disaster management in_pakistan (6)

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U N I V E R S I T Y O F T H E P U N J A B , L A H O R E

Disaster

Management in

Pakistan National Disaster Management Plan (NDMP)

Muhammad Waseem Sajjad-31

Institute of Administrative Sciences IAS

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Disaster Management in Pakistan

(National Disaster Management Plan)

Muhammad Waseem Sajjad

11-BS-R-31

Submitted to:-

Altaf Ezid Khan

Secretary PWD

Institute of Administrative Sciences

University of the Punjab, Lahore

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EXECUTIVE SUMMARY……………………………………………………………. 1

1. BRIEF OF SUBJECT OF PUBLIC POLICY…………………………….…………………….3

2. INTRODUCTION……………………………………………………………….………………….4

3. NATURAL DISASTER IN PAKISTAN …………………………………..………………… 6

4. PREVAIOUS POLICIES………………………………………………………….……………….8

5. INSTITUTIONAL MECHANISM OF DISASTER

MANAGEMETN IN PAKISTAN……………………………………………………………..9

6. VISION, MISSION, SCOPE AND OBJECTIVE ……………………………………… 13

6.1 Vision…………………………………………………………………………………………… 13

6.2 Mission ……………………………………………………………………………………….. 13

6.3 Objectives ……………………………………………………………………….…….………13

6.4 Scope ……………………………………………………………………………..…………….14

6.5 Time Frame ………………………………………………………………….….……………14

7. STAKEHOLDERS …………………………………………………………………………………14

7.1 National Disaster Management

Commission & Authority (NDMC&A) …………….…………………..…….……14

7.2 Federal Ministries & Authorities ……………….…………………………………..15

7.2.1 Ministry of Interior ……………………………………………………..……..15

7.2.2 Ministry of Information Technology .…………………………….……15

7.2.3 Ministry of Railways ……………….……………………………………..…..16

7.2.4 Ministry of Water and Power ………………………………………….….16

7.2.5 Ministry of Defense……………………………………………..………….….17

7.2.6 Ministry of Foreign Affairs …..…………………….………………………17

7.2.7 Federal Flood Commission ………………….……………………………..17

7.2.8 Emergency Relief Cell ……………………………………………………….18

7.2.9 Space and Upper Atmosphere Research

Commission (Suparco)…….…………………………………………………..18

7.2.10 Pakistan Meteorological Department …..…………….………………18

7.2.11 Pakistan Telecommunication Authority……………………………….18

7.3 Pakistan Army…………………………………………..………………………………...19

7.4 Provincial/State Disaster Management Commission & Authority…20

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7.5 District Disaster Management Authorities (DDMAs) …………………20

7.6 Community Organization ……………………………………………………………21

7.7 Individual ……………………………………………………………………………………21

7.8 University and Research Institutes……………………………………………….21

7.9 International Agencies ………………………………………………….…………….22

7.10 Volunteers…………………………………………………………………………………..22

7.11 Other Key Stakeholders ……………………………………………………………..22

8. REVIEW OF IMPLEMENTATION AND OUTCOMES…………………………………23

8.1 Review ……………………………………………………………………………………………..23

8.2 Outcome-I………………………………………………………………………………………….26

8.3 Outcome-II……………………………………………………………………………………..…27

8.4 Outcome-III………………………………………………………………………………………28

9. EVALUATION FRAMEWORKS………………………………………………………………..29

9.1 Introduction & Rational ………………………………………………………………..… 29

9.2 Objectives and Use …………………………………………………………………………..29

9.3 Methodology…………………………………………………………………………………….30

9.4 Focus & IR RTE Framework ……………………………………………………….……30

10. CONCLUSION.........................................................................................32

11. RECOMMENDTATIONS………………………………………………………………………..33

REFERENCES……………………………………………………………………...…34

INTERVIEW…………………………………………………………………………..29

Figures

Figure 5.1:Disaster Management Institutional Mechanism of Pakistan……...11

Figure 9.1:the ‗IA RTE Framework‘ as Diagram………………………...31


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EXECUTIVE SUMMARY

Public policy affects each citizen in hundreds of ways, some of them familiar and some

unsuspected. Public policy affects a vast range of activities, from nuclear warheads to

bathroom plumbing, from arresting lawbreakers to providing medical care for the

elderly. Even though examples of public policy come readily to mind, defining public

policy in clear and unambiguous terms is not easy. David Easton defines public policy

as the authoritative allocation of values for the whole society. On the other hand,

Lasswell and Kaplan define policy as a projected program of goals, values and

practices.

Globally, the risks, vulnerabilities and impacts induced by natural hazards and disasters

are on rise. Their economic costs and damage are widespread as seen in recent

disasters such as the 2004 Indian Ocean Tsunami, the 2005 Kashmir Earthquake, and

Japan's 2011 tsunami. Many government agencies have utilized disaster management

principals in an attempt to minimize the impact of disasters. Research has underscored

that local level vulnerability assessment; disaster management and resilience are

required to empower com-munities to cope with disasters.

Geographically Pakistan is situated in a region very much prone to natural hazards,

particularly the northern part of the country. The area experiences natural hazards such

as earthquakes, landslides, floods, glacial melting and soil erosion. Flooding from river

overflows is the most common natural disaster in Pakistan. They are costly natural

hazards due to damage to property and croplands.

Historically, disaster management in Pakistan was focused on the ‗Emergency

Response Paradigm‘ (ERP). Prior to 2005, the West Pakistan National Calamities Act

of 1958 was the available legal remedy that regulated the maintenance and restoration

of order in areas affected by calamities and relief against such calamities. An

Emergency Relief Cell within the Cabinet Division has been serving since 1971 as an

institutional disaster relief support at the national level

The United Nations International Strategy for Disaster Reduction (UNISDR)

introduced the paradigm shift from a reactive to a proactive approach in the form of the

Hyogo Framework of Action (2005-2015) signed by 168 countries including Pakistan.

To fulfill the global obligations as well as cope with the challenges emerged in the

aftermath of the October 2005 earthquake; the Government of Pakistan promulgated


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the National Disaster Management Ordinance in 2007 to introduce a comprehensive

National Disaster Management System in the country. The Ordinance became the Act

called the National Disaster Management Act in December 2010.

The National Disaster Management Authority (NDMA) was subsequently established

in 2007 in line with the Act, and serves as the implementing, coordinating and

monitoring body for disaster risk management at the national level. NDMA in

collaboration with national and international partners had been in the process of

strengthening the DRM system in the country and has developed National Disaster

Management Plan.

The structure of disaster and emergency management in Pakistan, centered on the

National Disaster Management Commission (NMDC), was established immediately

after the disastrous Kashmir Earthquake in 2005. The provincial government has the

authority to form the Provincial Disaster Management Authority (PDMA). A District

Disaster Management Authority (DDMA) can be established by Provincial

governments in the hazard prone areas on a priority basis.

The NDMA realized the importance of formulating the National Disaster Management

Plan. It is a long-term, holistic policy document for Disaster Risk Management (DRM)

at the national level. It contains all the aspects of disaster management policy,

strategies and actions, including (i) national hazard and vulnerability assessment, (ii)

human resource development, (iii) community-based disaster risk management, (iv)

multi-hazard early warning system, (v) disaster management operation by type of

disaster, such as earthquake, tsunami, flood, drought, cyclone, etc., and (vi)

actions/programs for disaster management. The National Disaster Management Plan

will determine the overall strategies for disaster management in Pakistan.

There are different stakeholders/Clients involve such as National Disaster Management

Commission and Authority, PDMAs, DDMAs, Pak Army, International Organization

etc. all these discuss in detail.

The success or failure of any disaster management system depends upon the

availability and operational efficiency of the human resources, technology, information

architecture, funds etc. The more effective integration of disaster management

considerations into sustainable development policies, planning and programming at all

levels, with a special emphasis on disaster prevention, mitigation, preparedness and

vulnerability reduction. The development and strengthening of institutions,


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mechanisms and capacities at all levels, in particular at the community level, that can

systematically contribute to building resilience to hazards The systematic incorporation

of risk reduction approaches into the design and implementation of emergency

preparedness, response and recovery programs in the reconstruction of affected

communities.

Inter-Agency‐Real Time Evaluation (IA RTEs) is an initiative of the Inter‐Agency

Standing Committee IASC). An IA RTE can be defined as an evaluation carried out at

the early implementation stages of a humanitarian operation which almost

simultaneously feeds back findings for immediate use by the broader humanitarian

community, particularly at the field level. The applied methods for IA RTE shall be

light and participatory. The evaluation will be conducted by teams comprising

independent consultants. The evaluation will be carried out through analyses of various

sources of information including desk reviews; field visits; interviews with key

stakeholders (affected population, UN, / I/NGOs, donors, governments) and through

cross validation of data.

1. BRIEF OF SUBJECT OF POLICY

Public policy affects each citizen in hundreds of ways, some of them familiar and some

unsuspected. Citizens directly confront public policy when they are arrested for

speeding, but they seldom remember that the advertising on the television shows they

watch is regulated by PEMRA. Many citizens who complain loudly at tax time about

government bureaucracy and overregulation have forgotten the fire and police

protection or the paved streets those revenues provide. Indeed, public policy affects a

vast range of activities, from nuclear warheads to bathroom plumbing, from arresting

lawbreakers to providing medical care for the elderly.

Even though examples of public policy come readily to mind, defining public policy in

clear and unambiguous terms is not easy. Political scientists have devoted considerable

attention to the problem without reaching a consensus. The term public policy always

refers to the actions of government and the intentions that determine those actions.

David Easton defines public policy as the authoritative allocation of values for the


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whole society. On the other hand, Lasswell and Kaplan define policy as a projected

program of goals, values and practices. It may be stated that goals purposes, objectives

are often used synonymously. According to Hughes, Public Policy is a statement or an

interpretation of government authority. It may be used in determining business and

political decisions. In a democratic society, public policy making is thought, as being

the function of the elected representative to announce certain objectives in the best

interest of the people. However, in the complexity of big governments of modern

times, there are many points in the articulate stages of the political process, where

elected officials lose control of their initially announced objectives, embedded in a law

passed by a legislature, is usually the result of many compromises. Policy is the output

resulting from the interactions from the governmental and non-governmental

individuals and groups.

The public policy-making arena is fraught with confusion, contradictions, and

consternation. In order to make policy, decision makers often merge conflicting

objectives into acceptable outcomes. It is not pretty, but it works. The world for which

policies have to be developed is becoming increasingly complex, uncertain and

unpredictable. Citizens are better informed, have rising expectations and are making

growing demands for services tailored to their individual needs. Key policy issues,

such as social need, low educational achievement and poor health, are connected and

cannot be tackled effectively by departments or agencies acting individually. At the

same time, the world is increasingly inter-connected and inter-dependent. National and

global events and trends can very quickly become major issues for a regional

administration - for example, the terrorism.

2. INTRODUCTION

Globally, the risks, vulnerabilities and impacts induced by natural hazards and

disasters are on rise. Their economic costs and damage are widespread as seen in

recent disasters such as the 2004 Indian Ocean Tsunami, the 2005 Kashmir

Earthquake, and Japan's 2011 tsunami. Many government agencies have utilized

disaster management principals in an attempt to minimize the impact of disasters. The

development literature on hazards and disasters reveal that most of the countries


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around the globe still practice the post-disaster relief approach. As a result, many

individuals and communities remain vulnerable to natural hazards. However, a

paradigm shift from relief to risk assessment, preparedness and early warning systems

under the Hyogo Framework for Actions is underway, emphasizing community

resilience to disasters for hazard mitigation.

Research has underscored that local level vulnerability assessment; disaster

management and resilience are required to empower com-munities to cope with

disasters. Local level vulnerability assessments incorporate assessment of vulnerable

communities both at the district, Union council and com-munity levels in line with

national level assessment. This would set the ground for risk reduction strategies at the

grassroots level. Once we know the risks and vulnerabilities, better mitigation and

preparedness measures can be taken to avoid disaster impacts. By taking these

measures, the communities would cope better with the disaster impacts, subsequently

their vulnerabilities would be reduced and enhance their resiliency to natural disasters.

Further, it is widely acknowledged that local government engagement in risk reduction

and management activities serves as a viable strategy for disaster management. Local

communities, and not national authorities, are always the first to respond to any

disasters.

Effective and decentralized policies for disaster risk reduction can greatly reduce the

loss of life and assets caused by disasters. The existing research on the impacts of

decentralization of disaster management institutions envisions the procedure positively

in terms of public service delivery because nations with decentralized government

processes experience fewer disaster-related deaths. Such governments prepare for and

respond to disaster more effectively relative to more centralized systems. In addition

decentralization reduces disaster-induced deaths by enhancing human capital. As we

are well aware that communities always respond first to any disaster's impacts

therefore their role becomes imperative that they are engaged in disaster related

activities at the local level. i.e., they are engaged in decision making, preparedness and

mitigation activities, design, implementation and evaluation of the risk management

activities at the community and union council level. Further, the effective

implementation of mitigation strategies requires the incorporation of local decision-


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making in disaster management processes.

Disaster management is not just a process of identification, assessment and

management of disaster risks. It is also a process of understanding people's perception

about their risks and vulnerabilities, their interaction with each other and indigenous

coping strategies, power structures along with laying out the methods of effective

cooperation. Prevention and mitigation need to be understood as social phenomena. An

effective disaster management entails more than resource management, evacuation,

shelter and health interventions; it also rests on an understanding of human behavior,

stresses, strains and vulnerability. Similarly, post-disaster recovery is not merely a

mega-project involving construction and rehabilitation. Community-based disaster

management activities serve as increasingly important elements of vulnerability

reduction and disaster management strategies at the local levels. This paper attempts to

address the implementation of disaster management, preparedness, risk reduction,

implementation etc.

3. NATURAL DISASTER IN PAKISTAN

Geographically Pakistan is situated in a region very much prone to natural hazards,

particularly the northern part of the country where Himalayan and Hindukush

mountains are situated. The area experiences natural hazards such as earthquakes,

landslides, floods, glacial melting and soil erosion. Pakistan's vulnerability to natural

hazards and disaster ranges from moderate to severe. It has faced both natural as well

as man-made disasters in its history. Natural hazards for the country include cyclones,

earthquakes, floods, glacial out-burst, storms, droughts, landslides, river erosion,

tsunami and epidemics. Pakistan is also under the threat of a number of human induced

hazards such as forest fires, civil conflicts, transport, terrorism and industrial disasters.

However some of the floods, earthquakes, droughts, wind storms and landslides have

caused immense damage to life and property in the past. Table 1 below shows the

number and effects of major hazards in Pakistan over the last two decades.


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Flooding from river overflows is the most common natural disaster in Pakistan. They

are costly natural hazards due to damage to property and croplands. Floods are usually

short-lived events that can happen with little or no warning. The Indus basin—the

biggest in the country—covers 70% area of the country and generally major floods

occurs in the basin in the late summer when south Asian region is subjected to heavy

monsoon rainfall. Major flooding in Pakistan is associated with the monsoon low

depression that develops in the bay of Bengal and move across India west/north

westerly direction to enter Pakistan. The Indo-Australian plate upon which Pakistan,

India and Nepal lie, is continuously mov-ing northward and sub-ducting under the

Eurasian plate, thus triggering earthquakes in the process and forming the Himalayas

mountain range. The collision of the two continental plates indicates that Pakistan is

situated in a highly seismically active region of the world. Major earthquakes over the

past100 years include the 1945 Makran earthquake with magnitude above 8.0 to the

Kashmir earthquake in 1905 with magnitude of 7.6 has caused heavy damage to life

and properties. The October 2005 Kashmir earthquake enhanced conscious-ness about

the increasing vulnerability of Pakistan's growing population in the area. The areas in

Pakistan which are likely to be susceptible to the future earth-quakes are the northern

areas, Chitral district in North West Frontier Province (NWFP), and Kashmir including

Muzaffarabad, and Quetta. The region of Kashmir, northern Areas and parts of the

NWFP are particularly vulnerable to landslide hazards. Apart from the young geology

and fragile soil type of mountain ranges, accelerated deforesta-tion is a major cause

behind being increased incidences of landslides (NDMA 2007). In all natural hazards

and dis-asters droughts have tremendous potential impact across broad areas compared

to other disasters like flood, tropical cyclones etc. Due to the unique geo climatic

conditions in some parts of the country drought have been a major threat and will have

substantial consequences on sustain-able development and food security, agriculture,

livestock, water resources, environment and hydro-electricity. The main arid areas of

the country include D. G. Khan, D. I. Khan, Kohistan and western Baluchistan. Some

of the areas are drastically vulnerable to droughts. For example in Baluchistan due to

the decrease of both the vegetation cover and precipitation has affected about 92% area

of the province. Pakistan's vulnerability to tsunamis is low, but it did experience a large

tsunami on 28 November 1945 due to a submarine 8.0 magnitude earthquakes near the


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Makran coast. The tsunami produced a wave 12–15 m in height which had killed at

least 4000 people near the coastal belt of Baluchistan. The cities like Karachi and

Gawader are likely to be the victims of any future tsunami.

4. PREVAIOUS POLICIES

Historically, disaster management in Pakistan was focused on the ‗Emergency



of order in areas affected by calamities and relief against such calamities. An

Emergency Relief Cell within the Cabinet Division has been serving since 1971 as an

institutional disaster relief support at the national level. Similar institutional

arrangements existed at the provincial level in the form of relief commissioners.

However, that regime provided a reactive approach towards emergency response only.

The United Nations International Strategy for Disaster Reduction (UNISDR)

introduced the paradigm shift from a reactive to a proactive approach in the form of the

Hyogo Framework of Action (2005-2015) signed by 168 countries including Pakistan.

To fulfill the global obligations as well as cope with the challenges emerged in the

aftermath of the October 2005 earthquake; the Government of Pakistan promulgated

the National Disaster Management Ordinance in 2007 to introduce a comprehensive

National Disaster Management System in the country. The Ordinance became the Act

called the National Disaster Management Act in December 2010. The Act establishes

three tiers for the disaster management system: i.e., national, provincial and district

levels.

Under the Act, the National Disaster Management Commission (NDMC) was

established at the national level, and has the responsibility for laying down policies and

guidelines for disaster risk management and approval of the National Plan. The

National Disaster Management Authority (NDMA) was subsequently established in

2007 in line with the Act, and serves as the implementing, coordinating and monitoring

body for disaster risk management at the national level. Along with the Ordinance

(now Act), the National Disaster Risk Management Framework (NDRMF) was

prepared by the NDMA in March 2007. The NDRMF served as an overall guideline

for disaster risk management at national, provincial and district levels. In March 2010,


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the NDMA formulated the National Disaster Response Plan (NDRP) identifying

specific roles and responsibilities of the relevant stakeholders in emergency response

including Standard Operation Procedures (SOPs).

NDMA in collaboration with national and international partners had been in the

process of strengthening the DRM system in the country. In order to support this new

approach in Pakistan, the Japan International Cooperation Agency (JICA) dispatched a

series of missions from the year 2008 to 2009 based on the request from the

Government of Pakistan. It studied the whole legal and administrative system of DRM

in Pakistan and held meetings with all stakeholders to identify the needs and

requirements to enhance the capacity of the national DRM system. Based on thorough

bilateral consultations, a project document on formulation of a National Disaster

Management Plan (NDMP) for Pakistan was conceived for implementation through

Japanese Grant-in-Aid. A PC-II was prepared accordingly and was approved by the

Planning Commission in the meeting of Central Development Working Party held on

19-11-2009. For implementation through Grant-in-Aid, the scope of work for the

project was discussed, agreed and signed between the Government of Pakistan and

JICA on 11-12-2009 and the project Inception Report was prepared in April 2010. The

Plan, aimed at enhancing the capacity of the country to prepare for and respond to

disasters by defining the measures to be considered necessary for disaster management

and risk reduction in line with the provision of the National Disaster Management Act

was finalized in June 2012.

5. INSTITUTIONAL MECHANISM OF DISASTER

MANAGEMENT IN PAKISTAN

The structure of disaster and emergency management in Pakistan, centered on the

National Disaster Management Commission (NMDC), was established immediately

after the disastrous Kashmir Earthquake in 2005 and has been operational since 2007.

As Fig. 5.1 below illustrates, the institutions begin at the national level and extend to

the Union Council levels for the implementation of disaster policies. The commission

is the highest policy and decision making-body for disaster risk management. It also


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oversees the integration of disaster risk management issues into sectorial development

plans and manages the implementation of this policy through National Disaster

Management Authority (NDMA), chaired by the Prime Minister. Since disaster risk is

a multi-sectorial activity that requires timely response, the NDMA was established to

serve as focal point and coordinating body to facilitate the implementation of disaster

related mitigation strategies. It directly communicates with all stakeholders, including

ministries, departments and other agencies which are likely to participate in disaster

risk management. The provincial government has the authority to form the Provincial

Disaster Management Authority (PDMA) which is chaired by the Chief Minister. The

authority lays down the provincial/regional disaster risk management policy and

develops the provincial disaster risk management plans in accordance with guidelines

laid down by the national commission. It also reviews the implementation of the

provincial plans and oversees the provision of funds for risk reduction and

preparedness measures. Further, it coordinates and provides technical assistance to

local authorities for carrying out their function. A District Disaster Management

Authority (DDMA) can be established by Provincial governments in the hazard prone

areas on a priority basis. This authority is headed by Nazim (district chief) of the

district. The authority formulates disaster risk management plans and coordinates their

implementation. It also prepares guidelines for local stakeholders on disaster risk

reduction. In the event of a disaster, it organizes emergency response through district

emergency operation center and maintains linkages with PDMA and relevant

departments.

Authorities at the town and Tehsil levels serve as the frontline organizations of disaster

risk reduction and response, interfacing directly with communities. Tehsil and town

Nazims lead the risk and response operations with the help of Tehsils and town officers

in consultation with DDMA. Other key players include extension workers, police

officers, fire services, community organizations, traditional leaders and NGOs. The

Union Council is the lowest tier in the governance system, but has important roles in

allocating resources for local development works. Union councils are expected to

advocate for the communities with the district councils and disaster management

authorities. The Fig.5.1 in the article describes the institutional mechanism of Pakistan.

The relationship among the different levels is important starting from national to union

council level.

http://www.sciencedirect.com/science/article/pii/S2212420913000241#f0005


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A number of situations in the aftermath of October 08 earthquakes gave NDMA some

favorable opportunities to promote disaster management in Pakistan. These include: (i)

heightened awareness among highest level decision-makers, officials, media and civil

society about disaster risks and vulnerabilities, (ii) enhanced commitment of donors

and the UN for establishing institutional arrangements and developing capacity on

disaster risk management, iii) approval of the National Disaster Management

Ordinance 2006, establishment of NDMC, and the NDMA, and iv) commitment of the

NDMA leadership.

Figure 5.1 Disaster Management Institutional Mechanism of Pakistan


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A number of situations in the aftermath of October 08 earthquakes gave NDMA some

favorable opportunities to promote disaster management in Pakistan. These include: (i)

heightened awareness among highest level decision-makers, officials, media and civil

society about disaster risks and vulnerabilities, (ii) enhanced commitment of donors

and the UN for establishing institutional arrangements and developing capacity on

disaster risk management, iii) approval of the National Disaster Management

Ordinance 2006, establishment of NDMC, and the NDMA, and iv) commitment of the

NDMA leadership. Existing disaster management system also has a number of

strengths. For example, Pakistan has relatively well developed systems for flood

mitigation, preparedness and response. Provincial revenue departments have policies,

systems and procedures in place for disaster relief, particularly for floods and droughts.

Pakistan armed forces are generally well experienced in managing various kinds of

disasters. A number of departments including agriculture and irrigation departments

have been implementing drought mitigation strategies. Some NGOs have extensive

experience in community level disaster risk reduction and preparedness. NDMA is

trying to build upon the above mentioned strengths and opportunities, while

developing systems for disaster risk management at the local levels. However at the

local levels (community and village), disaster's impacts are handled through social

networking with the support of local NGOs. Faith-based NGOs have also worked in

the response along with community groups at the village levels.

This study is basically exploratory in nature based on qualitative data from primary and

secondary sources. The secondary sources include: Pakistan Meteorological

Department, Survey of Pakistan, Seismic Center, Provincial Disaster Management

Authority, Pakistan Engineering Council, Development Authority, websites of

Provincial Disaster Management Authority and National Disaster Management

Authority. The other sources include journal articles, books, training manuals and other

government reports, documents from all levels (national to district).

The sources for the data are the Provincial Disaster Management Authority, district

government, Union council offices, Civil defense department, Rural support Program,

Muslim Aid, Pakistan Red Crescent Societies. In addition the primary data was

collected through face to face interviews with concerned institutions.


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6. VISION, MISSION AND OBJECTIVES

The NDMA realized the importance of formulating the National Disaster Management

Plan. It is a long-term, holistic policy document for Disaster Risk Management (DRM)

at the national level. It contains all the aspects of disaster management policy,

strategies and actions, including

(i) national hazard and vulnerability assessment, (ii) human resource development, (iii)

community-based disaster risk management, (iv) multi-hazard early warning system,

(v) disaster management operation by type of disaster, such as earthquake, tsunami,

flood, drought, cyclone, etc., and (vi) actions/programs for disaster management. The

National Disaster Management Plan will determine the overall strategies for disaster

management in Pakistan.

6.1 Visions

To achieve sustainable social, economic and environmental development in Pakistan

through reducing disaster risks and vulnerabilities for all groups of people in the

country; and to enhance the country‘s ability to manage natural disasters using a

comprehensive national approach.

6.2 Mission

To manage the complete spectrum of disasters by development of disaster risk

reduction policies, strategies, measures and actions of governments, especially at the

national level, the community and individuals through enhancing institutional

capacities, and human and material resources for mitigation, prevention and

preparedness, response and recovery.

6.3 Objectives

Damage and losses from disasters have physical, economic, and social impacts.

Mitigating and alleviating the damage and losses are required to collectively increase

resiliencies in physical, economic and social areas, using technologies, knowledge,


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information, and human resources. Preparations need to cover all stages including pre-

disaster, emergency response, and post-disaster periods. The National Disaster

Management Plan was developed as a part of an institutionalization process. It aims: i)

to develop resilience in society against disasters of the type that Pakistan has

experienced such as the 2005 Earthquake and Pakistan Flood 2010, ii) to mitigate

damage from recurring disasters such as earthquakes, tsunamis, floods/sediment

disasters, and other natural disasters, iii) to take care of vulnerable peoples such as

women, marginalized people, elderly people, disabled people, etc., and iv) to clarify

the roles of the national and local governments, public agencies, corporations and

residents for each type of disaster.

6.4 Scope

The concepts applied to major disasters in the National Disaster Management Plan are

for natural hazards or any other occasion for which NDMC determines that assistance

of the National Government is needed to supplement provincial and district level

efforts and capabilities.

6.5 TimeFrame

The time frame of the Plan is considered to be ten years from 2012 to 2022.

Monitoring of the Plan will be conducted by the NDMA with the participation of

relevant stakeholders.

7 STAKEHOLDERS

Following are the stakeholders in Disaster Management.

7.1 National Disaster Management Commission & Authority

(NDMC&A)


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The National Commission shall consist of:

I. The Prime Minister of Pakistan who shall be the Chairperson, ex officio

II. Leader of the Opposition in the Senate

III. Leader of the Opposition in the National Assembly

IV. Minister for Defense

V. Minister for Health

VI. Minister for Foreign Affairs

VII. Minister for Social Welfare and Special Education14

VIII. Minister for Communications

IX. Minister for Finance

X. Minister for the Interior

XI. Governor, Khyber Pakhtunkhwa (for FATA)

XII. Chief Ministers of all the provinces

XIII. Prime Minister, AJ&K

XIV. Chief Executive, Gilgit-Baltistan

XV. Chairman, JCSC or his nominee

XVI. Representatives of civil society or any other person appointed by the Prime

Minister.

7.2 Federal Ministries

The following federal ministries play major role in disaster management:

7.2.1 Ministry Of Interior

The ministry of interior prepares evacuation guidelines for different types of disasters.

The ministry is also responsible for the training of police and other security forces in

search and rescue operations. The forces mobilized by this ministry evacuate the

affected people by transporting them to the camp sites and maintain law and order in

the affected areas. The security forces operating under this ministry are also utilized to

manage the traffic in the affected area.

7.2.2 Ministry Of Information Technology


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The Ministry of Information Technology provides technological support to the Disaster

Management Authorities and ensures that private telecommunication service providers

develop Standard Operating Procedures to provide communication support in disaster

situations. This ministry would also maintain a spare pool of preferably wireless

telecom equipment to establish emergency communication networks that are essential

for the close coordination of rescue and relief efforts.

7.2.3 MINISTRY OF RAILWAYS

The Ministry of Railways develops a contingency plan to deal with the degradation of

railway‘s moveable and static assets due to natural or industrial disasters. The ministry

must install fire extinguisher in all cars of the different railway routes and Railway‘s

staff should be trained in firefighting, bomb-disposal and search & rescue. The vast rail

network of this ministry is also utilized to transport relief material from ports to the

disaster affected areas. This rail network can also be utilized to evacuate the affected

people.

Pakistan has an elaborate railway network which connects almost all main cities in the

Provinces of Pakistan. However, no railway network exits in Gilgit- Baltistan, FATA

and Azad Jammu and Kashmir. The existing railway system should be judiciously

utilized as it can be quickly mobilized for economical transportation of relief supplies

including heavy machinery, fuel, boats, building material and affected people. For this

purpose, Railways Authorities should maintain a close liaison with NDMA, PDMAs

and NLC for smooth execution of transportation of relief goods in an emergency. NLC

shall exercise over all control with regard to transportation through railways.

7.2.4 Ministry Of Water and Power

The ministry of Water and Power conducts periodic monitoring and inspection of dams

and provides telemetric data from rain gauge stations and flood data from Indus River

Basin, to the Flood Forecasting Division of the Pakistan Meteorological Department.

This ministry also coordinates with the Indian counterpart to remain informed about

the water levels in the shared water channels. The Water and Power Development


17

Authority (WAPDA) collects and transmits rainfall and flood discharge data. This data

is collected by Automatic Flood Telemetry Systems maintained by WAPDA.

7.2.5 Ministry Of Defense

The Ministry of Defense mobilizes the Armed Forces to provide immediate rescue and

relief through massive air and ground efforts. After the immediate response, the armed

forces assist the civil administration in setting up camps and tent villages for the

affected population. The ministry is also responsible for enhancing DRM capacities of

Cantonment Boards especially for firefighting, casualty, evacuation, search and rescue.

The armed forces can also deploy medical doctors to restore the health of victims and

professional engineers to restore the communication and infrastructure network in an

affected area.

7.2.6 Ministry Of Foreign Affairs

The Ministry of Foreign Affairs facilitates in the arrival of foreign humanitarian

workers and relief goods from the international community. This ministry is

responsible for maintaining a list of international experts of disaster response working

at embassies or international organizations. This list must be shared with DMAs to

ensure the immediate engagement of international experts at the time of a disaster. The

ministry would also communicate the assessment of damages and needs to the

representatives of foreign countries contemplating the provision of assistance.

7.2.7 Federal Flood Commission

FFC is a federal department responsible for coordinating efforts aimed at reducing the

risk of floods. This department reviews the capacity of flood protection works such as

embankments and overcomes the shortcomings by enhancing the physical structures

that preclude an over flow of waters from water channels such as rivers or canals. This

department engages various contractors to remove the excessive silt in the canals and

strengthen areas where a breach might occur. The department must provide DMAs

with regular updates on the flow rates and volumes in different rivers of the Province.


18

7.2.8 Emergency Relief Cell

The Emergency Relief Cell maintains a stock of key items that survivors need to

sustain themselves. Examples include tents, medicines, blankets, clothing, plastic

sheets and tarpaulins. The stock level in warehouses would be communicated to DMAs

on a regular basis to keep them informed of the resources that can be dispatched to the

worst affected communities of a disaster stricken area.

7.2.9 Space and Upper Atmosphere Research Commission (Suparco)

SUPARCO facilitates in the understanding of disaster affected areas by providing

satellite imagery and thematic maps of affected areas. SUPARCO can utilize the

satellite imagery to visualize the extent of floods and the population centers inundated

by them.

7.2.10Pakistan Meteorological Department

The primary function of this department is to provide an early warning of a natural

hazard. This department continuously monitors various meteorological factors such as

rainfall, temperature, atmospheric pressure, etc. The department issues weather

forecasts on a regular basis through electronic and print media.

7.2.11Pakistan Telecommunication Authority

PTA is responsible for the upkeep and maintenance of telephone, cellular and internet

connections. This department is also responsible for the restoration of this connectivity

in case it is negatively affected by a disaster. PTA would also create uninterrupted and

dedicated telephone lines to enable the exchange of information between the disaster

stricken area and DMAs or its representatives in the districts. This department can also

engage private telecommunication service providers to establish the connectivity

required for a well-informed emergency response.


19

7.3 Pakistan Army

The Pakistan Army‘s resources are employed for immediate search, rescue and

evacuation. The Army is called in the ‗Aid of Civil Power‘ only when a disaster

overwhelms the resources at the disposal of the Government of Punjab. Search, rescue

and evacuation are the primary responsibilities of the ‗Disaster Response Force‘ so if

the resources of this force fall short, the Army is immediately called in. The Army‘s

setup is administratively divided into Corps with a Corps Commander leading each

Corps. The District Coordination Officer of the affected district would request the

relevant Army Authorities for aid of Army upon the approval of the Home

Department. The Standard Operating Procedure of requesting the support of the Army

is to route the DCO‘s request through Home Department, and the Ministry of Defense.

The Ministry would inform the General Headquarters (GHQ) and officers at GHQ

would request the relevant Corps Commander to activate the Garrison Officer In-

charge and the Brigadier responsible for leading the on ground operations. DMAs have

equipped the Army with 850 boats for rescue and evacuation. In addition to the on

ground movement, the Army can also provide the necessary air support for

reconnaissance, relief and rescue missions. PDMA pays for the maintenance

expenditures of the 850 boats mentioned earlier. In the same manner, all of Army‘s

expenditures on disaster response are debited to the requisitioning civil authority.

The Army plays a substantial role in the opening of breaching sections. The Irrigation

department is responsible for the maintenance of manageable discharge rates in the

major rivers of Punjab. If the water flow exceeds a set discharge rate, the breaching

section is opened with the help of explosives and excessive water is diverted into a

designated area. The Breaching Section Committee responsible for the opening of the

section, contains a military representative, which is usually a representative of the

respective formation Headquarters not below the rank of Lieutenant Colonel. In case a

disaster disrupts the existing telecommunication channels in a certain area, the Army

would spearhead or assist the installation of wireless stations. In case of high floods,

the respective Corps Commander would setup a Flood Relief Committee, consisting of

but not limited to Commander Corps Engineer, Commander Corps Signals, Chief of

Staff, Colonel General Staff, Colonel Administration etc.


20

7.4 Provincial/State Disaster Management Commission/Authority

Provincial (Punjab) Departments and Authorities

The following departments and authorities shall take measures for the purpose of

disaster management:

I. Communication and works department

II. Home Department

III. Livestock & Dairy development department

IV. Rescue 1122

V. Civil Defense

VI. Public health engineering department & WASAS

VII. Education Department

VIII. Agriculture Department

IX. Local Government and community development Department

X. Social welfare Department

XI. Transport department

XII. Information department

XIII. Food department

7.5 District Disaster Management Authorities (DDMAs)

The District Governments are the first line of Defense. Each District Government has

prepared its contingency plan that must be followed in letter and spirit during the flood

season and in case of a disaster. The District Governments are required to undertake

timely action to save the lives and livelihoods of local population. The Districts

Government‘s responsibility is not limited to saving the human life, properties and

livestock; it also includes the prevention of epidemic outbreaks amongst both human

beings and livestock, to provide timely medical aid to the effected persons and to

eventually rehabilitate the affected people. The District Governments would be ready

round the clock for providing timely warning to the people and providing assistance to

flood victims with all available means and resources. The District Governments would

keep sand bags, baskets, belchas, kasies, and other flood fighting materials ready and

available. On receipt of a flood warning, the District Government will immediately


21

convey the warning to all the concerned officers. Upon the receipt of warning,

immediate action will be taken in each sector / sub sector for evacuation of the

population from the low lying areas to safer places or to Relief Camps established for

this purpose. An Assistant Commissioner will ensure that announcements in vulnerable

areas are made through loudspeakers of the mosques. Further, the Assistant

Commissioner will also utilize the services of the Revenue department. Each Patwari

will inform the Numbardar, Headmaster of the School, Imam Masjid and Councillor

etc. The District Coordination Officer would decide the strategic direction of District

Government‘s response to a disaster. The tactical operations would be headed by the

Additional District Collector (ADC). The ADC would be responsible for coordinating

and supervising the disaster control and relief measures in the district.

7.6 Community Organizations

Community level organizations will play key roles in disaster management.

Community organizations are intermediate organizations between local government

and individuals and they will promote disaster management activities. The community

level organizations shall work closely with local governments such as tehsil, town

authorities, and union councils.

7.7 Individuals

The basic principal of disaster management is that each person shall protect his own

life from disaster and each community shall protect themselves. It is important that

residents have knowledge of disaster and countermeasures against disaster situations.

The individuals and community organizations shall work together with local

governments to protect lives and assets. For the purpose of promoting effective disaster

management, individuals need to participate in disaster management drills and training.

7.8 University and Research Institutes

To reduce the disaster risk, knowledge of science and technology is very important. In

this connection, universities and research institutes should play important roles in


22

disaster risk management, including development of innovative measures for

mitigation and preparedness, collection of disaster-related information, formulation of

the collaboration among industry-government-academia, assessment of hazards and

risks, and so on.

7.9 International Agencies

International agencies, including the United Nations and multi-lateral and bilateral

donors, shall play important roles in disaster risk management in Pakistan. In

collaboration with government and other stakeholders, international agencies shall

work to improve disaster management systems, support capacity development and

strengthen institutions in disaster management.

7.10 Volunteers

Volunteers may play important roles in disaster reduction activities. Volunteer

activities should be expanded in all aspects of disaster prevention, emergency response,

and recovery and rehabilitation. In order to enrich the volunteer activities, the

government shall make an effort to create opportunities to share information among

volunteer groups and relevant entities and provide useful information.

7.11 Other Key Stakeholders

Other key stakeholders in relation to disaster management are:

I. Infrastructure Sector

II. Banks

III. Insurance Sector

IV. Hospitals

V. Telecommunications Companies

VI. Media

VII. Private Sector

These stakeholders shall prepare their own operation plan against disasters. Private

companies shall be a part of the community and provide assistance to the local people


23

in case of disaster situations. Drills and training shall be carried out periodically in the

companies.

8 REVIEW OF IMPLEMENTATION AND OUTCOMES

8.1 Review

The success or failure of any disaster management system depends upon the

availability and operational efficiency of the human resources, technology, information

architecture, funds etc. The importance of such a system in disaster management is

most critical as it can ensure the delivery of information and relief services to the

hazard affected areas and people. The combination of more extreme climate events and

an aging population has the potential to increase older people's vulnerability to risks

and disasters, especially in low- and middle-income countries.

Emergency operation centers were established at national, provincial and district levels

under the overall supervision of NDMA, F/G/S/PDMAs and DDMAs respectively. The

national EOC serves as a hub for receiving early warnings and issuing necessary

instructions to response agencies. The provincial and district EOCs lead coordination

and management of relief operations in affected areas. Civil Defense, armed forces,

fire services, police, ambulance services, Red Crescent and other related agencies will

be coordinated by the EOCs at respective levels. Standard Operating Procedures

(SOPs) were prepared in the NDRP and define roles and responsibilities of federal,

provincial and local agencies for their involvement in implementing of NDMP.

A methodology and system for post-disaster damage, loss and needs assessment was

developed for collaborative action by the stakeholders after the 2005 Earthquake. It

includes a framework for damage and loss assessment, common reporting formats,

data-collection methodologies, and roles and responsibilities of stakeholders. It also

includes SOPs on activation, deployment, reporting and de-activation of assessment

teams. These methods and systems were applied in the evaluation of damage, loss and

needs assessment in the 2010 flood. Under the support of UNDP, three Urban Search

and Rescue (USAR) teams have been formed for the Capital Development Authority,

the City District Government of Karachi and the Pakistan Army to respond to disasters.

i.e.


24

Provincial Disaster Management Authority, Punjab, has devised new mechanism to

carry out loss assessment survey to gauge the overall loss caused due to flood / disaster

for various purposes by the flood affected districts. This assessment enables the

government to know overall losses caused due to the disaster along with that helps to

devise its strategy for rehabilitation according to government‘s priorities within

available resources. PDMA has brought innovation in the losses assessment process

and mechanism. Damage assessment is conducted with Geographical references

through use of Android set to mark geo coordinate through Geographic Information

System (GIS). This minimizes the element of corruption and also helps planner to

understand water behaviors during various kinds of floods (riverine floods, hill

torrents, flash floods etc.) and their intensities.

In order to conduct damages assessment survey PDMA has developed various tools for

different types of damages to agricultural crop, livestock, properties, houses and lives

of disaster affected people. District Administrations notify Damage Assessment

Committees, number of such Committee depends on the level and geo stretch of the

damage caused during disaster. Generally Multi sectoral Committees are constituted

which helps to avoid element of nepotism and favoritism. Normally survey teams

comprise of representative from Revenue, Irrigation, Agriculture, Roads and Building

departments. Provincial Disaster Management Authority helps District Administrations

in capacity building of damage assessment Survey teams in the use of Android sets for

GIS mapping, moreover, guide survey team what aspects of the damage needs to

expose while taking photograph of the damaged property, crops and houses. Apart

from extent of damage exposed, affectee with CNIC in original is also captured for

future references with geo tagging.

District Administrations compile damage assessment data at tehsil and district level

and submit to Provincial Disaster Management Authority. PDMA after receiving

district wise damage report, prepare a consolidated damage report reflecting all kinds

of damages and losses to the Government for further planning and strategy

development for rehabilitation and compensation for the disaster affected people.

Assessment may be made according to following proformas.


25

Deceased Persons-Proforma-1

District: _____________________________

1 2 3 4 5 6 7 8 9 10 11

Sr.

No

Name of

Deceased

Person

CNIC

%age

Address

Age

Gender

Date of

Death

Cause

of

Death

Compensation

Paid by District

Administration

or not yet

Graveyard

registration receipt

from TMA or Photo

of Grave showing

the name and

address of

deceased person

Injured Persons-Proforma-2

District: _____________________________

Crops Damage Assessment-Proforma-3

District: _____________________________

1 2 3 4 5 6 7 8 9 10 11

Sr.

No

Name of

Injured

Person

CNIC

%age

Address

Age

Gender

Cause

of

Injury

Nature

of Injury

Compensation

Paid by District

Administration

or not yet

Medical Certificate

from Gov. Hospital

of Injury/s

1 2 3 4 5 6 7 8 9 10

S.

#

Tehsil

Qanoogoi

/UC

Name of

Mauzas

affected

Name of

Owner/

Farmer

Affected

CNIC

Crop

Affected

(Acres)

Type of

Crop

Total Land of

Owner/Farmer

(Acres)

% age of

Muaza

affected


26

Cattle Head Perished-Proforma-4

District: _____________________________

The more effective integration of disaster management considerations into sustainable

development policies, planning and programming at all levels, with a special emphasis

on disaster prevention, mitigation, preparedness and vulnerability reduction. The

development and strengthening of institutions, mechanisms and capacities at all levels,

in particular at the community level, that can systematically contribute to building

resilience to hazards The systematic incorporation of risk reduction approaches into the

design and implementation of emergency preparedness, response and recovery

programs in the reconstruction of affected communities.

8.2 Outcome-I

The National Disaster Management Ordinance and National Disaster Management

Plan(NDMP) which initially provided the legal framework for the disaster

management system has been enforced as the primary law of the land for disaster

management. In the line with priority areas identified under the National Framework,

several key initiatives have been implemented under the National Action Plan for 2009

and the National Action Plan 2010. Under the National Plans capacity building

initiatives in the field of disaster risk reduction have been implemented with a special

focus on the following key areas:

i. Strengthening of disaster management institutions at the provincial, regional

and district levels.

ii. National and local level risk assessment

1 2 3 4 5 6 7 8 9

Sr.

No.

Name of

Owner/

Farmer

CNIC

Father

Name

Address

Category

( i.e. goat, cow,

buffalo )

Cause of

Cattle Head

Perished

Compensation

Paid by District

Administration

or not yet

Remarks


27

iii. Disaster Risk Management (DRM) Planning.

iv. Disaster Risk Reduction (DRR) Mainstreaming.

v. Community Based Disaster Risk Management Activities.

vi. Strengthening of Early warning Systems

vii. Strengthening of disaster preparedness capacities through establishment of

USAR teams

viii. Raising public awareness through mock drills, easy to read publications and

media campaign.

.

8.3 Outcome-II

The National Disaster Management Ordinance calls for the establishment of DM

Institutions at the Federal, Provincial and Districts levels. Accordingly, the National

Disaster Management Commission (NDMC) and National Disaster Management

Authority (NDMA) have been established at the Federal level and are fully functional.

The Provincial Disaster Management Commissions (PDMCs), and Provincial Disaster

Management Authorities (PDMAs) have been notified by the Provincial Governments.

Likewise State Disaster Management Commission (SDMC) and State Disaster

Management Authority (SDMA) have been established by the Government of AJ&K.

Similar institutional arrangements have also been introduced in Gilgit-Baltistan, and

Federally Administered Tribal Areas (FATA). The District Disaster Management

Authorities (DDMAs), being the first responders and lynchpin of the whole system,

have been notified in each district/agency. Under the National Action Plans for 2009

and 2010, several capacity building programs for the capacity building of DM

institutions were implemented which included:

i. Provision of technical assistance to the provinces for formulation of provincial

disaster management plans

ii. Provision of technical assistance to 50 districts for formulation of district

disaster management plans

iii. DRM coordinators at Provincial level and District levels in selected districts

were attached to develop DRM capacities.

iv. 150 district officials have been trained in DRM


28

v. Municipal Disaster Management Cells (MDMCs) have been established and

made operationalized in Chitral, Murree, Muzaffarabad and Mansehra. The

project for establishment of National Institute of Disaster Management (NIDM)

has been initiated. The NIDM will be the Centre of excellence in the field of

disaster management. The government has allocated 06 acres of land for the

NIDM while DRM training courses have already been started under the

auspices of NIDM in a rented building. National Disaster Response Plan

(NDRP) and SOPs for National Response have been developed to provide a

national mechanic

8.4 Outcomes-III

The Earthquake Reconstruction and Rehabilitation Authority (ERRA), a dedicated

organization created by the Government of Pakistan to implement the reconstruction

programs in the areas effected by Earthquake 2005, has adopted risk reduction

approaches into the design and implementation of emergency preparedness, response

and recovery programs in the reconstruction of affected communities. The ERRA's

programs have been particularly successful in promoting earthquake safer construction

in housing, education, health and land development sectors. As the post disaster

reconstruction programmers in the earthquake affected areas of KPK and AJ&K are

nearing completion, the local capacities on account of emergency preparedness,

response and recovery to deal with future disasters has increased manifolds. Due to the

implementation of a range of DRR initiatives in these affected areas a culture of

resilience to disasters has already taken its roots which can be reflected in safer

constructions, community awareness about disasters and other DRR initiatives being

taken by the local Governments and community based organizations. However, the

sustenance of such initiatives is dependent upon consistent support by the local

Government through allocation of dedicated resources and capacity building of local

authorities in the field of DRR. In areas affected by Floods 2010, special emphasis is

laid on incorporating the element of DRR into all rehabilitation and reconstruction

projects and it is expected that same will lead to safer reconstruction practices, promote

a culture of safety and enhanced resilience of communities against future disasters.


29

9 EVALUATION FRAMEWORKS

9.1 Introduction & Rationale

IA RTEs are an initiative of the Inter‐Agency Standing Committee IASC). An IA RTE

can be defined as an evaluation carried out at the early implementation stages of a

humanitarian operation which almost simultaneously feeds back findings for

immediate use by the broader humanitarian community, particularly at the field level.

An IA RTE is primarily intended for sudden‐onset disasters, or protracted crises

undergoing a phase of rapid deterioration or escalating violence. These evaluations

differ from other forms of humanitarian evaluation in their speed, coverage, methods,

and outputs. IA RTEs are typified by their shared management and methodological

oversight through global and national level inter‐agency support, management groups

and in‐country Advisory Groups; speed of mobilization, feedback and follow‐up; light,

agile approaches; restricted scope; and participatory methods. Ideally, IA RTEs seek to

unlock inter‐agency coordination problems or operational bottlenecks and provide real

time learning to the field. The IASC IA RTE Support Group39 has agreed to carry out

an IA RTE in Pakistan since the humanitarian emergency meets the selection criteria

identified by the IASC as automatic triggers. According to the ‗automatic trigger

criteria‘ endorsed by IASC Working Group in July 2010, an IA RTE is triggered if

more than 1 million individuals are affected and if the Flash Appeal asks for more than

50$ million US Dollars. In the case of Pakistan, the August 2010 Pakistan Initial

Floods Emergency Response Plan identified the affected population as 14 million and

the total funding requested was at 459$ million US Dollars.

9.2 Objectives and Use

The IA RTE team will be deployed during the current response phase, ideally in

January/ February. The IA RTE will aim to provide snapshots of current situations,

including real‐time feedback and learning to the HCT: (local IASC, Cluster, NGO‘s,

Government, and NGO‘s involved in the humanitarian response – at Federal, District

and Provincial level). The main objective of the IA RTE is to assess the current


30

response to date and provide real time feedback and input into ongoing decision

making in the field. This will enable the adoption of corrective actions as needed and

demonstrate a visible capacity for the humanitarian system as a whole to learn lessons.

The evaluation will in this way support the ongoing operational planning of the

Humanitarian Country Team (HCT), which will be the most immediate user of the

feedback and recommendations.

9.3 Methodology

The applied methods for IA RTE shall be light and participatory. The evaluation will

be conducted by teams comprising independent consultants, with the possibility that

members of the IASC IA RTE Support Group will participate. The evaluation will be

carried out through analyses of various sources of information including desk reviews;

field visits; interviews with key stakeholders (affected population, UN, / I/NGOs,

donors, governments) and through cross validation of data. While maintaining

independence, the evaluation will seek the views of all parties, especially the affected

population. Evaluation teams will serve as ‗facilitators‘, encouraging and assisting

field personnel, both individually and collectively, to look critically at their operations

and find creative solutions to problems. The IA RTE will be a one‐phase approach,

which would carried out within the two first month and consist of remote monitoring

and the IA RTE mission to Pakistan In order to best prepare the consultants /

consultant team for the upcoming evaluation, members of the IA RTE Support Group

remotely monitored the response and gathered relevant information since the onset of

the emergency. Data has been gathered along the main questions set out in the IA RTE

Framework (see below) and consist of: e.g. Situation Reports, Needs Assessment

Reports, Key Messages, timelines of key decisions, timelines of cluster activation, and

timelines of the funding status, exit surveys, and main contact lists of key humanitarian

stakeholders. The data will be handed over confidentially to the consultant team to

carry out a desk review well in advance of the field mission.

9.4 Focus & ‘IA RTE Framework’

The evaluation will first identify the extent to which the overall response achieved or

did not achieve key objectives including addressing in a timely and meaningful way


31

the needs of all segments of the affected population. Deductive analysis will then guide

the evaluators to the other elements and dimension (as displayed in the IA RTE

Framework below) on which the evaluation should specifically focus. In general, the

IA RTE will focus in large part on the effectiveness and efficiency of the coordination

and management systems, addressing critical issues related to both the provision of

relief and to the transition to recovery.

IA RTE Framework, including Key Issues & Key Questions the IA RTE Framework is

a model that intends to display crucial characteristics. It was developed to be applied

for natural disasters and rapid external evaluation. Moreover, the Framework serves a

communication tool between all stakeholders and can therefore be slightly adapted to

local issues and relevant opportunities for learning. The IA RTE Framework intends to

provide the evaluators and the HCT with guidance on the most critical questions and

issues to be evaluated. Ideally, the IA RTE Framework should be shared with all

relevant stakeholders. It is expected that evaluators use the Framework as main

reference tool for their assessment.

To reiterate, evaluators should try to first focus on the outputs and outcomes of the

humanitarian response at the level of the affected population, especially by answering

one of the main questions of the Framework – ―How adequate was the response as a

whole, and what operational results as well as positive and negative outcomes for the

affected population did it produce?‖.

Figure 9.1 the Inter Agency‐Real Time Evaluation (IA RTE) Framework’ as Diagram


32

10 Conclusions

David Easton defines public policy as the authoritative allocation of values for the

whole society. On the other hand, Lasswell and Kaplan define policy as a projected

program of goals, values and practices.

Globally, the risks, vulnerabilities and impacts induced by natural hazards and disasters

are on rise. Disaster management in Pakistan was focused on the ‗Emergency



of order in areas affected by calamities and relief against such calamities. The NDMA

realized the importance of formulating the National Disaster Management Plan. It is a

long-term, holistic policy document for Disaster Risk Management (DRM) at the

national level.

Disasters happen in society and disaster management is the key in disaster

management impacts at all levels. Disaster institutions for risk reduction at the local

level serve as the best approach for reducing community vulnerabilities to natural

disasters.

Like many other countries, Pakistan has enacted laws and formulated policies on DM,

conforming to international standards and practices. Strategies have been developed to

integrate DRR in development policies and practices. However, due to bad

governance, lack of political commitment, rampant corruption, economic constraints

and overambitious plans, these policies and plans have not been implemented

effectively. It has also transpired that DRM policies have been implemented in an ad

hoc and uncoordinated manner. It is therefore concluded that despite proactive DM

laws and policies, implementation is still reactively focused in Pakistan. Current DM

policies and plans in Pakistan have noticeably failed to reduce human suffering.


33

11 GENERAL RECOMMENDATIONS

Amendments to NDMA 2010

The influence of managing disaster is evident in the provisions of the Act; however, it

needs changes in some provisions, as follows.

i. Addition of new sub-sections in Section 2 defining ‗Natural Hazard‘ and

‗Mitigation‘ should be inserted, as suggested below.

ii. In Section 2(b), after ―property‖ in the last line, the words ―or damage to, or

degradation of, the envir-onment‖ should be inserted.

iii. In Section 2(c), the heading should be changed from ―disaster management‖

to ‗disaster risk manage-ment‘ and before ―Preparedness‖, the words ‗Pre-

vention‘ and ‗Reduction of risk‘ should be inserted.

In Section 42, after ―No court or tribunal‖, the words ‗except the Supreme Court or

a High Court‘ should be inserted.

Need awareness activities at the union council level.

Need to work on pre-disaster activities involving community at local level for risk

reduction.

Need to work on pre-disaster activities such as awareness programs at different

level for capacity development.

NDMA/Line Departments, with clusters, must roll out a joint recovery needs

assessment. On this basis the NDMA/PDMA, with line departments and UN

agencies (led by UNDP) must develop a joint early recovery and rehabilitation

plans according to different geographical area needs and dynamics. To do so:

The UN must reduce transaction costs UN agencies and IPs produce results

commensurate to the level of funding received (i.e. through unit cost analysis).

HCT members will ensure that response is monitored and results are shared in

a transparent fashion.


34

REFERENCES

Books

Chand, Prof. Basir. Public Policy- Conceptual Framework . Islamabad : Statesman Institute ,

2010.

Habib, Hassan. Public Policy Formulation and Review. Lahore : WajidAlis , 1976.

Thomas A. Brikland, An Introduction to policy process: Theories, Concepts and Model

of Public Policy,M.E. Sharpe, 2001

Journal Articles

Zubair Ahmed, Disaster risks and disaster management policies and practices in

Pakistan: A critical analysis of Disaster Management Act 2010 of Pakistan,

International Journal of Disaster Risk Reduction, 2013

Syed A. N., Daniel P. A., Jayant K.R., Shabana A.N., Abid A., The need for local

involvement: Decentralization of disaster management institutions in Baluchistan, Pakistan,

International Journal of Disaster Risk Reduction, 2013

S.N. Sadasivan, Dynamics of Public Policy. Indian Journal of Public Administration, 1985, No.

4, P. 1204.

Magazine Article

Irshad A. S., Disaster Management in Pakistan, World Times 2011

Newspaper articles

M. Zaidi, Poor Disaster Management, DAWN NEWS 2012

Raza Rumi, Negligence, the biggest disaster in Pakistan, Express Tribune 2014

GOVERNMENTS REPORTS

Provincial Disaster Management Authority (Punjab), Punjab Disaster Response Plan

2014

http://tribune.com.pk/story/763124/negligence-the-biggest-disaster-in-pakistan/


35

National Disaster Management Authority (NDMA), Government of Pakistan, National

Disaster Risk Management Framework Pakistan 2007


Disaster Management Plan (NDMA)


Annual Report 2013

INTERVIEW

Muhammad Sajjad Director Operations PDMA, Punjab

40-A, Lawrence Road, LahorePhone: 042-99203303, 99204409, 0300-4441170

Fax: (92-42) 99204405

Email: [email protected]

Emergency Helpline (UAN): 1129

mailto:[email protected]

disaster management in_pakistan (6)

Government & Nonprofit

disaster management

natural disaster

h o r e disaster management

pakistan army

examples of public policy

ministry of interior

ministry of water

ministry of railways