around 9 million).7 96% of the population is distributed in the coastal and mountainous

regions, where most of the natural hazards are concentrated.

Weaknesses in the policies and territorial planning instruments, in combination with migration towards the

urban areas, result in inadequate localization of the population. Despite the fact that the Metropolitan District

of Quito and a few other cities have made advances in their urban regulation strategies, the country’s territorial planning

in general has not had the legal and institutional framework needed for the consolidation of sustainable development

policy and practice. The available regulatory instruments are insufficient and do not adequately incorporate risk reduction

criteria. The peripheral urban areas of low value expand because of unregulated informal and unplanned settlements,

which have great weaknesses in terms of their location and safe construction.

Environmental deterioration of the river basins and the expansion and intensity of farmland use have

entailed an increase in the frequency and intensity of phenomena like landslides and floods. The main causes

of degradation of hydrographic basins, which results in changes in the water cycle (behavior of surface and underground

currents) and the equilibrium in the surface processes of erosion, meteorization, and landslides are as follows: the

accelerated loss of biological diversity (2,180 species endangered due to the destruction of their habitats)8, deforestation

6Rivera Magno. Consecuencias de los deslizamientos en el Ecuador. IV Jornadas en Ciencias de la Tierra.

7National Institute of Statistics and the Census (Instituto Nacional de Estadísticas y Censos, INEC).

8International Union for Conservation of Nature (IUCN), in its Red List of Threatened Species, 2006.

244 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

(238,000-340,000 hectares annually)9, expansion of the agricultural frontier10, and environmental deterioration due to

hydrological contamination and inadequate disposal of industrial and residential waste.

There are a number of weaknesses in the reduction of the existing vulnerabilities and in the planning

of new development in the productive sectors. There is an accumulated delay in the evaluation of vulnerability

of constructed infrastructure with respect to seismic and volcanic risk in particular. The hydrocarbon sector, which

represents between 10-14% of GDP, has an important part of its facilities in the province of Esmeraldas, which is an

area with high seismic hazard. However, the facilities were built decades ago according to seismically resistant design

parameters inferior to those currently defined in recent studies specific to the region.

2. disaster risk management framework

Ecuador’s current institutional and policy situation is very favorable for structural changes in the area of

disaster risk management. The new Constitution includes specific aspects of disaster risk management, creating

the Technical Secretariat of Risk Management (la Secretaria Técnica de Gestión del Riesgo), which replaces the Civil

Defense (Defensa Civil), and initiating the organization of the new Decentralized National System of Risk Management

(Sistema Nacional Descentralizado de Gestión del Riesgo, SNDGR). The results achieved through this process over the

upcoming years will be decisive in establishing the long-term disaster risk management conditions in the country.

However, Ecuador faces very important challenges to reduce its seismic and volcanic vulnerability. These

two phenomena constitute the highest risks of the country and the vulnerability accumulated over the course of decades

is very high. The reduction and management of these risks will require important changes in urban regulation, building

codes and regulations, critical investments in structural reinforcements, and territorial planning in the areas exposed to

the volcanic phenomenon.

The revision and strengthening of the territorial planning system in Ecuador is essential to effectively

reduce underlying hazards and related risks. The territorial planning system in Ecuador requires the integration

of disaster risk reduction criteria into the policies, strategies, mechanisms and instruments of the planning institutions.

Improved technical capacity, information generation, and development of methodological instruments are critical elements

to facilitate this process.

Capacity building of local governments is a necessary condition for consolidating and effectively

implementing Ecuador’s disaster risk management system. Because of the decentralized nature of the new

‘Decentralized’ National System of Risk Management, the provinces, districts, and parishes should assume the

responsibilities for management and control of risks in their respective territories.

3. activities under the hyogo framework of action

HFA Priority # 1: Policy, institutional capacity and consensus building for disaster risk manage-

ment

The new constitution of Ecuador has set the foundation for consolidating disaster risk reduction as a

9 Ministry of Environment et al., 2001.

10 Modernization Program of Agricultural Services, 2001.

ecuador / 245

policy integrated into the country’s overall development. The Constitution of September 2008 includes specific

aspects for risk management related to planning, environmental rights, territorial planning, decentralization, participation,

and security.11 Unlike those of all other Latin American countries, this new Constitution offers the legal and political

foundations for the development of a new system that will incorporate the lessons learned from the past and make use of

the modern approaches to risk management from the development perspective. The upcoming years will determine the

development of the institutional organization, the complementary standards, and the financial instruments necessary to

make the said constitutional regulations a reality.

The Technical Secretariat of Risk Management is the key governmental institution for heading the new

approach and vision of risk management. In the new institutional organization, this secretariat replaces the former

Civil Defense and assumes the management and coordination of SNDGR.12 It is responsible for creating policies,

strategies and regulations to promote capacities oriented at identification, analysis, prevention, and mitigation of risks

with the goal of facing and managing disaster events, as well as of recovery and reconstruction of social, economic and

environmental conditions affected by eventual emergencies or disasters.

The risk management institutional development, legal framework, and policies should create capacity for

attending to short, medium, and long-term needs. One of the main challenges for the government in this process

of the political and administrative reorganization is maintaining an adequate balance for capacity building at all levels,

which on the one hand guarantee the results in the long run, and on the other allow for the management of short-term

needs. Because of the high frequency of events such as floods and landslides, the lines of action related to risk mitigation

and emergency response are currently of highest priority.

The capacity building of the local governments is a necessary condition to consolidate the system. In

general, the new Constitution and the political reform promote the decentralization of the functions of the State. With

respect to risk management, the provincial, district, and parish levels have direct responsibility in risk management and

consequently should develop their own institutional organization and technical and operational capacity according to

national regulations and plans. Thus, significant efforts are necessary in the areas of technical strengthening, information

systems, local capacity building, and communication, among others.

HFA Priority # 2: Disaster risk assessment and monitoring

The monitoring system of volcanic activity has been strengthened to confront the volcanic eruptions of

the past ten years. The recent eruptions of the Pichincha, El Reventador and Tungurahua volcanoes required the

government, with international cooperation, to make important investments in the modernization and expansion of the

monitoring equipment network, administrated by the Geophysical Institute of the National Polytechnic School (Instituto

geofísico de la Escuela Politécnica Nacional, IG-EPN). The level of current development of this system in Ecuador is

comparable to that achieved in developed countries like Japan or the United States.13

Ecuador has increased the capacity of its national technical institutions and of some local governments to

evaluate disaster risk. In the past decade institutions like the IG-EPN, the IRD14, the Instituto Nacional de Meteorología

e Hidrología (INAMHI), and the National Secretariat of Planning and Development (Secretaría Nacional de Planificación

y Desarrollo, SENPLADES) have made important strides in the evaluation and modeling of hazards, vulnerability, and

11Constitution of Ecuador, Title VII, System of Well-Being, Chapter I, Inclusion and Equity, Section 9, Risk Management.

12Constitutional Executive Decree of the President of Ecuador No. 1046, April 26, 2008.

13 http://igepn.edu.ec.

14 A French public institution of science and technology research with presence in Ecuador since 1974.

246 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

risks.15 In the same way, the Quito Metropolitan District has developed specific studies on this topic and continues to

progress in the strengthening of its technical capacity.

It is necessary to expand the scope of the monitoring systems and apply advanced technological tools for

modeling and evaluation. Despite the advances already achieved, coverage of the seismologic and hydrometeorological

network still needs to be amplified, and hazard, vulnerability and risk studies need to be expanded, especially with regard

to seismic vulnerability of essential buildings and the infrastructure of the productive sector. To address this and to

facilitate the access of decision-makers to the existing information, the Central American Probabilistic Risk Assessment

(CAPRA) can offer important support for data management, analysis methodologies, and interactive tools. This tool

will help to establish standards, share data, and use a common language to facilitate communication about risks. The

CAPRA applications can be adjusted to the needs of every sector and user, in aspects such as emergency response,

land planning, mitigation investments, and financial protection strategies. The transparency of the model and the open

architecture of the CAPRA system will allow future users to understand and adjust this tool to their needs.

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

There is some experience with education projects in emergency response. The country lacked official plans

and programs for the inclusion of risk management in school curricula until shortly before the current reform. However,

through Civil Defense, and especially with international cooperation, numerous pilot projects were carried out which

form an important precedent for the design of a new policy in this sector. The emphasis of these training efforts was on

emergency plans and the Ministry of Education is currently designing specific content for the curricula.

Establishing a culture of prevention and preparedness for disaster risk is one of the priorities of the new

agenda. The National Strategy for Risk and Disaster Reduction being formulated by the Technical Secretariat for Risk

Management defines the promotion of risk prevention in civil society through communication strategies, education,

citizen supervision mechanisms, and information dissemination, as one of its most important policies. This policy will be

supported by the implementation of an Information System to support these objectives.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

Projects for environmental management and recovery of hydrographic basins have contributed to a

reduction of disaster risk. The principal investments for landslide and flood risk mitigation were made through projects

of hydraulic recovery of basins and environmental recovery of degraded areas. One of the most notable projects was

carried out by the Quito Metropolitan District through the Quito Metropolitan Sewerage and Drinking Water Company

(Empresa Metropolitana de Alcantarillado y Agua Potable de Quito, EMAAP-Q) on the slopes of Pichincha (34 recovered

streams) with financing from the Inter-American Development Bank (IADB). At the national level, projects to highlight are

the coastal resource management program and the protection of the water systems in Chimborazo and Tungurahua from

ash fall, among others.

The majority of risk reduction projects have had local and community focus. Over the last decade, numerous risk

reduction projects have been implemented at the parish and district levels through international cooperation. Especially

15Some examples of these studies are: a study of vulnerabilities and capacities in Ecuador; a study of the needs in the Quito Metropolitan District; a

study of physical vulnerability of educational infrastructure in the province of Orellana; a study of seismic vulnerability and floods of hospitals and

schools in Guayaquil and Quito; among many others.

ecuador / 247

notable were the projects promoted by the Ecuador Association of Municipalities (Asociación de Municipios del Ecuador,

AME) for development and territorial planning, and for environmental management. The results of these projects yielded

important lessons learned, which can be very useful in the current planning process.

In the current process of institutional reorganization, it is crucial to incorporate risk management into the

new policies, strategies and instruments of the Development Plan and territorial planning, and to build

local capacity for its implementation. The government’s job to design and implement the new planning systems, and

to include effective disaster risk reduction mechanisms, is significant. Some of these instruments include updating and

adopting building codes and regulations, generating base information for the regions16, zoning of hazard and/or risk areas

and definition of specific regulation of land use and occupation, development of methodological guidelines and training

for formulation and implementation of development plans, territorial/land use plans, and implementation of monitoring

and control mechanisms.

Seismic vulnerability reduction of the infrastructure in the hydrocarbon sector and of the essential buildings

in the main cities is a priority. Because of the direct or indirect impact which can be generated by any of these

systems on social and economic stability in the country, it is imperative to press forward in the process of determining the

current seismic vulnerability of key buildings and of the different components of the hydrocarbon production, and to take

on the necessary vulnerability reduction measures. Because of the level of investment required for this, it is necessary to

carry out a cost-benefit analysis and to prioritize such interventions.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

International cooperation has supported projects in this area over several years. International cooperation

has invested the most in this topic in support of Ecuador’s Civil Defense. DIPECHO, along with its partners, has

implemented more than 20 projects since 2000. The Red Cross of Ecuador, the PREDECAN program, the Swiss,

Spanish, and US partners, and the US’ Comando Sur have been other sources of important projects. The United Nations

system has offered support for the strengthening of Ministries of Education and Health, and for SEMPLADES, through

the Pan-American Health Organization, UNDP and UNICEF. Even though there are no consolidated numbers available,

it is estimated that at least the local populations and institutions in more than 60 districts have participated in disaster

preparedness projects, benefiting at least 600,000 people. The provinces that benefited most from these projects are

Esmeraldas, Manabí, Los Ríos, El Oro, Tungurahua, Chimborazo, Cotopaxi, Pichincha, Zamora, Loja, and Bolívar.

The response to a 2008 flood disaster demonstrated new possibilities and capacities in the current

institutional context. In 2008, the unexpected increase in rainfall produced the most extensive floods registered in

the last few decades along the Ecuador coastline. 13 of the 24 provinces of the region and 275,000 inhabitants were

affected and 170,000 hectares of crops were lost, among many other impacts.17 The response to this disaster is being

carried out in the transition of the new Technical Secretariat of Risk Management and the new Ministry of the Coast. The

latter assumes the leadership and coordination of emergency response and recovery. The final result was a successful

process which demonstrated a great capacity for response in a region that generally has inadequate conditions for timely

organization and coordination.18

The implementation of the capacity building strategy of the Decentralized National System of Risk

16 Physical, economic, and population information.

17 Ministry of the Coast, “Ecuador 2008, response to the coastline floods”, with the support from Pan-American Health Organization and UNDP.

18 Ministry of the Coast, “Compilation of protocols, operative proceedings, and functional structures used for response to the effects of the Ecuador

coastline floods of 2008.”

248 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Management requires a great effort both institutionally and from the local governments. Despite the advances

achieved in the past years by the Civil Defense, it is now necessary to design an emergency response capacity building

strategy adjusted to the new institutional structure and organization, and integrate the functions and responsibilities at

territorial levels. Because of the decentralized character of the risk management system, the capacity development at

subnational levels requires adequate resources and should remain a priority.

It is necessary to develop a comprehensive financial strategy to attend to post-disaster situations. Risk

transfer is one of the main propositions for the SNDGR. Similar to other aspects analyzed, it is important to promote

the design of a financial protection strategy on the basis of the results of risk analyses and models and the fiscal

considerations of the Government of Ecuador.

4.key donor engagements

Existing Projects with Donors and

International Financial Institutions

Emergency grant for Tungurahua and Litoral

Strengthening of the Technical Secretariat of Risk

Management (US$5 million IADB loan and US$1.25

million counterpart financing)

Humanitarian assistance for Tungurahua and Litoral

Emergency preparedness and response

Andean program

Quito community safety project

Protection of slopes in Quito South III (Loan for the

Environmental Sanitation Program III)

South-South Cooperation for City Collaboration:

Kathmandu, Makati and Quito

Funding Agency /

International Partners

IADB

Allocated

Budget and

Period

(US$)

400,000

2008

6.25 million

2006-2011

HFA

Activity

Area(s)

1,4

UN (FAO, UNDP, UNICEF,OIM, OPS)

European Commission’s Humanitarian

Aid Department (ECHO)

PREDECAN

World Bank (GFDRR)

UNDP

IADB

World Bank (GFDRR)

3.76 million

2008

2.6 million

2007-2008

16.12 million

2005-2009

980,000 2009-

2012

42 million

2008-2013

400,000

2009-2012

1,3,4

1, 3, 5

ecuador / 249

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given Ecuador’s disaster risk profile and its existing framework for disaster risk management, the key

priority in Ecuador is to continue to build institutional capacity and ensure long-term vulnerability reduction

at local levels. Strategic actions are needed in the following areas to enhance disaster risk management in Ecuador: (i)

identification and monitoring of risks, (ii) reduce vulnerabilities at the local level, and (iii) strengthen institutional capacity

for strategic planning and coordination at national and local levels.

In light of an agenda as broad as the National Strategy for Risk and Disaster Reduction of Ecuador, it is necessary to

prioritize and focus support in policies and projects with high impact.

Access to knowledge and advanced technological tools are critical to guarantee the availability of

information for decision-making in the current process of institutional change and reorganization. The design and

implementation of CAPRA offers an exceptional opportunity towards this objective.

Ecuador has a very high deficit in the programs of seismic vulnerability reduction in key buildings and the

infrastructure of the hydrocarbon sector. The advances in the assessment and design of medium and long-term

programs which could be achieved with support from GFDRR funds will have a very high impact.

In practice, the incorporation of disaster risk management into development plans and territorial/land

use plans is often limited by the lack of information and/or practical methodological tools accessible to

non-expert technicians. Ecuador has an opportunity to grow in this direction and GFDRR’s support would be very

effective.

Institutional development and risk management frameworks should create capacity to attend to short,

medium, and long-term needs. Emergency and disaster response capacity building is a short-term need which

should be guaranteed by the Technical Secretariat of Risk Management.

Capacity building of local governments is an essential line of action to ensure that the decentralized system

in Ecuador is viable and effective. As its name suggests, the Decentralized National System of Risk Management

(SNDGR) assigns the primary responsibility for risk management at the local level and secondarily at higher levels of

government.

250 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

The following activities have been identified in consultation with local authorities and international donor agencies. These

actions support Ecuador’s disaster risk management program and reflect HFA priority action areas.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered

for GFDRR funding)

DRM capacity building of local governments in priority

areas of the national strategy, e.g. technical assistance,

training, tools, etc.

Development of a Risk Assessment Platform for

Ecuador to advance technological tools and information

systems available for risk evaluation

Technical assistance to incorporate risk reduction into

Ecuador’s new planning system e.g. updating codes,

regulations, generating risk information, training, tools,

etc.

Technical assistance to reduce seismic vulnerability by

supporting the design and prioritization of programs for

structural reinforcement of essential city buildings and

infrastructure of the hydrocarbon sector

Support the design and formulation of programs to

manage and recover hydrographic basins

Support emergency/disaster response capacity

building activities at territorial and sectoral levels

Total Budget Requested:

Implementing Agency /

International Partners

Municipalities

UNDP

Technical Secretariat of Risk

Management, UN-ISDR, PREDECAN

Technical Secretariat of Risk

Management,

Secretary of Planning,

UNDP, PREDECAN

Technical Secretariat of Risk

Management, UNDP

Sectoral Ministries

Technical Secretariat of Risk

Management, Sectoral Ministries,

UNDP, Disaster Preparedness

Programme of the European

Commission’s Humanitarian Aid

Department (DIPECHO)

Indicative

Budget and

Period

(US$)

1.3 million

2009-2012

914,000

2010-2011

700,000

2009-2012

HFA

Activity

Area(s)

1, 3

1, 4

1.1 million

2009-2012

700,000

2009-2011

270,000

2009-2010

US$ 4.984 million

Additional consideration should be given to financial protection against disasters. Initial discussions with the Government

of Ecuador have confirmed interest in technical assistance to study and design necessary mechanisms to ensure

comprehensive financial protection in Ecuador.

guatemala

guatemala / 251

1. disaster risk profile

According to the World Bank’s Natural Disaster Hotspot study1, Guatemala ranks 5th among countries with

the highest economic risk exposure to three or more hazards. Guatemala is ranked as a high risk country due

to the vulnerability of its gross domestic product (GDP) to multiple hazards with 83.3% of Guatemala’s GDP located in

areas at risk. As one of the most densely populated countries in Latin America, with approximately 12 million inhabitants

in a territory of 108,890 square kilometers, the country is also one of the poorest in the region. Between 1902 and 2005,

Guatemala experienced 62 natural disaster events, which affected approximately 6 million people.2

Population Affected

by Disaster Type3

Floods

Drought

3%%

Storms

10%

Economic Damages by Disaster Type

(1000s USD)3

200000

150000

100000

Earthquake

82%

50000

Storm

Earthquake

Flood

Relative Vulnerability and Risk Indicators4

COUNTRIES AT HIGH

ECONOMIC RISK FROM

MULTIPLE HAZARDS

(Top 33 based on GDP with

3 or more hazards)1

1.Taiwan, China

2.Dominican Republic

3. Jamaica

4. El Salvador

5. Guatemala

8. Costa Rica

10. Colombia

12. Chile

15. Barbados

18. Ecuador

20. Peru

21. St. Kitts and Nevis

24. Honduras

27. Mexico

32. Bolivia

1See World Bank, Natural Disaster Hotspots, A Global Risk Analysis (Washington, DC: Disaster Risk Management Series, 2005), table 1.2.

2See Annex 6 for details on Guatemala’s exposure to natural hazards and the number of reported disasters in Guatemala.

3 EM-DAT: OFDA/CRED International Disaster Database, Catholic University of Louvain, Brussels, Belgium, online at: www.emdat.net

4Relative Vulnerability and Risk Indicators are adapted from IADB-IDEA (2007), Programa de Información e Indicadores de Gestión de Riesgos (Man-

izales, Colombia, 2004), Annex (2009). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries found in

IADB-IDEA (2007). Values are normalized on scale of 0 – 100 and presented against the average for 16 LAC countries found in IADB-IDEA (2007).

Major Disaster Impact taken from Disaster Deficit Index: the ratio of economic losses which country could suffer during a Maximum Considered

Event and its economic resilience. Local Events taken from Local Disaster Index: Represents the propensity of a country to experience recurrent,

small-scale disasters and their cumulative impact on local development. Risk Management Index is presented as the negative (ie 0 = optimal, 100

= incipient) of IADB’s Risk Management Index: measures country’s risk management capability in (i) risk identification (ii) risk reduction (iii) disaster

management (iv) financial protection. Resilience, fragility and Exposure are taken from the component indices of Prevalent Vulnerability Index

252 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Exposure in Guatemala is to both low frequency and high impact events, such as earthquakes, volcanoes and hurricanes,

and to high frequency and low impact events, such as floods and landslides. It is this combination of high population

density, poverty, and exposure to natural hazards in Guatemala that constitutes a high risk to adverse natural events.

Geological Hazards

Guatemala is situated in a zone of high seismic risk due to the conjuncture of three tectonic plates: the

North American plate, the Caribbean plate, and the Cocos plate. The most catastrophic adverse natural event in

Guatemala would be an earthquake in Guatemala City, in the case of a 500-year event.

There are approximately 288 volcanoes in the country, 8 had been active in historic times, and 4 continue to

pose a threat. The volcanoes of concern are: Fuego, Pacaya, Cerro Quemado, and Santiaguito.5 Volcanism

in Guatemala exists as a result of the subduction of the Cocos plate beneath the Caribbean plate.

Hurricanes and Drought

Guatemala is exposed to two coasts, with the Pacific Coast more vulnerable to hurricanes, and the floods

associated with them, especially at river mouths. The interior of Guatemala is greatly affected by drought; while the

agricultural sector suffers the most, other important sectors such as water, energy, and health are also impacted.

In recent years, storms and droughts have had the highest human and economic impact in Guatemala.

Losses during 1997-2006 averaged at 0.51 % of GDP, with storms (three events) affecting 485,662 people (around

5% of the country’s population) with damage costs reaching US$1 billion, and 113,596 people (around 1% of the

population) affected by drought (1 event) with the costs of damages reaching US$ 14 million6.

Floods and Landslides

Guatemala is continually affected by low impact, high frequency disasters, such as landslides and flooding.

These disasters occur at local levels, largely due to the topography of the river basins and slopes and the exposure of

the country to two coasts. Nearly 1,733 communities and 210,000 inhabitants are vulnerable to flooding with a total of

30% of the territory at high risk of flooding.

Determinants of Vulnerability to Adverse Natural Events

Vulnerability in Guatemala is due to a large extent to increased urbanization and insufficient planning.

Guatemala is one of the most densely populated countries in Central America and unplanned urban growth has greatly

increased population and infrastructure vulnerability. Given the high vulnerability of the country, natural hazard events

result in disasters that have a high human cost and negative impact on productivity, which in turn delays developmental

progress.

Guatemala is characterized by inadequate application and enforcement of existing building codes. With

increases in urban population and a lack of sufficient building code implementation, both the population and infrastructure

are increasingly at risk to natural hazards. This is compounded further by environmental degradation.

5 http://vulcan.wr.usgs.gov/Volcanoes/Guatemala/description_guatemala_volcanoes.html.

6 Guatemala Country Note, Climate Change Aspects in Agriculture, World Bank

guatemala / 253

Informal settlements are also considered high risk areas given the poor quality of housing construction and

absence of adherence to building codes. These risks must be addressed to decrease vulnerability and mitigate disaster

risk in Guatemala.

2. disaster risk management framework

The Government of Guatemala has placed Disaster Risk Management (DRM) firmly in its development

agenda. This is evident with the inclusion of DRM in the National Development Plan (Plan de la Esperanza). The

institutional coordinating mechanism that provides a legal framework for disaster prevention in the country and inter-

ministerial coordination in cases of emergency is the National Coordinator for Disaster Reduction (CONRED) and the

Secretariat (SSE-CONRED).

Over the last decade, the Government of Guatemala has moved towards a more proactive disaster risk

management approach. The Government has passed two laws that demonstrate this commitment: the Social

Development Law (Decree 42-2001) and the Law of Housing and Human Settlements (Decree 120-96). Both of these

laws include the concept of disaster vulnerability reduction in development planning.

Guatemala has made substantial progress towards addressing vulnerability. The Social Development Law

(Decree 42-2001) establishes that there is a reciprocal relationship between the advancement of development planning

and reducing disaster risks. In Articles 37 and 38, the Ministry of Planning (SEGEPLAN), in coordination with other

government institutions, is charged with the strategy for disaster risk prevention and protection of vulnerable populations.

In 2004, Project GUA 04/021 sought to strengthen capacities for reducing risk in development processes. The principal

objective was to create an inter-institutional program with a vision to incorporate disaster risk management in development

planning.

In addition, the Government has a National Program for Disaster Prevention and Reduction (PNPMD). This

program focuses on enhancing risk monitoring and assessment, reducing risk, strengthening institutions, and developing

risk financing strategies. This program ensures a comprehensive disaster risk management strategy in the country.

Despite great progress the country has made in addressing disaster risk, Guatemala remains vulnerable

to disasters triggered by adverse natural events and continued attention by the Government of Guatemala

is needed. Guatemala’s economic and social development is regularly interrupted by earthquakes, volcanic eruptions,

hurricanes, floods, and forest fires. Major disasters in Guatemala, such as the 1976 Earthquake, which resulted in more

than 23,000 deaths and damages estimated at 17.9% of GDP and Hurricane Mitch in 1998, which caused estimated

damages of 4.7% of GDP, have crippling effects on the country’s sustainable development and long-term growth.

3. activities under the hyogo framework of action

HFA Priority # 1: Policy, institutional capacity and consensus building for disaster risk manage-

ment

The current Government in Guatemala has placed disaster risk management firmly among its development

priorities. The Plan de la Esperanza 2008–2012, the policy program of the administration, focuses on increasing

growth and reducing poverty and inequality. It articulates disaster risk management as a self-standing policy issue in

254 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

the context of securing productivity. This demonstrates significant political commitment. The government is aware of the

economic consequences of business interruptions associated with the transfer of funds to address a disaster caused by

adverse natural events and acknowledges the importance of continuing efforts to reduce poverty and inequality.

Learning from recent disasters, Guatemala has made progress towards a more proactive disaster risk

management system. The establishment of the Social Development Law (Decree 42-2001) includes the concept of

disaster vulnerability reduction and notions of demographics and development planning as contributors to risk scenarios.

The Law of Housing and Human Settlements (Decree 120-96) mandates that all territorial entities take disaster risk into

account in development planning.

The creation of the National Coordinator for Disaster Reduction (CONRED) introduced disaster prevention

in the disaster management system in Guatemala for the first time. CONRED works as a coordinating mechanism

to provide a platform and legal framework for inter-ministerial coordination in the case of emergency, while also handling

disaster prevention. It is supported by an Executive Secretariat (SE-CONRED) which is organized around seven

work areas: coordination, financial management, comprehensive disaster risk management, response, preparedness,

mitigation, and logistics. During a disaster, CONRED has the power to enlist the cooperation of all public institutions

and any private bodies within their areas of competence.

Guatemala’s National Program for Disaster Prevention and Reduction (PN PM D) aims to articulate institutional

and private sector efforts to achieve sustainable development through initiatives that incorporate disaster

risk management in development planning. The PNPMD is a program that addresses disaster risk reduction in a

comprehensive manner. Designed with support from the United Nations Development Program (UNDP), the PNPMD

includes four lines of action: (i) improving risk identification and monitoring; (ii) investing to reduce risk; (iii) strengthening

institutional and planning capacity for risk management; and (iv) developing risk financing strategies.

The PNPMD aims to significantly strengthen institutions and planning over the next three years. Programs

include: (i) the formulation of the National Policy for Disaster Risk Management, which involves all sectors and the

development of a National Strategy for Disaster Risk Management, coordinated by SE-CONRED and involving both

public and private institutions; (ii) the strengthening of SEGEPLAN’s planning systems to incorporate risk concepts in

public investments; (iii) the implementation of territorial planning in 13 municipalities by an inter-institutional committee

involving SEGEPLAN, Ministry of Environment (MARN), and Municipal Development Institute (INFOM); and (iv) the

establishment of a roundtable, with private, academic, and international cooperation. Supported by UNDP and the

World Bank, the Vice President’s Office and SE-CONRED will coordinate these efforts and will convene at least twice

a year.

HHFA Priority # 2: Disaster risk assessment and monitoring

Guatemala has strengthened risk identification and monitoring systems through the development of

methodologies to analyze and evaluate hazards and vulnerabilities. The National Institute of Seismology,

Volcanology, Meteorology and Hydrology (INSIVUMEH) has developed an inventory of Historical Landslide Event Maps,

implemented an early warning alert system for flooding in six water basins, and conducted hydrological studies in six

basins. Various educational facilities have also been prepared for the technical study of monitoring and prognostic

elements of the systems.

The PNPMD in Guatemala aims to significantly augment the effort to improve risk identification and

monitoring over the next three years. This program includes projects that will advance the methodology to identify

guatemala / 255

hazards, vulnerability, and risks, while strengthening national capacity to identify and monitor such risks. Key components

of the sub-programs include: (i) a space to exchange existing methodologies on the analysis of risk and vulnerability,

while creating new methodologies in a participatory manner; (ii) the production of hazard risk studies on landslides

and flooding, and vulnerability risk studies, especially analyzing the vulnerability of the most important water basins to

determine population, infrastructure, and economic vulnerability; and (iii) the construction or strengthening of existing

observation networks, particularly the technical and scientific capabilities of INSIVUMEH.

In recent years, the Ministry of Agriculture (MAGA) has made efforts to identify risk using Geographic

Information System (GIS) tools on a very large scale. This has complemented the more traditional monitoring

of natural hazards carried out by the INSIVUMEH, and the geographic and cartographic information produced by the

National Geographic Institute of Guatemala (IGN). MAGA has produced hazard maps for volcanic eruptions, developed

at a scale of 1:50,000 with the support of Japan’s International Cooperation Agency.

Risk evaluations of 250 geographic areas earmarked for relocation of families affected by Hurricane Stan

were developed by the Secretaría de Asuntos Agrarios (SAA) in 2006. The Gerencia de Riesgo, a professional

risk evaluation group, worked with SAA in evaluating an additional 50 geographic areas that continue to be affected by

landslides and mudslides.

The Government has requested support for various technical assistance projects related to disaster risk

management. Guatemala’s Vice-President’s Office, in coordination with the National Committee for Risk Management,

is implementing a “Technical and Scientific Information for Municipal Planning” project, with financing from the Global

Facility for Disaster Reduction and Recovery (GFDRR). This project was designed over a two year period in a participatory

process with institutions including INSIVUMEH, MAGA, SE-CONRED, SEGEPLAN, and relevant municipalities.

Guatemala is working to strengthen risk identification at the municipal level in order to integrate this

knowledge into territorial development planning. This activity, funded by a GFDRR grant, will help hazard-prone

municipal governments to include risk considerations in their territorial development process. The project will: (i) develop

scientific information on hazards, vulnerability, and risk; ii) provide specific risk information for land use and urban zoning;

and (iii) provide scientific information for emergency plans. The information provided will help local authorities place

appropriate controls to avoid future generation of risks and will also aid in the design of risk mitigation programs.

SE-CONDRED has developed an early warning alert system for the Fuego Volcano. This is aimed at reducing

risk in the Escuintla, Sacatepuez and Chimaltenango Departments. The initiative was supported by Japan’s International

Cooperation Agency.

The Government of Guatemala is not yet in a position to identify or monitor needs for investments in risk

reduction across sectors. The Government of Guatemala also lacks capacity to provide a strategic overview of hazard

exposure or contingent risk for the country as a whole or for different sectors. To address this challenge, the Government

has drafted a new regulation to strengthen the mandates of CONRED, SE-CONRED, CORRED, COMRED, and

COLRED to document and monitor disaster risk, as well as to promote prevention and mitigation activities. In addition,

the new regulation for the Law of CONRED has been prepared and requires that all public infrastructure investments

comply with seismic building codes. The regulation is ready for the President’s signature and, if approved, could have a

significant positive impact on risk reduction in future investments.

256 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

Guatemala has taken steps to include disaster risk reduction concepts in the educational sector. This is

demonstrated by the scientific knowledge program to identify high risk areas, the introduction of the subject disaster

reduction in primary and secondary schools, the strengthening of the disaster documentation centre, the national

campaign “We Can Act”, the raising of awareness by the media, and finally, the consolidation of the CONRED website.

Guatemala is working with CEPREDENAC, the UN-ISDR, IADB, and the World Bank to develop the

Central American Probabilistic Risk Assessment (CAPRA) platform, an innovative initiative with a strong

educational element. CAPRA will help facilitate a comprehensive understanding of risk and risk management. The

platform will enable governments and scientific communities to identify and evaluate the sources of potential losses

(both geographically and by sector) from disasters, risk reduction investment opportunities, and government capacity

to finance and manage recovery operations. This knowledge will provide the basis to formulate strategies and policies

to strengthen the national risk prevention and emergency management system, and to develop a comprehensive risk

finance strategy. It is anticipated that CAPRA software will be included in university curricula.

HFA Priority # 4: Reduction of the underlying risk factors (reduction of exposure and vulnerabil-

ity and increase of resilience)

The PNPMD aims to significantly augment investments in risk reduction over the next three years. The

main components of the program include: (i) developing national standards for including disaster risk assessment

in construction planning; (ii) elaborating National Regulation for the Construction of Schools and guidelines for its

application; (iii) the implementation of a public infrastructure auditing program through the National General Auditing

Agency “Controloría General de Cuentas”; (iv) two pilot programs in Guatemala City to transform high risk zones into

secure zones; and (v) identification of mitigation works in river basins managed through the Water Cabinet.

A series of risk reduction activities that incorporate mitigation and guarantee safe construction, especially

in the health and education sectors, have been earmarked. These initiatives include the development of building

codes; national regulations for hospitals and schools combined with municipal disclosure of these codes, infrastructure

auditing; works to prevent landslides (retaining walls, slope reinforcements), rehabilitation and maintenance of road

infrastructure, and integrated management of river basins. The Vulnerability Reduction and Environmental Degradation

Regional Project (PREVDA) has already been initiated.

SE-CONRED developed and disseminated better construction standards according to risk assessment

methodologies post-Hurricane Stan. The methodology was developed in coordination with line ministries responsible

for reconstruction as well as the rehabilitation and retrofitting of public buildings. The aim is to introduce construction

standards that result in better and safer buildings on the basis of risk assessment methodologies. Although SE-CONRED

does not have the capacity to supervise the processes nor to monitor to what extent the methodology is being followed,

the methodology has been passed onto implementing agencies that have been encouraged to use this for construction

and rehabilitation activities.

COVIAL is overseeing the implementation of investments in river dredging and the strengthening of river

banks to prevent significant adverse impacts of natural events on road infrastructure. These investment

decisions are made on the basis of documented cost for road maintenance. In areas where COVIAL experiences

significant recurrent costs of rehabilitation of the road network due to the impacts of floods, the agency invests in flood

guatemala / 257

prevention as a cost minimizing strategy. Over the last five years, COVIAL has dredged more than 150,000 cubic meters

of rivers and canals per annum.

INSIVUMEH has developed Landslide Event Maps to improve territorial planning. As a result of the development

of these maps, there has been substantial investment in the upgrading and expansion of monitoring networks.

Disaster risk management is not yet explicitly part of the territorial planning processes, but authorities

are working towards a screening process for both public and private investment. SEGEPLAN has developed

a methodology that will help territorial entities integrate disaster reduction and recovery into territorial planning. This is

a significant first step for developing the instruments and capacities that will allow the territorial entities to effectively

manage their development planning in a way that reduces the construction of new risk.

Despite progress, Guatemala does not have a systematic investment program for risk reduction. Interventions

in risk reduction have generally been done in an ad hoc manner. The Government of Guatemala does not track or

monitor investments in risk reduction across sectors. This means that there is little understanding of the significance or

effectiveness of these investments in reducing the disaster risk exposure of the country or even of specific geographic

areas in the country; this makes it difficult to demonstrate results in terms of risk reduction activities. Nevertheless, some

of the ad hoc activities represent significant investments and have been good starting points to reduce the country’s

disaster risk.

HFA Priority # 5: Disaster preparedness, recovery and reconstruction at national, regional, and

local levels

The institutional structure for disaster risk management in Guatemala is organized around CONRED and

is replicated in regional (Regional Coordinator for Disaster Reduction – CORRED), municipal (Municipal

Coordinator for Disaster Reduction – COMRED), and local (Local Coordinator for Disaster Reduction –

COLRED) committees. These committees include representatives from public agencies, private sector and civil

society organizations, and are convened by the most senior government representative in the relevant locality. Delegates

of SE-CONRED support the committees, whose main functions are to: (i) coordinate disaster prevention and response

activities; (ii) relay information to the next level of the system; and (iii) implement actions relating to alerts, evacuation,

security, and emergency shelter.

Until recently, Guatemala has relied on ex-post budget allocations to respond to disasters caused by adverse

natural events. In the past, financing for disaster response and reconstruction was almost entirely allocated after the

disaster event through two mechanisms: (1) the National Fund for the Reduction of Disasters, coordinated by CONRED

and financed according to the guidelines provided by the National Plan for Disaster Prevention and Response (each year

the fund receives US$2 million from the national budget [Presupuesto General de Ingresos y Egresos del Estado]); and

(2) on an event-by-event basis CONRED coordinates the implementation of reconstruction with additional funding via

budget reallocations by the Ministry of Finance. The funds are generally channeled to three entities that are responsible

for implementing and managing rehabilitation and reconstruction projects after disasters: the Unidad de Conservación

Vial (COVIAL), which manages the funds allocated to the maintenance of the road network; the Fondo Nacional para

la Paz (FONAPAZ), which develops and implements projects to eradicate poverty and extreme poverty (communal

buildings, halls, sport fields, and recreation, education, and nutritional programs); and the Secretaría Coordinadora

Ejecutiva de la Presidencia (SCEP) / Unidad de Convoyes Regionales, a unit specializing in the implementation and

management of construction and maintenance projects of rural roads.

258 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES LATIN AMERICA & CARIBBEAN

Guatemala’s Ministry of Finance is preparing a comprehensive strategy to cover contingent liabilities

that will include adverse effects of natural events. The Catastrophe Deferred Drawdown Option (CAT DDO)

will be included as one of the elements in this strategy. The National Program for Disaster Prevention and Reduction in

Guatemala outlines three specific areas where the Government will advance towards this strategy over the next three

years. The objective of these activities is to improve the government capacity to mobilize and efficiently execute resources

in case of disasters. The three specific areas are: (i) viability studies for a tag system in the budget by the Ministry of

Finance, identifying resources in the budget that may be dedicated to disaster risk management; (ii) an analysis of the

fiscal exposure to adverse natural events, which will also determine in which way investments lost after a disaster may

be recovered; and (iii) a feasibility study to determine the Ministry of Finance’s ability to maintain a contingency fund for

disasters.

Despite great progress, local community capacity to prepare for, and respond to, disasters caused by

adverse natural events should be improved and strengthened. During the last 10 years, the response and

preparation capabilities in Guatemala have improved; however, Hurricane Stan and the 2008 floods revealed that despite

good response capabilities at the municipal level, CONRED response skills remain weak at the local level and require

additional support to be adequately prepared in the future.

4.key donor engagements

Existing Projects with Donors and

International Financial Institutions

Modernization and updating the meteorological system

in Guatemala

Program for the Reduction of Vulnerability and

Environmental Degradation Guatemala(PREVDA)

Development of scientific information to promote

municipal planning to reduce disaster risks

Disaster risk management development policy loan with

a Catastrophe Deferred Drawdown option (CAT-DDO)

Strengthening of Information and Communication for

CEPREDENAC and National Commissions

Development and application of a Risk Assessment

Platform for Guatemala

Community Risk Management and risk mapping with

local actors

National Policy for Risk Reduction in Guatemala

Funding Agency /

International Partners

Central American Development Bank

(BCIE)

European Commission

World Bank (GFDRR)

World Bank

IADB

GTZ

IADB

Institutional support to technical groups related with risk

reduction

National program for risk reduction on the

reconstruction process PROREC

Regional Program of Environment in Central America

(PREMACA)

Earthquake Risk Reduction In Guatemala, El Salvador

and Nicaragua With regional cooperation to Honduras,

Costa Rica and Panama (RESIS II)

UNDP

UNDP,

Sweden, Norway, USAID

Danish Cooperation (DANIDA)

Norway

Allocated

Budget and

Period

(US$)

12.5 million

3.34 million

2007-2011

730,000

2008-2010

85 million

2009-2011

446,000

2007-2009

350,000

2009-2010

Not available

750,000

2009-2010

90,000

2009

13 million

2007-TBD

Not available

2.4 million

2007-2010

HFA

Activity

Area(s)

2,3

1,2,3,4

1,2,3,4,5

1,2

2,3

2,3,4

1,3

2,4

(Cont.)

guatemala / 259

Existing Projects with Donors and

International Financial Institutions

Strengthening of CEPREDENAC and National

Commissions for disaster vulnerability reduction in

Central America

Regional Plan for Disaster Reduction (PRRD)

Development of disaster risk management capacity at

the local level

Mesoamerican coordination system for territorial

information

Funding Agency /

International Partners

Spanish International Cooperation

Agency

Norway,

Spanish International Cooperation

Agency

Japan International

Cooperation Agency

IADB

Allocated

Budget and

Period

(US$)

130,000

2005-2009

400,000

2006-2011

300,000

2008-2011

800,000

2009-2011

HFA

Activity

Area(s)

2,4

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Given Guatemala’s disaster risk profile and its existing framework for disaster risk management, the key

priority is to implement the recently approved national program for disaster risk management. Strategic

actions are needed in the following areas in Guatemala: (i) strengthen institutional capacity for strategic planning and

coordination, (ii) mainstream disaster risk reduction in specific sectors, and (iii) develop a comprehensive risk assessment

and monitoring capacity.

The following activities have been identified in consultation with local authorities and international donor agencies. These

actions support Guatemala’s disaster risk management program and reflect HFA priority action areas.

Indicative Program for GFDRR Funding

(Projects and engagement areas being considered

for GFDRR funding)

Support for the development of territorial planning that

integrates disaster risk considerations at the municipal

level

Technical assistance to support the national program

for disaster risk reduction and mainstreaming disaster

risk reduction in other sectors

Studies and designs for mitigation measures for critical

infrastructure

Implementing Agency /

International Partners

INSIVUMEH,

Municipalities

Vice-Presidency,

CONRED, Ministry of Finance

CONRED

Mitigation works in key sectors

Sectoral Ministries, Municipalities

Support for the development a Risk Assessment

Platform for Guatemala

Total Budget Requested:

Vice-Presidency,

CONRED, Universities, Sectoral

Ministries, INSIVUMEH

Indicative

Budget and

Period

(US$)

1.4 million

2009-2012

HFA

Activity

Area(s)

1,2,4,5

800,000

2009-2011

1,2,3,4

1.2 million

2009-2010

1,3,4

980,000

1,4

2009-2011

564,000

1,2

2009-2010

US$ 4.944 million

In addition to the above-mentioned activities, ongoing dialogue with national and local officials will continue to identify

disaster risk management measures that consider climate change as part of their adaptation strategies.

DISASTER RISK MANAGEMENT

South Asia

Bangladesh / Pakistan / Sri Lanka

262 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Bangladesh

The preparation of the integrated, multi-stakeholder proposal or DRM Action Plan for possible GFDRR funding, was

carried out over a nearly 3-month period between March-May 2009. The first round entailed soliciting proposals from

different government and non-government entities and concerned donor agencies. In the second stage, these proposals

were analyzed by a 3-member team comprising of the Bank’s Regional and Country DRM Coordinators and other

staff. The third stage included a consultative process involving a range of stakeholders including the Economic Affairs

Department, the Ministry of Food and Disaster Management including its various directorates, the Bank’s ECRRP Team,

and the Comprehensive Disaster Management Program (CDMP) and its present financers including the UNDP, DFID

and EC. However the present proposal is still in draft form and shall be further deliberated upon with the concerned

stakeholders in a final consultative round, subsequent to receiving preliminary GFDRR feedback.

1. disaster risk profile

Historical Profile of Natural Disasters in Bangladesh

Bangladesh’s geographical location and land characteristics make it one of most hazard-prone countries in the world. The

country has been frequented by a range of natural hazards throughout its history, including cyclones, floods, droughts,

tornadoes and river bank erosion. Other major hazard risks to the country include earthquake, Tsunami, high arsenic

contents in ground water, water logging and salinity, etc. Wide-scale flooding has been the most recurring type of

disaster striking Bangladesh, and the country remains one of the worst sufferers of cyclonic casualties in the world.

The transitional pre- and post-monsoon periods are also frequented by severe local storms and tornadoes. In addition,

riverbank erosion affects many people and hectares of land annually. Droughts have also been a common occurrence

over the years.

Bangladesh has experienced a number of earthquakes over the past 200 years – between 1869 and 1950, 7 earthquakes

ranging between 7.0 to 8.7 on the Richter scale have been recorded in the Bangladesh region. Even though Bangladesh

is located in a seismically active and high-risk region, seismic risk awareness, mitigation and reduction has not been

mainstreamed into the country’s core disaster management agenda and strategy. Not only is there great need for such

mainstreaming of seismic risk reduction and mitigation, but for the country to urgently start devising and implementing

major preparedness interventions and capacity building efforts.

Bangladesh is currently ranked as the most climate vulnerable country in the world (World Bank 2005). Climate change

in particular, is likely to considerably exacerbate’ Bangladesh’s disaster vulnerability Projections of the Intergovernmental

Panel on Climate Change (IPCC) suggest that warmer temperatures will increase both the frequency and intensity

of cyclones in the Bay of Bengal. In addition, rapid snow melt in the upper Himalayas coupled with increased peak

discharges, would likely increase the depth and spatial extent of flooding in the Ganges-Brahmaputra-Meghna Basin.

Added to these risks are the likely consequences of sea level rise, which can cause economic losses of an unprecedented

magnitude in Bangladesh’s case.

banladesh / 263

Bangladesh’s Exposure and Vulnerability to Hazard Risks

Historically, cyclones and floods have posed the greatest risk to Bangladesh on a country level. The charts below

indicate that cyclones have by far been the most recurring and devastating natural hazard in terms of the frequency

of their occurrence and their human toll., floods in Bangladesh affect a greater population base than any other natural

hazard. The country remains one of the worst sufferers of cyclonic casualties in the world. There have been at least 8

major cyclones since 1965, wreaking huge damages and loss of life – the 1970 and 1991 cyclones caused 300,000

and 140,000 human casualties respectively. The November 2007 cyclone SIDR, although of no less magnitude than

some of the earlier cyclones, led to lesser (3,363) casualties, due to among other factors, the much improved state of

disaster management in the country.

Moreover, in most years, between 30-50% of the country has been affected

by floods. As illustrated by the Hotspots Study by the University of Columbia’s

Earth Institute, sub nationally, the northern and eastern regions of the country

are susceptible to earthquakes while the southeast is particularly vulnerable to

all five hazards. The combined multi-hazard maps for mortality and GDP show

that Bangladesh ranks in the top 3 deciles of risk when compared to the rest

of the world.

The Key Underlying Risk Factors

Deficiencies and Gaps in Implementation of Disaster Preparedness and Risk Reduction Plans (A Case Study of the

2007 Cyclone Sidr) – The country’s geographical location and land characteristics overwhelmingly and unmistakably

remain the biggest underlying risk factors for Bangladesh. Over time, the country’s ability to manage disaster risks, in

particular floods and cyclones, has evolved and improved, as a result of a gradual shift from a response-based approach to

a strategy that incorporates elements of greater emergency preparedness and risk mitigation. However key deficiencies

and gaps remain in the actual implementation of national DRM policies and local risk reduction action plans, as was

evidenced in the 2007 SIDR cyclone event. The event highlighted the following unmet needs that continue to remain

the key underpinning risk factors for Bangladesh: (a) further strengthening and institutionalizing disaster preparedness,

especially among the various sub-national disaster management committees; (b) mobilizing adequate resources for

improved local disaster preparedness and response management resources; (c) mainstreaming disaster risk reduction

and mitigation across sectors and down to the lower levels of governance, and; (d) taking stock of deficiencies in key

risk mitigation infrastructure such as shelters and coastal and river embankments.

264 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Inadequate Attention to Seismic Risks - Even though Bangladesh is located in a seismically active and high-risk region,

seismic risk awareness, mitigation and reduction has not been mainstreamed into the country’s core disaster management

agenda and strategy. This is probably because of the long period of time that has elapsed since the last major earthquake

in 1950, but predictions now suggest that a major earthquake might be just around the corner. Hence, there is a need

for mainstreaming seismic risk reduction and mitigation in Bangladesh’s disaster management strategy and plans, and to

start devising and implementing major preparedness interventions and capacity building at various levels.

Lack of Technical and Financial Capacities for Climate Change Adaptation – With the added climate change factor,

which is likely to exacerbate the intensity and impacts of floods, cyclones and droughts in particular, there is a need for

greater urgency for further improving disaster management and preparedness in the country, including quickly mobilizing

substantial additional financial and technical support from the international community and development partners. The

up-gradation and modernization of Bangladesh’s hazard risk management regime is vital for the country to continue the

economic growth it has achieved over the last decades. The Government’s PRSP must place even greater emphasis

on Disaster Risk Reduction (DRR), along with the cross-sectoral mainstreaming of DRR, in order to be able to achieve

the millennium development goals.

2. disaster risk management framework

Bangladesh’s Disaster Management Strategy

The present national strategy for disaster management, although in an early phase of implementation, is based on 3 key

elements including:

• Defining and redefining the risk environment, entailing systematic and improved hazard analysis and vulnerability/

community risk assessments; and risk treatment and ranking, including incorporation of climate change impacts;

• Managing the risk environment, including achieving a good balance of risk reduction options; moving from generic

hazard to risk specific programs, and; mainstreaming risk reduction across sectors through advocacy, policy and

planning reform, and capacity building;

• Responding to the threat environment, including activating systems and mobilizing resources; utilizing vulnerability

and risk databases for emergency response planning; and maintaining effective communications and early warning

systems

Institutional Structure for Disaster Management

The National Disaster Management Council (NDMC), headed by the Prime Minister, is the highest level forum for the

formulation and review of disaster management policies. The Inter-Ministerial Disaster Management Coordination

Committee (IMDMCC) is in-charge of implementing disaster management policies and decisions of the NDMC, assisted

by the National Disaster Management Advisory Committee (NDMAC). The Ministry of Food and Disaster Management

(MoFDM) is the apex institution responsible for coordinating national disaster management interventions across all

agencies. The MOFDM comprises of a Central Disaster Management Bureau (DMB), Director General Food, Directorate

of Relief and Rehabilitation (DRR) and a Cyclone Preparedness Program Implementation Board (CPPIB). In addition,

various other committees are tasked with coordination functions, dissemination of warning signals and training and

public awareness building. Moreover, at the sub-national level, disaster management committees are functioning at

the district, upazila, union, pourashava (municipal), and city corporation levels, tasked with coordinating and reviewing

disaster management activities in their respective jurisdictions.

banladesh / 265

Presently Articulated National Priorities for Disaster Management

The Draft National Plan for Disaster Management (NPDM, 2007-15), is an umbrella plan attuned with the achievement of

disaster management goals and priorities set out in the HFA (2005-15) and the SFA (2006-15). The Plan is to be used

for: (a) articulating the long-term strategic focus for disaster management in Bangladesh; (b) acting as national driver

for change broadly aimed at disaster risk reduction and climate change adaptation, and; (c) providing a roadmap for the

development of disaster management plans by various lower level entities.

The NPDM is centered around the following strategic priorities and goals: (i) professionalizing the present disaster

management system; (ii) mainstreaming disaster risk reduction; (iii) strengthening institutional mechanisms for disaster

management; (iv) empowering at-risk communities; (v) expanding risk reduction programming across all sectors and all

hazards; (vi) strengthening emergency response systems, and; (vii) developing and strengthening networks for disaster

management.

Further, the NPDM calls for the development and implementation of district, upazila, union, and paurashava/city corporation

disaster management plans, and also lays out specific requirements to be addressed by these multi-tier plans. It also

mandates the development of sectoral development plans incorporating disaster risk reduction, and hazard-specific

multi-sectoral disaster management plans.

Priorities for Climate Change Research, Capacity Building and Adaptation

Under its strategic goal for expanding risk reduction programming, the NPDM provides an elaborate framework for

‘establishing an integrated approach to disaster management, including climate change and climate variability impacts’.

Key priorities identified vis-à-vis climate change include: (a) establishing and capacitating the Climate Change Cell (CCC)

within DOE; (b) developing scenario and prediction models; (c) conducting research and strengthening knowledge on

climate change and climate variability impacts; (d) identifying climate change adaptation options through action research;

(e) incorporating climate change and climate variability impact information in DRR programs and strategies, and ; (f)

designing and implementing capacity building programs to improve and enhance multi-stakeholder understanding of

climate change impacts.

3. Integration of DRM in Development Strategies

Integration of DRM in National Policies and Linkages with International Conventions

Bangladesh’s Poverty Reduction Strategy Paper (PRSP) provides for strengthening disaster management and risk

reduction, mainstreaming DRR into national policies and developmental processes, and enhancing community capacity

for disaster preparedness and risk reduction. Further, the Draft National Plan for Disaster Management (NPDM, 2005-

15), is aligned with the objectives and priorities for action identified under various international conventions, such as

the Hyogo Framework for Action (HFA, 2005-15), the United Nations Framework Convention on Climate Change

(UNFCCC) and particularly, the SAARC Framework for Action (SFA, 2006-15). The NPDM has already been approved

by, and incorporates the feedback of: (a) a dedicated MoFDM committee; (b) a wider stakeholder group comprising

of government and non-governmental organizations and academic institutions; (c) relevant government ministries and

departments; and lastly; (d) the IMDMCC. In the light of IMDMCC comments and decisions, the draft was further revised

and prepared for Cabinet consideration and approval.

266 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

The Bank’s Shifting Focus from Disaster Response to DRM Financing

Although the Bank’s Country Assistance Strategy (2006-2009) supports the PRSP’s broader objectives, specially

towards strengthening local governance and community social safety nets, it currently falls short of specifically supporting

the country’s conscious shift towards the mainstreaming of DRM considerations in its developmental planning. The Bank’s

engagement in the disaster arena in Bangladesh has typically remained response-based, with a number of Emergency

Recovery Loans in the wake of frequent floods and cyclones. However the Bank’s 2008 cyclone Sidr response is

marked by a full acknowledgement of the country’s DRM needs through the development of a medium to long term (15-

year) strategic plan of action for strengthened disaster risk reduction and mitigation under the Joint Damage, Loss and Needs

Assessment (JDLNA).

DRM Interventions under the ECRRP – Physical implementation of the above plan began with a support of US$ 8 million

extended towards DRM institutional capacity building and strengthening disaster preparedness under the Emergency

Cyclone Recovery and Rehabilitation Project (ECRRP). This DRM strategy is structured along the Bank’s international

DRM strategic framework, while the ECRRP specifically supports 3 pillars of this framework including: (i) hazard risk

identification and assessment; (ii) strengthening and enhancing emergency preparedness, and; (iii) institutional capacity

building related to DRM. These entail structural and non-structural interventions both generally at the national and local

levels, including: (a) capacity Building of the Disaster Management Bureau (DMB); (b) support towards a Detailed

National-level Multi-Hazard Risk and Vulnerability Assessment, Modeling and Mapping, and; (c) strengthening and

enhancing emergency preparedness in 12 severely cyclone affected districts.

The ECRRP also includes subprojects for physical risk mitigation, including river and coastal embankment improvement,

new disaster shelters, and upgradation of the rural road network. It also provides for studies for establishing a disaster

management response fund/facility and potential for buying catastrophe risk coverage.

Other Ongoing DRM Technical Assistance and Economic Sector Work – The Bank is currently carrying out economic

sector work and technical assistance in the following areas: (a) decentralized disaster management and local governance;

(b) an agricultural risk insurance feasibility study (GFDRR-funded); (c) ESW on implications of climate change on food

security, and; technical assistance towards improving Bangladesh’s response and recovery activities in the aftermath of

disasters.

4.key donor engagements

The national disaster management institutional apparatus above has collaborative linkages with a host of technical and

scientific organizations, such as the Flood Forecasting and Warning Centers (FFWCs), Bangladesh Meteorological

Department (BMD), Center for Environmental and Geographical Information Services (CEGIS), Institute for Water

Modeling (IWM), and the Space Research and Remote Sensing Organization (SPARRSO).

A number of International Financing Institutions, multilateral and bilateral donor agencies are supporting disaster

management and risk mitigation interventions in the country. The Disaster Emergency Response Group (DER) is a forum

for information sharing, composed of government representatives, donor agencies and the NGO community.

The Comprehensive Disaster Management Programme (CDMP), under the auspices of the DMB, is undertaking a number

of interventions aimed at strengthening and improving disaster management and risk mitigation capacities at various levels,

and in promoting and implementing the national strategic priorities and plans set out by the Government. It is funded by

banladesh / 267

DFID, UNDP and the EC. The CDMP Phase I has effectively been under implementation since late 2005 and is scheduled

to be completed by December 2009. The program has started to make significant contributions in the areas of:

• capacity building and professionalizing disaster management;

• partnership development including advocacy for mainstreaming disaster risk reduction and for expanding risk

reduction across a broader range of hazards;

• community empowerment, community risk assessments (CRA) and community risk reduction programs funded

through the Local Disaster Risk Reduction Fund (LDRRF);

• research and information management on earthquake and Tsunami preparedness and capacity building on climate

change risk management;

• strengthening response management through the establishment and strengthening of Disaster Management

Information Centers and a Disaster Management Information Network;

The CDMP has met with particular success in implementing CRAs, community-level Risk Reduction Action Plans and

small scale risk mitigation interventions funded through the LDRRF in seven pilot districts. Phase II of the CDMP shall

be able to scale-up these activities in additional program districts. In other areas, the CDMP has yet met with partial

success, but is steadily moving towards achieving its strategic objectives, as per the program’s mid-term evaluation

report.

5.global facility for disaster reduction and recovery (gfdrr):

action plan

The preparation of the integrated, multi-stakeholder proposal or DRM Action Plan for possible GFDRR funding (Refer Table

1), was carried out over a nearly 3-month period between March-May 2009. The first round entailed soliciting proposals from

different government and non-government entities and concerned donor agencies. In the second stage, these proposals were

analyzed by a 3-member team comprising of the Bank’s Regional and Country DRM Coordinators and other staff. This required

an assessment of these proposals in respect of: (a) their relevance to the national and local contexts and DRM capacities,

including their potential for addressing and mitigating the underlying risk factors for the country (refer sub-sections 5,6,& 7); (b)

their relationship with, and leveraging potential for furthering the objectives of, the various existing national strategies, priorities

and action plans in respect of improved DRM and strengthened disaster preparedness; (d) addressing present gaps in DRM

interventions and avoiding duplications (although some overlaps are unavoidable in the country environment), and; (e) their

responsiveness to the lessons learnt and gaps and weaknesses identified in recent disaster responses (refer sub-section 5).

The third stage included a consultative process involving a range of stakeholders including the Economic Affairs Department, the

Ministry of Food and Disaster Management including its various directorates, the Bank’s ECRRP Team, and the Comprehensive

Disaster Management Program (CDMP) and its present financers including the UNDP, DFID and EC. However the present

proposal is still in draft form and shall be further deliberated upon with the concerned stakeholders in a final consultative round,

subsequent to receiving preliminary GFDRR feedback.

Rationale for Selection of Proposed Activities

Selection Criteria and Expected Results – Following from above, the criteria used for selection of proposals towards the

development of the proposed action plan, include: (a) relevance in addressing and mitigating underlying risk factors for the

country; (b) leveraging potential for future DRM interventions; (c) potential for furthering national DRM priorities developed

268 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

in harmonization with the agreed priorities for actions under the Hyogo Framework for Action (HFA 2005-15); (d) meeting

the challenge of increased DRM activity synchronization and synergy-building across various donor/IFIs, thereby improving

the quality and effectiveness of donor aid in the DRM arena; (e) deepening and widening the association of the Bank with

other players (particularly the UN) and among other players in the DRM area ; (f) fostering, deepening and widening DRM

partnerships between the Bank, government and other donors, and; (g) ease and pace of activity implementation.

Reasons for Non-Selection of Some Proposals –The non-selection of some proposals was based on grounds of: (a) lack of

clear objectives or potential for strategic impact; (b) duplications with existing or already funded planned activities, and; (c)

availability of other more readily accessible funding mechanisms, such as climate change adaptation related proposals which

can be funded through Bangladesh’s Multi-Donor Trust Fund of Climate Change, the Government’s own fund on climate

change and various other funding windows.

GFDRR Guidance Request – As per earlier GFDRR guidance, some of the proposed activities are likely to be executed

by the government or other players such as the UNDP. One proposal for contributing to the donor resource pool of the

CDMP requires more clarity from the GFDRR over the various implementation modalities, particularly the issue of procurement

methods and guidelines to the followed in such scenarios. For the time being, the proposed activity has been kept flexible with

possibilities for both pool-funding or funding of a discrete set of Phase-II activities under the CDMP.

Indicative new program areas and projects

for GFDRR funding

1. Policy Advice, Technical Assistance and International/

Regional Experience Sharing for: (A) the Conceptualization

of a National Disaster Management Authority; (B) Enhancing the

Institutional Coordination, Monitoring and Oversight Capacities of

the Ministry of Food and Disaster Management in respect of the

multitude of DRM related activities and interventions (ongoing

and planned) by various partners and stakeholders, and; (C)

Conducting a Feasibility Study for the Establishment of a National

Emergency Operations Centre

2. Training and Capacity Building of a National

Volunteers Force for supporting Multi-Hazard Emergency

Response Management. This program will broadly following

the operating model of existing and very successful Cyclone

Preparedness Program which is co-financed and co-managed

by the Government and the Red Crescent Society. The proposed

intervention shall scale-up this model to include training

and building of a volunteers force for multi-hazard response

management in other hazard-prone districts in the areas of: (A)

Search and Rescue; (B) Evacuation; (C) First Aid Provision, and;

(D) Emergency Communications and Community Early Warning

Systems

Partnerships

Ministry of

Food and

Disaster

Management

DMB,

Directorate

of Relief and

Rehabilitation

(DRR), Red

Crescent

Society,

and Local

Governments

including

District,

Upazilla

and Union

Governments

Indicative

Budget and

Duration

$1,500,000

3 years

$ 2,900,000

3 years

HFA

activity

area(s)

Priority Area 1: Ensuring

that DRR is a national

priority with a strong

institutional basis for

implementation.

Sub-Priority (i): National

Institutional and

Legislative Frameworks

Priority Area 1:

Sub-Priority (iii):

Community Participation;

Strategic Management

of Volunteer Resour(cCeosnt.)

Priority Area 3:

Use knowledge,

information and

education to build a

culture of safety and

resilience at all levels

Sub-Priority (ii)-l:

Promote community

based training initiatives,

considering the role of

volunteers.

banladesh / 269

Indicative new program areas and projects

for GFDRR funding

3. Vulnerability Reduction of Health Facilities in Disaster

Prone Districts. This shall involve scaling up of the Ministry of

Health’s (with USAID and ADPC) existing structural vulnerability

program to focus on: (A) Detailed Structural Vulnerability

Assessments of Health Facilities in Prioritized Multi-Hazard

Prone Districts and Development of Retrofitting Techniques

for Enhancing Building Safety; (B) Incorporation of DRM

Considerations in the Design and Planning of Future Health

Facilities, including development of district and local capacities

in this respect, and; (C) Capacity Building of Key Health Staff

in Disaster Prone Districts in Health Emergency Response

Management, Provision of Life-Saving Equipment, and Training/

Skill Development in life-saving operations/techniques including

the use of such equipment in disaster events

4. Urban Vulnerability Reduction - Knowledge Sharing,

and Development of Investment and Implementation

Options. This shall be implemented in three 3 Major Urban

Center, building upon the Risk Exposure and Structural

Vulnerability Assessments carried out by CDMP under

Phase-I. This activity will support: (A) Visits by International

DRM Practitioners to Major Cities for development of Risk

Mitigation Investment Options, and Exposure Visits for Local

City Management Officers to Mega Cities where such mitigation

options have been implemented; (B) Mainstreaming of DRM

Considerations and Interventions in the City Investment Planning

Processes; (C) Carrying out an assessment of strengths, gaps

and weaknesses in the city/urban search and rescue capacities

in respect of both natural and man-made hazards – also based

on a comparison between present municipal and urban risk

management action plans and the implementation capacities and

systems of the respective cities.

Partnerships

Ministry of

Health, APDC

CDMP, DMB

City

Corporations

Indicative

Budget and

Duration

$ 2,400,000

3 years

$ 1,500,000

1 year

HFA

activity

area(s)

Priority Area 2:

Sub-Priority (i):

National and Local Risk

Assessments

Priority Area 4:

Reduce the underlying

risk factors

Sub-Priority (ii)-E:

Integrate disaster risk

reduction into the

health sector, promoting

the goal of “hospitals

safe from disaster”,

by increasing their

level of resilience, and

implementing mitigation

measures to reinforce

and strengthen their

capacity to remain

functional in disaster

situations.

Priority Area 4:

Reduce the underlying

risk factors

Sub-Priority (iii)-N:

Incorporate disaster

risk assessments

into urban planning

and management of

disaster prone human

settlements, in particular

highly populated areas.

Sub-Priority (iii)-O:

Mainstream disaster

risk considerations into

planning procedures

for major urban

infrastructure projects.

Sub-Priority (iii)-R:

Encourage the

revision of existing

or the development

of new building

codes, standards,

and rehabilitation and

reconstruction practices.

(Cont.)

270 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Indicative new program areas and projects

for GFDRR funding

Support to the Comprehensive Disaster

Management Program (a program under the auspices of

the MoFDM and Disaster Management Bureau, and currently

financed by UNDP, DFID and EC). This program supports: (a)

capacity building and professionalizing disaster management at

various levels; (b) partnership development including advocacy

for mainstreaming disaster risk reduction; (c) community

empowerment, community risk assessments (CRA) and

community risk reduction programs; (d) research and information

management on earthquake and Tsunami preparedness and

capacity building on climate change risk management, and; (e)

strengthening response management through the establishment

and strengthening of a Disaster Management Information

Network;

Total Indicative Budget - GFDRR Funding Request

Partnerships

MoFDM, DMB,

CDMP, UNDP,

EC, DFID

Indicative

Budget and

Duration

HFA

activity

area(s)

$ 6,000,000

3 years

Priority Area 1:.

Sub-Priority (i): National

Institutional and

Legislative Frameworks

Sub-Priority (iii):

Community Participation

Priority Area 2:.

Sub-Priority (i):

National and Local Risk

Assessments

Priority Area 3:.

Sub-Priority (i):

Information Management

and Exchange

Sub-Priority (ii):

Education and Training

Priority Area 5:.

Sub-Priority (a):

Strengthen policy,

institutional and

technical capacities for

disaster management

Sub-Priority (b): Support

exchange of information

across risk reduction and

development agencies

US$ 14.3 Million

banladesh / 271

Annex 1

Donor Engagements and Plans for Medium to Long-term Disaster Risk Mitigation in Bangladesh

(Developed under the 2008 Cyclone SIDR JDLNA)

Strategy Pillar:

I. Risk

Identification and

Assessment

II. Strengthening

and Enhancing

Emergency

Preparedness

III. Institutional

Capacity Building

IV (a). Risk

Mitigation

Investments

IV (b). Climate

Change Risk

Mitigation and

Adaptation

V. Introducing

Catastrophe Risk

Financing

Planned Activities

(i) Detailed, National Level Multi- Hazard Risk and

Vulnerability Assessment & Modeling

(ii) Supporting Community Risk Assessments at the

District, Upazila and Union Levels

(i) Disaster Forecasting and Warning

(ii) Construction of New, and Rehabilitation of Existing,

Disaster Shelters

(iii) Strengthening and institutionalizing disaster

preparedness

(iv) Strengthening Local Communication Systems

and Sustained Public Awareness and Sensitization

Campaigns

(i) Establishing a Bangladesh Institute for Disaster

Management Training

(ii) Professionalizing the Present Disaster Management

Institutions

(iii) Building DMB Capacity for Damage, Loss and Needs

Assessments

(iv) Mainstreaming disaster risk reduction and mitigation

across sectors

(v) Fostering National-level Public-Private Partnership

Forums

(i) River Bank Protection Improvement Program

(ii) Coastal Embankment Improvement Program

(iii) Program for upgrading the Standards of

Construction for Roads

(iv) Forestation of Coastal Belt

(v) Sundarbans restoration and improvement

(vi) Gorai River Restoration Program

(i) Capacitating and Strengthening the Climate Change

Cell (CCC) within DOE

(ii) Developing climate change and climate variability

scenario and prediction models

(iii) Conducting research and strengthening knowledge

on climate change and climate variability impacts

(iv) Identifying climate change adaptation options

through action research

(v) Incorporating climate change and climate variability

impact information in DRR programs and strategies

(vi) Designing and Implementing capacity building

programs to improve multi-stakeholder understanding of

climate change impacts.

(i) Establishment of Disaster Response Fund

(ii) Catastrophe Risk Financing of Rare Events

Existing and Prob-

able Development

Partners

WB/GFDRR, UNDP,

Others

UNDP, DFID, CDMP

JICA, EC, CDMP

WB, ADB, JICA/JBIC,

IDB, Kuwait, Saudi, and

OPEC Funds

UNDP, DFID, CDMP

WB, CDMP, IFRC

UNDP, DFID,CDMP

UNDP, CDMP

WB, ADB,UNDP,

CDMP

UNDP, CDMP

WB, ADB,UNDP,

CDMP

WB, ADB, Dutch Govt.

WB, ADB, JICA/JBIC,

Others

WB, ADB, Others

WB, ADB, Dutch Govt.,

Others

WB, ADB, Dutch Govt.,

Others

DFID, UNDP, CDMP

DFID, UNDP, CDMP,

Others

DFID, UNDP, CDMP

DFID, UNDP, CDMP,

WB, ADB, JBIC/JICA,

Others

DFID, UNDP, CDMP,

Others

GOB, IFIs, UN, Bilateral

Donors

GOB, WB, GFDRR,

ADB

Indicative Timeframe

2008-12 2013-17 2018-22

272 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

PAKISTAN

Extensive internal and external consultations were undertaken for the preparation of the Country DRM Note. As part of

the internal World Bank consultations various Country Sector Teams were involved in review of the concerned activities

listed in the proposal and helped in further refinement and finalization of these activities. Members of the World Bank’s

Pakistan Country Team were also briefed on the proposal. Consultative meetings with external stakeholders such as the

Government, Donors and other Bilateral International Agencies/UN were also held. This entailed detailed discussion with

the National Disaster Management Authority (NDMA) on national priority areas in DRM in relation to the overall needs

as well as all aspects of the country proposal. In addition, The Bank DRM Team also held three rounds of consultations

under the G-7 Coordination Forum with the UN (UNDP, WFP, UN-Habitat, WHO), Japanese Embassy/JICA, USAID,

European Commission, DFID, ADB and the WB. The proposed GFDRR grant funding proposal was finalized after

incorporation of the views and suggestions of all the above stakeholders and therefore has strong ownership.

The matrix of priority areas and actions for DRM was developed in consultation with all members of the G-7 Coordination

Forum and discussed with the National Disaster Management Authority (NDMA) and shared with The National Working

Group (NWG) for mainstreaming DRM in the country which includes key ministries/line agencies representatives as

members.

1. DISASTER RISK PROFILE

Pakistan has been at risk to various types of natural disasters of which cyclones, flooding, landslides, earthquakes and

drought are more common. The country is one of the most flood prone countries in South Asia. During its history the

floods of 1950, 1992 and 1998 resulted in a large number of deaths and severe loss of property valued at an estimated

$1.3 billion. Pakistan is also located in a seismically active zone on account of its proximity to the Indo-Australian and

Eurasian plates. This vulnerability was proven in October of 2005 when a major earthquake measuring 7.6 on the Richter

scale hit 9 Districts in NWFP and AJK, killing over 73,000 people and damaging / destroying about 450,000 houses.

Droughts are also a serious hazard in the country as 60 percent of the country is classified as semi-arid to arid. The

droughts of 2000-2002 are estimated to have cost economic losses of about $ 2.5 billion. The country does not have a

very high risk to cyclones; however fourteen cyclones have been recorded between 1971 and 2001 which have caused

a certain amount of damage.

Pakistan is impacted by both manmade and natural disasters. The types of disasters that occurred from 1954-2004

and the frequency of the occurrence of the most common disasters are listed in Table 1.

However, the incidence of disaster events is not necessarily correlated with the loss of human life, the number of people

impacted and/or the monetary damages inflicted by the disasters. To that end, efforts have been made to estimate the

number of people who were killed and/or affected by many of the most significant disasters and their corresponding

monetary damages over the years 1926-2006 (Table 2). These estimates illustrate the severity of the problem posed

by disasters. However, some experts believe the true financial cost of disasters over the past 50 years comes close to

$50 billion—far more than the combined estimates in the table below. In particular, the monetary estimate for earthquake

damage is a gross underestimate of the true costs since the devastating Azad Jammu and Kashmir and the NWFP

earthquake in 2005 will require an estimated $5.2 billion for reconstruction. This represents slightly more than 25

percent of Pakistan’s entire national budget.

PAKISTAN / 273

Table 1. Hazards in Pakistan and Frequency of Most Significant Hazards: 1954 - 2004

Natural

Avalanches

Cyclones (Storms)

Droughts

Earthquakes

Epidemics

Floods

Glacial Lake Outbursts

Landslides

Pest Attacks

River Erosion

Tsunami

Extreme Temp.

Frequency (%)

Human-Induced

Epidemics

Industrial/Transport Accidents

Nuclear Accidents

Radiological Accidents

Oil Spills

Urban and Forest fires

Civil Conflicts

Source: Disaster Risk Management, TWG Working Group Meeting, United Nations, May 17, 2007.

Frequency (%)

Table 2. Estimated Number of People Impacted and Killed and the Financial Losses Associated

with Various Selected Disasters: 1926-2006

Disasters

Drought

Earthquake

Epidemic

Extreme

Flood

Landslides

Windstorms

Transport

Number of Events

Killed

223

142,812

283

1,406

11,767

413

11,654

420

Frequency (%)

2,269,300

4,236,110

16,486

574

47,600,694

3,419

950,313

18,395

Source: Disaster Risk Management, TWG Working Group Meeting, United Nations, May 17, 2007.

Damage (Millions

U.S. $)

247

5200

2500-6000

179

Some Underlying Risk Factors

There are a number of underlying risk factors that increase vulnerability and contribute to the severity of disasters in

Pakistan. These include:

• Poor construction practices and limited enforcement of existing building codes

• Weak early warning systems

• Lack of awareness and education on disasters and response

• Limited capacity and coordination between various government disaster response agencies

• Disaster susceptibility of large number of impoverished communities

Exposure and Vulnerability

Disasters are unevenly distributed among Pakistan’s 139 districts as a result of at least some of the factors listed above

(Table 3). Districts are distributed across Pakistan as follows: Punjab Province (35), Baluchistan Province (29), Sindh

274 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Province (23) Northwest Frontier Province (NWFP) (24), Islamabad (ICT) (1), Federally Administered Tribal Areas (FATA)

(13), Azad Jammu and Kashmir (AJK) (8) and the Northern Areas (6). However, the table below illustrates that several

areas and provinces suffer a disproportionate share of either very high or high risk disasters or both. In particular, in the

Northern Areas 33 percent of the districts face a very high risk of disasters while none of the districts in Punjab Province

face a very high risk for disasters. This is particularly noteworthy since Punjab Province is the wealthiest province in

Pakistan while the people who live in the Northern Areas are among the poorest. Clearly there is some relationship

between economic prosperity and the incidence of disasters. In total, 50 percent of the provinces in the Northern Areas

face either a high or very high risk of disasters followed by 30 percent of the districts in Baluchistan and only 3 percent in

Punjab Province. The provinces and regions also face a wide range of different disaster threats. For example, southern

Punjab is mostly impacted by the threat of droughts and flooding, Baluchistan is confronted by the risk of drought,

earthquakes and flash floods, Sindh province is faced with the possibility of drought and floods, while the NWFP is faced

with earthquakes, landslides, avalanches and glacial lake flooding.1

Table 3. Percentage of Districts in Each Province or Area Potentially Impacted

by Very High or High Risk Disasters

Province/Area

Baluchistan

NWFP

Northern Areas

AJK

Sindh

Punjab

Very High Risk (%)

High Risk (%)

Based on: Disaster Risk Management, TWG Working Group Meeting, United Nations, May 17, 2007.

Total (%)

Floods

Pakistan is one of the most flood prone countries in South Asia. River related floods are the most severe in Punjab and

Sindh provinces while hill torrents that are common in hilly terrain tend to affect NWFP, Baluchistan and the Northern

Areas. There have been a number of floods in Pakistan that caused a significant amount of damage, particularly during

1950, 1992 and 1998 which resulted in a large number of deaths and a severe loss of property valued at an estimated

$1.3 billion. Most of the flooding occurs in late summer during the monsoon season but flooding can also occur as the

result of glacial lakes breaking (termed GLOF) that are caused by high summer temperatures. In 2007 monsoon rain

induced flooding damaged the rice crop in Sindh and Baluchistan provinces and reduced production by as much as 200

thousand tons—which equals approximately 3.5 percent of the crop. Since rice is a high value crop the loss will have a

significant impact on the farm value added in the agriculture sector and lead to a reduction in export earnings.

Earthquakes

The earthquakes in Pakistan are primarily related to the fact that the country along with India and Nepal lies on the

Indo-Australian Plate. The plate is continuously moving northward and colliding with the Eurasian plate which formed

the Himalayan Mountains. As part of this process the release of energy results in earthquakes. In addition, there are a

number of fault lines in various parts of Pakistan due to the stresses resulting from the movement of the Indo-Australian

plate which also cause earthquakes. The Koh-e-Sulieman, Hindu Kush and Korakuram mountain ranges are particularly

vulnerable and the resulting devastation can be immense because of the poor construction of the buildings. In 1935, the

entire city of Quetta—a city that now has a population of approximately 1 million in Baluchistan, was entirely destroyed

and as many as 30 thousand people were killed. Five years earlier Quetta had also been destroyed by an earthquake.

Prior to the October 8, 2005 earthquake in Azad Jammu and Kashmir and the NWFP there were other large destructive

1 Based on National Disaster Management Authority (NDMA) Communications

PAKISTAN / 275

earthquakes in 1974 and 1990 in which approximately 5669 people were killed in the Northern Areas, NWFP and

Baluchistan. In February 2004, an earthquake in the NWFP killed 24 people and impacted another 129 thousand.2

Drought

Pakistan is characterized by low rainfall, extreme temperature variations and as much as 60 percent of the country is

classified as semi-arid to arid. Nearly all of Baluchistan province is arid—although its rainfall distribution ranges from

a low of 50 mm in the SW to 400 mm in the NE. Arid regions receive less than 200 mm of rain per annum, while in

comparison, Punjab province annually receives an average of 400 mm of rainfall while the NWFP receives an average of

630 mm of rainfall. Given the precarious nature of rainfall even a slight deviation can result in drought conditions. The

most susceptible regions experience a drought 2 or 3 years every decade. Droughts were so severe in 2000 and 2002

that the livelihoods of people were destroyed, thousands of people were forced to migrate and millions of livestock were

killed. By one estimate, 15 million cattle died and the drought caused overall economic losses of $2.5 billion. The 2001

drought was so severe that the economic growth rate was reduced from an average of 6 percent to only 2.6 percent.3

Windstorms/Cyclones:

Cyclones cause significant damage in the coastal areas of Sindh and Baluchistan provinces. The low-lying coastal belt

allows storms to travel several hundred kilometers inland and along the way destroy crops, agricultural productivity by

creating water-logging and settlements. Fourteen cyclones have been recorded between 1971 and 2001. A 1999

cyclone in the Thatta and Badin districts of Sindh province destroyed 73 settlements, killed 168 people, impacted .6

million people, and killed 11 thousand cattle. The estimated economic losses amounted to $12.5 million.4

Global Warming & Climate Change:

Policy makers in Pakistan are quite concerned about the potential problems associated with global warming. They

have observed that over the past decade weather patterns have changed for the worse resulting in more storms, longer

droughts and most significantly that the glaciers, which form the core of the headwaters of the Indus River Basin, are

receding at a rapid pace. By some estimates the glaciers are retreating by as much as 400 meters per year and if the

glaciers vanish the immediate release of water will result in even more flash flooding. Even though Pakistan’s dams

in combination with recharged groundwater along the path of the Indus River canal system are capable of storing a

significant amount of water, they would fall far short of storing sufficient water to meet Pakistan’s needs for irrigation,

2 WCDR, A Review of Disaster Management Policies and Systems in Pakistan, January, 2005.

3National Disaster Risk Management Framework (NDRMF), 2007

4NDMA, Disaster Risk Management Thematic Working Group, March, 2007.

276 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

drinking and power generation. In the short-term, there will likely be increased droughts and flooding, the agricultural

sector will need by changing crops and cropping patterns, biodiversity will be adversely impacted and the composition of

forests will change. In addition, the flow of irrigation water will become less predictable and power generation by existing

facilities will likely be somewhat reduced.5 Over the long term, if temperatures increase by just a few degrees above the

current average temperature, which has already, increased by 1.4 degree Celsius above the historical average6, it will

be necessary to radically retool some sectors of the economy such as agriculture and power generation. If retooling is

impossible either because of a lack of resources, political will and/or technology the resulting disaster could be far worse

than anything Pakistan has experienced to date.

2. DISASTER RISK MANAGEMENT FRAMEWORK

National Disaster Risk Management Policy

The massive October 2005 earthquake that hit northern Pakistan highlighted the country’s high vulnerability to disaster

risks. Since then the Government of Pakistan has been making concerted efforts towards establishing a comprehensive

disaster management regime. This has essentially involved a strategic shift from the previous reactive to a proactive

approach; and the setting up of an integrated management structure that links the vital functions of preparedness/risk

reduction, and early disaster recovery to longer term reconstruction and rehabilitation. The National Disaster Management

Authority (NDMA) has been established and operationalized.

The NDMA is the apex coordinating agency for disaster risk reduction at the national level, which along with the Earthquake

Reconstruction and Rehabilitation Authority (ERRA) and other agencies, is responsible for the various aspects of

disaster management from early recovery to post-disaster reconstruction. The NDMA effectively serves as a secretariat

to the National Disaster Management Commission (NDMC) chaired by the Prime Minister with representatives from

various federal ministries and provincial governments. The NDMA is tasked with the broad overall regulation of the

disaster management structures and functions in the country, along with the provincial and district disaster management

authorities, tehsil and town authorities, and union council set-ups down to community based organizations.

Disaster response in Pakistan has historically been governed and regulated under the Calamity Act of 1958, recently

replaced by the National Disaster Management Ordinance (NDMO) 2006. The NDMO provides the institutional and

regulatory framework for the functioning of the overall national disaster management regime, including all federal,

provincial, and local government institutions tasked with disaster management responsibilities.

The NDMA has in turn, through a multi-stakeholder consultative process, recently developed a National Disaster Risk

Management Framework (NDRMF), which has been approved by the Government of Pakistan and constitutes the

agreed national policy document on disaster risk reduction (DRR). The mandate of the NDRMF is comprehensive,

including DRR in all relevant sectors of the economy. It calls for the integration of risk assessment in the planning and

design stages of all new infrastructure projects, and holds the promotion of multi-stakeholder, multi-sectoral, and multi-

disciplinary approaches in disaster risk reduction as its foremost policy principle.

Historically, the Government has pursued DRR in the developmental agendas for some of the key sectors, including

flood protection and management programs covering irrigation, agriculture, and road infrastructure. Such programs

have mostly been designed and executed by federal and provincial agencies including the Flood Relief Commissions

and related line departments. However, with the enactment of the NDRMF, the scope of DRR has been expanded to

cover developmental planning for all sectors of the economy. Promoting disaster risk management planning across

multiple sectors figures high in the list of 5-year priorities set out by the NDRMF, including preparation of disaster risk

5 Pakistan Agricultutral Research Council Estimates and Analysis

6National Disaster Risk Management Framework (NDRMF), 2007

PAKISTAN / 277

management plans of selected line ministries over the next 2-3 years. The NDRMF is considered as the national strategy

document on DRM.

The NDRMF also accords high priority to proactive reduction of the enhanced disaster risks related to the global climate

change phenomenon. It builds on the analytical work and studies carried out by various national and international

agencies on the already visible impacts of climate change on the natural and ecological resources of the country. It

concludes that climate change together with environmental degradation are likely to result in an enhanced frequency

of natural disasters in Pakistan, as well as amplify the social, economic, and environmental impacts created by such

disasters. In response to this situation assessment the NDRMF, while laying out disaster management priorities for

the next 5 years, includes a composite national hazard and vulnerability assessment (Being funded by the Bank) in the

first program year, followed by a detailed study on the impacts of climate change on glaciers and ice cap in Northern

Pakistan in a 2-3 year time horizon. The NDRMF climate change risk mitigation strategy is attuned with mitigation

measures proposed under various international conventions, including the Framework Convention on Climate Changes

(UN FCC) - 1992, the Vienna Convention for the Protection of Ozone Layer and the Montreal Convention - 1992, and

the all-encompassing Hyogo Framework for Action 2005-15.

The Government has also recently instituted a National Working Group (NWG) on Disaster Risk Management led

by The National Disaster Management Authority (NDMA) which includes key government ministries and donors such

as The World Bank as members with the mandate of integrating and mainstreaming Disaster Risk Management in

planning processes / development agenda and overall coordination with different stakeholders. In addition to these

government mechanisms the donor community in Pakistan, with the Bank in the lead have created a coordination

mechanism between donors known as the G-7 which discusses national DRM issues and coordinates suitable

interventions. NDMA recently conducted a meeting with key government agencies and donors including the Bank

under the NWG and presented an immediate / short term 10 point action plan based on the NDRMF. Under this short

term action plan the following activities were identified for immediate implementation in line with the NDRMF:

i. National Capacity Building in Disaster Risk Management (NCBDRM) including design and construction of a

National Institute of Disaster Management (NIDM)

ii. Establishment of National & Provincial Emergency Operation Centers (NEOCs & PEOCs)

iii. Operationalization of Provincial and District Disaster Management Agencies (PDMAs & DDMAs)

iv. Capacity Building of Urban Emergency Response Services including capacity assessments and required

trainings

v. Education, Training and Awareness in Disaster Risk Management (DRM)

vi. Mainstreaming DRM in the Development Agenda through enhancing capacity of Planning Commission of

Pakistan

vii. Disaster Mitigation and Climate Change Initiatives related to earthquake flood and GLOF including studies and

assessments

viii. Formation of Mobile Response Teams for immediate disaster response, recovery and coordination

ix. Improving Early Warning Capacity through Enhancement of Organizational Capacity and System Resources of

Key Agencies such as Pakistan Metrological Department

x. Conduct of a National Risk Assessment and Development of a Risk Atlas of Pakistan

NDMA is particularly fast tracking the national risk assessment exercise which is under way with Bank support so that

278 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

the overall risk environment could be better defined. This would subsequently be followed by a micro level hazard risk

and exposure mapping of the identified hot spots which would lead to suitable mitigation investments. Some mitigation

investments have already taken place in the housing sector through Bank support in the case of the earthquake affected

areas where about 350, 000 earthquake resistant houses have been constructed. NDMA is also focusing on improving

early warning and response capacity as a priority and is undertaking activities such as inundation profiling of vulnerable

coastal communities and strengthening the existing flood forecasting / telemetry network. National Emergency Operations

Centre operationalization and formulation of necessary protocols is also an activity being undertaken by Bank support

which will improve the Government’s disaster response capacity.

The Government is in the process of establishing the National Institute of Disaster Management (NIDM) for which land

has already been allocated. This would act as a platform for promoting disaster management education in the country.

Currently the Government frequently conducts DRM trainings, seminars work shops and other events, particularly on

October 8 which has been declared as National Disaster Awareness Day.

3. INTEGRATION OF DRM IN DEVELOPMENT STRATEGIES

The NDRMF, as the overarching framework for DRR in the country, seeks to build and strengthen linkages with all

applicable national and international protocols and sectoral developmental policies. At the national level, these include

the Poverty Reduction Strategy Paper (PRSP), Medium Term Development Framework 2006-10, Ten Year Perspective

Development Plan 2001-11, Agricultural Perspective and Policy, National Conservation Strategy, National Environment

Action Plan - 2001, National Environment Policy - 2005 and the Draft National Water Policy - 2006.

Pakistan’s PRSP recognizes that achieving sustained economic growth for poverty reduction would require enhancing

the country’s environmental sustainability, since the poor are mostly dependant on natural resources for their livelihoods

as well as most affected by environmental degradation. Thus it identifies the linkage between environment and

vulnerability as the key, noting that the poor are particularly vulnerable to environmental disasters. It then commits to

providing sustained protection to vulnerable communities from natural disasters, particularly those triggered or catalyzed

by environmental degradation. However, the current PRSP falls short of fully taking cognizance of the important role of

broader DRR as a tool for reducing poverty through a reduction in the vulnerability of the poor to natural shocks. But with

the NDMA, NDRMF and a NWG now in place, efforts are underway to mainstream DRR as a vital component of the

broader poverty reduction / sustained development agenda and strategy.

Another recent development is the drafting of a revised multi-disaster risk responsive National Building Code, that will

help reduce the vulnerability of public, private, and commercial buildings to seismic and other disaster risks. The code

will be applicable to both urban and rural areas, although enforcement of the code would pose a significant challenge,

and require requisite capacity and skills of the concerned agencies for proper implementation. Under the NDRMF, the

development of a strategy for implementation of the Building Code is a priority over a 2-year horizon.

Pakistan CAS: Support for Hazard Risk Management and Disaster Risk Reduction

The Bank’s current Country Assistance Strategy (CAS) for Pakistan is committed to supporting the government in the

development of a comprehensive hazard risk management strategy for Pakistan, through dialogue, advisory activities, and

technical assistance. CAS support for more effective hazard risk management and disaster risk reduction in the country

is premised on: (a) the high and recurring fiscal costs of post-disaster reconstruction, as in case of the 2005 earthquake

as well as recurrent floods, and its adverse impacts on public sector development budget/activities; and (b) supporting

GOP’s poverty reduction strategy which provides for targeting and reducing vulnerabilities of the poor and marginalized

PAKISTAN / 279

sections of the population. (c) Pakistan’s adhoc approach towards disaster management with interventions primarily

focused on relief and recovery with insufficient ex-ante measures. Therefore a major portion of traditional post-disaster

spending in Pakistan was aimed at providing direct monetary assistance to affected people. But such subsidies are

untenable from a sustainability perspective and severely tax routine developmental spending. The CAS while highlighting

Pakistan’s susceptibility to natural disasters and its amplified impact based on mortality and economic risks induced by

such hazards supports development of hazard prevention / mitigation strategies, development of a strategic approach to

hazard risk management and building in-country capacity for effective implementation of these strategies.

The New CAS (2010-2014) which is currently being drafted and is at the concept note stage also supports the outcome

for improvement in Pakistan’s disaster risk management capacity under the sustainable development strategic pillar.

It outlines Pakistan’s vulnerability to various types of disasters and the paradigm shift in moving from a predominantly

reactive approach to a more pro-active approach. While the CAS acknowledges the work being done for promotion

of effective disaster management in the country it also underlines the various challenges such as a general lack of

awareness and the limited in-country technical capacity in DRM. The current state of the DRM systems and response

mechanisms are also highlighted as they are still in the process of being outlined and operationalized, while the national

risk environment in terms of multiple disasters is yet to be fully defined. The CAS also presents the current and ongoing

activities and some of the broad planned interventions by the Bank in order to support effective DRM in the country.

Bank’s Disaster Risk Management Country Strategy

The Bank’s country disaster risk management strategy is based on a 5 pillar approach. The 5 pillars include Risk

Identification and Assessment, Risk Mitigation, Emergency Preparedness, Catastrophe Risk Financing or Transfer and

Institutional Capacity Building. The various activities being initiated and undertaken by the Bank on DRM correspond

to this approach and have been planned / staggered using the strategic framework as well as the national priorities

identified through the NDRMF. The Bank’s ongoing projects such as the Earthquake Emergency recovery Credit (ERC)

and various activities under it support Pillar I, II, III and V of the DRM Country strategy through macro level hazard mapping

exercise of earthquake affected districts, structural mitigation through seismic resistant reconstruction as well as building

capacity of the government for effective disaster response and better coordination. Additional critical activities have been

undertaken by making some ERC funds available to NDMA for undertaking a national level hazard risk assessment and

operationalization of National Emergency Operations Centre which support Pillars I and III respectively. The Bank has

also leveraged funds through other donors / sources such as inundation profiling exercise of cyclone affected districts

of Baluchistan with UNDP assistance in line with strategy Pillar II while GFDRR ongoing activities on earthquake results

documentation and lessons learnt as well as post disaster cash transfers support pillars III and V. Another GFDRR

proposal on catastrophe risk financing which supports Pillar IV is under preparation. The activities under the current

proposal are also in line with the Bank’s Country’s DRM strategy under the 5 pillar approach as well as the national

priority areas identified through the NDRMF.

4. KEY DONOR ENGAGEMENTS

There has been an active donor consultation process in Pakistan ever since the 2005 earthquake disaster struck the

country. These consultations include both multi-donor consultations as well as multi-stakeholder consultations, including

the Government of Pakistan. In the aftermath of the earthquake donors formed a consultative group known as the G-77.

The group periodically met to discuss issues and collective strategies on how to deal with the disaster. Recently the

group became more involved in overall disaster management issues in the country. The G-7 regularly holds internal

meetings and then meets with the concerned government agencies such as Earthquake Reconstruction Rehabilitation

7 The Group consists of the WB, ADB, EC, USAID, UN, DFID and Embassy of Japan

280 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Authority (ERRA) and the National Disaster Management Authority (NDMA). The key donor engagement table is based

on the Country DRM Matrix which was developed after extensive consultations between all leading donors, G-7 members

and the Government of Pakistan. All current and ongoing activities in DRM are listed in the table below while for planned

activities please refer to Annex 1. It is apparent from both the table and the annex that there is quite a large need in the

DRM sector while the realized commitments are a small percentage of the overall need.

Ongoing Projects and Organizations

The World Bank

ERRA DRM Program

DRM Support Program to NDMA

Activities funded through GFDRR

DFID

Disease Early warning System (DEWS)

Joint Protection Monitoring System

DRR Conference

Urban Search & Rescue Project

Indicative budget

(where available,

details on years

covered)

$ 2.9 million

$ 4 million

UK£ 1.848 million

UK£ 152,567

UK£25,000

UK£ 1.5 million

HFA activity area(s)

HFA Priority 1: Ensure that Disaster Risk Reduction is a

National and Local Priority with a strong institutional basis

for implementation

HFA Priority 2: Identify, Assess and Monitor Disaster

Risks and Enhance Early Warning

HFA Priority 3: Use Knowledge, Innovation and

Education to Build a Culture of Safety and Resilience at All

Levels

HFA Priority 4: Reduce the underlying risk factors

HFA Priority 5: Strengthened Disaster Preparedness for

Effective Response at All Levels

HFA Priority 2: Identify, Assess and Monitor Disaster

Risks and Enhance Early Warning

HFA Priority 3: Use Knowledge, Innovation and

Education to Build a Culture of Safety and Resilience at All

Levels

HFA Priority 4: Reduce the underlying risk factors

United Nations: (UN joint Program)

Only about 10 % of the under-mentioned

funding is expected to be immediately

mobilized under following activities of the UN

Joint Program which have commenced

National Capacity Building for Disaster Risk

Management (NCBDRM)

Institutional Strengthening

$ 46.5 Million

$ 60,000

HFA Priority 1: Ensure that Disaster Risk Reduction is a

National and Local Priority with a strong institutional basis

for implementation

PAKISTAN / 281

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Ongoing GFDRR funded

activities (years covered)

Documentation & Dissemination

of Results and Lessons Learnt in

the Rural Housing Reconstruction

Response to the 2005 Pakistan

Earthquake

Ongoing GFDRR Funded Activities

Partnerships

NDMA, ERRA and

UN-Habitat

Budget

and years

covered

$ 250,000

HFA activity area(s)

HFA Priority 3: Use Knowledge, Innovation

and Education to Build a Culture of Safety and

Resilience at All Levels

Building capacity to effectively

deliver Safety Nets in post-disaster

situations in Pakistan

Pakistan Baitul

Maal and Ministry

of Social Welfare

$ 250,000

HFA Priority 4: Reduce the underlying risk

factors

Indicative New Program Areas and Projects for GFDRR Funding

Indicative new program areas

and projects for GFDRR funding

Development of public-private

sector collaborative forums and

partnerships on DRR

Partnerships

NDMA, relevant

Line Ministries and

Private / Corporate

Sector

Study and strengthen existing

forecasting and early warning

systems for hydro metrological

events in high risk areas

Disaster Risk Assessment and Risk-

based Microzonation of One Major

City and in One Medium Industrial

City

NDMA, Federal

Flood Commission

(FFC) and Pakistan

Metrological

Department (PMD)

and WFP

NDMA, City

Government,

PDMA and UN-

Habitat

International Exposure Visits for

Government Officials & Bank staff

in DRR

NDMA, ERRA and

Line Ministries

Indicative

budget

for GFDRR

funding

and years

covered

$200,000

2 years

$ 1,000,000

3 years

$ 1,000,000

3years

$ 300,000

1 year

HFA activity area(s)

HFA Priority 1: Ensure that Disaster Risk

Reduction is a National and Local Priority with a

strong institutional basis for implementation

[Sub Priority: Support the creation and

strengthening of national integrated disaster

risk reduction mechanisms such as multi-

sectoral national platforms]

HFA Priority 3: Use Knowledge, Innovation

and Education to Build a Culture of Safety and

Resilience at All Levels &

HFA Priority 4: Reduce the underlying risk

factors through improved building safety and

protection of critical facilities

HFA Priority 2: Identify, Assess and Monitor

Disaster Risks and Enhance Early Warning

HFA Priority 2: Identify, Assess and Monitor

Disaster Risks and Enhance Early Warning

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

HFA Priority 3: Use Knowledge, Innovation

and Education to Build a Culture of Safety and

Resilience at All Levels

(Cont.)

282 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Indicative new program areas

and projects for GFDRR funding

Development and implementation of

a school safety program

Partnerships

NDMA, ERRA,

Ministry of

Education and

UNESCO

Analytical work towards identification

of potential disaster risk insurance

options and development of a

strategy for catastrophe risk

financing mechanisms and solutions.

NDMA, Ministry

of Finance, SECP,

Adamjee Insurance,

KASHF Foundation

/ Bank, RSPN and

PPAF

Technical assistance in development

of a national action plan on climate

change for Pakistan

NDMA, Ministry

of Environment

and Planning

Commission

Capacity and skill gap assessment

of urban emergency services and

subsequent training to enhance

emergency response capability in

one large/medium/small city/s.

NDMA, Urban

Fire and Rescue

Services and

Planning

Commission

Human Resource Capacity

Development through creation of a

DRM / GFDRR Focal Point position

in the Pakistan Country Office to

facilitate mainstreaming and better

coordination of all DRM related

activities with donors and all national

/ international DRM platforms

Technical Assistance and hardware

support for Operationalization of

the National Emergency Operations

Centre

NDMA, UN and

other donors

NDMA & JICA

Indicative

budget

for GFDRR

funding

and years

covered

$ 1,000,000

3 years

$ 300,000

2 years

$ 200,000

2 years

$ 400,000

3 years

$ 100,000

2 years

$ 500,000

3 years

HFA activity area(s)

HFA Priority 3: Use Knowledge, Innovation

and Education to Build a Culture of Safety and

Resilience at All Levels

HFA Priority 4: Reduce the underlying risk

factors through improved building safety and

protection of critical facilities

HFA Priority 4: Reduce the underlying risk

factors [ Sub Priority: Promote the development

of financial risk sharing mechanisms, particularly

insurance and reinsurance against disasters]

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

HFA Priority 4: Reduce the underlying risk

factors [Sub Priority: 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]

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

HFA Priority 1: Ensure that Disaster Risk

Reduction is a National and Local Priority with a

strong institutional basis for implementation

HFA Priority 3: Use Knowledge, Innovation

and Education to Build a Culture of Safety and

Resilience at All Levels

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

HFA Priority 1: Ensure that Disaster Risk

Reduction is a National and Local Priority with a

strong institutional basis for implementation

[Sub Priority ii - Resources]

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

HFA Priority 1: Ensure that Disaster Risk

Reduction is a National and Local Priority with a

strong institutional basis for implementation

HFA Priority 2: Identify, Assess and Monitor

Disaster Risks and Enhance Early Warning

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

(Cont.)

PAKISTAN / 283

Indicative new program areas

and projects for GFDRR funding

Partnerships

Indicative

budget

for GFDRR

funding

and years

covered

HFA activity area(s)

Technical Assistance and hardware

support for operationalization of

selected Provincial / District Disaster

Management Agencies

NDMA & UN

$ 500,000

3 years

HFA Priority 1: Ensure that Disaster Risk

Reduction is a National and Local Priority with a

strong institutional basis for implementation

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

Program of Rapid Emergency

Preparedness, Assessment and

Response Execution (PREPARE)

NDMA, Ministry of

Health & WHO

$ 400,000

3 years

HFA Priority 2: Identify, Assess and Monitor

Disaster Risks and Enhance Early Warning

HFA Priority 5: Strengthened Disaster

Preparedness for Effective Response at All

Levels

Institutionalization of Damage and

Needs Assessment Methodology

and Expertise in Pakistan

NDMA & Relevant

Line Ministries /

Departments /

Agencies

$ 100,000

3 years

Total Indicative Budget:

$ 6.0 Million

284 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

ANNEX 1

Ongoing Projects and Organizations

European Commission

1. NWFP & Baluchistan Program (Program

areas to be determined)

JICA

1. Technical Assistance in Development of

design of National Institute of Disaster

Management (NIDM)

2. Technical Cooperation in capacity

development of NDMA & PDMA & District

Governments

3. Up-gradation and Modernization of

Weather Forecasting and Early Warning

System

4. Flood/Disaster Protection Works

5. The Project for Strengthening of Flood

Risk Management

United Nations: (UN joint Program)

1. DRM Training Initiative

2. Support to DRM Planning

3. DRR Mainstreaming into Development

Process

4. Earthquake Vulnerability Reduction

and Preparedness Programme for

Muzaffarabad and Mansehra Municipalities

5. Capacity Building of DDMAs and

Community based Mitigation in Badin,

Thatta, Kech, and Quetta

6. Glacial Lake Outburst Flood (GLOF) Risk

Reduction in the HKH Region - Pakistan

7. Program for Enhancement of Emergency

Response (PEER)

8. Urban Search and Rescue Project

9. Strengthening Tsunami Early Warning

System in Pakistan

10. Integration of Seismic Resistant Design

and Construction Elements in Diploma in

Associate Engineering Curricula

Indicative budget

(where available,

details on years

covered)

Euro 30 million

HFA activity area(s)

To be determined

HFA Priority 2: Identify, Assess and Monitor Disaster

Risks and Enhance Early Warning

HFA Priority 5: Strengthened Disaster Preparedness

for Effective Response at All Levels

To be determined

Only about 10 % of

the under-mentioned

funding is expected

to be immediately

mobilized under UN

Joint Program

$ 94,000

$ 50,000

$ 80,000

$ 760,000

HFA Priority 1: Ensure that Disaster Risk Reduction is

a National and Local Priority with a strong institutional

basis for implementation

HFA Priority 2: Identify, Assess and Monitor Disaster

Risks and Enhance Early Warning

HFA Priority 3: Use Knowledge, Innovation and

Education to Build a Culture of Safety and Resilience at

All Levels

HFA Priority 4: Reduce the underlying risk factors

$ 370,000

$ 150,000

HFA Priority 5: Strengthened Disaster Preparedness

for Effective Response at All Levels

8.4 Million

$ 340,000

$ 600,000

$ 47,000

SRI LANKA

sri lanka / 285

To prepare the Country DRM Note, consultations were undertaken with members of the World Bank’s Sri Lanka Country

team. Meetings were held with the Ministry of Disaster Management & Human Rights (MoDMHR) and with the three

departments contained within the ministry—Disaster Management Centre (DMC), the National Building Research

Organization (NBRO) and the Sri Lanka Meteorological Department (Met). The team also met with the Ministry of Disaster

Relief and Resettlement, Ministry of Nation Building & Estate Infrastructure Development and Ministry of Education. In

addition, the team discussed the proposed GFDRR grant funding proposal with bilateral agencies and other relevant

stakeholders including the UNDP, UN OCHA, WHO, GTZ and JICA.

The matrix of priority areas and actions for DRM and estimated budget allocations were discussed and cleared at a

debriefing meeting held on May 6, 2009 with participation of stakeholders from Government, donors, and NGOs. There

is strong support and ownership and endorsement by the MoDMHR for the matrix of priority areas and actions.

1. disaster risk profile

Sri Lanka is an island country located in the Indian Ocean in the equatorial zone. The principle topographic feature is an

anchor-shaped mountain massif in the south-central part of the island, thus creating three zones, the central highlands,

the plains and the coastal belt. With a population of more than 19 million people within a total area of 65,000 sq. km.,

the country has a densely populated coastal belt.

The most frequent natural hazards that affect Sri Lanka are droughts, floods, landslides, cyclones and coastal erosion.

Tsunamis are infrequent but the 2004 Asian Tsunami caused severe damage.

% Population Affected

by Disaster Type1

Others

Cyclone/

Trop. Storms

10%

Floods

54%

Drought

31%%

Relief Distribution (1974-2007)2

(1000s USD)

12000

10000

8000

6000

4000

2000

Drought

Floods

Cyclone/

Trop. Storms

Landslides

Others

Over the past 30 years floods have affected more than 10 million people while droughts have affected more than 6 million.

During the last two decades, the severity of landslides has increased in the highland regions through a combination of

heavy rains, geological changes in the hill country and human activity including indiscriminate clearance of steep slopes.

1 EM-DAT: OFDA/CRED International Disaster Database, catholic university of Louvain, Brussels, Belgium, www.emdat.net

2 Historical Disaster Information System in Sri Lanka, Desinventar Disaster Inventory database, 2007

3 World Bank, Natural Disaster Risks in Sri Lanka: Mapping Hazards and Risk Hotspots, DRM Series No. 6, 2006

286 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Cyclones affect the northern region of the country and though historically, their severity has been comparatively mild,

increasing climatic changes could result in increased frequency and magnitude of cyclones and all other climate-related

disasters. The 2004 tsunami claimed more than 39,000 lives in Sri Lanka. Historically, though the risk of earthquakes

has been relatively mild, recent understanding of the tectonics of the Indian Ocean region points to an increasing risk of

earthquakes.3

Exposure and Vulnerability

The south-west monsoons (May to September) cause severe flooding in the western and south-western provinces while

the north-east monsoon (December – February) causes flooding in the eastern, northern and north-central provinces.

Though Sri Lanka receives an average of 1,800 mm of rainfall annually, it is distributed unevenly both spatially and

temporally. Therefore, a large part of the island is drought prone from February to April and, if the subsidiary rainy season

from May to June is deficient, drought may continue into September.

Landslides, in Sri Lanka, are caused by a combination of natural and human-induced triggers. The districts of Badulla,

Nuwara Eliya, Ratnapura, Kegalle, Kalutara, Kandy and Matale are the most prone to landslides. The eastern and north-

eastern parts of Sri Lanka are highly vulnerable to cyclones especially in the months of November and December. The

effects of coastal erosion are largely felt in the west, south-west and southern coastal belt. About 50% of Sri Lanka’s

population lives in villages and towns in the coastal areas. Coastal erosion severely affects infrastructure facilities and

economic activities along the coast4.

No. of People affected by District

(1974 – 2007)

Upper

Limit

–

63555

221740

388297

1041128

2036295

Color

Frequency of Disaster Events (all) by District

(1974 – 2007)

Upper

Limit

–

376

899

1001

1281

1836

Color

4 Towards a Safer Sri Lanka: Road Map for Disaster Risk Management, Ministry of Disaster Management, 2005

sri lanka / 287

Colombo, Kalutara and Gampaha are the most populated districts in Sri Lanka. Unplanned patterns of human settlement,

development and land use have resulted in severe encroachments into flood plains and unstable slopes, further

exacerbating the risks of disasters. A poverty level of 23% and a substantial number conflict related internally displaced

people (IDPs) add to peoples’ vulnerability to disasters.

2. disaster risk management framework

In the immediate aftermath of the Tsunami, a Select Committee established by the Sri Lankan Parliament investigated

the country’s preparedness to meet emergencies and to recommend steps to be taken to minimize the damage caused

by similar natural disasters. Based on the Select Committee’s Recommendations5, the Sri Lanka Disaster Management

(DM) Act, No. 13 of 2005 was enacted in May 2005. The National Council for Disaster Management (NCDM) was

established as the national body for disaster risk management coordination and monitoring in Sri Lanka as per the DM

Act. The Ministry of Disaster Management & Human Rights as the leading Ministry and the Disaster Management Center

(DMC) as the executing agency for disaster risk management (DRM) were established in implementing the directives of

NCDM.

One of the important outcomes of this institutional development process is that the DMC became the national level

nodal agency to formulate national and local level disaster risk management programs and to align them with sector

development programs. DMC is primarily responsible for managing the risk management process: disaster risk mitigation

Ministers in charge

National Council for Disaster Management

Ministers in charge

Social Services

FLADA (under the

Presidential Secretariat)

Home Affairs

Health

Science and Technology

National Council for Disaster

Management

Chair Person: H.E. President

Vice Chairman:

Hon. Prime Minister

Opposition Leader

Housing

Coast Conservation

Irrigation

Power

Chief

Ministers

Chief

Ministers

Ministry of Disaster Management

and Human Rights

Defense

DMC

5Sri Lanka Parliament Select Committee Report on Natural Disasters, August 2005

Police

Finance

Land

Fisheries and

Aquatic Resources

Foreign Affairs

Water Supply

Highways

Urban Development

Education

Environment

288 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

policies and plans – damage assessments – rescue and relief operations – rehabilitation and reconstruction as part of the

recovery programs in coordination with other line departments. The DMC is also the nodal agency to coordinate disaster

management initiatives with Non Government Organizations for achieving timely, effective and efficient management of

the resources during the emergency and reconstruction operations.

The Sri Lanka DRM framework is based on two critical aspects of managing risk reduction and mitigation and streamlining

the roles and responsibilities of DMC.

Risk Management: This component entails the following priority activities:

• Preparedness, Planning Emergency Response and Recovery, which would entail activities such as: Formulation of

DRM Strategies, identification of various risks and formulation of mitigation interventions; and

• Risk Evaluation: This requires the improvement of broad stakeholder capacity to receive timely early warning

messages, act proactively and respond effectively when warnings are provided. Risk communication is an

important component of the risk evaluation and mitigation process.

Early Warning Systems: One of the main responsibilities of the DMC is to capture risk and hazard early warning information,

evaluate the intensity of the risks and communicate them to the various stakeholders through effective communication

and early warning mechanisms. A mechanism for monitoring and evaluation, which includes agreement on specific, risk

reduction indicators and means of gathering information, delivering the early warnings and guide evacuation of people

from the risk prone is being streamlined.

Disaster Risk Management Mechanism

sri lanka / 289

3. activities under the hyogo framework of action

HFA Priority # 1: Ensure that disaster risk reduction is a national and a local priority with a

strong institutional basis for implementation

The Sri Lanka Disaster Management (DM) Act, No. 13 of 2005 was enacted in May 2005. The National Council for

Disaster Management (NCDM) was established as the national body for disaster risk management coordination and

monitoring in Sri Lanka as per the DM Act. The Ministry of Disaster Management & Human Rights as the leading

Ministry and the Disaster Management Center (DMC) as the executing agency for disaster risk management (DRM) were

established in implementing the directives of NCDM. In December 2005, the Disaster Management Center developed

“Towards a Safer Sri Lanka: A Road Map for Disaster Risk Management.”

However, coordination with the various line departments engaged in the disaster management activities as part of their

responsibilities such as the Ministry of Irrigation and Water Management and Ministry of Agricultural Development for

Flood Risk Management; Ministry of Urban Development and Ministry of Land Development, Ministry of Housing, and

Ministry of Environment and Natural Resources for Landslide Management; Ministry of Fisheries and Aquatic Resources

and Ministry of Housing for mitigating Cyclone / Sea Surge Risk Management, and Ministry of Plan Implementation for

designing and implementing integrated disaster mitigation plans, etc is weak.

Inadequate institutional capacity of the Ministries and District administrations to manage the resources mobilized for

disaster response and recovery programs after a national disaster has been observed after the 2005 tsunami.

The establishment of a Sri Lanka Disaster Management Fund was called for in the Sri Lanka Disaster Management Act

(no. 13 of 2005). The Act stated that the Fund shall be constituted with the moneys received from the Consolidated Fund

of the GoSL and all such sums of money as may be received by the Council by way of loans, donations, gifts or grants

from any lawful source, whatsoever, whether in or outside Sri Lanka (DM Act, clause 17). However, at present a Fund

has not been established. The World Bank, through funding from the Global facility for Disaster Reduction and Recovery

(GFDRR) has been initiating the process for developing a Disaster management Fund framework.

HFA Priority # 2: Identify, assess, and monitor disaster risks – and enhance early warning

The National Building Research Organization (NBRO) has developed national level hazard maps for landslides. Also,

local level hazard maps have been prepared by communities affected by the tsunami. However, national level maps for

any of the other hazards have not been created.

The DMC has developed a database on disasters in Sri lanka from 1974 until 2007 with the support of the UNDP. This

database is based on Desinventar. A Sri Lanka Disaster Resource Network Database (SLDRN) is being developed and

will be updated by district level organizations. Any organization within the network will be able to access the website.

A nationally based early warning system for floods, tsunami, cyclone, landslides and sea surges is being developed.

Focal points for formulation of warning messages have been identified. The DMC will be responsible for dissemination

of early warning messages up to the last mile. Community level early warning systems have been made operational in

select sites on a pilot basis.

Sri Lanka does not have financial capacity to acquire and maintain equipment for data collection and technical expertise

for analysis and forecasting of natural hazards. Regional sharing of information is also weak.

290 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

HFA Priority # 3: Use of knowledge, innovation, and education to build a culture of safety and

resilience at all levels

Training programs have been conducted for district and divisional officers for analysis / assessments of disaster risks in

their respective districts/divisions and developing projects for disaster risk reduction.

The Ministry of Education and Ministry of Disaster management & Human Rights with support from German Development

Cooperation have developed “Towards a Disaster Safe School: National Guidelines for School Disaster Safety” in

2008.

District level school DRM awareness and training programmes with special focus towards tsunami were conducted along

coastal belts and mock drills were practiced in all schools identified as being vulnerable to a tsunami hazard. However,

there is severe shortage on trained personnel at the government level and lack of coordination towards development of

training modules amongst different line ministries.

HFA Priority # 4: Reduction of the underlying risk factors

There exists a need for development of institutional resources and technical expertise for better risk assessment,

forecasting and management. The Department of Meteorology has been developing its short-to-medium range forecast

capabilities but requires additional technical capacity and investments for implementing a medium term forecast strategy.

Similarly, the National Building Research Organization requires additional technical and financial assistance to improve

the landslide predictability and for scaling up the preparation of the risk hazard maps on 1:10,000 scale.

Land use policies are being developed in consultation with stakeholders. Currently land use plans are almost non-existent

and available in only a few areas. The impact of poor land use and lack of enforcement has led to serious increase in the

number of landslides in the central highlands region.

Buffer zones have been declared in coastal areas to prohibit unauthorized constructions. Establishment of natural dense

vegetation along coastal belts has been completed in several districts to prevent against high winds and wave surges.

Progress is being made in identifying and supporting vulnerable and low income populations through “Samurdhi” and

“Gamidiriya” micro financing and social protection programmes.

Insurance schemes for protecting against disaster losses are not popular in Sri Lanka due to high premiums. A pilot

project is being implemented involving CBOs as insurance agents and some finance agencies acting as re-insurers.

HFA Priority # 5: Strengthen disaster preparedness for effective response at all levels

The government has identified disaster preparedness as a priority in the Disaster Management Policy. However, there is

a need for capacity strengthening towards disaster risk reduction, preparedness and an overall “proactive” approach for

disaster management.

Certain communities, especially those affected by the tsunami, have developed risk maps, developed village level volunteer

teams who have been given adequate trainings, and have their own community level early warning dissemination systems.

However, these need to be expanded to other areas of the country as well as for multiple-hazard risks.

sri lanka / 291

The DMC has established a 24x7 Emergency operations Center to coordinate emergency response and early warning

dissemination activities. Warehouses for providing emergency supplies are ill-equipped and do not have basic emergency

and relief supplies. Only one warehouse maintained at the national level.

An intra-government network has been established with assistance from JICA to connect Irrigation department, NBRO,

the Meteorological department, DMC, Police communications, Media networks and 7 district offices most vulnerable to

disasters. The plan is for this network to facilitate sharing of GIS maps and other data to better coordinate response and

relief operations.

4. Key donor engagements

Some of the ongoing DRM initiatives are supported by multilateral assistance. These initiatives are listed below:

JICA: From 2006 onwards, JICA has been actively involved in the design and implementation of DRM programs in

the country. JICA program covers: Technical Assistance for the DMC primarily for preparing disaster management

plan (Flood Management Master Plan) and operational mitigation strategies and Designing and Piloting Early Warning

Systems (Weather Stations) in the Country. The technical supports also included capacity building of government

officials through in-house and foreign training and development of community based disaster response plans. The design

and implementation of early warning and evacuation systems and streamlining these systems through pilot programs

are some of the successful projects implemented by the government through the JICA technical assistance. The JICA

program ended on 31st March 2009, and it is designing the second phase of the DRM program, which would be primarily

driven by the governments proactive approach and identified needs.

UNDP: In relation to disaster risk management, UNDP Sri Lanka is actively assisting in the development of a legal and

institutional framework on disaster risk management; promotion of efforts to decentralize DRM; streamlining of various

local DRM efforts under a common platform; strengthening end-to-end early warning systems and incorporating DRM

into national development planning.

UN OCHA is also currently assisting the DMC in the areas disaster database and Geographical Information System

and hazard mapping. As part of this initiative, OCHA has supported DMC to procure baseline satellite imageries

(UNOSAT) and digital evaluation models useful for disaster risk mapping and disaster management planning. Two

UN OCHA staff members positioned at DMC are currently providing technical support in the development of disaster

management database and risk and hazard mapping.

International Center for Emergency Techniques (ICET): An agreement signed by the Ministry of Disaster

Management and ICET to establish emergency communication system at the DMC to facilitate uninterrupted

communication to the stakeholders at District and Divisional levels as to respond to emergencies is an important step

forward. The system consists of VHF Radio Communication and HF and Satellite Communication. Besides, construction

of nearly 50 Multi Hazard Early Warning Towers will be done in vulnerable locations for effective early warning and

evacuation communications.

Disaster Emergency Warning Network: The early warning communication system has been further enhanced with

the initiation of the Disaster Emergency Warning Network (DEWN) in collaboration with the Sri Lanka Dialog Telekom.

An agreement to provide private virtual networking facility to the DMC to communicate with Disaster Risk Management

Units at the District and Divisional levels and with other stakeholders responsible for rescue and relief operations has

enhanced the early warning capability of the DMC significantly.

292 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

Sri Lanka Red Cross Society: The Sri Lanka Red Cross Society with support from the IFRC and other national Red Cross

Societies (American, Danish) has been actively engaged in community based disaster risk management since 2006.

5.global facility for disaster reduction and recovery (gfdrr):

action plan

Ongoing GFDRR Funded Activities

Ongoing GFDRR funded activities

Improving Sri Lanka’s response and

recovery in the aftermath of natural disaster

including supporting the preparatory steps for

implementation of the Disaster Management Fund

Partnerships

Ministry of DM &

HR, UNDP

Budget

$ 200,000

HFA priority area(s)

HFA Priority 1: Ensure that

disaster risk reduction is a national

and a local priority with a strong

institutional basis for implementation

Indicative New Program Areas and Projects for GFDRR Funding

Institutional Strengthening and Building Technical Expertise

The Ministry of Disaster Management and Human Rights (MDM&HR) is comprised of its operating agencies the DMC,

Meteorology Department and the National Building Research Organization (NBRO). The institutional mechanism and

technical capacity of these three departments to implement disaster risk mitigation plans and to guide the emergency

assistances/resources mobilized after national disasters are weak and require strengthening. There is requirement for

both in-house training and training in foreign institutions in specialized technical fields and better DRM skills.

Flood Management Project - Gampaha District

The Road Map for Safer Sri Lanka and the comprehensive disaster management plan and flood management master plan

prepared with the technical assistance from JICA has identified flood risks across the country. Gampaha district suffers

floods almost every monsoon season. Floods impact majority of the 2.1 million people living in the district (in 2006, 12

of the 13 divisions in the district were impacted by floods). Gampaha is also an industrial and manufacturing hub and

floods cause huge economic losses for the district and the country overall.

Based on analysis of the flood management master plan produced by JICA for the Gampaha district, the project proposes

working with vulnerable communities living along the canals in Gampaha towards risk preparedness, canal management

and waste disposal programs and flood early warning dissemination.. The project also proposes strengthening livelihoods

through piloting flood resistant paddy cultivation in Gampaha. A risk financing pilot will be initiated for farmers as well as

the private industry vulnerable to flood impacts.

The DMC will spearhead the Flood management project in collaboration with the Irrigation department, the Agrarian

services department, JICA, relevant district and division local government bodies and other relevant stakeholders.

Landslide Management Project: Nuwara Eliya District

According to the landslide risk assessments done by the NBRO, nearly 20,000 km2 in ten major districts have been

identified as landslide prone. However, three districts; Nuwara Eliya, Badulla and Ratnapura are the highly landslide

prone areas. Major landslides occurred during the past two decades have taken thousands of lives, made nearly 175,000

families homeless and incurred heavy economic loss.

sri lanka / 293

The project will strengthen overall capacity of the NBRO in mitigating landslide risks through risk mapping, development

of landslide mitigation and reduction plans, formulation of land use guidelines and land development regulations,

establishment of appropriate land development regulatory systems in landslide prone areas, and establishment of

monitoring mechanisms and early warning systems. The NBRO will also undertake a community awareness and landslide

safe construction campaign across the different landslide prone districts. These activities will be piloted in Nuwara Eliya

district in collaboration with relevant line ministries, local government bodies, other relevant stakeholders and vulnerable

communities.

Enhancing Weather Forecast for Disaster Preparedness

Presently, the Sri Lanka meteorological department has limited capabilities in making weather forecasts beyond 24 hours

with acceptable accuracy. New Numerical Weather prediction (NWP) systems with higher resolution model outputs in

global scale can be down-scaled to regional and even tailored to local conditions for better probabilistic or quantitative

forecasting. The meteorological department needs to build capacity on NWP techniques for more reliable 1-5 day

weather forecasts. Need has also been identified for a High Resolution Picture Transmission (HRTP Cloud imagery)

receiver for detection of meso-scale features such as intense rains and potential fishing information for fishermen etc.

The Meteorological department in collaboration with the DMC will also undertake a lightening safety national campaign

to reduce deaths and damage from lightening strikes.

Program Management and Operationalizing the Disaster Management Fund

The DM Act mandates the Ministry of Disaster Management and Human Rights to establish a disaster management

fund as part of emergency response and recovery strategy. Presently, a GFDRR funded initiative is focusing on

developing the institutional structure and operational framework of the Disaster Management Fund. As part of this

initiative, the World Bank has agreed to a request from the Ministry of Disaster Management to engage a technical

consultant to undertake this study.

The Fund is envisioned to allow for a comprehensive strategy towards both ex ante and ex post disaster and social

risk management (DSRM) activities as they pertain to natural disasters in terms of both high impact but infrequent

“geophysical” disasters such as tsunami-type events, as well as low impact but frequent “hydrometeorological” hazards

such as droughts and rainfall related floods. This would entail having the following five funding windows that would

address the following activities:

Ex ante Disaster Risk Mitigation

(i) Mitigation and preparedness

(ii) Risk transfer arrangements

(iii) Capacity Development and Technical Assistance

Ex-Post Disaster Recovery

(iv) Relief /early recovery and safety nets

(v) Emergency response and reconstruction

The following are some options to consider as to who would be able to access and use resources from the Fund:

• Government agencies could be the principal users of the Fund to support risk reduction activities of the Ministry

of Disaster Management and Human Rights, relief and resettlement operations of the Ministry of Disaster Relief

Services and Resettlement, social protection programs of the Ministry of Nation Building such as Samurdhi and

Gama Neguma, social care services of the Ministry of Social Services and Social Welfare, and reconstruction

investments by various line ministries.

294 / Disaster Risk Management PROGRAMS FOR PRIORITY COUNTRIES SOUTH ASIA

• Non-governmental actors could also receive support from the Fund. These would include local and international

NGOs (with support from the NGO Secretariat and the Consortium for Humanitarian Assistance), international

organizations such as UN agencies and the Red Cross, and the private sector for interventions such as risk

insurance and micro-finance.

• Partnerships of Government agencies and non-governmental entities could be financed by the Fund to jointly

develop and implement disaster management activities.

Fund Financing and Governance

The size of the Fund could initially be supply driven based on government commitment and the extent of interest from

donors. Based on the performance of the Fund it could then be leveraged to become a demand driven financing

mechanism which is able to meet identified gaps in overall disaster and social risk management activities. Some of the

potential sources of financing for the Fund include:

• Sole or partial financing from domestic revenues such as the Government’s voted budget, special levies, a portion

of lottery earnings, private and charitable contributions, and so forth.

• Additional external grants from development partners, including bi- and multilateral donors, international NGOs,

foreign foundations, United Nations’ initiatives such as flash appeals, international organizations such as the Red

Cross, and multinational companies.

• Standby financing from concessional loans such as the World Bank’s Catastrophic Deferred Drawdown Option

(CAT DDO) for which the Fund could pre-qualify.

School Emergency Planning and Safety Initiative

The Ministry of Education (MoE) has identified the need for upscaling the work done on the “National Guidelines for

School Disaster Safety”, which were developed by the MoE with support from GTZ and ADPC.

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Indicative Program and Budget for GFDRR Funding

Indicative new program areas and projects

for GFDRR funding

Institutional Strengthening and Building Technical

Expertise

-DRM skill training for DMC staff

-Damage & needs assessment methodology training

-Specific training for NBRO staff regarding landslide risk

assessment & landslide early warning systems

-Specialized training for Meteorology department scientists

(to PAGASA in Philippines)

-Relevant exposure visits ad trainings for MDM&HR officials

and technical staff

Partnerships

DMC, Met

Dept., NBRO,

UNDP,

PAGASA

Philippines,

relevant

international

DRM training

organizations

Indicative

Budget for

GFDRR

funding

$ 750,000

(3 years)

Flood Management Project - Gampaha District

- Community preparedness and flood early warning

dissemination Strengthening livelihoods through flood

resistant paddy cultivation

-Risk financing pilot initiative

DMC, Relevant

line ministries,

JICA

$ 1,200,000

(3 years)

Landslide Management Project: Nuwara Eliya District

-Risk Mapping, land use and development regulatory systems,

landslide early warning system

- Pilot landslide mitigation in Nuwara Eliya district

- Public awareness and landslide safe construction campaign

Enhancing Weather Forecast for Disaster Preparedness

- development of NWP system for reliable 1-5 day weather

forecasts

- procurement of HRPT (cloud imagery) equipment

- national lightening safety campaign

Program Management & Disaster Management Fund

-Operationalizing the Disaster Management Fund through

providing seed money

School Emergency Planning and Safety Initiative

-Taking forward the national guidelines on school safety

through specific pilot initiatives

TOTAL

NBRO, DMC,

relevant line

ministries,

UNDP

Meteorological

Dept., DMC,

WMO, relevant

international

climate

institution,

MDM&HR,

relevant

ministries,

UNDP, Donors

& Bilaterals

Ministry of

Education, GTZ,

ADPC

$ 2,500,000

(3 years)

$ 1,250,000

(3 years)

$ 5,000,000

(3 year)

$ 250,000

(3 years)

$ 11,950,000

HFA

priority

area(s)

HFA Priority 1: Ensure

that disaster risk reduction

is a national and a local

priority with a strong

institutional basis for

implementation

HFA Priority 3: Use of

knowledge, innovation,

and education to build

a culture of safety and

resilience at all levels

HFA Priority 2: Identify,

assess, monitor disaster

risks, enhance early

warning

HFA Priority 4: Reduction

of the underlying risks

HFA Priority 5:

Strengthen disaster

preparedness for effective

response

HFA Priority 2, and 4:

HFA Priority 2 and 5

HFA Priority 1 and 5:

HFA Priority 3

Global Facility for Disaster Reduction and Recovery

GFDRR Secretariat

1818 H Street NW

Washington, DC 20433, USA

Telephone:

Facsimile:

E-mail:

Web Site:

202 458 0268

202 522 3227

drm@worldbank.org

www.gfdrr.org

2009

Special thanks to the partners who support GFDRR’s work to protect livelihoods and

improve lives: Australia, Canada, Denmark, European Commission, Finland, France,

Germany, Italy, Japan, Luxembourg, Norway, Spain, Sweden, Switzerland, United

Kingdom, UN International Strategy for Disaster Reduction, USAID Office of Foreign

Disaster Assistance, and the World Bank.