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

Disaster Risk Management Strategic Programme and Investment Framework

DISASTER RISK MANAGEMENT AND FOOD SECURITY SECTOR

MINISTRY OF AGRICULTURE

DISASTER RISK MANAGEMENT

STRATEGIC PROGRAMME

AND

INVESTMENT FRAMEWORK

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A. Executive Summary

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

middle income, democratic and developmental state and a carbon neutral climate resilient economy by 2025.

As aggressive goals of broad based economic growth and social development are envisioned for the country

in the coming five years, a comprehensive Disaster Risk Management (DRM) system is called for to reduce

disaster risk and the impacts of disasters, and to protect development gains. The urgency behind this

approach is conveyed by a host of national policy documents such as the GTP, the Agricultural Sector

Programme and Investment Framework and the Policy on Disaster Risk Management. At the international

level, the Hyogo Framework for Action and the Africa Regional Strategy for Disaster Risk Reduction give

further guidance and thrust.

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

economic conditions. Drought and floods represent major challenges, but a number of other hazards affect

communities and livelihoods. These include: frost and hail, crop pests and diseases, livestock diseases, human

diseases, conflict and other manmade hazards, landslides, earthquakes and urban and forest fires. Climate

change is predicted to further increase exposure to climate-related and hydrological hazard. Ethiopia is

vulnerable to this given the importance of agriculture for the overall economy and the livelihoods of poor

households, and the scarce diffusion of irrigation and water-shed management practices.

Much has been done in the last 30 years in the way of managing disaster risks. Large scale programs have

been designed for prevention and mitigation, incorporating a focus on vulnerabilities, household asset

building, and public works for environmental rehabilitation and generation of livelihoods. Preparedness has

been enhanced through the early warning system, the strategic grain reserve, and the development of

standard guidelines for assessment and intervention. Humanitarian response can currently count on an

established risk financing mechanism, better coordination, and improved resource management and

prioritization. A recovery strategic framework guides the community recovery from disasters and the

protection of livelihoods.

Nevertheless, a number of systemic limitations and gaps persist, as identified by the policy on DRM. The DRM

Strategic Programme and Investment Framework (DRM-SPIF) addresses these gaps within the overall goal of

reducing disaster risk and the impact of disasters through the establishment of a comprehensive and

integrated disaster risk management system. The system presented here is designed to bring about positive

outcomes in all the phases of the disaster risk management cycle. Specific priority investment areas are

identified as central to the achievement of the desired outcomes.

The DRM policy provides the direction for the kind of DRM system envisaged for Ethiopia in the future. It

relies on organizational structures with appropriate and harmonized roles and responsibilities at federal,

regional and wereda levels. Horizontal and vertical coordination among decision-making bodies and effective

DRM systems, processes and procedures is ensured.

The system is based on an understanding of disaster risks; on effective and targeted information flows for

decision making and for community DRM; on resources preparedness, ensuring appropriate and timely

availability of key resources; on effective implementation capacity, including resource delivery; and on

mechanisms for learning lessons and feeding into planning and decision-making.

The DRM SPIF envisions a future where, disaster risk is prevented, mitigated and forecast to enable effective

response. A culture of risk reduction is built at all levels. To address identified gaps, an integrated DRM system

encompasses all phases of the DRM cycle using common mechanisms. Programmes in risk reduction

integrate with climate change adaptation (CCA) and disaster risk reduction (DRR) initiatives. Preparedness is

achieved through strengthened early warning and rapid assessment systems linked to contingency plans and

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finance, an improved food and non-food management system, and greater community responsibility for

DRM.

An enabling environment for the implementation of DRM is created through extensive capacity building,

coordination, and international collaborations and engagements programmes. Disaster risk profiles at

wereda level provide extensive data on hazards, vulnerabilities and capacity to cope, which informs

programmes throughout the framework. An overarching information management system ensures the

analysis and compilation of all information generated by the DRM system.

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B. Foreword

Our vision is that of a disaster resilient Ethiopia. The reduction of disaster risk and of the impacts of disasters

are urgent priorities which contribute to the path of economic and social development set forth for Ethiopia

by the Growth and Transformation Plan (GTP).

To best support the enactment of the GTP, efforts in the disaster risk management sector need to be sca led

up, ensuring full synchronization and strategic complementary of the numerous initiatives and interventions.

Moreover, maximized, coordinated, and efficient resource utilization should be a cornerstone of all of our

activities. Success in delivering effective disaster risk management will then guarantee a strengthened

resiliency for our communities, substantial reduction in the underlying vulnerabilities and, ultimately, the

sustainability of economic and social development gains.

The Disaster Risk Management Strategic Programme and Investment Framework (DRM SPIF) is the tool that

will enable the DRM sector in Ethiopia to fulfil this important role.

Throughout the years, much effort has gone into the management of disaster risk and many lessons have

been learned: as our understanding improved, systems to ensure risk reduction, efficient response and

rehabilitation have been established and refined. Nevertheless, the creation of a comprehensive system for

managing disaster risk is not complete and a new framework is called for. Starting from recognition of the

potential for DRM in Ethiopia and the strengths of established systems and practices, the DRM SPIF maps the

required programme components of a comprehensive DRM system for Ethiopia. It presents clear investment

options for partners desirous of supporting DRM efforts and designs mechanism for efficient and harmonized

fund allocation and utilization.

The Government of Ethiopia is strongly confident that with the implementation of the present Strategic

Programme and Investment Framework the economic and social development goals of the GTP will be

safeguarded and reinforced and the vision of a disaster resilient Ethiopia realized.

Mitiku Kassa

State Minister

Disaster Risk Management and Food Security Sector,

Ministry of Agriculture

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C. Acknowledgement

The development of the Disaster Risk Management Strategic Programme and Investment Framework (DRM

SPIF) is a testament to the commitment and dedication of the Early Warning and Response Directorate

(EWRD) of the Disaster Risk Management and Food Security Sector (DRMFSS), federal government line

agencies, regional governments, development partners, humanitarian organizations, and civil society

organizations to the effort of operationalizing the new comprehensive DRM approach.

We would like to express our appreciation to the representatives of UN agencies, development organizations,

humanitarian agencies, and civil society organizations involved in the different sub-teams and the integratio n

committee which critically reviewed the work on DRM in the country and developed the content of the DRM-

SPIF. We would also like to thank the organizations and its representatives to the technical committee and

the steering committee which guided the development and finalization of the DRM-SPIF.

We are grateful to the federal government line agencies, regional governments, and donor organizations

which reviewed and provided critical inputs to the DRM-SPIF.

Finally, our deep gratitude to the DRMFSS staff, specifically the Early Warning, Response, and Hazard

Monitoring Case Team and its seconded staff, for its steadfast resolve and leadership in the

conceptualization, development and finalization of this strategic programme and investment framework.

Muluneh Woldemariam

Acting Director

Early Warning and Response Directorate

Disaster Risk Management and Food Security Sector

Ministry of Agriculture

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D. Acronyms

BPR

CBO

CCA

COP

CSO

DCOC

DPPB

DRM

DRMFSS

DRMTWG

DRR

ECA

EDRI

EFSRA

EFY

EGTE

EIAR

ENCU

EOC

EPA

EWRD

EWS

FMIP

FSCD

GIS

GoE

GTP

HEA

HFA

HRD

HRF

ICPAC

ICS

IFRC

IMS

ISDR

JOCV

JSOC

African Union

Business Process Reengineering

Community-Based Organisation

Climate Change Adaptation

Communities of Practice

Civil Society Organisation

Disaster Coordination and Operations Center

Disaster Prevention and Preparedness Bureau

Disaster Risk Management

Disaster Risk Management & Food Security Sector

Disaster Risk Management Technical Working Group

Disaster Risk Reduction

Economic Commission for Africa

Ethiopia Development Research Institute

Emergency Food Security Reserve Administration

Ethiopian Fiscal Year

Ethiopia Grain Trade Enterprise

Ethiopian Institute of Agricultural Research

Emergency Nutrition Coordination Unit

Emergency Operations Center

Ethiopian Environmental Protection Agency

Early Warning and Response Directorate

Early Warning System

Food Management Improvement Project

Food Security Coordination Directorate

Geographic Information System

Government of Ethiopia

Growth and Transformation Plan

Household Economy Approach

Hyogo Framework for Action

Humanitarian Requirement Document

Humanitarian Requirement Fund

IGAD Climate Predictions and Applications Center

Incident Command System

International Federation of Red Cross & Red Crescent Societies

Information Management System

International Strategy for Disaster Reduction

Japan Overseas Cooperation Volunteers

Joint Oversight Committee

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LEAP

LIAS

MAC

MDG

MERET

MoFED

MoU

MoWE

NGO

NIMS

NMA

PASDEP

PSNP

RED&FS

SWG

TOR

UNDAF

VSO

WDRP

Livelihood – Early Assessment - Protection

Livelihoods Impact Analysis and Seasonality

Multi-Agency Coordination

Millennium Development Fund

Managing Environmental Resources to Enable Transitions to more Sustainable

Ministry of Finance and Economic Development

Memorandum of Understanding

Ministry of Water and Energy

Non-Governmental Organisation

National Incident Management System

National Meteorological Agency

Plan for Accelerated and Sustained Development to End Poverty

Productive Safety Net Programme

Rural Economic Development and Food Security

Sector Working Group

Terms of Reference

UN Development Assistance Framework

Voluntary Service Overseas

Wereda Disaster Risk Profiling

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Table of Contents

A. Executive Summary........................................................................................................................... 2

B. Foreword ......................................................................................................................................... 4

C. Acknowledgement ............................................................................................................................ 5

D. Acronyms ......................................................................................................................................... 6

1. Introduction ................................................................................................................................... 11

1.1 The Disaster Risk Management Strategic Programme and Investment Framework ........................ 11

1.2 The SPIF Process ...................................................................................................................... 12

2. Background .................................................................................................................................... 12

2.1 Disasters in Ethiopia and core DRM challenges............................................................................ 12

2.2 The Livelihood Context ............................................................................................................. 13

2.3 National Policy Framework ........................................................................................................ 15

2.3.1 Institutional Arrangements and Past Policy Context ................................................................ 15

2.3.2 DRM Policy.......................................................................................................................... 16

2.3.3 Linkages to Other Polices and Strategies ............................................................................... 16

2.4 International Commitments on DRM ........................................................................................ 18

2.5 Analysis of Current DRM Interventions, Gap Analysis and Lessons Learned ................................. 20

2.5.1 Current DRM Interventions ................................................................................................... 20

2.5.2 Gap Analysis and Lessons Learned.......................................................................................... 23

3. Disaster Risk Management Strategic Programme and Investment Framework .................................... 29

3.1 Rationale for Investment........................................................................................................... 29

3.2 DRM Linkages........................................................................................................................... 29

3.3 Disaster Risk Management Principles ........................................................................................ 30

3.4 Goals, Objectives and Outcomes ............................................................................................... 30

3.5 Disaster Risk Management Framework ..................................................................................... 31

3.6 DRM Strategic Programme Areas .............................................................................................. 34

3.7 Disaster Risk Management Investment Framework .................................................................... 37

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3.8 Financial Arrangements ........................................................................................................... 39

3.9 Disaster Risk Management Monitoring and Evaluation............................................................... 40

3.10 Institutional Arrangements for Multi-Stakeholder Coordination ............................................... 44

Annex 1 – Programme Options .............................................................................................................. 46

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Table of Figures

Figure 1.The Most Important Hazard (as perceived by rural households)……………....................................13

Figure 2.Disaster Risk Management Framework (Generic)...........................................................................32

Figure 3. Ethiopia's Disaster Risk Management Framework..........................................................................33

Figure 4. Ethiopia’s Disaster Risk Management System Framework by Category.........................................36

Figure 5. Institutional Arrangement for Coordination………………………………………..........................................45

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1. Introduction

1.1 The Disaster Risk Management Strategic Programme and Investment Framework

The SPIF provides a strategic framework for the prioritization and planning of investments that will drive

Ethiopia’s Disaster Risk Management system. It is designed to operationalise the DRM policy by identifying

priority investment areas with estimates of the financing needs to be provided by Government and its

development partners. The SPIF is a strategic framework that outlines major areas of investment that can

then be more fully fleshed out with development partners moving forward. In this way, the greatest buy-in

and sense of ownership will be created while clearly following strong government leadership and direction.

The SPIF focuses on the creation of a comprehensive system for managing disaster risk that builds on past

lessons and works to increase cross-sectoral multi-agency integration. The main components of the DRM

system already exist and several of them have made important progress in effectiveness in recent years.

However, the components do not function adequately as an integrated system and this limits overall

effectiveness. This requires scaling up efforts in the disaster risk management sector, further developing

capacity, and ensuring full synchronization and strategic complementary of the numerous initiatives and

interventions. The SPIF envisions a whole-of-Government initiative led by the DRMFSS that reflects the

priorities of the Government and a wide range of stakeholders. The SPIF is fully aligned with the Growth and

Transformation Plan (GTP) which is a successor to the Plan for Accelerated and Sustained Development to

End Poverty (PASDEP) and which realized for the country an average annual growth rate of 11 percent for

the past five years. The GTP sets the vision for the country as a middle income, democratic and

developmental state and a carbon neutral climate resilient economy by 2025.

Setting the enabling environment for sustained development is the shift in the government Disaster Risk

Management (DRM) orientation from crisis management to a multi-sectoral and multi-hazard DRM

approach. The Business Process Reengineering (BPR) was the basis for the redirection and which led to the

formation of the Disaster Risk Management and Food Security Sector (DRMFSS) comprising of the Early

Warning and Response Directorate (EWRD) and the Food Security Coordination Directorate (FSCD). The BPR

also led to the review and revision of the National Policy on Disaster Prevention and Management (1993)

reinforcing the application of the multi sectoral and integrated DRM approach that incorporate aspects of

risk reduction and recovery1.

Recognizing the importance of strategic partnerships to maximize the DRM SPIF results and in line with the

GTP, the Early Warning and Response Directorate (EWRD) and the Food Security Coordination Directorate

(FSCD) will build on existing bilateral and multilateral partnerships and support new strategic alliances within

the context of country ownership and leadership; alignment to government priorities, systems and processes

and harmonization within the wider established Development Partners’ coordination architecture, while also

promoting involvement of Civil Society Organizations(CSOs) and the private sector.

This partnership strategy will take into account the following existing international agreements and practices

as well as national strategic investment frameworks and practices: (i) Paris Declaration on the Aid

Effectiveness; (ii) Rome Declaration on Harmonization; (iii) the Growth and Transformation Plan (iv) the

Agricultural Sector Policy and Investment Framework (PIF) 2010 – 2020 which identifies a number of common

1 The ‘National Policy and Strategy on Disaster Risk Management’ is currently in the draft stage and will come into

effect once legislated and approved by the national parliament. The DRM-SPIF will be updated in line with the policy

once it is approved.

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strategic objectives and investment platforms namely; (a) achieve universal food security and protect

vulnerable households from natural disasters (PSNP, HABP) and (b) reduce degradation and improve

productivity of natural resources (SLM-ESIF, PSNP, AGP, ELALUDEP) and; (iv) the Climate Resilient Green

Economy (CRGE) and Programme of Adaptation to Climate Change (EPA-CC) which recognizes DRM as a key

tenet towards reducing adverse effects of climate change.

Further strategic linkages will be sought with key government sectors for a well-coordinated results based

implementation of the DRM-SPIF.

It is recognized that further programme development will be required to ensure the DRM-SPIF can be

effectively implemented. This will involve joint work between the DRMFSS and Development Partners which

would take place after the launch of the SPIF. This will lead to the creation of investment programmes,

followed by the development of associated operational manuals.

This approach is designed to further strengthen the DRM SPIF as a strategic guide and basis for results

management and mutual accountability.

1.2 The SPIF Process

The SPIF has been developed through a collaborative process involving a wide range of stakeholders. The

process has been led by the DRMFSS and began with an intensive and thorough internal analysis process that

culminated in the production of the SPIF. The SPIF formulation process has included a review of key policy

and strategic documents, the compilation of data and relevant background information, and consultations

with key partners including Government, development partners, civil society, and private sector partners. A

national consultation workshop was held in May 2012 to discuss the SPIF in detail which was followed by a

series of meetings under the auspices of the SPIF Steering Committee which has key representatives from

DRMFSS, the regions, development partners, and CSOs. A final consultation workshop with the same

constituents was held in May 2013 to discuss final changes to the SPIF.

2. Background

2.1 Disasters in Ethiopia and core DRM challenges

Ethiopia is confronted by a wide range of natural and human-induced hazards. Millions of Ethiopians have

been affected by drought and flood in the last decade. The number of people who suffered from drought

peaked at 14 million in 2003 and, in the period between 2000 and 2007, was never below 1.5 million persons.

The floods of 2006 were the most disastrous affecting about 1.7 million persons.2 Rural households also often

quote frost and hail, crop pests and diseases, livestock disease and conflict as important hazards.3 Human

diseases, landslides, and earthquakes are also often reported by the existing early warning system.

This wide range of hazards is associated with the country’s diverse geo-climatic and socio-economic

conditions. Furthermore, a regular and marked rainfall seasonal pattern compounds food security challenges

2Data on drought and flood affected population is compiled from the Risk Baseline dataset for Ethiopia

3LIU, An Atlas of Ethiopian Livelihoods, 2011

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in critical periods of the year: the pre-harvest season in agricultural areas and the end of the dry season for

pastoralists.4

Figure 1: The Most Important Hazard (as perceived by rural households)5

Climate change is predicted to further increase exposure to climate-related and hydrological hazards6 and

the overall economic importance of agriculture, its prominent role in the livelihood of poor households and

the scarce diffusion of irrigation and water-shed management practices make Ethiopia particularly vulnerable

to these. As little as 4 to 5 percent of cultivated land is under irrigation, despite an estimated potential to

increase this up to 30 percent.7 At the same time, small average land holdings and suboptimal yields, as

determined by land degradation and the poor diffusion of agricultural technologies, constraint the incomes

and food security of small-holders even in normal years. About 40 percent of Ethiopia’s small farms have a

size of 0.4 hectares or less and yields on such farms are on average 50 percent lower than on large farms. 8

Finally, human induced hazards include, among others, conflicts as a result of resource competition and other

factors, war, transport accidents and fire (forest and urban). New hazards are also emerging in relation to

the development of new infrastructures such as roads or irrigation canals that can adversely affect local

populations.

2.2. The Livelihood Context

In Ethiopia, there are four main livelihood production systems across over 170 livelihood zones;

4Ibid.

5Ibid.

6World Bank, Economics of adaptation to climate change, 2010

7International Water Management Institute, Irrigation potential in Ethiopia: constraintsand opportunities for enhancing

the system, 2010

8 Alemayehu Seyou Taffesse, Paul Dorosh and Sinafikeh Asrat, Crop production in Ethiopia: Regional patterns andtrends,

March 2011, ESSPII Working paper 0016

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 Cropping: The majority of Ethiopians inhabit highland areas and are primarily dependent on

smallholder mixed farming. This means crops provide the major source of income, but animals for

draught power and as supplementary income. The cropping area of the country includes the actually

very low-lying areas in the far west of the country where rainfall nevertheless favours agriculture, as

well as irrigated areas along the main rivers in Somali Region.

 Pastoralism: In the eastern and southern areas of the country, where rain is too low to support crops,

rangeland is used for pastoralism. Pastoralists are primarily reliant on livestock and adopt mobile

grazing patterns to maximize the use of rainfall that is highly variable both temporally and spatially.

 Agro-pastoralism: Where areas at slightly higher elevations get more rainfall or where rivers and

seasonal water-courses allow ‘flood-retreat’ cultivation, people do grow crops but mix the risk and

the profit with a major dependence on herding.

 Other: In all areas of the country, households with either no livestock for herding or no land for

cropping, exist through a variety of means, including casual labour, petty trading.

These different production systems are also differently affected by Ethiopia’s rainfall patterns, with cropping

communities in the southern parts of the country relying more heavily on the belg rain (March-May) and the

northern and western parts relying more heavily on the Kremt (June-October).

There is some differentiation within Belg dependent communities of the south. Pastoral communities in the

South and East of the country, Gu (April-May) & Deyr (October-November) are the most important rainfall

seasons. Rainfall in January and February (which can be thought of as early belg rainfall) is important in

certain parts of the country. Coastal rains in these months are important for pastoral areas bordering

northern Somalia, Djibouti and Eritrea (heys rains in Somali, dadac in Afar). In SNNPR rainfall in January-

February (the sapia rains) is important for the successful cultivation of belg sweet potatoes.

Many poor households in Ethiopia are net food buyers. In food deficit areas, these rely on food purchases for

50 percent or more of their annual calorie needs.9 The recent volatility of national food markets, as

exemplified by the food price hikes of 2008 and 2011, erodes the purchasing power of wages and livestock

sales and poses a further challenge to the food security of household who rely on labour and livestock income

to ensure their food needs.

Hazards and climatic changes have differential impacts on women and men as gender based differences have

a strong impact on their vulnerabilities as well as the coping capacities. It is well recognized that women and

men experience, perceive and are exposed to different levels of risks and vulnerabilities, with women more

disproportionately affected. In Ethiopia, there is a higher incidence of poverty in female-headed households

as more men are economically active than women (75.1% vs. 63.4%)10 , and due to this prevailing lower

economic and social status, women and female headed households are on average more vulnerable to

disasters. In Ethiopia, only about 34.6% of women are literate11 and lesser proportions of women attend

school after the age of 15 and above12. Women have therefore fewer years of schooling and traditionally

having heavier workloads than men thereby impacting and limiting their access to information, knowledge,

coping skills and capacities towards disaster; they on the other hand perform a significant proportion of

manual farm and housework among other roles and responsibilities at home and in the society and tend to

9LIU, An Atlas of Ethiopian Livelihoods, 2011

10Central Statistics Agency, Population and Housing Census of Ethiopia, 2007.

11Ibid

12ibid

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be excluded from control of farm income, inheritance of property and decision making processes. Women

and girls also suffer disproportionately from environmental degradation as they have to walk longer distances

to collect water and firewood and sometimes unknowingly get exposed to environmental hazards while

performing their household roles. In as much as women’s vulnerabilities are often highlighted, their positive

contribution, participation and roles in building disaster resilience has not been adequately recognized nor

acknowledged13.

From a DRM perspective, there is great variability across Ethiopia`s diverse livelihood systems that directly

affects the depth of household and community resources available to cope with disaster. It requires a disaster

risk management system that can analyse and respond to different livelihood zones in an optimal manner

including an understanding of the most important hazards and the impact on communities.

Recent strong positive trends in economic and agricultural sector growth and poverty reduction will

undoubtedly moderate some of these underlying vulnerabilities. However, climate shocks and soil

degradation and erosion may reduce the sustainability of further agricultural production growth if no

mitigation measures are instituted. Furthermore, livestock yields will be affected negatively through the

effects of temperature on annual growth, milk and wool production and reproduction; and indirectly through

the changes in the quantity and quality of pasture, forage, grass and disease and increases in parasites.

Because rural households are highly vulnerable to shocks, years of progress in building household assets can

be quickly reversed. Effective disaster risk management is a critical component of the country`s agricultural

growth agenda – without the ability to protect gains in agriculture, overall resilience will not be achievable,

and national GTP objectives will be compromised.

The DRM Policy confirms the significant impact of disasters on the lives of people and on the country’s social,

economic, and political development. Not only do disasters impose serious economic costs for response and

rehabilitation, diverting national priorities and development resources, but they also reverse development

goals and exacerbate poverty.

2.3National Policy Framework

Existing institutional arrangements for Disaster Risk Management in Ethiopia are the result of a long

institutional evolution. This will be explained below. Furthermore, a number of recent, major national

development policies highlight the important role for DRM in future development activities. These will also

be briefly presented.

2.3.1 Institutional Arrangements and Past Policy Context

The first formal governmental disaster management institution was the Relief and Rehabilitation Commissio n

(RRC), established in the wake of the 1973/74 famine with a mandate to provide relief supplies to drought

victims. The Government of Ethiopia reviewed its disaster management strategy and adopted the National

Policy on Disaster Prevention and Management (NPDPM) in 1993. The accompanying policy directive was

issued in 1993 and the policy implementation guidelines were developed in 1995. The major objectives of

the NPDPM were to save lives, integrate relief assistance with development efforts in order to mitigate the

impacts of disasters, and enhance the coping capacities of the affected population through the creation of

assets in the affected areas. The NPDPM guided relief management policies, institutions, and processes

whereby drought disasters were detected and resources, especially food aid, were mobilized and prioritized

for affected areas.

13ISDR, Making disaster risk reduction gender sensitive; policy and practical guidelines.

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In 1995 the government restructured and renamed the RRC. The Disaster Prevention and Preparedness

Commission (DPPC) was created, with significant changes in mandate particularly giving emphasis to linking

relief to development. Furthermore, since 1993, policy making and oversight responsibilities regarding

disaster management have been vested on the National Disaster Prevention and Preparedness Committee

(NDPPC). Key sector offices such as the Ministries of Agriculture and Rural Development, Health and Water

Resources also became more involved in disaster management since 2003, through the establishment of

emergency sectoral task forces. In 2004, the DPPC was split into the Disaster Prevention and Preparedness

Agency (DPPA) and the Food Security Coordination Bureau (FSCB), with a revised mandate for DPPA to focus

on emergency response while for FSCB to focus on responding to chronic food insecurity.

In 2007 following the BPR, the rights and obligation of the DPPA were transferred by proclamation to the

Ministry of Agriculture and Rural Development (MoARD), which led to the establishment of the Disaster Risk

Management and Food Security Sector (DRMFSS) within the MoARD. This new institutional arrangement

brought a paradigm shift in the approach to disaster management in terms of moving from a drought and

relief focused approach to a more pro-active multi-sectoral and multi-hazard Disaster Risk Management

(DRM) approach.

2.3.2 DRM Policy

The Government of Ethiopia has endorsed a comprehensive DRM policy, based on lessons learned from

previous experience.14These include the necessity of a multi-hazard approach grounded in a deep

understanding of specific disaster risk, and its link to development and vulnerability; emphasis on prevention,

mitigation, preparedness and post-disaster modalities and capacities; de-centralization of resources and

structures; a clear determination of DRM responsibilities, supported by the capacity for legal enforcement

and a high degree of accountability.

The new DRM policy provides the direction for the kind of DRM system envisaged for Ethiopia in the future.

Such system is based on an enabling policy environment and strategy. It relies on organizational structures

with appropriate and harmonized roles and responsibilities at federal, regional and woreda levels. Horizontal

and vertical coordination among decision-making bodies and effective DRM systems, processes and

procedures is ensured.

Furthermore, the system is based on an understanding of disaster risks; on effective and targeted information

flows for decision making and for community DRM; on resources preparedness, ensuring appropriate and

timely availability of key resources; on effective implementation capacity, including resource delivery; and

on mechanisms for learning lessons and feeding into planning and decision-making.

2.3.3 Linkages to Other Polices and Strategies

PASDEP (2005 -2009) and GTP (2010 – 2015)

Recent Government development strategies (PASDEP and GTP) have emphasized the importance of DRM.

PASDEP had the main objectives of ensuring accelerated, sustained and broad based economic development

as well as preparing the ground for full achievement of Ethiopia’s MDG targets by 2015. One of the strategic

pillars to achieve this was managing risk and volatility. Accordingly the government has increased

investments in poverty reduction programs, including food security and other programs.

14Although the policy has yet to be formally approved, preparations are being made for adoption of a DRM approach.

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The GTP emphasizes the importance of strengthening the Early Warning System and the capacity to respond

to disasters. Ensuring a timely response to disasters will be included as part of agricultural support and

economic development strategies and programs. Preparedness will be improved by increasing food and non-

food reserves. The SPIF will ensure proper complementarity of DRM to the overall growth agenda so that

development gains will be protected from the wide range of risks associated with disasters.

The Agriculture Sector Policy and Investment Framework (PIF)

The PIF stresses that improving the capacity to manage risk with an emphasis on climate change is critical in

overcoming poverty and food insecurity. While the need to increase the rate of graduation of the chronically

food insecure is a key issue, the government must ensure that vulnerable households and communities do

not lose their productive assets due to external shocks, and that other risk management initiatives are

maintained such as early warning systems, strategic food reserves and emergency response capacity. The

DRM-SPIF contributes to further detailing DRM interventions to fully support the PIF and ultimately the GTP

agenda.

Climate Resilient Green Economy (CRGE)

In November 2011 the ‘vision’ to build a Climate-Resilient Green Economy (CRGE) by 2025 was launched. This

economy would be middle-income, resilient to the negative impacts of climate change and would be

achieved with no net increase in emissions relative to today. The vision is supported by two strategy

documents: the Green Economy Strategy (completed in 2011) and the Climate Resilience Strategy (to be

launched in 2013 and at Ministerial Steering Committee at time of writing).

There is evidence that climate variability leads to extreme events and causes hazards. Within Ethiopia

extreme climate events are common, particularly droughts and floods. Alongside the evidence of a changing

climate, evidence suggests the incidence of droughts and floods have increased in the last 10 years relative

to the decade before. Therefore, the Climate Resilient Green Economy (CRGE) vision as well as the

accompanying Ethiopia Programme of Adaptation to Climate Change (EPA-CC) acknowledge the role of

disaster risk management policies, strategies, programs and interventions’ in enhancing their goals. This

supports the GTP and the PIF which also both highlight the critical importance of managing risks associated

with climate change in meeting the goals of reducing hunger and building a sustainable food secure country.

EPA has three main areas of priority: international negotiations, climate change mitigation/low carbon

growth and climate change adaptation. The major overlap for the DRM Strategic Framework is on Climate

Change Adaptation, where building resilience to a changing climate is inextricably linked with efforts to

reduce vulnerability to current climate hazards and variability.

The implementation of CRGE vision and DRM SPIF would ideally rely on common assessments and related

data and information on climate-related hazards, risks and vulnerabilities (such as the Wereda Disaster Risk

Profile).

Social Protection Policy (2012)

The new Social Protection policy is under the auspices of the Ministry of Labour and Social Affairs (MOLSA)

and addresses similar issues.15 It introduces a shift from the social welfare approach of the developmental

social welfare policy to a more comprehensive framework leading to coordinated actions to protect citizens

15Federal Democratic Republic of Ethiopia, MOLSA, National Social Protection Policy of Ethiopia, 2012

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from economic and social deprivation through emergency interventions and targeted cash transfers,

preventive actions designed to avert deprivation or to mitigate the impact of adverse shocks including health

and unemployment insurance, promotive actions that aim to enhance assets and human capital and income

earning capacity, and transformative actions including legal and judicial reforms, budget analysis and policy

evaluations to help the nation better manage social protection. Looking more broadly at the policy context,

Disaster Risk Reduction, Climate Change Adaptation (CCA) and Social Protection all share a common goal –

to manage risks to development from shocks while building resilient communities. However, significant

overlaps exist in terms of conceptual understanding, policies, and programme implementation between

these three conceptual frameworks. The risk is that separate processes and structures will be developed

that will lead to duplication and the inefficient use of scarce resources. There have been important initiatives

to bring these concepts together at the global level (e.g. the Stockholm Plan of Action, 2007) and at the

national level (series of Ethiopian workshops and deliberations). Clearly structured coordination mechanisms

are now required to ensure that a harmonised approach is developed around a common system with clear

roles and responsibilities at each institutional level. The SPIF is consistent with building synergies and

reducing overlap between these frameworks to ensure new funding opportunities are maximized, and

greater overall impact is achieved.

In other policies and strategies, the government of Ethiopia has pointed out the need to concentrate on

reducing, in the long and medium term, vulnerability of regions’ to drought and other natural calamities:

 The Food Security Strategy (FSS)16, which emphasizes the need and plans activities to strengthen

emergency response capabilities of the government, such as the early warning system and the quality

of relief distribution;

 The Intergovernmental Authority on Development (IGAD) has worked with the GoE to draft a Country

Programming Paper (CPP) entitled “To End Drought Emergencies in the Horn of Africa”. With a focus

on pastoralists, it references the DRM policy in the component on Pastoral Disaster Risk

Management.

 The National Women’s Policy and National Action Plan for Gender Equality also form the basis for

mainstreaming gender in DRM17.

2.4 International Commitments on DRM

The Government of Ethiopia is highly committed to operationalizing the recommendations for action coming

from the Hyogo Framework for Action (HFA) and the Africa Regional Strategy for Disaster Risk Reduction.

The HFA serves as the primary international framework on DRM. Its five areas for priority action are:

1. Ensure that disaster risk reduction is a national and a local priority with a strong institutio nal basis

for implementation;

2. Identify, assess and monitor disaster risk and enhance early warning;

3. Use knowledge, innovation 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.

16 Federal Democratic Republic of Ethiopia, Ministry of Financeand Economic Development Growth and Transformation

Plan(2010), Policy Matrix, Volume II.

17Ministry of Women’s Affairs

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The Hyogo Framework for Action also makes an explicit commitment to gender stating that “gender

perspectives should be integrated into all DRM policies, plans and decision making processes, including those

related to risk assessment, early warning, information management, education and training.”

The Stockholm Accord of 2007 stated that disasters and climate change are serious risks to economic

growth and poverty reduction. The agreed priority actions are:

1. Disaster Risk Reduction and climate change adaptation cannot be dealt with in isolation. It requires

common strategies for integrating DRR, climate change adaptation and poverty reduction

strategies.

2. Disaster and climate change risk analysis must be integrated into national planning processes

including the national poverty reduction strategy

3. DRR and climate change adaptation are not sectors but need to be factored into all sectors

4. DRR is an urgent national agenda to reduce poverty and adapt to climate change

The Africa Regional Strategy for DRR is consistent with the HFA and transforms the strategic documents

produced by the joint initiatives of the AU, NEPAD, etc. into detailed actions for policy makers, decision

makers, disaster managers, and development practitioners at sub-regional, national, and community levels.

It points to the limited effectiveness of risk reduction policies and institutional mechanisms for DRR currently

in place in Africa. In particular, it identifies gaps in the following areas: institutional frameworks, risk

identification, knowledge management, governance and emergency response. A strategy is then devised to

address these, revolving around six objectives:

1. Increase political commitment to DRR;

2. Improve identification and assessments of disaster risk;

3. Enhance knowledge management for DRR;

4. Increase public awareness of DRR, including the participation of women, youth and other vulnerable

groups in decision-making in DRR.

5. Improve governance of DRR institutions;

6. Integrate DRR in emergency response management.

There are also a number of international institutions that are relevant to the present framework.

Ethiopia is a member of IGAD, the Intergovernmental Authority on Development. Initially established in 1986

as a body uniting six Horn of Africa governments involved in drought response and management, it has since

then expanded its focus to promote intergovernmental cooperation in the areas of food security and

environmental protection, promotion and maintenance of peace, security and humanitarian affairs, an

economic cooperation and integration. Among its objectives is to achieve regional food security and

encourage and assist efforts of Member States to collectively combat drought and other natural and man-

made disasters and their natural consequences. IGAD also reiterates the importance of integrating gender

and youth in the regional responses through their gender policy and strategy, including disaster risk

management.

Ethiopia is also a priority country for the Global Facility for Disaster Reduction and Recovery (GFDRR), an

international partnership initiative to help developing countries reduce their vulnerability to natural hazards

and adapt to climate change. The GFDRR aims to mainstream DRR measures in development and help

countries achieve financial resilience to disasters.

Finally, Ethiopia participates actively in DRM related African Union initiatives, such as the AU summits and

the AU Technical Committee on DRR.

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Alignment with HFA and Africa Strategy for DRR

With respect to the HFA, Ethiopia underwent numerous and significant adjustments in its DRM institutional

framework culminating in the conduct of the business process reengineering (BPR) and the current set-up of

the Disaster Risk Management and Food Security Sector (DRMFSS). The restructuring allowed the GoE to

undergo a major shift in its approach from what was a traditional, reactive, ex-post emergency and relief

work to a proactive, ex-ante preparedness and disaster risk reduction approach.

The 1993 National Policy on Disaster Prevention and Management was reviewed and revised leading to the

National Policy and Strategy on Disaster Risk Management that currently serves the basis for the new DRM

approach by government. The new policy provides for the reduction of disaster risks and impacts through a

comprehensive and integrated DRM system under the context of sustainable development. The new policy

also provides for the appropriate mainstreaming of gender issues noting that gender should be adequately

integrated and mainstreamed in DRM planning, implementation, monitoring and evaluation.

With respect to the Africa Regional Strategy for DRR, for each of the six strategic areas of interventions,

Ethiopia has operationalized the major activities articulated in the programme of action of the Africa Regional

Strategy for DRR.

The DRM-SPIF addresses the facilitation of the GoE’s engagement with the partners at regional and global

levels. Reporting on the progress in the promotion and adoption of DRM approaches to the international

community through the AU and NEPAD is not only being highlighted in the DRM-SPIF but the engagement

with a wider DRM network and the use of south-south cooperation to share experience, knowledge, and

resource to further the application of DRM in the country.

2.5. Analysis of Current DRM Interventions, Gap Analysis and Lessons Learned

2.5.1. Current DRM Interventions

Ethiopia’s DRM landscape is composed of a large number of programs and initiatives pertinent to various

phases of the disaster risk management cycle: prevention and mitigation, preparedness, response, recovery

and rehabilitation. In recent years, Ethiopia has made substantial progress in terms of improving,

streamlining and integrating the entire DRM cycle. While many gains haven made, greater levels of

investment are required to ensure DRM is fully operational across the full sectoral and governmental

spectrum.

Preparedness

Considerable progress can be documented in terms of preparedness to disasters. The need for early

responses to both slow and fast-onset disasters has in fact long been recognized as vital to protecting lives

and livelihoods.

Early drought and flood response guidance is currently available. The Government of Ethiopia National

Guidelines on Livestock Relief set out appropriate activities which can be conducted at each stage of the

drought cycle in pastoral areas and programmes with flexible contingency finance been made available to

NGOs via USAID’s Pastoral Livelihoods Initiative and ECHO’s Regional Drought Decision. At the same time,

the Risk Financing initiative of the Productive Safety Net Programme is being tested this year as a way of

scaling up the food response to drought-affected communities. At the national level, drought contingency

plans have been developed and strengthened. For floods, contingency plans are often drafted. This year, the

early convening of the Flood Management Task Force which will compile Regional Flood Contingency Plans

into a national flood contingency plan should enable more coordinated support to flood affected

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communities. However, there is still a need to ensure that these plans are available earlier in the season in

order to ensure resources will be available as soon as possible.

Whilst the PCDP made effective use of the regional Disaster Early Response Fund, the recent review highlights

the need for locally owned wereda and regional contingency plans to be in place for timely implementation

and cites delays in producing wereda contingency plans and lack of Regional appro val of Regional Disaster

Preparedness Strategy and Investment Plans (DPSIP) as key constraints.

Maintenance of adequate strategic reserves is also key for preparedness. The GTP plans for an expansion in

the capacity and stock of the Ethiopia Strategic Food Reserve Authority (ESFRA). Moreover, the Government

has enabled to construct about ten feed and cold stores in pastoralist areas in Oromia, Somali, SNNP, Afar

and Amhara regions. These are essential to effectively manage livestock related disasters.

Significant investment into the Early Warning and Information Management System has been ongoing over

the past few years. Ethiopia can count on a number of Early Warning Systems (EWS) which is both a strength

and a weakness. The Government’s EWS is one of the oldest in Africa and is characterized by significant

expertise and a vast, de-centralized structure, with EW staff in every wereda. Recently, the EWS was

reviewed, checklists were re-designed and roll-out of the system has been conducted at regional and wereda

levels. The National Meteorological Agency (NMA) also publishes seasonal forecasts and meteorological

bulletins, which help to inform humanitarian and development actors as well as farmers via local radio and

DAs. In addition, the LEAP software also uses geo-spatial and meteorological data in order to provide

information about the likely crop production outcomes and effects on livelihoods. Future work includes

refinement and verification of LEAP outputs against actual data, software expansion to cover pastoral areas

and to predict floods. Finally, a process to conduct regular analysis of food price data from both the CSA and

the EWS has already been established.

Early Warning information is regularly shared through periodical bulletins and to DRM partners’ fora, such as

the DRM Technical Working Group (DRMTWG), so as to inform decision-making.

In addition, a variety of livelihoods and disaster risk information has been collected or is underway. The

Livelihoods Integration Unit has produced Livelihood Zone profiles for the entire country which are analysed

and compiled into the Livelihoods Atlas. In addition, this data is used as a baseline for the LIAS database

which supports calculation of beneficiary numbers.

The Wereda Disaster Risk Profiling (WDRP) programme is in the process of preparing risk profiles for every

wereda in the country, looking at disaster risk from the lens of hazards, vulnerability and capacity, and

intended to inform development/DRR, contingency planning and early warning systems. These profiles form

the basis of all DRM activities in the country.

Information flow and data quality on DRM has been greatly improved with the thrust in risk profiling,

livelihood profiling, and the revamp of the early warning system that is decentralized down to the community

level. The identification, assessment, and monitoring of hazards, vulnerabilities and capacities is supported

by a strong capacity building component and enhanced communication and information exchange amongst

stakeholders.

Building a culture of safety and resilience: the knowledge base on DRM in Ethiopia is slowly being built.

Undergraduate and graduate degree courses and standardized training programmes on DRM have been

established in Bahir Dar University, the programme offering is being enhanced through south-south

cooperation with Asian countries (Philippines and Bangladesh) to address the professionalization and

capacity development challenges of the DRM workforce. Local (community) level trainings and learning on

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DRM have been initiated through the community DRM approach and the mainstreaming of DRM in the school

curricula and sectoral plans and programs is going to commence under the DRM-SPIF

Prevention and Mitigation

The prevention and mitigation of disasters in an active area of engagement in Ethiopia, as it is supported by

clear humanitarian and developmental rationales. On one hand, prevention and mitigation reduce the

substantial social and psychological costs of disasters and the economic demands for response and

reconstruction. On the other, when disasters strike, the gains of development activities that did not take into

account an analysis of disaster risk and of the impacts of climate change may be eroded.

Programs in this area include large-scale engagements and a high number of smaller programs. Among the

large-scale interventions, the Productive Safety Net (PSNP) program tackles chronic food insecurity through

targeted cash or food for work assistance to vulnerable households in hunger season months. It is

complemented by a household-asset building component and by contingency and risk financing options to

scale up assistance when disasters strike. The Managing Environmental Resources to Enable Transition to

Sustainable Livelihoods (MERET) programme also targets the chronically food insecure through food for work

assistance. Public works under MERET focus on environmental rehabilitation and livelihood generation

initiatives. In the arid and semi-arid pastoralist areas, the Pastoral Community Development Programme

(PCDP) works to establish effective models of public service delivery, investment and disaster risk

management and to increase the resilience of pastoral communities to external shocks. More broadly, a

wider range of more development orientated programmes that work to address the root causes of

vulnerability can be classified under this category. This leads to the need to encourage greater coordination

and integration of similar activities that seek to reduce overall household and community level vulnerability

to disasters.

Humanitarian Response

As mentioned above, the main fundraising mechanism for humanitarian response is the HRD. This is a joint

government-partners’ document which reflects the findings of the seasonal assessment teams. Livelihood

profiles based on the Household Economy Approach are used to estimate the number of people requiring

food assistance following a shock. Food is distributed through the Government food distribution

mechanisms, the WFP Hubs and Spokes for Somali region and Joint Emergency Operation Plan (JEOP), while

the bulk of funds in the non-food sectors are provided in form of grants to NGOs from the Humanitarian

Response Fund (HRF), USAID, OFDA and ECHO (EC).

The Government has recently adopted elements of the National Incident Management System (NIMS) in

order to improve its capacity to deliver fast and effective humanitarian response.

Where the resources available are inadequate for the needs, the ‘Hotspot’ classification is currently used to

prioritize the areas which most urgently need assistance. This uses a range of indicators and a consensus –

based decision making process to identify the hotspot weredas. The Prioritization Committee, led by

DRMFSS, is multi-agency forum responsible to review the national relief food pipelines against the total

requirement of relief beneficiaries to allocate food resources. In the last three years, it has enabled efficient

utilization of scarce resources. The Food Management Task Force, a forum which coordinates all food

management activities, has also been one of the effective all-partners’ forums which is in place at federal

level. Information is shared, problems and challenges are identified, and actions are taken among partners.

Further coordination and essential guidance on response is provided by the sectoral task forces. The

Agricultural task force La Nina Road Map and the Emergency Nutrition Coordination Unit (ENCU)’s efforts to

improve monitoring and evaluation of nutrition, to develop guidance for Moderate Acute Malnutrition and

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to align the implementation of future nutrition interventions with the food security and livelihoods

interventions as part of the DRM approach are examples of good practice18. Such initiatives need to be

strengthened across the sectoral task forces.

Recovery and Rehabilitation

Recovery and rehabilitation is defined in Hyogo as reducing the underlying factors and if paramount to long

term risk management post-disaster, and form a continuum with prevention activities. As noted above, DRR

initiatives are closely linked with the poverty reduction, food security, and sustainable land management

initiatives at all levels. Interventions intended to reduce vulnerability must be integrated with initiatives to

improve poor people access to food and other essential services in chronically food insecure areas as is

demonstrated through the plan to utilize the DRM SPIF to enhance planning and implementation of public

works through the Productive Safety Net Programme (PSNP). A risk financing mechanism has also been

established to ensure the protection of lives and livelihoods from shocks impacting on communities and this

should be expanded to manage a wider range of disaster risks and non PSNP areas. The other sectoral line

ministries have responsibility for development activities which in many cases contribute to the reduction of

disaster risk, such as natural resource management, agricultural extension services, water infrastructure

development and health and education services. These line ministries are often unaware of DRM principles

and rarely use risk analysis to aid their planning.

Significant capacity is being built in the climate change sector. The development of climate change adaptation

(CCA) plans at sectoral and regional level is underway. Many aspects of this process, such as the explicit

consideration of vulnerability to climate related risks overlap with the DRM mainstreaming process. A gap

exists in terms of seizing opportunities for collaboration across the mainstreaming of DRM and CCA agendas.

Urban risks are increasingly becoming a concern due to increasing exposure to hazards and vulnerabilities in

urbanized and rapidly urbanizing areas. The DRM-SPIF will ensure that land use plans and building codes are

risk sensitive and take into account the different resource use patterns of women and men.

Institutional capacity: a dedicated government agency- the Disaster Risk Management and Food Security

Sector- has been created. The Early Warning and Response Directorate of the DRMFSS has responsibility for

most elements of the DRM process, including risk analysis (via the LIU and WDRP), preparedness and early

warning and assessment and response. The Food Security Directorate of the DRMFSS manages the food

delivery and monitoring aspects of the Productive Safety Net and Household Asset Building Programmes. At

regional and wereda level, the institutional arrangements vary, but in most cases the same functions are

managed by Disaster Prevention and Food Security Bureaus or Early Warning and Food Security Bureaus.

2.5.2 Gap Analysis and Lessons Learned

The DRM system in Ethiopia has been evolving rapidly over recent years with substantial progress made in

building the overall system envisioned in the DRM policy. This provides a dynamic base upon which to build

future improvements to the system. In identifying the way forward, the SPIF includes an analysis of the gaps

that need to be addressed and lessons learned.

2.5.2.1. Systems Level - Gap Analysis

18The Emergency Nutrition Coordination Unit of Ethiopia roles, responsibilities and achievements, Isaack B. Manyama,

Gugsa Abate and Mathewos Tamiru, Field Exchange, 2011.

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In the past, DRM has been implemented in a fragmented manner using separate instruments, processes and

institutions without the integration required to effectively manage disasters and contribute to overall GTP

goals. With the new approach comes the challenge of defining the DRM cycle and the establishment of its

interrelationship with the more developed disaster response mechanisms. The need for a strategic

framework becomes imperative as the uncoordinated and unguided implementation of DRM initiatives risks

not only the duplication of efforts and resources but could render Ethiopia’s DRM system confusing.

The lack of sector-wide linkages and synergies is evident in the emerging overlap between DRM, climate

change adaptation and social protection. Both DRM and CRGE have a cross-cutting mandate that requires

integration with other ministries. But If DRM and CRGE units are created independently in key line ministries

and at regional or wereda level (as is outlined in both the DRM policy and the CRGE Vision statement), there

is a risk of significant duplication in developing strategies and investment plans for DRM and Climate

Resilience. The key is to avoid duplication whilst simultaneously maximising the benefits of the information

and technical skills available within both the DRMFSS and the EPA. Cooperation between the DRMFSS and

EPA is required in outlining joint requirements for DRM and CRGE investment plans.

System wide resourcing has traditionally been skewed towards emergency assistance, and food aid in

particular, with not enough investment in building resilient households including protection from shocks. In

the existing system, much of the DRM finance is mobilized for response and through the regular

Humanitarian Requirement Documents (HRDs), which are informed by retrospective assessment of the

agricultural season’s performance. In the future, it is envisaged that needs and required prevention and

mitigation measures can be effectively identified through a joint process of early warning and contingency

planning and that resources can be readily available to implement such measures ahead of forecasted

disasters. A DRM approach aims to balance resources more evenly across the full spectrum of the DRM cycle.

2.5.2.2. Institutional Gap Analysis

DRM responsibility is spread over many institutions using a multiplicity of instruments that are lead to

fragmentation and lost opportunities. The organizational structures themselves do not have harmonized

roles and responsibilities at federal, regional and wereda levels which can lead to duplication of effort in key

functional areas. However, in practice disaster management has been seen as the responsibility of one

institution.

There are systemic capacity limitations (number and quality of staff) and high staff turnover exist at all levels

across the DRM spectrum. This is particularly severe at the wereda level. Quality human resources are scare

which means that duplication of function is particularly wasteful. Capacity limitations include physical office

space, equipment, communications including appropriate technology, and other facilities. (for example,

there is a lack of adequate communication facilities to transmit EW and Risk and Vulnerability Assessment

information).

With the implementation of the DRM-SPIF, it is anticipated that further re-structuring of the EWRD may be

needed to ensure that enough staff are available and appropriately organised to meet the implementation

needs of the DRM approach.

2.5.2.3. DRM Component Gap Analysis

Prevention and Mitigation

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The responsibility for Prevention and Mitigation is also spread across multiple government and other

agencies which requires strong coordination at the highest levels. One of the central prevention and

mitigation instruments is PSNP which, while integrating some of the DRR cycle components, is still treated as

a programme rather than as part of an overall system for DRM. Moving forward, it will be essential that the

interface between prevention and mitigation instruments such as the PSNP are clearly defined in relation to

the overall DRM strategy. This will include clear policy level and administrative level clarification.

Preparedness

The system as a whole does not prioritize preparedness which is often equated with pre-positioning relief

supplies by those outside of the DRMFSS. Gaps in preparedness exist in terms of contingency planning, early

warning and the link to response.

Emergency response continues to attract a disproportionate amount of resources at the expense of

addressing the root causes of vulnerability to disasters. While progress has been made to develop new

instruments of response beyond traditional food aid, tools such as the contingency fund and risk financing

need further integration within an overall DRM framework. Despite significant improvements in the

timeliness of response, there are still challenges to increasing responsiveness and responding earlier to

emerging crises.

Contingency Planning

Existing contingency plans are limited in scope and are not yet fully aligned to overall DRR planning which

encompasses the full range of activities throughout the DRR cycle including development planning. They also

do not cover all major hazards and hazard exposed areas. Communities are not fully involved in the

contingency planning process, with a resulting low diffusion of knowledge about agreed prepa redness

measures. A stronger link should be established between the preparedness sector and the financial and

decision-making processes for DRM, in addition to building wider linkages and mainstreaming the approach.

Risk and Vulnerability Assessment, Monitoring and Early Warning

Efforts to strengthen the early warning and information management capacity of the Early Warning and

Response Directorate are already underway. Whilst data collection has been a strength, the use of this data

in planning and decision making processes still remains weak which has also been a challenge in terms of

providing timely early warning.

One of the biggest challenges is to bring greater coherence into the whole DRM information systems which

is now characterized by a number of information based projects rather than a unified system. Risk

Assessment, monitoring and early warning products (WDRP, LIAS, and the EWS) are not fully harmonized

within one system which reduces efficiency, can lead to duplication and risks slowing response. For example,

Risk Assessment tools are not used for guiding early warning which is a lost opportunity.

As pointed out in reviews of existing community level programmes, there is scope for communities to better

engage with the EWS and to creatively use new technology, such as mobile phones, to establish early alert

mechanisms. The creation of other programmes under the DRM-SPIF in contingency planning, DRR and

community adaptation and risk reduction planning aim to remedy this as well as improvements in the

development of information products which are more suitable for use.

The DRM-SPIF recognizes the need to enhance the linkage between Early Warning and early action and puts

in place measures to do this. In addition, greater disaggregation of early warning data and guidance for

gender-sensitive responses are areas where the DRM-SPIF should play a role.

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Research, Mainstreaming and Communication: there are some efforts underway in research, but this will

be further strengthened. The DRM-SPIF aims to improve the body of evidence available to all sectors and to

effectively communicate this for DRM programming. Current support to academic institutions with DRM

research programmes such as Bahir Dar University will continue and be linked with investment in

international institutions and to the agricultural research system.

Building a culture of safety and resilience: the knowledge base on DRM in Ethiopia remains low and requires

enhancement.

Response Financing

Main challenges of the sector include rapid mobilization of resources, availability of funding before disasters

for mitigation and preparedness, the determination of non-food needs and the link with development efforts.

Also, the work of the sectoral task forces has to date been mostly response-focused, whereas an expansion

of their activities into the pre and post disaster phase is called for.

The possibility of involving private sector insurers in response financing has been tested in Ethiopia. An

experiment with this was carried out at the onset of the PSNP programme and then abandoned. In addition,

the HARITA project pilot enables PSNP beneficiaries to work additional days in exchange for weather-index

crop insurance. A review of recent experiences with index insurance programmes19 around the world

(including three pilots in Ethiopia) suggests that that index insurance could not only provide an additional

effective, market-mediated solution to promote agricultural development, but it could also make disaster

relief more effective. With this in mind, the DRM-SPIF recommends that the cost-benefit case for different

insurance models be further explored.

Recovery and Rehabilitation

More gaps exist in terms of recovery and rehabilitation. Currently, the primary focus of the assessment

process and the Humanitarian Requirements Document is on response and there are no standard

methodologies in practice to assess recovery needs or to implement recovery activities, with the exception

of the Government of Ethiopia National Guidelines on Livestock Relief Emergencies, which contains guidance

on activities for the early response and recovery phase of drought emergencies. The widespread and

fragmented responsibility for recovery and rehabilitation across multiple agencies is complicated as it is both

internal and external to government. It is in this area that policy mandate overlaps could lead to confusion

and duplication of effort, especially between DRM, climate change, and social protection. However, strong

mechanism and incentives for collaboration are not fully developed to build adequate synergies and avoid

duplication.

The DRM-SPIF aims to provide a framework for designing appropriate context-specific activities for recovery

in different areas of the country, which will draw on the data available on appropriate livelihood strategies

in particular areas. It is an opportunity to help build the synergies with other actors required to help reach

the overall goals of the GTP.

2.4.3.5. Lessons Learned

The DRM SPIF was developed based on lessons learned from previous experience. These include the

necessity of a multi-hazard approach grounded in a deep understanding of specific disaster risk, and its link

19International Fund for Agricultural Development and World Food Programme. 2010. Potential for scale and

sustainability in weather index insurance for agriculture and rural livelihoods, by P. Hazell, J. Anderson, N. Balzer, A.

Hastrup Clemmensen, U. Hess and F. Rispoli. Rome.

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to development and vulnerability; emphasis on prevention, mitigation, preparedness and post-disaster

modalities and capacities; de-centralization of resources and structures; a clear determination of DRM

responsibilities, supported by the capacity for legal enforcement and a high degree of accountability. Lessons

have been learned from the Drought Cycle Management approach developed in East Africa which

emphasizes the linkages between mitigation, preparedness, relief assistance and reconstruction and a special

emphasis on pastoral areas.

An important international lesson from the Hyogo process that reflects the Ethiopian experience is the need

to ensure DRM is integrated into the response architecture across government and should not be the sole

responsibility of any one ministry. DRM requires both horizontal and vertical integration to address the gaps

noted above.20

Other lessons to emerge include the importance of community-based approaches. The PCDP review points

to the value of the community-driven development approaches and the capacity of the community to

effectively plan and implement community development interventions with proper fund management. In

addition, there are numerous examples of smaller-scale NGO programmes which have taken a community-

based planning approaches to reduce the risk of disasters.21 These examples show the importance of

community involvement in analysing risk and planning, incorporating gender sensitive strategies into analysis

and plans, and the potential to mobilize community capacities for DRM and natural resource management

activities. In addition, the experiences of CARE in piloting the Community Scorecard Approach22 to enable

greater linkage between community priorities and local government service provision could also be applied

to the DRM sector to strengthen the implementation of DRR programmes.

The DRMFSS Working Group on gender mainstreaming recognizes that gender is not an “add on” but rather

an essential component to effective risk mitigation. It has proposed a number of initiatives moving forward

including mainstreaming (ensuring gender is incorporated in all policies, strategies and work plans),

coordination (developing synergies with various programmes) and monitoring and evaluation (monitoring

how gender sensitive the DRM system becomes).

Experience within Ethiopia points to the necessity to include biological and natural resource management

measures alongside physical infrastructure development. Watershed management approaches seem

particularly effective. A recent PSNP evaluation23, for example, reported clear benefits to communities in

areas where environmental transformation measures have been implemented.

Furthermore, the Agriculture Sector Programme Investment Framework (PIF) indicates the high exposure and

vulnerability to climatic risks amongst some households, particularly in light of the low capacity to store water

and irrigate, and the low level of household savings. The persistence of such vulnerability highlights the

existing gaps in prevention and mitigation efforts and the need for future DRR and climate change adaptation

interventions targeted on these issues.

The integration of DRM concepts within the PSNP process has led to some important lessons. DRM functions

are linked to the PSNP in response terms through the Risk Financing Mechanisms and the Contingency Fund,

and the PSNP responds to DRMFSS assessments, Risk Assessment work and early warning reports. However,

20 UNISDR. 1994. Review of the Yokohama Strategy and Plan of Action for a Safer World (A/CONF.206/L.1)

21 CORDAID and JEDCCO in Dire Dawa, FARM-Africa in South Omo, Save the Children US in Borena, Tearfund in Wolaitta

Zone, Oxfam Canada and SEDA in East Showa Zone. See: Documenting NGO Experiences in DRM: Best Practices from the

NGO Community in Ethiopia, 2011 (under finalisation).

22The Community Scorecard in Ethiopia Process, successes, challenges and lessons, CARE, 2010

23World Bank (2009). Project Appraisal Document on a Proposed Grant in support of the Third Phase of the

Productive Safety Net Programme, 25 September 2009. World Bank Social Pr otection Unit, Africa Region.

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these linkages are not systematic enough to avoid duplication of efforts, unnecessary operational overlaps,

and the potential of delay in timely response. The PSNP demonstrates that a more integrated and joined up

system is required to ensure that core DRM functions operate within one fluid process to build overall

resilience.

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3. Disaster Risk Management Strategic Programme and Investment Framework

3.1. Rationale for Investment

Despite significant gains achieved in the past decade, Ethiopia is still vulnerable to the impact of disasters

which impose serious impediments to development, destroy years of effort, squander vast investments and

perpetuate poverty. The vulnerability of the country to disasters is aggravated by rapid population growth,

low agricultural productivity, environmental degradation, and climate change. Ethiopia`s new DRM policy

has been designed to respond to these challenges in conjunction with the national GTP strategy. However ,

the policy cannot be achieved without a sustained and coordinated investment framework that has broad

consensus and support within Government, development partners and other stakeholders. The SPIF

provides a clear statement of the goals and outcomes that the SPIF is expected to influence, and an outline

of the investment parameters required to realize these goals.

3.2. DRM Linkages

DRM is multi-sectoral and involves a whole-of-government approach. It aims to ensure that ongoing

interventions include a DRM component, but also that an integrated system is developed to ensure that poor

communities are able to manage disasters and other risks using common instruments within a joined up

system. While in line with government policy and international standards such as the Paris Declaration, this

is a major challenge in practice given the predominant project based approach which can lead to duplication

and fragmentation.

DRM therefore encompasses a system-wide approach and as such, must clearly demonstrate how to bridge

the current gaps. In practice, this will include building clear external and internal linkages to help address

identified gaps.

External Linkages:

 Policy level: Harmonize potential policy overlaps between Climate Change Adaptation/CRGE, Socia l

Protection and DRM and work to jointly mainstream the policies in one process

 Institutional level: Develop clear coordination structures and through them elaborate the roles and

responsibilities of each institution which demonstrates the synergy needed to reach common GTP

objectives

 Operational level: Develop common implementation systems with the aim to integrate all aspects of the

DRM cycle within a common set of instruments

Internal Linkages:

 Information systems: Further harmonize the various DRMFSS approaches and products so that Risk

Assessment, monitoring and Early Warning is one continuum that informs decision making throughout

the DRM cycle

 Contingency planning: Link contingency planning much more closely with regular development planning

process and to the response through current and new instruments

 Response: Work to harmonize current emergency appeal system with risk financing instruments under

overall DRM framework

 Funding modalities: Funding mechanisms along with contingency planning and preparedness are all

system level requirements and must work clearly together. Funding mechanisms must deliver resources

to the point of need in the time frame available for response and thus need to be streamlined and fully

incorporated into the DRM cycle rather than as a separate process. Moves to tools such as risk financing

help address such delays and put ownership and control firmly in government hands.

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3.3. Disaster Risk Management Principles

The development and implementation of the different programme component of this DRM Strategic Plan

and Investment Framework is guided by the following basic principles:

1. DRM shall be an integral component of national development efforts. Therefore, all development

programs, including post-disaster recovery measures, shall incorporate disaster risk management

components in their regular plans and programs;

2. Natural resource endowments in crisis-affected and crisis-prone areas shall be protected and

promoted in the context of comprehensive risk management strategies;

3. DRM systems shall be decentralized and community-based whereby communities play decisive

roles in the planning, execution, monitoring and evaluation of disaster risk management projects

and programs;

4. DRM systems will ensure the proper participation of all stakeholders including the private sector,

academic and research institutions, humanitarian organizations, etc.;

5. DRM systems will ensure accountability and responsibility of all concerned actors at all levels;

6. No human life shall be lost for want of basic relief assistance in times of disaster;

7. Information management is a vital element of disaster risk reduction, and early warning information

in particular is a right of citizens;

8. DRM systems shall protect and fulfil the basic needs, rights, and dignity of affected populations;

9. Relief interventions shall impartially address the basic needs of all disaster victims, especially at the

initial stages of fast onset emergencies;

10. DRM systems shall take into account the cultural norms, beliefs and practices of communities;

11. Relief efforts shall be followed by development initiatives in order to minimize detrimental effects

such as dependency on relief assistance and promote the recovery of livelihoods;

12. DRM systems will give due attention to especially vulnerable groups such as women, children, the

infirm, people living with HIV/AIDS, the disabled and the elderly;

13. DRM systems shall be free from all forms of malpractice;

14. Sustainable and comprehensive capacity-development is critical for DRM success. This includes the

capacity building of institutions (government, civil societies, and private sector), communities and

individuals on sustainable and continuous manner;

15. Disaster risk management in Ethiopia shall be grounded in a comprehensive and rigorous

understanding of the specific disaster risk affecting the Country;

16. The DRM-SPIF builds on existing institutions and on lessons learnt from the past.

3.4. Goals, Objectives and Outcomes

The DRM strategic programme and investment framework emanates from the BPR exercise and is based on

the objectives, targets, and development goals of the GTP. It is also consistent with the revised DRM Policy

and the priorities enshrined in the Hyogo Framework for Action (HFA).

The Goal of the SPIF is to contribute to Ethiopia’s achievement of middle income status by 2020.

This is a goal that DRM centrally contributes to but cannot achieve on its own. DRM is a fundamental

component of sustainable and equitable economic growth because it protects the development gains made

in all sectors while ensuring the poor can be supported to participate in overall development. This Goal

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situates the SPIF squarely within the highest national development aspiration and highlights its central

importance in helping to meet this objective.

The Development Objective is to reduce disaster risks and the impacts of disasters through the

establishment of a comprehensive and integrated disaster risk management system.

This means that disaster risk and the overall impact of disasters will be reduced through an efficient,

transparent and effective DRM system, able to provide timely information and resources to the most

vulnerable people where and when needed.

It is anticipated that success in delivering effective disaster risk management will lead to a strengthened

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

sustainability of economic and social development gains.

The Specific Objectives are:

1. Reduce disaster risks and vulnerability that hinder development, primarily by focusing on proactive

measures, establishing a culture of risk reduction in regular development programmes, and

addressing the underlying causes of recurrent disasters;

2. Save lives and protect livelihoods in the event of disasters and ensure the recovery and

rehabilitation of all disaster-affected populations;

3. Promote the resilience of people vulnerable to disasters;

4. Mainstream DRM into all sectors, and ensure DRM is integrated into regular development

programmes and implemented at all levels.

The achievement of these goals and objectives will lead to five specific outcomes:24

1. Disaster risk is prevented and mitigated and a culture of risk reduction is built at all levels

2. Disaster risk is timely forecasted and effective mitigation and response are undertaken

3. Emergency services and public assistance during or immediately after a disaster are provided to save

lives and meet the basic subsistence needs of the people affected

4. Livelihoods and living conditions of disaster affected communities are restored, and improved to

withstand future disasters

5. An enabling environment for the implementation of DRM is created and strengthened

The HFA have established targets for 2015 which coincides with the timeframe of the Government of

Ethiopia’s Growth and Transformational Plan. This DRM Strategic Programme and Investment Framework

also uses as a guiding framework the priority areas of the HFA and transforms the various priority actions

into suggested programme areas in line with each pillar.

3.5Disaster Risk Management Framework

The DRM SPIF is based on the DRM policy which provides the direction for the DRM system envisaged for

Ethiopia in the future. It relies on organizational structures with appropriate and harmonized roles and

responsibilities at federal, regional and wereda levels. The SPIF builds on the DRM policy commitment for

strong horizontal and vertical coordination among decision-making bodies and effective DRM systems,

processes and procedures.

24More detail is presented in the attached DRM SPIF Log frame

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The SPIF is based on an understanding of disaster risks; on effective and targeted information flows for

decision making and for community DRM; on resources preparedness, ensuring appropriate and timely

availability of key resources; on effective implementation capacity, including resource delivery; and on

mechanisms for learning lessons and feeding into planning and decision-making.

Figure 2: Disaster Risk Management Framework (Generic)

The DRM Framework indicated in Figure 1 demonstrates the relationships between hazard risks/disasters

and development and the impact of these hazards/disasters given the level of vulnerability and resilience of

communities. It also emphasizes the need for a holistic approach on DRM as both development and

humanitarian actions are inextricably linked and provide a fluid transition towards the strengthening of

capacities and resilience of households and communities to protect lives and livelihoods. It is critical that

DRM is seen as an integrated system embracing a range of sectors and institutions rather than as a series of

individual activities implemented in silos.

Ethiopia’s DRM system goes further in contextualizing the framework to the conditions in the country. The

DRM system of Ethiopia is divided along seven pillars. Two pillars – prevention and mitigation and

preparedness –constitute the core of disaster risk reduction and are essential to ensuring an early and

effective response. This in turn mitigates the overall impact of the disaster and speeds recovery and

rehabilitation. Institutional strengthening is the pillar which supports an enabling environment for the

integration of these various components along the different phases of DRM. Providing the foundation for the

DRM pillars is monitoring and evaluation and resource mobilization.

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Figure 3: Ethiopia's Disaster Risk Management Framework

Institutional Strengthening

Monitoring and Evaluation

Resource Mobilization

The seven pillars of the DRM Framework interact within a continuous process that guides a transparent and

integrated system through three major phases: pre-disaster, during disaster, and post-disaster.

Pre-disaster Phase: This includes prevention, mitigation and preparedness activities with a focus on

incorporating DRM elements into development strategies, policies and programmes, building the capacity

for all actors to discharge their roles, building adequate physical and financial reserves, and ensuring the

tools for response are in place including contingency planning and a holistic information system that

encompasses early warning, risk assessment, livelihood analysis and monitoring systems.

Disaster Phase: This phase exercises the infrastructure and systems of response with a focus on communities

and weredas as the first line of detection and response. Prior to the disaster, capacity to detect and respond

to disasters will be built from the community level on up. Protocols and procedures of response will be based

on a thorough understanding of household vulnerabilities and risks and innovative tools of response will be

used such as risk financing.

Post-Disaster Phase: This phase manages the transition into development programmes and begins with a

damage assessment as the basis joint early recovery programming. These activities aim to quickly move to

stabilization and the promotion of resilience building activities. Resilience is the ability to withstand threats

or to adapt to new strategies in the face of shocks and crises, in ways that preserve the integrity of individuals,

households and communities (while not deepening their vulnerability) with a focus on merging humanitarian

and development programming to better address overlapping risks and stresses.25 It is an emerging concept

that complements DRR.

25FAO, UNICEF, WFP. A Strategy for Enhancing Resilience in SOMALIA: Brief, July 2012

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The new approach to DRM is multi-disciplinary and multi-sectoral which requires a wide range of reliable

data generated by the full spectrum of institutions, sectors and decision makers. It must operate within a

timely and efficient communication system that is able to integrate these many diverse parts.

The DRM policy envisions a centrally managed DRM information system that integrates information from

different sectors as well as harmonizing all internal information flows into one system. This would include

all information on hazards and associated risks, vulnerability/livelihoods/coping strategies, and underlying

and associated causes.

3.6 DRM Strategic Programme Areas

During the SPIF formulation process, a number of priority areas for investment have been identified within

the DRM cycle. The DRM-SPIF provides an opportunity for funds to be fed into priority programmes to ensure

a comprehensive and integrated response to the DRM challenges within Ethiopia.

Under the following six investment categories are a number of indicative programme areas that form the

core of the SPIF.26 If new DRM related initiatives are identified outside of, or cutting across the existing

programmatic areas, the DRMFSS will work with partners to formulate solutions within the context of the

DRM SPIF. The DRMFSS will work closely with key stakeholders to develop these options in more detail.

DRM Investment Categories

Priority Programmatic Areas

1. Early Warning, Risk Assessment, and

Monitoring*

* This theme captures all information issues including

knowledge management, communication strategy, research, Risk

Assessment, Early Warning, assessments and M&E

 Information management systems support including:

 Early warning systems

 Disaster risk profiling

 Risk Assessment/Livelihoods analysis

 Rapid assessment system

 Post-disaster needs assessment

 DRM research, communication and awareness

raising

 M&E strengthening

2. Prevention and Mitigation

 DRR programming

 CAA/DRR/Social protection integration

3. Preparedness

 Contingency planning

 Contingency fund

 Food and non-food management system

4. Response

 Emergency response coordination

 Humanitarian response

5. Recovery and Rehabilitation

 Post disaster recovery programming

 Integrated rehabilitation programming

6. Institutional Strengthening

 DRM coordination

 International collaboration and engagement

 Capacity development

26 These are described in more detail in the Annex

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 DRM mainstreaming

 DRM volunteer scheme

Underpinning the DRM policy is an emphasis on a participatory approach that is both decentralized and

community based. The DRM policy commits to establishing DRM systems whereby communities play

decisive roles in the planning, execution, monitoring and evaluation of disaster risk management projects

and programmes. It emphasizes the proper participation of all stakeholders including the private sector,

academic and research institutions, humanitarian organizations, etc. Included is due attention to vulnerable

groups, especially women, children, the infirm, people living with HIV AIDS, the disabled and the elderly.

The importance of gender with the DRM system is recognized within the DRM policy and is reflected in the

formation of a DRM working group on mainstreaming gender in disaster risk management within the RED&FS

coordination structures (see section 3.10). This recognizes the essential role of women in building disaster

resilience through knowledge and responsibilities in resource management, and in mobilizing communities

to prepare for and respond to disasters.

The capacity development of DRM institutions will be based on a comprehensive institutional capacity

assessment. The resource pool on DRM in the country is to be enhanced through the support to academic

and training institutions in offering undergraduate and graduate degree courses and the conduct of

specialized short courses on DRM. A DRM resource centre will anchor the capacity building activities. DRM

will be mainstreamed in all sectors. Paramount in the DRM mainstreaming effort is the establishment of a

strong link with education through the integration of DRM in the school curricula at primary, secondary, and

tertiary levels. Complementing the capacity of DRM institutions is the DRM volunteer scheme which allows

for the establishment of a substantial cadre of volunteer personnel that could be engaged on DRM activities.

Ethiopia’s engagement with the international community on DRM will be enhanced through its heightened

involvement in the activities of ISDR and other DRM communities of practice activities. Of particular emphasis

is the GoE’s focus towards developing south-south collaboration.

At the onset, baselines on the current status of the DRM Programme Components will be established. As per

the DRM Strategic Programme and Investment Framework Monitoring and Evaluation Matrix, a monitoring

database and regular feedback mechanism will be employed complemented by the documentation of good

practices and lesson learned. Evaluations at mid-term and end of term will be undertaken to look into the

effectiveness, efficiency, sustainability, and impact of the DRM Strategic Programme and Investment

Framework.

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Figure 4 -Ethiopia’s Disaster Risk Management System Framework by Category

Prevention and Mitigation

Preparedness

Response

Recovery and Rehabilitation

Community DRM

DRR Programmes

Contingency

Planning

Contingency

Fund

Food & Non-Food

Management

System

Emergency

Response

Early

Recovery

Damage, Loss &

Rehabilitation

Needs Assessment

Research,

Mainstreaming and

Communication

DRM Research,

Communication &

Awareness Raising

DRM Mainstreaming

CCA/DRR Integration

EW & Information Mgmt

System

Early Warning

System

Rapid

Assessment

System

Disaster Risk Profiles

Information Management System

Institutional Strengthening

DRM Coordination

DRM Volunteer

Scheme

Capacity Development

International Collaborations and Engagement

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3.7. Disaster Risk Management Investment Framework

The priority pillars and programmes of Ethiopia’s DRM system with its inter-linkages and complementarity

established constitute the overall DRM strategic programme framework. Each of these priority pillars have a

number of programmes that will be further developed with partners to work towards the achievement of strategic

objectives that in turn contribute to the achievement of the DRM goals. Support towards these priority pillars and

programmes is therefore essential.

Development partners are already contributing to DRM in Ethiopia. The DRM SPIF provides an over-arching

framework to accommodate existing investment in priority areas and to highlight areas where additional

investment is required.

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Matrix 1 DRM Investment Framework

Investment Framework is currently under review and it will be shared soon.

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3.8 Financial Arrangements

Development partners have expressed intent in aligning and harmonizing support to the forthcoming DRM

Policy and to the GoE’s strategic framework on DRM. One of the options being looked into is developing a

coherent donor position and investment for DRM programmes within an overall strategic framework.

Resources channelled to support DRM initiatives in this manner avoids stand-alone engagements where

benefits are not fully maximized due to the absence of linkages with other DRM initiatives.

It is essential for the success of the DRM SPIF initiatives that appropriate funding mechanisms to support and

sustain the activities are created that allow for maximum flexibility to accommodate all possible funding

streams. There are a number of possible financing modalities to be used for financing the DRM programmes

and activities. Because the funding requirements will be significant, the recommended approach is to align

support with the government system in a harmonised manner.

The envisaged funding mechanisms shall provide financial support to disaster risk management activities

identified in the SPIF. There are a number of options for funding the DRM-SPIF, all of which must ensure

there is adequate Government leadership and ownership.

1. National Budget: The Government will continue to allocate national budget towards the priorities

outlined within the DRM-SPIF.

2. A multi-donor funding facility.

There are a number of options within Ethiopia that could be used for this purpose. Most common is a multi-

donor trust fund mechanism such as the World Bank Trust Fund mechanism used to fund the Agriculture

Growth Programme and the PSNP. Significant synergies could be built by looking to position DRM

investments within existing funding and programming arrangements

Another option is the CRGE financing facility which has been created as a vehicle to contribute to Ethiopia’s

objective of pursuing a climate resilient green economy, which includes an effective DRM system. The

Climate Resilient Green Economy (CRGE) Financing Facility is a national institution, closely linked to the

Environmental Protection Authority, the Prime Minister’s Office and the Ministry of Finance and Economic

Development. There are two financing windows under the CRGE facility, one through MOFED and one

through UNDP.

3. A pooled fund for a specific DRM programme

A pooled fund could support a jointly designed programme that would capture priority elements of the DRM-

SPIF by combining relevant and complementary programme components. It would build on existing

investments in DRM and aim to build linkages with other sectors, with the close involvement of Government

and donors.

The aim of these joint funding approaches is to reduce the transaction cost involved in accommodating

multiple funding streams while simplifying the flow of funds. However, financing modalities must be

sufficiently flexible to maximise funding opportunities while ensuring full alignment with the SPIF.

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3.9. Disaster Risk Management Monitoring and Evaluation

The M&E function is critical to the SPIF process in terms of guiding implementation, identifying problems and

constraints, documenting results, and ensuring impact is achieved. It is critical for ensuring accountability

and transparency for pooled funds jointly managed, and for building rigour within the waiting system.

The DRM Log frame puts into context the overall results to be achieved in the DRM Strategic Programme and

details how results will be measured and how the information generated will be able to support evidence-

based decision making. The main objective of the DRM Policy is to reduce risks and impact of disaster which

translated into realistically measurable impact indicators would be a) percent reduction in the number of

persons affected by disasters (compared to baseline 2011); and b) percent reduction in disaster losses - lives

and livelihoods lost (compared to baseline 2011) or reduction in the proportion of disaster losses to GDP.

The DRM Log frame makes provisions for ensuring that evidence-based decisions regarding service delivery

are made, resources are effectively and efficiently utilized, and mechanisms for tracking implementation and

determining whether expected results are being achieved is in place. The DRM M&E Matrix provides for the

summary of outcome indicators and critical output indicators that influences the achievement of the

outcome/s.

Monitoring

Monitoring the progress of implementation of the DRM Strategic Framework and Investment Framework is

vested in the DRMFSS and the DRM Technical Working Group (DRMTWG). The DRMFSS will ensure that

information with regards to progress on the implementation of the strategic plan is compiled and discussed

in the DRMTWG. The DRMFSS will develop a database and facilitate regular reporting from various

stakeholders. The DRMTWG will ensure the close monitoring of the progress of DRM funded programmes

and resolve any constraints that may hinder progress in implementation.

Given the scale of programming under the DRM SPIF the indicators are limited in each programme

component. However, monitoring will not be confined to these indicators and will include a comprehensive

documentation of good practice and lesson learned.

Evaluation

Regular evaluations of the DRM Strategic Programme will be conducted to determine its effectiveness,

efficiency, sustainability, and impact. Prior to the conduct of any evaluation exercise, a baseline exercise will

be undertaken to establish the benchmark for the implementation of the DRM SPIF. This will include a mid-

term and end of term evaluation.

In both evaluation exercises, DRM stakeholders (government, donors, UN agencies, and NGOs) will be

extensively involved in the spirit of participation and transparency which characterizes the implementation

of the DRM SPIF. Both evaluations will be conducted under the purview of the DRMTWG with the results

presented and discussed in the said group, as well as, in other bodies of the Rural Economic Development

and Food Security (RED&FS) structure.

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Matrix 3 - DRM SPIF Logframe

Hierarchy of Objectives

Development Goal

Disaster risks and the impacts of

disasters reduced through the

establishment of a comprehensive

and integrated disaster risk

management system

Objectively

Verifiable Indicators

(OVIs)

Means of

Verification

(MoV)

Assumptions and Risks

The reduction in the number of lives

lost as compared to previous similar

disasters

The reduction in the value of

economic losses incurred as

compared to previous similar

disasters

Annual analysis of weekly EW

reporting on lives lost.

Annual analysis of crop and livestock

losses (disaggregated by major

hazards) from monthly EW

reporting.

CGE analysis of CSA data of patterns

of household expenditure and GDP

in relation to disaster events

(conducted every 5 years).

Sufficient capacity and resources are

available to analyse the data.

There is effective coordination and

collaboration between stakeholders

to arrive at reliable information.

Disaster events are difficult to

compare and validity may be limited.

Outcomes

1. Prevention and Mitigation

A comprehensive national system

for disaster risk reduction and

mitigation is established and

becomes operational by 2020

The reduction in the number of

people and children affected by

severe malnutrition

The number of regions and districts

that refer to the DRM policy and

operational guidelines and that

integrated Early Warning,

Contingency Planning, Mitigation

and Response.

Annual analysis of ENCU data

Assessment of regional and district

reports.

Inventory and assessment of

agreements and approved

development programs, based on

their contribution to the Disaster

DRM Policy and operational

guidelines are available at all

administrative levels.

Staff of government, donors, NGOs

and CBOs are aware of policy and

guidelines.

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Hierarchy of Objectives

Objectively

Verifiable Indicators

(OVIs)

The number of regions and districts

that access funding, which allows for

planning and implementation of

interventions, to prepare for,

prevent and respond to disaster

events.

Percentage of all development

programs that include elements and

interventions directly contributing to

the Disaster Reduction Objectives, as

described in the national DRM

framework.

Means of

Verification

(MoV)

Reduction Objectives, as described in

the national DRM framework.

M&E and reports of development

programs.

Assumptions and Risks

Sustained commitment of

government, donors and

development partners to finance,

build capacity for and implement

DRR programs and to respond to

disaster events.

All relevant stakeholders and actors

participate in the coordination

structures and follow up the

decisions made and information

disseminated as regards required

action.

2. Preparedness

The national capacity to

effectively anticipate, respond to,

and recover from, the impacts of

likely, imminent or current hazard

events or conditions enhanced

The frequency and effectiveness of

national coordination meetings,

during which early warning

information, derived from all levels,

is assessed to predict the likelihood

of any disaster risks and leads to

timely early contingency action.

Periodic (mid-term and 5 year)

evaluation surveying participating

agencies to identify what decisions

were made based on early warning

information.

3. Response

Emergency services and public

assistance during and/or

The percentage of the amount of

required contingency funding that is

available and directly accessible to

activate contingency plans.

Available funding as compared to

the identified requirements.

Weekly early warning reports and

damage and loss assessments

SPHERE standards are adhered to in

planning and implementing

emergency response interventions.

Adequate and timely resources

allocation from the government and

external sources.

Availability of logistical facilities and

infrastructure to facilitate timely

response.

Allocation of adequate resources for

recovery and rehabilitation from

government and external sources.

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Hierarchy of Objectives

immediately after a disaster, is

effectively provided to save lives

and meet the basic subsistence

needs of the people affected

4. Recovery and rehabilitation

Livelihoods and living conditions

of disaster-affected communities

restored, and improved to

withstand future disasters.

Objectively

Verifiable Indicators

(OVIs)

The number of lives lost and

livelihoods disrupted amongst the

affected population.

% of relief food dispatch rounds and

non-food responses completed in

line with needs assessments

The volume of distress sales of

livestock linked to major hazards.

Percentage of people affected,

whose livelihoods are restored to

pre-disaster levels.

Percentage of communities whose

assets are either rehabilitated or

improved to pre-disaster levels.

Means of

Verification

(MoV)

Relief food dispatch records and

sectoral task force reports on non-

food responses.

Early Warning data on supply ratings

for livestock.

Comparative analysis of CSA data on

annual household expenditure for

comparable hazard years over time.

Mid-term and final evaluations

surveying the achievements of

recovery programs

Assumptions and Risks

Macro-economic factors (market

access, prices, and infrastructure) do

not hinder recovery efforts.

Management and coordination

mechanisms are established at all

levels

The institutional capacity (staff,

system, structure, physical,

coordination etc.) is adequate to

manage DRM issues in an effective

manner.

Sufficient resources are allocated to

manage and coordinate DRM.

5. Institutional strengthening

Institutional capacity to manage

and coordinate the DRM

interventions and linkages with

other programmes enhanced

Number and proportion of regions

and districts with established DRM

coordination mechanisms (i.e.

DRMTWG).

Minutes of DRM coordination

meetings.

The number of line ministries or

regions reporting an increase in DRR

and/or climate change adaptation

investment.

Institutional capacity assessments

produced as part of the programme.

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3.10 Institutional Arrangements for Multi-Stakeholder Coordination

Primary responsibility of coordinating and monitoring progress of the DRM Strategic Programme lies with

the DRM Technical Working Group (DRMTWG) which also supports the implementation of the new multi -

sectoral and multi-hazard DRM approach in Ethiopia, besides providing platform for the mutual engagement

and support of humanitarian organizations and development partners.

The DRMTWG also forms link between this DRM coordination structure and the Rural Economic

Development and Food Security - Sector Working Group (RED&FS - SWG), particularly the Joint Strategic

Oversight Committee on DRM (JSOC-DRM).

The DRMTWG continues to work as the nodal coordination forum on all DRM phases – pre-disaster

(prevention, mitigation and preparedness), during disaster (response) and post-disaster (recovery and

rehabilitation). The DRMTWG is supported by a set of technical and sector Task Forces. These task forces are

primarily responsible for the coordination and actions under each sector and are headed by respective

relevant government line ministries and are supported by organisations from other line ministries, UN

agencies and civil society organisations. Cross-cutting to all these is the Working Group on Mainstreaming

Gender in DRM that will work with DRMTWG and all other sector task Forces to mainstream discussions on

vulnerabilities associated with gender and other socially vulnerable groups. Figure 4 below depicts the

complete DRM institutional structure for coordination.

It has been observed that in many of these forums the discussions largely centre on disaster management

issues while risk reduction and recovery aspects get only residual attention. Hence, specific and redirected

emphasis will be paid to mainstream DRR and recovery issues in discussions, activities and decisions of all

these coordination forums. The constituents of these groups will also be reviewed to ensure that all relevant

stakeholders are encouraged to attend and where appropriate the coordinating agencies reflect the

requirements of the group. The ToRs of groups will be revised and monitoring and evaluation indicators

relevant to DRR and Recovery will be included in work plans and reviews. The DRMTWG will be provided

with required technical assistance and support to realise this.

Nevertheless, given the recurrent severity of disasters in Ethiopia, special multi-agency coordination

structures would be activated at the times of crises. This includes both Technical and Strategic Multi-Agency

Coordination (MAC) groups within the framework of National Incident Management System (NIMS). The

NIMS will also facilitate establishing an Emergency Operation Centre (EOC) that will monitor and collate

information from all parts of the country on a regular basis, thus enabling early and smo oth response.

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Fig 5: Institutional Arrangement for Coordination

RuralEconomic Development &Food Security (RED&FS) Executive

Committee

RED&FS TechCommittee on SLM

Joint Strategic

OversightCommittee for FS

Joint TC-1-EWR/Transfer

Joint TC-2-HABP

Joint TC-3-PW/CCI

PSNP-RiskFinancing

Management Committee

RED&FS TechCommittee on

DRM&FS

F& NF Mag’t TF

mtfManagement TF

PSNP/RiskFinancing

Social Development

RED&FS TechCommittee on AG

DRM Technical Working Group

AgriculturalTF

EducationTF

HealthTF

MAN TF

WASH TF

Gender TC

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Annex 1– Programme Options

DRM Programme Options Summary

No.

Programme

Objectives

Interventions

Outcome

Deliverables

 To examine the underlying

Training and Workshops. Government and Stakeholders and

Risk Assessment /

causes of disaster risk and

partners institutions and staffs will be

actors have better  Disaster Risk Profile, including

Disaster Risk

inform the design of risk

trained on data collection tools and

information system an analysis of specific gendered

Profiles

reduction programmes;

methodologies.

to manage disaster risks and vulnerabilities for

 To inform the kind of early

warning and response system

that needs to be framed in

Survey. Data collection conducted at

wereda and kebele levels that include sex

and age disaggregated data and

risks and take

timely action in the

event of a disaster.

each wereda

 Digital Library for a wereda

different risk contexts; and

information.

 To inform a comprehensive

contingency plan at wereda

Data Entry, Analysis, and Validation. Entry

of data into the WDRP database and

 Consolidated Overview of

Disaster Risk

level.

analysis. GIS-based maps will be prepared

 To identify specific gender

based risks and vulnerabilities

to inform risk reduction

programmes

and included in the development of the

profile of the weredas. Vertical and

horizontal (wereda, regional, and national

levels) validation and dissemination of

wereda profiles.

Publication. The complete and validated

wereda profiles published through the

digital library and made available through

the Internet.

Information

Management

System

 Provide information

management services for the

creation of a strengthened

early warning system and a

Strengthening of connectivity.

Strengthening of both vertical and

horizontal connectivity between various

level of governments and its partners;

Enhanced

information

systems, improved

information use

and exchange to

 Early Warning and Information

Systems

46 | P a g e

No.

Programme

Community

Disaster Risk

Management

Objectives

Interventions

Outcome

Deliverables

number of further required

information systems

 Improve connectivity and

communication with regional

and sub-regional DRM and

food security structures;

 Strengthen and consolidate

existing IT resources and

personnel’s skills developed

within the DRM, ensuring

sustainability of current and

future achievements; and

 Advancing automation of

operations within DRM.

To ensure community ownership of

disaster risk reduction initiatives.

Software and database development.

Improve DRR information analysis

capacity through the creation of software

and databases and by emphasizing geo-

spatial information systems;

Information dissemination. Improve DRR

information dissemination through the

development of systems that are user-

friendly, interactive, dynamic, but also

centralized;

Stakeholder engagement. Engage with

providers and beneficiaries of the various

DRR activities, so that services delivered

by the Information Management Support

Unit are demand-driven;

Staff training. Heavily investing in

selection and training of local staff, in

view of ensuring long term sustainability

of all IT related functions.

Community Participatory Risk and

Vulnerability Analysis. With available data

from the WDRP, risk and vulnerability

analysis would be conducted while

ensuring that women’s and other

vulnerable groups’ are consulted and their

risks and vulnerabilities adequately

analysed and documented.

Community Education. Making

communities aware of the nature of

hazards and their potential for causing

disasters, and understanding all aspects of

disaster management, including

information on contextual vulnerabilities

to those hazards for specific groups such

as women and other vulnerable groups.

support the

expanded

information needs

on DRM.

 Information Dissemination

System

 Digital Library

 Data Mapping Facility

 3W Database

 General Support to Information

Management in the DRM Sector

Revitalization and

up scaling of

existing community

managed disaster

risk management

initiatives.

 Risk and vulnerability analysis

led and undertaken by

vulnerable communities;

 Functioning community early

warning system;

 Community risk reduction and

climate adaptation

program/community

development plans;

 Community contingency and

recovery plan; and

 Comprehensive community

education on DRM

47 | P a g e

No.

Programme

Objectives

Interventions

Community Networking. Communities and

community institutions such as youth and

women’s associations organized to build a

common platform and pursue a common

program and aspirations on DRM linked

with local, regional, and federal level DRM

institutions.

Community Mitigation Programming and

Implementation/Community development

plans. Community-based disaster

mitigation and climate adaptation

programs based on innovations, local

knowledge, coping capacities and

practice, while ensuring active

participation and contribution of men,

women, girls and boys is linked to the

overall development of their community

and provide the integration between DRR

mitigation and Climate Change adaptation

measures.

Community Early Warning System. A

community managed process of

monitoring specific hazards and of

communicating the nature and magnitude

of the said danger/s through a system of

alert/warning that is understood by

everyone, in particular women and other

vulnerable groups will be promoted.

Community Contingency and Recovery

Planning. Communities will be assisted in

the development of their respective

community contingency and recovery

plans while ensuring that women and girls

adequately participate.

Outcome

Deliverables

48 | P a g e

No.

Programme

DRR Programmes

Climate Change

Adaptation and

Disaster Risk

Objectives

Build up and sustain resilient

capacities of vulnerable

communities through diversified

livelihood opportunities, natural

resources management and

environment protection.

Ensure climate change adoption

policies and development plans

Interventions

Outcome

Deliverables

Informed DRR Programmes: It will be

ensured that the WDRPs and other

available risk databases including active

engagement of community institutions

form the basis of decisions regarding type

of activities to be undertaken and

geographical areas and populations to be

targeted.

More informed

DRR programmes

resulting in

mitigation of

disaster risks.

 Well-informed and harmonised

DRR programmes implemented

 Resources available from

government for agreed DRR

programmes

Programme Implementation: The

government will ensure that adequate

resources (financial, technical and human)

are available to implement all decided

programmes. To the extent possible, all

resources will be drawn from the

government sources.

Documentation of Lessons Learnt: Efforts

will be made to document best practices

stories, lessons learnt and publish regular

advocacy materials for an enhanced

visibility of such programmes and also

mainstreaming DRR issues in public

forums.

Regular Monitoring and Evaluations: All

implemented programmes will be

monitored regularly and evaluated for

results periodically to assess their success

and document lessons learnt to improve

the programmes further.

Availability of Appropriate Climate Data.

In collaboration with the national and

international technical institutes, DRMFSS

Integration of DRM

knowledge and

capacities in efforts

 Downscaled climate data based

on livelihood zones are available

via the DRMFSS database.

49 | P a g e

No.

Programme

Objectives

Interventions

Outcome

Deliverables

Reduction

Integration

and interventions capture DRR and

vice versa

will make more specific and appropriate

climate projections and seasonal forecasts

available to regional and wereda bureaus.

These projections are also integrated into

the WDRP database to provide

comprehensive data for risk reduction and

adaptation planning.

to mainstream

climate change

undertaken by the

EPA

Analysis of risk data to support

development of CCA Sector Action Plans in

other Line Ministries. Ensure that DRMFSS

datasets like WDRP, LIU etc. are taken into

account by Line Ministries and Regional

Bureaus when they develop their Sector

Action Plans for Climate Change

Adaptation.

 Enhanced harmonization

between EPA and DRMFSS

 Specific analysis of risk profile

data to inform sector action

planning processes on climate

change adaptation

 Training materials on using

available risk information in

development planning are

developed and disseminated to

line ministries and regions

Capacity Development for CCA/DRR

Integration in Development Planning. It

will be ensured that the training and

awareness programme on integrating

disaster risk and climate change into

development planning (led by EPA) is

conducted in liaison with DRMFSS.

Incorporation of CC considerations into

mainstreaming plans. The outcomes of

the information generated above should

result in the alignment of mainstreaming

initiatives between EPA and DRMFSS and

to ensure efficiency in the efforts made by

Sector Line Ministries.

50 | P a g e

No.

Programme

Early Warning

System

Objectives

Interventions

Outcome

Deliverables

 Establish a systematic and

standardized process to collect,

analyse and share data, maps

and trends on hazards and

vulnerabilities and relate these

to the livelihoods of affected

populations

 Establish an effective hazard

monitoring and warning service

with a sound scientific and

technological basis and utilizing

local technologies

 Develop Wereda Net-based

communication and

dissemination systems to

ensure people and communities

are warned in advance of

impending natural hazard

events.

Capacity-Building. Streamlined training

and capacity development of relevant

staffs at various levels will be done on

EWS data collection, including that for

LEAP software, and analysis.

Database Establishment and

Management. Baseline and databases at

regional and federal levels will be kept

and linked with each other for easy

accessibility.

LEAP Software Update. A number of LEAP

software updates will be produced

including refinement and verification of

LEAP outputs using retrospective analysis

and forecast for belg 2011; finalization of

LEAP-LIAS integration; development of

pastoral index (possibly combined with

LEWS outputs); develop flood index;

integrate climate change model.

Federal, regional

and wereda level

capacity for early

warning system

linked to the WDRP

and vigilance to

eminent

risk/disaster is

efficient, sound

and timely.

Strengthening of meteorological

infrastructure. Setup of automated

weather stations; install Geonet Cast

satellite data receiver and related server

at DRMFSS and NMA; installation of

automated hydrological telemetry along

the Awash river are some notable

interventions.

Multi-hazard and ad hoc analysis team.

The EWS will establish a small, dedicated

multi-hazard analysis team within the

DRMFSS: This team will continuously

 Training on EWS from federal

to wereda levels on

transmitting information;

 Roll-out of EWS reporting and

database;

 Maintenance/Updating of EWS

database and mapping

capacity;

 Creation of statistical routines

for analysis of WDRP and EW

data;

 Integration of LEAP-HEA-EW;

 Establishment of EWS alert/

warning communication

network;

 Production and dissemination

of EWS monthly and fortnight

bulletins;

 Support to community-based

early warning system;

 Integration with contingency

finance and planning to

perform “trigger” function; and

 Integration with traditional

response mechanisms.

 Extensions of LEAP software

released: pastoralist index,

flood forecast, climate change

integration, HEA integration,

LEWS and Geonet Cast data

integration

 Setup and installation of Hydro-

meteorological infrastructures:

51 | P a g e

No.

Programme

Contingency

Planning

Objectives

 Design effective,

comprehensive, gender

responsive and decentralised

response plans for major

hazards based on the WDRP;

Interventions

Outcome

Deliverables

collect and analysis the information from

the different available EW tools and

disseminate its findings. Furthermore, the

creation of ad-hoc multi-agency team will

be considered for major hazards such as

droughts. Such ad-hoc teams will focus on

one hazard and report to senior policy

makers updated scenarios and prioritized

DRR and response plans.

EWS Analysis. Multi-hazard analysis

combining information from the EW

checklists’ dataset, baseline information

from the WDRPs, LIAS database, and agro-

economic forecasts based on LEAP

outputs will be done.

Alert and Communication Systems.

Regular bulletins, a re-designed website

complemented with an effective alert

system will ensure EW analysis and

information reaches the whole

community of DRM actors in the country.

Food markets monitoring. The DRMFSS

will perform continuous food markets

monitoring after the development of

guidelines and conduct of trainings on

market analysis and will disseminate all

relevant information to stakeholders.

automated weather stations

and , hydrological telemetry

 Setup and installation of Low

Cost GEONETCAST

Infrastructures and application

of toolbox for DRM

Manual Development. Development of a

comprehensive contingency planning

manual.

Enhanced

preparedness of

actors at federal,

regional, wereda

 Trainings of federal, regional

and wereda level staff;

 Manual on Contingency

Planning for Ethiopia; and

52 | P a g e

No.

Programme

Objectives

Interventions

Outcome

Deliverables

 Create conditions for effective

coordination and collective

action in response to both

occurring and impending

emergencies;

Capacity-Building. Based on the manual,

an extensive training program will be

undertaken targeting first federal and

regional officials and subsequently

cascaded to the weredas.

and sub-wereda

level against

impending

disasters.

 Wereda level and regional level

multi-hazard and multi-

stakeholders contingency plans

 Build and strengthen

preparedness capacity at all

levels; and

 Build upon existing early

warning and contingency

planning initiatives promoting a

shared culture of preparedness

among institutions and

communities.

Development of Contingency Plans.

Application of the contingency planning

manual to produce multi-hazard,

comprehensive contingency plans using

information from the WDRP, EWS, and

other sources, establish “triggers” to be

monitored and design response systems

which take into considerations

communities’ vulnerabilities and

capacities.

Database Development, Resource

Mapping, and Pre-Positioning. Maintain a

database of existing up-to-date plans and

map available resources that can be

tapped in the event of a disaster.

8. Contingency Fund

Review of existing practices and

 Establish financial mechanism

arrangements and other countries’

Steady stream of  Concept note and

ensuring adequate, timely

practices. Existing funds and

timely and

implementation manual on

funding is available for the

arrangements like the NDPPF, HRF, RF,

adequate financial

reformed funding mechanism

implementation of contingency etc., together with practices in other

support enabling

produced;

and recovery plans at wereda, countries, will be reviewed.

implementation of

regional and national level;

contingent and

 New fund established, including

 Design incentives to avoid over

spending and poor utilization of

funds.

1. Disaster and Recovery Fund

Stakeholder workshops. A series of

stakeholders’ workshops will be organized

to detail users’ and providers’ needs in the

design of the reformed funding

mechanism.

planned DRM

interventions along

all phases of the

DRM cycle and

with the funding

mechanisms

established to

setting up of all specified

committees and components;

 Bi-annual resource allocation

reports produced and

circulated;

Development of implementation manual. enable the scaling

A concept note and an implementation

up of support.

53 | P a g e

No.

Programme

Objectives

Interventions

Outcome

Deliverables

manual on the reformed funding

mechanism.

Fund establishment. Once the concept

note and implementation manual have

passed the stage of final revision, the fund

will be established.

Major fund review after 2 years. A major

review of the fund’s operation will be

undertaken after 2 years of operations.

Over-spending and

poor utilization will

be discouraged

through extensive

monitoring and

performance based

incentives.

 Review document produced

after stakeholder workshop;

 Cost-benefit analysis document

on national insurance;

 Government-donors workshop

report.

2. National Insurance Program

Cost-benefit study. A cost-benefit analysis

exercise will be carried out to explore the

feasibility of a national insurance

program.

Government-donors workshop. If the cost-

benefit study revels potential gains in

buying a national insurance programme, a

large consultative workshop will be

organizing, to incorporate donors’ views.

Extension of disaster and recovery fund. In

case the cost-benefit analysis and

stakeholder workshop have a positive

outcome, the emergency/contingency

fund will be augmented by a separate pot

where donors and government can

contribute money to pay for the premium

on the insurance product. Donors will

then be able to commit a predictable and

stable flow of funding, while decreasing

contributions to the contingency part of

the fund.

54 | P a g e

No.

Programme

Objectives

Interventions

Outcome

Deliverables

 Procurement of food (including non- DRMFSS and other

Food and Non-

 To establish and maintain food

Food Management and non-food reserves in

grain food) and non-food items order implementing

to build up the reserve

partners will be

 Effective and trust worthy

humanitarian food and non-

System

different strategic locations

across the country for

 Make arrangements for electricity

installation in the new warehouses.

able to acquire

capacities for good

food items management

system will be developed in

emergencies, market

stabilization and export.

 To design and develop

commodity tracking system by

strengthening national &

regional capacities for effective

implementation of food and non-

food movements

 Hiring of consultant Civil

Engineer/advisory institution

 Construction of warehouses, silos,

cold stores and other storage facilities

for food and non-food items

 Procurements of warehouse

equipment

 Enhancing transportation capacity

through purchase of additional

vehicles

commodity

tracking system,

and contingency

food and non-food

reserves

the country.

 warehouse with electricity

installed

 new warehouses constructed

 new silos constructed

 new cold stores and other

 Develop a database for commodity

storage facilities constructed

tracking

 new additional vehicles

secured

10.

Rapid Assessment

System

To provide early warning and

assessment information in case of

fast-onset hazards and disasters

which exceed the Early Warning

System capacity for analysis

Development/Revision of assessment

guidelines. Gender sensitive Assessment

guidelines and methodologies for various

sectors will be produced or revised if

existent to enhance the collection and

analysis of sex and age disaggregated data

and information.

Training on assessment guidelines. A

series of trainings will be conducted for

DRMFSS staff and staff of other relevant

organizations.(male and female staff)

Extended early

warning system

capable of

mobilizing

appropriate human

and financial

resources to assess

hazards and

disasters of

particular

magnitude or

special features.

 Gender responsive Assessment

guidelines produced

 Training on assessment

guidelines produced and

training report produced

 TOR of DRMTWG amended to

include role of Assessment

Missions

Introduction of rapid assessment in TOR of

DRMTWG. The TOR of the DRMTWG will

55 | P a g e

No.

Programme

Objectives

11.

Emergency

Response

To address humanitarian needs

emerging from manmade and

natural disasters and effectively

avert the risk of loss of life,

livelihoods of affected

population, alleviate suffering

and restore dignity

To build required capacity at all

levels, enhancing the speed,

quality and effectiveness of

emergency response

To facilitate effective response

through close monitoring, and

timely identification of needs

and continued gap analysis;

Interventions

Outcome

Deliverables

be reviewed to include the power to call a

rapid assessment mission.

Support to ENCU. The ENCU within

DRMFSS will be strengthened and

supported to keep coordinating

specialized nutrition assessments.

Response. Comprehensive & effective

food and non-food emergency supplies,

while ensuring the special needs of

women and girls are included, for disaster

affected population in accordance with

the emergency plan and guidelines

Operational or emergency response plan

based on pre-developed contingency plan

Information systems. Information and

communication management systems in

place to facilitate informed decision

making and manage media relations

Multi-agency coordination. Multi-agency

coordination structure including MAC,

relevant sector task forces and EOC at all

levels. This will facilitate effective

response and avoid overlaps.

Coordinated and

enhanced

humanitarian

response

operational

mechanisms and

interventions

within government

structures and

among partners

taking part in relief

response

Improved inter-

agency

coordination at all

levels

Enhanced strategic

partnerships and

effective

networking

government and aid

partners

 Reduced or alleviate suffering

mortalities, casualties,

livelihood, asset losses and

human dignity from disasters

 Improved sectoral humanitarian

response in addressing the

needs of affected population

 Minimize duplications and

overlaps

 Improve sectoral accountability

with clear reporting lines

 Increased joint planning and

response (needs identification,

coordination and gap analysis )

 Rapid assessment reports

 Operational/Response plan

 MOU with partners

56 | P a g e

No.

Programme

Objectives

Interventions

Outcome

Deliverables

12.

Post-Disaster

Needs Assessment

13.

Recovery

To identify the magnitude and

extent of damage, loss, and

recovery needs caused by disaster

Bridge the gap between immediate

relief and longer term recovery and

development with an integrated

and coordinated approach which

complements humanitarian actions

and reinforces development

activities

To stabilise a situation, prevent

further deterioration in national

capacity, and reduce the gap

between humanitarian and full

recovery programmes.

Guidelines development: Guidelines

appropriately adapted to the Ethiopian

context and expanded to include

rehabilitative needs, will be developed.

Assessment training: Multi-disciplinary

teams will be formed and trained to

conduct the assessments.

Reports on PDNA needs. The teams will

produce PDNA needs assessment reports

to inform decision making, set priorities for

interventions, suggest coordination

measures among relevant actors and

identify channels to mobilize the required

resources.

Institutional Capacity-Building. Federal,

regional and wereda government

institutions capacity in post-disaster/crisis

governance will be strengthened and local

community structures coping strategies

and systems for community security and

social cohesion promoted.

Recovery Planning: Recovery guidelines

for the development of community

contingency and recovery plans. Working

with all sectors to plan and implement

recovery interventions within the context

of the specific sectoral areas of work.

Network of recovery focal points

Return, Resettlement, and/or

Reintegration Support: Support towards

the return process and other durable

solutions through recovery interventions

that deliver a quick coping mechanism

Accurate

determination of

the damage, loss,

early recovery, and

rehabilitative

needs and allow

communities to

“build back better”.

 PDNA needs assessment

guidelines developed

 Highly capable multi-

disciplinary and multi sectoral

assessment team formed and

maintained

 PDNA needs report produced

and disseminated.

Enhancement of

community

resilience to shocks

leading to food

security and

sustainable

livelihoods.

Ensure restoration

of basic services,

livelihoods, shelter,

governance,

security and rule of

law, environment

and social

dimensions,

including the

reintegration of

 Recovery assessment

guidelines and tools developed

and available

 Recovery planning guidelines

and templates developed

 Trainings for federal, regional,

and wereda institutions on

recovery planning and

coordination

 Strengthened community

governance structures or

recovery planning and

programme implementation

 Watershed management, flood

mitigation measures promoted

 Return, resettlement planning

and implementation capacity

insured

57 | P a g e

No.

Programme

Objectives

14.

Rehabilitation

To restore socio – economic

infrastructure and hence

livelihoods as well as the

psychosocial aspects of the

affected communities.

Interventions

Outcome

and rebuilding of livelihoods and

household assets.

Skill acquisition. Promote skill acquisition

and transfer for livelihood diversification

and asset building (on farm, non-

agricultural)

Agriculture recovery. Provision of seeds,

vet drugs and other inputs to restore

production

Restore water supply. Undertake surveys

on water supply situations in disaster

affected areas and identify

rehabilitation needs and post construction

community management systems

Productive assets rehabilitation. Protect

and rehabilitate productive assets (fodder

banks, veterinary posts, natural resources,

seed banks).

Environment protection mainstreaming.

Mainstreaming environment protection

and ecosystem approaches into

emergency response and recovery

planning.

Community based recovery system.

Promote community based recovery

system.

displaced

populations

Deliverables

 Return, resettlement, and/or

reintegration of affected

population and communities

supported

 Restored and strengthened

basic social service delivery in

affected areas; and strengthen

social services in host

communities. Rebuilt and

strengthen or established

community infrastructure and

livelihoods.

Guidelines development: The guidelines

will be developed and used for

rehabilitation management.

Training/sensitization workshop: Based on

the rehabilitation guidelines, staffs will be

trained in agendas related to

rehabilitation need assessment, planning

Basic services

resume

 Rehabilitation management

functioning,

guidelines and tools developed

economic activities

and available

are revived and

persons and

households lives

 Priority rehabilitation needs

identified and validated

58 | P a g e

No.

Programme

Objectives

Interventions

Outcome

Deliverables

15.

DRM Coordination

 To ensure effective

coordination between the

government, its DRM partners

and civil society in the design

and implementation of DRM;

 To increase the momentum of

the current DRM approach by

engaging a wider range of

stakeholders.

 To have different forums for

disaster impact prioritization,

critical resource allocation,

communication system

integration, and information

coordination.

and implementation, monitoring and

evaluation.

Rehabilitation plan: Once the specific

rehabilitation needs assessment report is

produced, the next step is the preparation

of the rehabilitation plan that shows the

interventions required to address the

needs of different sectors.

Monitoring & Evaluation: The

implementation of the rehabilitation plan

requires monitoring to be assured

whether activities, the targeted inputs,

and outputs are achieved timely,

effectively and efficiently and also for

corrective actions to be taken. In addition,

the rehabilitation effort should also be

evaluated to ascertain whether the

required change and impact on

communities is realized and the broader

goals are attained.

Incorporate Relevant NIMS components

into DRM system at various levels.

Relevant Components of NIMS such as

MAC, EOC and ICS will be piloted at

Federal and Regional and federal levels.

The existing Multi-agency coordination

will be strengthened and established at

different levels (federal, regional and

wereda level) by integrating the best

practices learnt from USA NIMS. In

addition to these, command posts and

EOCs with minimum requirement will be

established in different disaster prone

areas.

are able to return

to normal.

 Rehabilitation plan developed

 The capacity of federal,

regional, and weredas and

communities strengthened in

rehabilitation planning,

implementation, and

monitoring

Effective multi-

stakeholder



coordination for

concerted DRM

action; coordinated 

prioritization of

projects and

resources; and

effective pooling of

information on



DRM among

stakeholders.

Established MACs, EOC and

ICS at various levels.

Mapping of existing

DRMTWGs and assessment of

their level of activity and

capacity needs;

Establishment of DRMTWGs

at regional and wereda levels,

where such is not in

existence;

 Delivery of customized

training and technical

59 | P a g e

No.

Programme

Objectives

Interventions

Establishment of and support to DRM

TWGs at federal, regional, and wereda

levels. Existing DRM TWGs must be

supported and where such does not exist

at regional and wereda levels, its

establishment should be supported

linking with Government lead Donor

coordination mechanisms.

Capacity-building of DRM TWGs. The DRM

TWGs at regional and wereda levels will

be established, as well as, sector task

forces at federal level, will be

strengthened through the conduct of

orientations and workshops on DRM that

is customized to the needs of the said

institutions.

Linking with Donor-led DRM Coordination

Mechanisms. The Federal DRM TWG will

link with the DRM Sub-Group of RED&FS

to ensure that DRM activities in the

country are well synchronized and

coordinated.

Outcome

Deliverables

support and system to DRM

TWGs and sector task forces;

 Quarterly workshops for

sharing of good-practices

among chairs and

secretariats organized at

regional level (for weredas)

and federal level (for

regions);

 Annual meeting to look into

the implementation of DRM;

 Harmonized coordination

and financing processes that

reinforce

existing

government-led

DRM

structures; and

 Better coordinated and flow

of information between the

federal DRM TWG and donor-

led coordination groups like

the RED&FS.

16.

International

Collaborations and

Engagement

 Representation in ISDR and

other international fora on

DRM

 Engagement with DRM

networks and communities of

practice

 Promotion of south-south

cooperation on DRM

International Representation. Ensure

effective representation of the

Government of Ethiopia, through the

DRMFSS, in ISDR, the African Union, and

the UN Economic Commission for Africa.

Such representation will involve

participation in international fora and

events, meetings and activities organised

by the said international bodies.

Engagement with DRM Networks and

Communities of Practice (COP). The

Increased visibility

of the Government

of Ethiopia and its

wider cooperation

with other

governments and

institution in the

international DRM

arena.

 Participation of DRMFSS and

highlighting of Ethiopian

progress and achievement on

DRM in international fora,

meetings, and events organised

by ISDR, AU, UN-ECA, IGAD,

RECs, and other international

DRM organizations and

institutions;

 Establishment of Ethiopia’s

DRM Policy and Practice forum

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17.

Capacity

Development

Objectives

Interventions

Outcome

Deliverables

 Ensure enough capacity exists in

government offices at various

administrative levels to support

the implementation of the DRM

framework

 Promote efficient use of capacity

 Engage academic institutions and

promote their role as major

capacity providers to the DRM

sector

DRMFSS will be supported in its

engagement with DRM networks and COP

though the sponsoring of international

experts and counterparts in other

countries to participates in a DRM Policy

and Practice Forum. In-country

representation from the UN and

international NGOs will also be

encouraged to participate in the forum.

South-South Cooperation. Build on the

networks established with other

governments and institutions through the

temporary deployment/cross-posting of

experts to help out in the full

implementation of the new DRM

approach in the country. In the same

manner, Ethiopian experts would be

cross-posted to gain practical knowledge

and skills on DRM from other countries

and complemented by joint study visits

and research on DRM to promote better

south-south learning and cooperation.

Capacity needs assessment. Federal

institutions involved in the DRM

framework and regional DPPBs

Institutional will carry out organizational

capacity needs assessments.

DRM higher education. MoUs can be

signed and dialogue can be established

between academic institutions working on

DRM and the DRMFSS to strengthen the

links of the academe with the institutional

DRM community and the job market. On

the other hand, DRMFSS will ensure a

Increased

government

capacity fitted to

the needs of the

DRM framework.

with the participation of

international experts,

counterpart from other

governments, and in-country

expertise from the UN and

international NGOs and

institutions;

 Exchange of experts with

developing countries

experienced on DRM; and

 Joint study visits, research, and

initiatives on DRM with

developing countries, especially

in Africa and Asia.

 Capacity needs assessment

document for the federal

DRMFSS and regional, Zonal,

and Wereda DPPBs;

 Support to capacity

expansion where requested

by the capacity needs

assessments;

 Standardized DRM short

courses prepared and

delivered;

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18.

DRM

Mainstreaming

Objectives

To ensure key DRM elements are

integrated across all sectors and

development activities

Interventions

Outcome

Deliverables

growing pool of qualified graduates will be

available in the Country to work in the

expanding DRM sector.

DRM short courses. Standardized and

specialized DRM short courses can be

developed with support from academic

institutions in Ethiopia and abroad.

Scholarship program. Twinning with

academic institutions in Ethiopia and

abroad will also be realized with the aim

of creating scholarship programs for

graduate study (masters, PhDs) in

distinguished institutions.

 DRM-related

certification

delivered;

professional

courses

 Scholarship program for

graduate studies in DRM

related areas.

Support to the National Meteorological

Agency. Specific support will also be given

for capacity development in the National

Meteorological Agency thru specific

scholarships and short courses to the

study of meteorology, the links between

DRM and meteorology, and climate

change.

Assess key sectors areas of the country.

Sectoral assessments of successful DRM

mainstreaming in public construction,

urban land use planning, water

management and irrigation, including an

analysis of climate change, where

relevant.

Produce and implement operational

guidance on DRM mainstreaming.

Integration of DRM into the development

 Government staff

at all levels aware

of the need to

consider disaster

risk in policy,

strategy,

programs, and

plans.

 Communities in

disaster prone

 Clear assessment documenting

priority sectors for DRM

mainstreaming and key

constraints to its

implementation.

 Guidance on mainstreaming

DRM.

 Dissemination of guidance

document on DRM

Mainstreaming.

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Programme

Objectives

19.

DRM Research,

Communication

and Awareness

Raising

To build a culture of safety and

resiliency for men, women, boys

and girls

Interventions

Outcome

Deliverables

policies legislation or mandatory

guidance.

Networking and influencing development

organizations/institutions. This includes

the dissemination of operational guidance

document/s to all relevant development

actors, ensuring relevant task forces

conduct trainings for members on the

operational guidance documents, and

ensuring that risk analysis and

implementation of the operational

guidance document is established as a

criteria for all new funded projects.

Integration of DRM in school curricula.

Development and integration of the DRM

module in the elementary and secondary

level curriculum. Specialized DRM

modules will also be developed and

included in tertiary level courses.

areas aware of

the need to

reduce disaster

risk and their

responsibility to

creating disaster

resilient

communities.

 Guidance and

legislation on DRR

implemented in

key sectors.

 DRM is

integrated in the

school curricula

at elementary,

secondary,

tertiary levels.

 Reviewed and amended

guidance documents on DRM

mainstreaming.

 Inclusion of DRM on the

national curriculum at primary,

secondary and tertiary levels;

DRM Research. The conduct of research

will be encouraged and funding sourced

and made available. Researches will

Research,

documentation of

best practices,

 Communication plan for

DRM;

include the development of

gender specific

 Media products in different

methodologies and models to avert future vulnerabilities and

languages suitable for

disasters; knowledge building, innovation risks, enhanced

diffusion on TV, radio,

and education to boost confidence and

sharing of

newspapers, and the

resilience of stakeholders against impact information and

internet;

of disasters.

experiences,

 Organisation of annual DRR

increased public

day;

Research will also aim at identifying social, awareness on DRM

economic and cultural issues impacting on concepts, the DRM  Organisation of annual DRM

the vulnerabilities of specific community cycle and national

Policy and Practice Forum;

and

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Programme

Objectives

Interventions

Outcome

Deliverables

groups and their coping capacities to

priorities and

enhance analysis and building resilience. policies;

 Organisation of Quarterly

DRM Implementation Forum.

DRM Communication Plan. A

comprehensive DRM communication plan Strengthened

 Research papers, publicly

from the federal to kebele levels will be research capacity

available on DRMFSS website,

developed and implemented. The

and a more

on topics of current interest

Communication Plan will serve as the

explicitly demand-

to DRM practitioners in the

roadmap for awareness-raising on DRM in driven orientation

country;

the country and will in particular ensure of research

strategies that reach the most vulnerable programmes for

groups, youth (boys and girls) and women. improved DRM

systems and

 Best practices consolidated,

documented

and

communicated to all

Development of DRM Information

Products. Media products (print, radio,

increased

effectiveness. This

stakeholders;

television, and digital/internet) that are

culturally and gender sensitive will be

produced as a tool to raise awareness on

DRM and communicate to communities

(and ensure they target women and

youth) and civil society about DRM

opportunities and achievements. Good

include also

documentation of

best practices in

the areas of

existing

programmes

 MoUs with institutions such

as Ministry of Education,

Addis Ababa University

Institute of Journalism, Bahir

Dar University, Haramaya

University and EDRI.

practice documents and lessons learned

that highlight how DRM has been

implemented in different sectors will also

be developed.

Conduct of National Events on DRM. The

celebration of the International Day for

Disaster Reduction will be the main event

underpinning the promotion and

awareness raising of DRM at the national

level. Linked to the commemoration of

the International DRR Day is the conduct

of the DRM Policy and Practice Forum.

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20. DRM Volunteer

Scheme

Objectives

Interventions

Outcome

Deliverables

 To promote the culture of

volunteerism in the field of

Disaster Risk Management

 To create a pool of citizens (men

and women) willing to

participate in disaster

management activities

 Study on potential for volunteerism in

Ethiopia. A study to assess existing

volunteerism in Ethiopia and potential

for further expansion, especially with

relation to major hazards such as

drought and flood.

Aware citizens

acting as capable  Study on DRM volunteerism

human resources in

the field of DRM

 National Policy on DRM

Volunteers

 DRM-Volunteers Policy: A strategic

gender sensitive policy followed by

standard operating procedures will be

developed together with relevant

actors.

 Trained and deployed DRM

volunteers

 Online database of DRM

volunteers

 Awareness Raising: The identified

volunteers in various parts of the

country will be duly exposed to DRM

issues through workshops and relevant

advocacy materials.

 Training and Simulation exercises:

Training on DRM, to include simulation

exercises based on contingency plans,

will be conducted.

 Roster maintenance: An online database

of volunteers on rolls will be prepared

to act as a national volunteer

management database resource and

also help tracking volunteers in the

event of a disaster.

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