HUMANITARIAN RESILIENCE JOURNAL · program’s goal is to strengthen the emergency response...

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Governance in Preparedness HUMANITARIAN RESILIENCE JOURNAL ISSUE #1

Transcript of HUMANITARIAN RESILIENCE JOURNAL · program’s goal is to strengthen the emergency response...

Page 1: HUMANITARIAN RESILIENCE JOURNAL · program’s goal is to strengthen the emergency response capacities in these countries to better ... redesigning its outdated and primarily relief

GovernanceinPreparedness

HUMANITARIANRESILIENCEJOURNAL

ISSUE #1

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Asian Disaster Preparedness Centre (ADPC) with support from Bill and Melinda GatesFoundation(BMGF)isimplementingtheprogram‘StrengtheningCapacityofGovernment,LocalHumanitarianOrganizationsandthePrivateSectoronPreparednessforResponseinAsia’in6SouthandSouth-EastAsiancountriesnamely-Nepal,Pakistan,SriLanka,Cambodia,PhilippinesandMyanmar.

The program utilizes a unique networked approach by creating the Asian PreparednessPartnership(APP)-amulti-stakeholderregionalpartnershipthroughtheprogram.APPstrivesto improve inter-organizational coordination and dialogue between Governments, LocalHumanitarianOrganizationnetworksandPrivateSectornetworks for enhancing capacitiesthrough partnerships, knowledge resources, training and networking opportunities. Theprogram’sgoalistostrengthentheemergencyresponsecapacitiesinthesecountriestobetterpreparefor,respondto,andrecoverfromdisasters.

Withthecreationofnationalpartnerships intheprogramcountriesandcommencementofplannedactivities,itwouldbeimperativetohighlightthevalueadditionofthiscollaborativeapproach in the overall humanitarian architecture of each project country. As part of thisstrategy,communicationsandoutreachcanplayacriticalrole inthedisseminationofworkundertaken to improve and strengthen coordinationmechanisms and emergency responsecapacitiesofourkeystakeholders.

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TABLEOF

CONTENTS

DisasterRiskReduction(DRR)MainstreamingInGovernance:WhereNowandWhereto?

HumanitarianResilienceJournalGovernanceinPreparednessISSUE1

InstitutionalandLegalReadinesstodealwithdisastersBy:MuhammadIdreesMahsud

NeedforaStrategicvision:RoleofdonorsindisasterpreparednessinPakistan:By:IrfanMufti

AStepTowardsPreparednessRiskAssessmentandSaferLandusePlanningBy:SyedHarirShah

AreWePreparedforDisasters?RealitiesandWayForwardBy:GhazalaNaeem

RoleofHumanNetworksandtheirImplicationsforDisasterManagementPolicyandPracticeBy:UsmanQazi

By:YusraQadir

01

04

DisasterManagementSystemofPakistan

09

14

18

20

24

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TheUnitedNationsOrganization,incollaboration

withJapan,hasbeensteeringglobaleffortsaimedat

makingtheworldsaferfromnaturalhazards.Modern

DisasterRiskManagementandgovernancestructures

owetheirexistenceandcontinuousevolutiontosuch

efforts.UNandJapanhavesofarorganizedthree

internationalconferencesi.e.�irstconferenceheldin

Yokohama,in1994,secondatHyogo,Kobein2005

whiletherecentoneheldatSendaiin2015.These

conferencesremainedinstrumentalingradually

developingdisastermanagementsystemsacrossthe

globe,includingPakistan.TheYokohamaConference

adoptedtheYokohamaStrategyforaSaferWorld:

GuidelinesforNaturalDisasterPrevention,

PreparednessandMitigationanditsPlanofAction.

TheHyogoConferenceadoptedHyogoFrameworkfor

Action2005-20015,whiletheSendaiConferencegave

theworldSendaiFrameworkonDRRforactionfrom

2015to2030withkeypriorities.Thoughvoluntary

andnon-bindingagreementstheseframeworkshave

beenguidingthememberstatesinhowtoproceed

withtheagendaforresilience.

Pakistancouldnotunfortunatelyseizethemoment,

untilitwasstruckbytheworsteverdisasterinits

historyi.e.EarthquakeofOctober8,2005.Though

thereweresomeeffortsandconsiderationof

redesigningitsoutdatedandprimarilyreliefcentric

disastermanagementstructureenvisagedin1958

throughNationalCalamitiesAct,1958inthewakeof

IndianOceanTsunamiandHyogoFrameworkfor

Actionbeingasignatorystate,however,suchefforts

remainedvictimstoredtape.Onlywhenthe

governmentrealizedthatthesystemswere

inadequatetomanagemegadisasterslikeearthquake

of2005,theproactive,robustandmoderndisaster

managementsystembasedoninternationalbest

practiceswasdesignedthroughenactmentof

NationalDisasterManagementOrdinance,2006.The

enactmentofnewlawatfederallevelwasonly

possibleduetoresolutionpassedbythreeprovincial

assembliesunderArticle144oftheConstitutionof

IslamicRepublicofPakistan,whiletheProvincial

AssemblyofSindhalsofollowedsuite.Such

Resolutionspavedthewayforenactmentoflawat

federallevelonthesubjectmatterofdevolved

responsibility.Thoughthereisawidelybelieved

misperceptionthatthe18thconstitutional

AmendmentpassedinApril2010devolveddisaster

managementsubjecttoprovinces,whilethefactof

thematteristhatitwasalreadyadevolvedsubject

before18thAmendment.Thereisnodoubtthat18th

AmendmenthadanimportantimplicationfortheDM

systemasmostofthealliedministriesandimportant

stakeholderslikeMinistryofhealth,education,

agricultureetc.weredevolved.

Astrongandrobustorganizationi.e.National

DisasterManagementAuthoritywasestablishedat

theapexofthesystemtoimplement,coordinateand

monitorimplementationofnationalpolicyandplan.

Nationaldisastermanagementcommission(NDMC)

headedbythePrimeMinisterwasestablishedasone

ofthemostrepresentativebodyatthenationallevel

forpolicyformulation.NDMCisrepresentedby

leadersofoppositioninboththehousesofthe

parliament,respectivechiefministersofallthe

provincesandregions,keyfederalministersand

armedforces.ChairmanNDMAissecretaryofthe

CommissionandNDMAisanexecutivearmofthe

Commission.Similarstructureshavebeenputin

placeatprovincialandregionallevelswithProvincial

CommissionsandPDMAs,whilethemostimportant

tierofthewholesystemthedistrictDDMAshave

beenprovidedforintheAct.Whilethesystemis

gettingstrongerandmoreeffectivedaybydaywith

NDMAandPDMAsbeingrelativelystrongerthanthe

mostimportantpillari.e.theDDMAs.Unfortunately,

soonaftertheemergenceofnewnationalDMsystem,

ithadtodealwithmegaandunprecedenteddisasters

likeYemyinCycloneof2007,ZiaratEarthquake,2008,

InstitutionalandLegalReadinesstodeal withdisasters

MuhammadIdreesMahsud

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AttaAbadlandslide,2010,AirBlueCrash,Pakistan.

SuperFloods2010,Pakistan�loods,2011,�loods

2012,2013and2014,AwaranandMashkhel

Earthquakes2013etc.Italsocontributedeffectively

todisasterresponsesatglobalandregionallevels.NationalNeedsAssessmentReport2012developed

throughconsultativeprocessadoptingbottom-up

approachalsoplayedkeyroleinidentifyingareasfor

interventionsandgivingvoicestograssrootslevel

stakeholders.NationalDRRpolicybeingaliving

documenthighlightsthreepillarapproachi.e.Risk

Knowledge,preventionandmitigation,and

preparedness.BasedonthepolicydirectionsNDMA

engagedwithJapanesegovernmentthroughJICAand

developedacomprehensivetenyears'National

DisasterManagementPlanwithatotaloutlayofUS$

1billion.Ithasfourcomponentsi.e.NationalDisaster

ManagementPlan,HumanResourcesdevelopment

plan,EarlywarningsystemsandCommunitiesBased

DisasterRiskManagement(CBDRM).NDMAandits

partnersincludingPDMAs,FederalMinistries/

Division,INGOs/NGOs,UNsystemandDonorsareall

gearedtoimplementtheNDMP.Anumberof

interventionshavebeenimplementedprimarily

throughdonorsupportlikeJICA,DFID,SDC,WFP,

UNDP,FAOetc.Majorinterventionsareinpipeline

liketheWorldBanksupportedNationalDRMservices

projectatatotalcostofUS$92million,whichisin

�inalstagesofapproval.Theprojectaimstosupport

importantprioritiesandinterventionsofNDMAlike

establishmentofstateoftheartNationalEmergency

OperationsCenter,NationalDisasterResponseForce,

NationalInstituteofDisasterManagement,

consolidationoflegalandinstitutionalstructureslike

amalgamationofdifferentinstitutionsandlegal

instrumentslikeCivilDefenceAct,National

CalamitiesAct,ERRAActetc.intoaconsolidatedNDM

Act,developingRiskKnowledgelikeMHVRAsin38

districts,developingRiskFinancingStrategiesand

mechanisms,genderandchildcenteredDRM,

implementationofbuildingcodesthroughmodeling

andretro�ittingpilotinterventionsetc.TheWorldBankisalsosupportingasisterprojectto

DRMservicesprojecti.e.EarlyWarningStrengthening

ProjectatatotalcostofUS$106millionthatis

expectedtofurtherstrengthenPakistan

MeteorologicalDepartment's(PMD)forecasting

capabilities.JICAhasalsobeensupportingPMD's

capacityenhancementsthroughinstallationof

weatherradarsprimarilythroughgrant-in-aid.DFID

hasbeensupportingDRMinPakistanthrough

differentprojectsandinterventions.Anotheroneof

themostimportantmajorfundingwindowhasnow

beenmadeavailableintheformofNationalDisaster

RiskManagementFund(NDMRF)withoverUS$200

millionsupportedbytheAsianDevelopmentBank.

NDMRFhasalreadybeenestablishedassection42

companyanditsevenmorehopefulnewsthatoneof

themostcrediblenameinDRMnotonlyinPakistan

buttheworldoveri.e.General(Rtd)NadeemAhmed,

formerChairmanNDMAhasbeenappointedasits

CEO.TheFundisexpectedtobeanimportant

instrumentinfundinginvestmentsinDRMsector.The

Fundhasalreadyprioritized�inancingintervention

fromNDMPandNationalFloodProtectionPlan-IV

(NFPP-IV),anotherimportantplanprimarilyaimedat

reducing�loodriskhasalreadybeenapprovedbythe

CouncilofCommonInterest(CCI).NFPP-IVisbeing

implementedbyanimportantstakeholderand

componentofDMsysteminPakistani.e.Federal

FloodCommission(FCC),againheadedbyawell

knownDRMprofessionalandmypredecessorin

NDMA,Mr.AhmedKamal.

Whilethejourneytowardsresiliencebuildingin

Pakistanislong,tedious,dif�icultandchallenging,

InstitutionalandLegalReadinesstodealwithdisasters

Despitemountingexcellentresponsestothese

disasters,NDMAcontinueditstrajectory

towardsbuildingresiliencebyfocusingon

disasterriskreductionandmitigation.It

developedNationalDisasterRiskManagement

Framework(NDMRF)2007-2012thatguided

nationaleffortsinninepriorityareasinlinewith

HFAtillapprovalofNationalDRRpolicyand

NationalDisasterManagementPlanbythe

NDMCinFebruary,2013.

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however,theinstitutionalandlegalstructureputin

placeinthewakeofEarthquake,2005primarily

steeredbyNDMAhasachievedimportantmilestones.

Thereare,undoubtedly,requirementsforreformsin

thecurrentcon�igurationoftheinstitutional

structureparticularlyitsconsolidationandcapacity

building,however,itisfactthatthestructureshave

strongfoundationsandhavesuf�icient�lexibilityand

robustnesstoalignitselftorealitiesandtackle

emergingchallenges.TodayPakistanhasover7000

professionalandgovernmentservantstrainedinDRM

fromtheplatformofNIDM.

ThemostimportantagendaforNDMAisto

strengthendisastermanagementstructures.The

systemhasgreatnetworkingandstrongcoordination

bondsbothhorizontallyaswellasverticallyunlikein

thepastduringitsformativephases.Ithasimportant

linkagesdomesticallyandabroad.National

HumanitarianNetwork(NHN),agroupofNational

NGOs,PakistanHumanitarianForum(PHF)a

groupingofInternationalNGOs,recentlyestablished

PakistanResiliencePartnership(PRP)areits

importantpartnersinPakistan,whileatinternational

levelNDMAhasbeenrecognizedasaleaderinDRM

byUN.Suchleadershiprolehasbeenrecognizedby

unanimouselectionofChairmanNDMALt.General

OmarMahmoodHayatasChairof5thsessionof

UNESCAP'sDRRcommitteeinOctober,2017in

Bangkok,Thailand.Similarly,NDMAisCo-Chairof

DisasterManagementCon�idenceBuildingMeasureof

HeartofAsia,IstanbulProcessalongwith

Kazakhstan.

TodaythepeopleofPakistanhaveareasontofeel

con�identthattheNDMSystemisleadingthem

towardsresilienceandthattheyaremoresafeagainst

naturalhazardsthantheywere,forexample,adecade

ago.

InstitutionalandLegalReadinesstodealwithdisasters

LivinguptoitsleadershipresponsibilitiesNDMAorganizedaverysuccessfulinternationalConference

on“CapitalizingonPakistan'sExperienceinHandlingDisasters,CreatingSynergiesamongGlobal

Frameworks–LessonsLearntandtheWayForwardfortheRegion”andalso6thMeetingofRTGofDM-

CBMofHeartofAsia.Pakistanalsolaunched“HostNationSupportGuidelines”being�irstcountryin

region.Thisdocumentalsoservesasmodelfortheregiontoadopt.

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HumanitariansectorinPakistanisfacedwith

multiplechallengesofintegration,coordination,and

effectivecommunicationsandmostimportantlya

long-termvision.AllexpertopinionsuggestsPakistan

isinperpetualhumanitariancrisesfrombothnatural

andhumaninducedreasons.Incidentsinlastseveral

yearsindicatesuchincidentshappenwithregular

intervalsbutthecapacityofhumanitarianactorsto

manageaftereffectsanddamagestohumansociety,

economiesandculturesarestillfarfromthedesired

level.

Pakistan'seconomyandplanningarchitectureis

marredwithinherentweaknessestosupportany

majordisasterpreparednesscapacity�inancingand

managingaftermathonhumanlivesandlivelihoods

letalonesupportingeconomicdamages.Experience

overthelastfewyearsprovesacaseofweak

response,short-livedplanningandlackofcohesive

andintegratedrehabilitationandpreparednessplan.

Pakistanisarelevantcaseforevaluatingdisaster

preparednessgivenitshistoryofnaturalhazards,its

uniquegeographicalposition,andthestrategic

interestsofitsneighborsandallies.Pakistan

commandssubstantialglobalattentionduetoitsrole

in�ightingterrorismalongsidemanagingmassive

naturaldisastersthatoccureveryyearcausing

considerabledestructionandlosses.

Pakistanranksthirty-sixthintheworldbygeographic

areaof796,095km2yetithasthesixth-largest

populationglobally,withover200millionpeople.The

urban-ruraldividehaspredominatedformuchofthe

country'shistory,with38.8%ofthetotalpopulation

livinginareasof�iciallyrecognizedasurban.

Muchoftheruraleconomyisstillrelianton

agriculture–accountingfor24%ofGDPandhalfof

theemployedlaborforce–andsuffersheavilyasa

resultof�loodsorothernaturaldisasters.These

constraintsarethoughttocontributetooveralllow

levelsofhumandevelopmentandsigni�icantpoverty,

withtheHumanDevelopmentIndexrankingPakistan

147outof188whileOxford'sMultidimensional

PovertyIndexnationalvalueforPakistan-calculated

bymultiplyingtheincidenceofpovertybythe

averageintensityofpovertyacrossthepoor-is0.23,

rankingthirty-sixthintheworld.4.5millionin2011,

whichis12.7%ofthepopulationlivedonlessthan

$1.25aday.Thediseaseburdenalsocontinuesto

increaseasthepopulationgrowsrapidly.Pakistanhas

endurednumerousnaturalhazardsinthelastdecade,

beginningwithamassiveearthquakein2005inthe

Kashmirregionthatkilledover75,000peopleandis

rememberedasoneoftheworstnaturaldisastersin

SouthAsia.2010sawsomeoftheworst�loodsin

Pakistan'shistory,killing1,985andaffecting20

million.In2013,�loodingkilled178peopleand

affected1.5million.367peopledieddueto

widespread�loodingin2014,whichwasthe“fourth

consecutiveyearofhigh-impactmonsoonrainsin

Pakistan.In2015,peopleinKarachi,Pakistan's

largestcity,experiencedaheatwavethatkilledover

1200people.”Theeffectofthesenaturalshocksis

exacerbatedbyvulnerabilitiesinthewaydisasters

aremanagedandpreventedaswellastheinertiaof

deepersocioculturalissuesthatareconsidered

beyondthescopeofdisastermanagementandhence

irrelevant.Asaresult,simpleeventscontinueto

causelarge-scaleshocks.Governmentresponseto

disastershasgraduallyimprovedbutstillthereis

muchtobedone.WhilePakistanfacesdisastersof

variousforms,respondentsseemedtofocuson�loods

andtheenhancedabilitytorespondtoswelling

rivers.Thereismoreuseofdataandforecastingto

dealwithimminenthazardsofthistype.However,

thereisstillnofocusonpreparednessorprevention,

especiallyforunpredictabledisasterslike

earthquakesaswellasmorerecentphenomenalike

TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision

IrfanMufti

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heatwaves.Theinternationalcommunitycontinues

toplayanimportantroleinbuildingcapacity,sharing

lessonsfromothercountries,andprovidingmonetary

support.Unlikemanyothercountries,the

governmentalsoreliesheavilyonthearmytosupport

civilianeffortsfordisastermanagementand

providingrelief.

Developedsocietieshavelearntalessonofinvesting

inpreparednessthatbringsfar-reachingresultsand

bene�itstohumansocieties.Itismuchlessresource-

orientedandmoreonhumandevelopment,systemup

gradation,investmentsinearlywarningsystems,

humancapacities,reliableinfrastructureandmost

importantlybuildingresilienceandleadershipin

communities.Thismantraofpreparednessisnow

beingrealizedatdifferentlevelsofpolicy,legislation,

plansandresourceallocations.

Resourceallocationisanessentialelementforany

preparednessplanbutthatonlycomeswhilehuman

planisreadyandvisionissetinmotionthroughwell

integratedactionsandsystemsofdelivery.Pakistan

hastakenaleadmuchbeforeseveralotherAsianand

SouthAsiancounterpartsfacingsimilarchallengesof

humanitariananddisastermanagement.

InstitutionalCapacityforDRR,Preparednessand

Response-Pakistan'suniquegeographyandlocation

aswellasitssocioeconomicconditionsmakeit

susceptibletonaturaldisasters.Inmanyways,

Pakistan'scapacitytodealwithdisastershas

signi�icantlyimproved.TheWestPakistanNational

Calamities(PreventionandRelief)ActandtheCivil

DefenseActwerepassedin1958.From1958tillthe

Kashmirearthquakein2005,thedisaster

managementfunctionwasnotformallyhousedinone

location;theEmergencyReliefCellintheFederal

CabinetSecretariatledcoordinationeffortsbut

districtsindependentlysourceddisasterrelief

equipmentandrespondedtodisasters.The

earthquakein2005wasthecatalystthatresultedin

thecreationoftheFederalReliefCommission(FRC)

andEarthquakeReconstructionandRehabilitation

Authority(ERRA)andinitiatedaconversationon

settingupaformaldisastermanagementauthority.

However,itwasonlyin2010,whenalargepartofthe

countrywas�looded,thatthegovernmenttookthe

nextmajorstepandpassedtheNationalDisaster

ManagementAct.Inthesameyear,thelandmark18th

AmendmenttotheConstitutionwasalsopassedthat

devolvedthedisastermanagementfunctiontodistrict

governments.Amuchneededstepintheright

directionofresilientandpreparedsocieties.

CivilSocietyHypothesis-levelsofdisaster

preparednessmaybehigherwithastrongercivil

societypresenceingeneraland,inparticular,when

therearemoredisasterorientedNGOsontheground.

Itisexpectedthatastrongcivilsocietywillbe

effectiveatholdingthegovernmentaccountableand,

asaresult,pressureitintospendingondisaster

preparedness.InPakistan,thecivilsocietyisperhaps

notstrongenoughtoplaythisroleeffectively,

especiallywhenitcomestodisaster-orientedNGOs

ontheground.AlargenumberofNGOsareactivein

thedisastermanagementspace,butmostofthem

onlyworkonprovidingrelief.Asmallnumberof

NGOsengagewithlocalcommunitiesonbuilding

capacityforresilience,buttheeffortsarenot

coordinatedandampli�ied.Infact,mostrespondents

feltthatPakistan'scivilsocietyhadnorealabilityto

developlocalcapacityortoadvocateforamajorshift

inpolicy.Thisissurprisingsincethecivilsociety,

especiallyinconjunctionwiththemedia,seemsto

haveastrongvoiceinotherissueslikehumanrights

andsocialdevelopment.Intheabsenceofstrongcivil

societyactors,therehavebeensomeattemptsby

localstoinvestinresilienceinitiativesthemselvesbut

theyhavenothadanymajorimpact.Generally,it

TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision

PakistanResiliencePartnership(PRP)isamuch-

neededinitiativeintherightdirection.Platform

thatbringsallimportantstakeholderstoone

platformofplanningahead,communicationand

integrationsystemsandcoordinationamong

stakeholders.

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wouldfairtoarguethatthehypothesisthatthecivil

societycandrivedisasterpreparednessholds,atleast

inthenegative,inPakistan'scase.Civilsociety

pressureonthegovernmentisweakand,hence,

disasterpreparednesseffortsofthegovernmentare

weak.

ExternalActors/DonorsHypothesis-previous

disastersandhumanitariansituationsaw

unprecedentedsupportfrombothexternaland

internalactorsandinstitutions.Besidesmajor

contributionfromlocalphilanthropywhichwasatits

peakafter2005earthquakeinKashmirandnorthern

areassomeimpressiveleveloflocalsupportin2010

�lash�loodsalsocamefromlocalsources.

UNOCHAmanagedtwopooled-fundsmechanisms,

theCentralEmergencyResponseFund(CERF)and

EmergencyResponseFund(ERF)nowtitledas

PakistanHumanitarianPooledFunds(PHPF),which

providedvaluableassistanceforfood,water,shelter,

healthcare,nutritionandprotectionsupportto

peopleaffectedbynaturaldisastersandcomplex

emergencies.Since2007,Pakistanhasreceivedmore

thanU$168millionfromtheCERFtoaddressurgent

humanitarianneeds,whiletheERFhasdisbursed

overUS$42millionsinceitsinceptionin2010.

Withweakeconomyandpercapitaincome,the

economyofPakistanreliesonforeignaidforits

economicdevelopment,socialdevelopmentandother

activitiesrelatedtocivillife.Accordingtothe

databaseofOECD,Pakistanhasreceivedforeignaidof

$22.85Billionfromalldonorsinallsectorsinlast5

years.

ItishoweverironicthathumanitarianaidtoPakistan

hasdecreasedovertheyears.Con�lictandnatural

disastersarepartoftheconsequencesofglobal

warmingglobally,withPakistanespeciallyhard-hit.

Figuresshowthatdifferentdonorsdonatedatotalof

$638millioninhumanitarianassistancefrom2011to

2015.Duringthelast�iveyears,thehumanitarian

developmentaidhasgraduallydeclinedto6%oftotal

aidreceivedfromahighof32%in2011.Alsothese

trendshaveprofoundimplicationsforhumanitarian

action.First,whilehugenumbersofpeoplein

Pakistancontinuetoriseinpoverty,thosewho

remainareincreasinglyinfragiledistricts,exposedto

warandcrisis.

AccordingtotheUNOf�icefortheCoordinationof

HumanitarianAffairs(OCHA)'sFinancialTracking

Service(FTS),donorshavecommitted/contributed

US$68.3millionofhumanitarianassistanceto

Pakistansincethestartof2016.Ofthetotalreported

funding,US$28.2millionhasbeenchanneledthrough

theUN-coordinatedHSP,accountingfor41%ofall

funding.Therearetwooutstandinguncommitted

pledgesfromtheUnitedStates(US)andtheUnited

Kingdom(UK).ThevastmajorityoftheUS$20million

(99%)fromtheUSistosupportPakistan's2016HSP

forfoodandlivelihoodsassistanceforInternally

DisplacedPersons(IDPs)andreturneesinPakistan's

KhyberPakhtunkhwaProvince.TheUK'soutstanding

uncommittedpledgeofUS$0.9millionisalsofor

Pakistan'sHSP,supportingthecoordinationeffortsof

theUNOCHA.ECHOiscurrentlythelargestdonorin

2016,havingcommittedUS$21.9million,accounting

for32%oftotalreportedfunding.Thenextlargest

donorisJapan,reportingUS$10million,followedby

Sweden(US$7.8million),Canada(US$7.4million)

andtheUS(US$6million).Fundingfromthese�ive

donorscombinedrepresents78%oftotalreported

fundingsofarin2016.Thetenlargesthumanitarian

donorstoPakistan,2016Source:Development

InitiativesbasedonUNOCHAFTSdata.Data

downloadedon30April2016Note:ECHO:European

Commission'sHumanitarianAidandCivilProtection

department;US:UnitedStates;ERF:Emergency

ResponseFund;UK:UnitedKingdom.

Pooledfundingsaspartoftheresponsei.Central

EmergencyResponseFundSofarin2016nofunding

hasbeenallocatedtoemergenciesinPakistanfrom

theUN'sCentralEmergencyResponseFund(CERF).

In2015PakistanreceivedUS$11millionthroughthe

CERF'srapidresponsewindow,accountingfor2.34%

TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision

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ofallallocationsthatyear.ii.PakistanEmergency

ResponseFundAccordingtoFTS,thehumanitarian

country-basedpooledfundinPakistan–thePakistan

EmergencyResponseFund(ERF)–hasreceived

contributionsandcommitmentsfromdonorstotaling

US$7.5millionin2016,ofwhichUS$5millionis

currentlyreportedasallocated.Thehealthsectorhas

receivedthelargestvolumeofERFallocations

(US$2.4million),accountingfor47%oftheallocated

total

Ifagovernmenthasgreaterexposuretodisaster

preparednessfromtheactionsofexternalactors,then

itwillinvestmoreinpreparedness.Thedisaster

managementspaceinPakistanisquitecrowdedwith

anumberofactiveexternalactorsthatinclude

multilateraldonorsliketheWorldBankandUN,

bilateraldonorslikeUSAIDandJICA,and

internationalNGOslikeRedCrescent(RedCross).

Whilethebulkoftheireffortsarefocusedon

providingrelief,somedonorsliketheWorldBankare

activelypushingdisasterpreparednessthrough

activitiessuchasdisasterriskassessmentsand

capacitybuildingworkshopsforlocalNGOs.Yet,the

presenceofalltheseexternalactorshasnotpushed

thegovernmenttorampuptheirownpreparedness

activitiesinasigni�icantmanner.

Therelatedhypothesisthatastatewillinvestin

disasterpreparednessifitisproximatetootherstates

thataredoingthesamedoesnotholdatall.The

easternneighbor,India,hasspentconsiderablyon

buildinganumberofdamsthatprevent�loodingin

thehalfofPunjabthatbecamepartofIndiaafterthe

partitionin1947.Ontheotherhand,Pakistanhasnot

builtanymajordamsintherecentpastand,hence,is

unabletoregulatethe�lowofitsriversthatcause

major�loodingeveryyear.Pakistancanbuildastrong

casetodonorslikeWorldBank,JICA,ADBtosupport

Pakistaninthesedamswhichwillhelpthecountry

managefuturedisastersespecially�loodsinmore

effectiveway.

PolicyRecommendations-basedonthisexamination

ofdisasterriskmanagementandcapacityinPakistan,

anumberofpolicyrecommendationscanbeput

forth.First,thereisanurgentneedtorevisitdisaster

managementstructures,bothinprincipleandin

practice,andevaluatewhethertheyservetheir

intendedpurposes.Inordertoprovideeffective

disasterpreparedness,thereisneedforadrastic

improvementoflocallevelcapacityaswell

incorporationoflocallevelknowledgeinlargerplans.

Bybuildinglocalcapacityandempoweringlocal

of�icialsandcommunities,peopleshouldbebetter

preparedtowithstand�loodingandothernatural

disasters.Donorscaninvestinbuildingsuch

capacitiesinlocalpartnersandcoordinationwith

governmentauthorities.Byinvestingincapacitywe

canachievetwoimportantobjectivesofimproved

humanresourcesandbetterinstitutionalresponsein

caseofanydisasteroccurs.

Similarly,donorscansupportandinvestin

implementingobjectivesofdecentralizationof

expertiseandadministrationofemergencyresponse.

Suchasupportcanenablequicker,moreef�icientaid

anddecision-makinginallspheresofpreparedness

andresponse.Thecentralizationofpowerand

budgetingarounddisastermanagementcreates

ineffectiveandinef�icientprocesses,whichcandelay

aidandexacerbatechallengesduringdisasters.

Investinginreliableanddisaster-resistance

infrastructureincreasescapacityofanycountryto

dealwithadverseeffectsofanynaturalhazard.

Unluckilyourpooreconomichealthand�iscal

weaknessesdon'tallowthecountrytoinvestinsuch

structures.Donorscanprovidefocusedandtimely

�inancialassistanceasbudgetsupportinmitigating

theeffectsof�loodsandotherdisasterswithlower

TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision

Donorsshallalsolocalizethedecisions,planning

andresourceutilizationfunctionssothatlocal

playersincludingNGOs,humanitarianactors,

disastermanagementauthorities,systemsof

coordinationarebetterabletosupporting

resilienceandpreparednessfunctions.

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perceivedrisk,includingearthquakesandheatwaves.

Likewise,theimportanceofinstitutionsthatonly

focusonprovisionofdisasterreliefandrehabilitation

needstobereduced.Revisingthearchitecturesof

developmentplansandinstitutionalmechanisms

couldhelpmakepreparednessasnationalpriorityas

opposetoresponseonlyactions.Donor'scontribution

todevelopmentprojectswithresiliencefactors

incorporatedcanbetterachievetheseobjectives.

TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision

Thegovernmentshouldpartnerwiththeprivatesectoranddonorsincreativewaystoovercomethe

challengeofpooreconomicstrength.

Thedisasterpreparednessfunctionitselfandassociatedinstitutions,especiallyinthecivilsociety,need

tobegivenmoreimportancebothinletterandspirit.

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Pakistanisinconstantgripofmajortoeveryday-

disastersfromoveradecade.Thecommunityatthe

locallevelisperpetuallysufferinghumancausalities;

socio-economic,ecological,environmental,and

physicallosses;andemotional,psychologicaland

behaviurchallenges.

Therearemanycausesofeveryday-disasters.Oneof

thebasiccausesis'lackofrisk-basedapproachto

landuseplanning'thatiscrucialtoeverydayhuman

activityincities,villages,andotherhuman

settlements.Ourexperienceofover20yearsworking

withdevelopment,disasterriskandclimatechange

relatedsectorsinPakistanandtheregionrevealsthat

anotherfactorthatishamperingtheeffortsof

disasterriskreductionis'lackofcomprehensiverisk

assessment'.

Itisthe�irststeptowardsachievingthetargetsof

sustainabledevelopmentgoalsandSFDRR2030.Risk

assessmentforsaferlanduseplanningatthelocal

levelforconstruction,settlementanddevelopmentof

infrastructureensuresresilienceandsustainabilityof

everydaydevelopmentintervention.Itsupportsin

understandingandmanagingmultiplerisksthat

maximizenetbene�itsfromthenaturalprocess,and

sustainablenaturalresourcemanagementand

minimizethenegativeimpactoftheoverallrisk

process.

RiskAssessmenthasbeende�inedbyUNISDR2015

as“theabilitytoassessriskusinganall-hazards

approachinatimely,technicallysound,andeasily

communicatedfashionisthefoundationtodevelopthe

necessaryunderstandingbykeystakeholderstaskedto

manageandreducedisasterriskasoutlinedinthe

SendaiFrameworkforDisasterRiskeducation”.

UNISDR(UNISDR2009)asde�inedRiskAssessment

asthe“methodologytodeterminethenatureand

extentofriskbyanalyzingthepotentialhazardsand

evaluatingexistingconditionsofvulnerabilitythat

togethercouldpotentiallyharmexposedpeople,

property,services,livelihoodandtheenvironmenton

whichtheydepend”.

Acknowledgingtheimportanceoflanduseplanning

indisasterrisk,UNISDR2009de�ineditas“the

processundertakenbypublicauthoritiestoidentify,

evaluateanddecideondifferentoptionsfortheuseof

land,includingconsiderationoflong-termeconomic,

socialandenvironmentalobjectivesandthe

implicationsfordifferentcommunitiesandinterest

groups,andthesubsequentformulationand

promulgationofplansthatdescribethepermittedor

acceptableuses”.Theimportanceoflanduseplanning

andpolicytoaddressunderlyingdisasterriskdrivers

hasalsobeenunderscoredbySendaiFrameworkfor

DisasterRiskReduction(SFDRR)2015–2030.

Landuseplanningallowscommunitiestoguidethe

location,type,density,andtimingofdevelopment

throughregulations,publicinfrastructure

investments,marketincentives,andconservationof

naturalresourcessuchthatdevelopmentissafefrom

multi-hazardrisksandinharmonywithasustainable

ruralandurbanwatercycle.Withinanacceptable

RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness SyedHarirShah

Comprehensiveriskassessmentandsaferland

useplanningarebasicandcriticalcomponentsof

anintegratedriskbaseddevelopmentapproach

tocopewitheverydaydevelopmentrisks.

Riskassessmentcombinesacharacterizationof

thehazardswiththelevelandextentofexposure

withanassessmentofdifferentials

invulnerability(anditsconverse–capacity)

providingacalculatedestimateoftheriskof

disasterintermsofimpactsandtheir

probability.

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levelofmulti-disasterrisk,landusemeasuresseekto

minimizelossoflife,property,biodiversity,land

destruction,pastures,forest,watershed,�looding

causesanddamages,causesoferosion,landslides,

andcriticalinfrastructure.Landusemeasures

maximizenetbene�itsfromwaterfronteconomicand

recreationalactivitiesandecosystemservices.This

balanceofminimizationandmaximizationensures

thatcommunitiesnotonlysurvivebutalsoadaptand

growsafelydespitedisruptionsfrom�loodorother

disasters.Thisbalanceofminimizationandmaximization

approachensures:

1. SAFELOCATION:Riskassessmentandsafeland

useplanningreducesexistinghazardriskand

preventsthecreationofnewriskslinkedto

hazardouslocationinfrastructuredevelopment.Land

useplanscanguidesafedevelopmentlocationin

manyways:

Ÿ byprotectingkeyeconomicareaswithhard-

engineeredstructures;Ÿ by“retreating”fromthechronic�lood,seismic

zone,landslide/erosion,rockfall,avalanche,GLOF

areas,low-lyingcoastalareasor�loodplains,and

tsunamifromsea-levelriseŸ byprovidingpreventiveresettlementand

redevelopmentplanforsafegrowthinsafeareas;

andŸ bypreparingcriticalinfrastructuressuchas

evacuationrouteswithinandoutof�loodzones,

openspacesforreliefoperations,community

shelters,andemergencyfacilities.

2. SAFECONSTRUCTION:Riskassessmentandsafe

landuseplanningensuresboth'reductionofcurrent

risks'and'preventionofemergingnewrisks'that

stemfrombaddesignorpoorconstructionof

buildingsandotherinfrastructure,speci�icallyby

promotingsafehabitation–withwaterand

environment–approachtosustainabledevelopment.

Riskassessmentandlandusedevelopmentguidelines

andbuildingcodesplayanimportantroleinfostering

safeandresilienthabitation/settlementapproach.

They:

Ÿ control�loodsourcesbysupportingtheintegration

ofgreenandgreyinfrastructurestoincreasethe

�lood-holdingcapacityofstreets,openspaces,and

waterwaysforbetter�loodconveyanceand

drainageaswellaswatersecurityŸ ensureadoptionof�loodandseismicresilient

infrastructureandbuildingstomitigatedamage

fromanunavoidableriskof�lood,earthquake,

landslide,avalanche,rockfall,tsunamiandcoastal

�loodingŸ protecttheecosystemfrompollutionandprevent

over-extractionofnaturalresourcesduring

reconstruction.

3. SAFEACTIVITIES:RiskAssessmentandsafer

landuseplansreduceandpreventriskscreatedby

speci�iclandusesandeconomicactivities,including

the�lowofgoodsandservicesinparticular

territories.Landuseplanningguidelines:Ÿ maximizenetbene�itsandecosystemservicesof

waterfronteconomicactivitiesand�lood-prone

zonesthroughmultifunctionallanduseŸ supportactivitiesthatprotectthenatural

ecosystemfrompollutionŸ ensurefunctionalityofbusinesscontinuityplan

Performingriskassessmentinthecontextofsafeland

useatanyscale(local,individual,neighborhood,and

community,regionalandnational)requires

considerableexpertise,time,andresources.

Furthermore,disasterriskisincreasinglycomplex

andmulti-faceted(hazard,exposure,vulnerability

andcapacity),withinterdependenciesthatmaybe

overlookedandcausecascadingeffectsovertimeand

space.Additionally,onceriskassessmentsare

available,theiruptakeanduserequireseffective

communicationanddisseminationtoleveragescience

andensurethatriskinformationisuseful,usable,and

used.Thisgoaldemandsbothcutting-edgescienti�ic

RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness

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methodsandtechnologicaltools,integrationand

translationofscienti�ic�indingsthatarealready

available,andthefosteringofanetworkof

relationshipsacrossthescience-policy-practice

landscape.

Riskassessmentandmanagementaddressestheuse

andadvancementofscienceandtechnologytoyield

thenecessarymethodsthatinformsoundrisk

managementplans.Thesecapabilitiesprovidethe

basisforSFDRR's'priorityofaction1'on

UnderstandingRiskand'Priorityofaction2'on

StrengtheningDisasterRiskGovernance.The

complexityofriskassessmentandsafelanduse

planningischallengingbutaverybasicand

fundamentalsteptowardspreparednessand

resiliencybuilding.

Multi-hazardbasedriskassessmentandlanduse

plansgivecommunitiesanoverviewofwhichareas

needtobeprotected,evacuated,developed,or

redeveloped.Theseplansneedtobeaccompanied

withimplementationtoolsthatareacceptabletothe

communityandthatcanbeenforcedwithlocal

capacitiesandresources.Suchtoolscanbethe

regulatory,economic,�inancial,orbehavioural.

RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness

REGULATORY FINANCIAL BEHAVIORAL ECONOMIC

§ Zoningplansandordinances

§ Emergencyplans

§ Developmentcontrols(landuseanddensity)

§ Buildingcodes(elevatedstructuresandinfrastructures,seismicand�loodproo�ing,greenbuilding)

§ Strongandcommittedinstitutionswithcompetenthumanresource

§ Localizedadaptiveriskgovernanceandcompetentandtechnicalmanpower

§ Publicfunds

§ Public-privatepartnerships

§ Multirisksinsurancepoliciesandplan

§ Awarenesscampaignsatmultiplelevels

§ Mobilizationandwillingnessofcommunityandtheorganizations

§ Mandatoryriskdisclosureinrealestatetransactionsandallinfrastructure

§ Endtoendmulti-hazardearlywarningsystems

§ Capacitybuilding

§ Land-based�inancing(densitytransfer/densitybonuses)

§ Incentivesforrisk-sensitiveconstructionsandhabitation

§ Preferentialtaxation § Taxcreditsortax

exemptions § Conditionalinsurance § Conditionalpermitting

CHALLENGESŸ Theimportanceandchallengesofriskassessment

andlanduseplanningtoreducemultiplerisksaregenerallyacknowledgedbypolicyanddecisionmakersanddisasterriskmanagementpractitionersatnationalandgloballevel.

Ÿ Undertakingriskassessmentandlanduseplanningaretime-consuming,technical,andcomplexprocesses.

Ÿ `Riskassessment&landuseplanning`and`multi-sectorial&multi-agencycompetencies`areinterlinked,interconnectedandinterdependent.

Ÿ Riskassessmentandlanduseimplementationisfurtherconfrontedbythein�luenceoflandowners,feudallords,politiciansaswellascomplexitiesof

informalsettlement.Ÿ Encroachmentofriverbed,stateland,andlong-

timelitigatedanddisputedproperties.Ÿ Commonandcollectivepropertyownershipof

communityandresistanceonpreventiveresettlement.

Ÿ Lackoftechnicalandprofessionalcompetenciesofconcernedorganizationsinunderstandingandundertakingitsimplementationandmonitoring

Ÿ Thespatialplanninganditscostsversusbene�itsarenotwellunderstood,especiallywhenagreeninfrastructureapproachiscomparedtostructuralmeasures.

Ÿ Lackofcapacitytotranslatetechnicalinformationintolanduseregulations,buildingcodes,andhow

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tointegrateitintolanduseplanningŸ Lackofparticipationofcommunityinrisk

assessmentandlanduseplanningbecauseplanningdepartmentstendtooperateinisolationfromotheragenciesinvolvedintransportation,housing,drainage,andwatersupply,andmostmunicipalities

Ÿ Lackofskilledstafftomanage,review,andmonitorlanduseandbuildingregulations

Ÿ Disastermodellingdataishighlytechnical,anditsapplicationforlandusemaybenotcleartoplanningprofessionalsanddecisionmakers

Ÿ Translatingprobabilistichazardmodellingintolocalactionplanswithdevelopmentsregulationsandhazardzonesneedtobereferencedtocorrespondingbuildingdesignandconstructionrequirements

Ÿ Evenwherelanduseplansexist,theyarenotsupportedbyappropriatemulti-hazardriskassessment.Theirimplementationischallengedbycontentiouslandownershipandtenurestatus,aswellasissueswithstakeholdercoordination,�inance,permittingprocesses,andpoorenforcementcapacityofweakpublicinstitutions.

Ÿ Reclaimingandresettlementindisaster-hitproperties

Ÿ Corruptionandlackofcoordination&collaborationofconcernedorganizations

Ÿ Landprocurementforpublicuseisexpensive,time-consuming,andfraughtwithdisputesbecauseofthediversityofformalandinformalstakeholdersinland

Ÿ Continuousdestructionanderosionofland,infrastructure,pasture,watershed,searising,coastaldestructions

Ÿ Accessibilitytomultiplehazardszones,remote,marginalizedandotherphysical,socialandecologicalconditionsarehamperinginundertakingriskassessmentandlanduseplanning.

Ÿ Changingdynamicsofhazards,climatechangeanddisasterscontinuingchallengeforaffectiveriskassessmentandlanduseplanning.

POTENTIALSANDRECOMMENDATIONS:

RiskBasedPlanningApproach(RBPA)isaninnovationincontemporarylanduseplanning.Thedevelopmentwithinputfrommulti-stakeholderensuresitsapplicabilityandconsistencywithstatutoryplanningrequirements.Thisapproachdemonstrateshowlocalorregionalplanningagencies

furtherinnovatebasedontheRBPA,toproviderobustanddefensibledecisionsaroundacceptable,tolerableandintolerablelevelsofriskfortheirmunicipalityortheregion.RBPAalsoprovidesdeeperunderstandingofweatherphenomenonandthegeophysical,geologicalandecologicalnaturalprocessincontextofthechangingsocio-behaviorandhumanactions.

Competencybasedmanagerialandleadershipskills,knowledgeinrisksassessmentandlanduseplanningisthe�irststeptowardsresilienceandsafercommunitybuildingthatconvertsriskintoanopportunityforcomprehensivesaferriskplanningandpreparedness.Furthermore,policiesandpracticesthatsupportandsupplementriskassessmentandlanduseplanningfordisasterriskreductionandmanagementshouldbebasedontrueunderstandingofinclusiveriskinallitsdimensionsofemergingthreats,vulnerability,capacity,andexposureofpersonsandassets,hazardcharacteristicsandtheenvironment.

RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness

ChangingdynamicsofdisastersinPakistan

provideopportunitiestotheauthoritiesto

reviewandre�lectriskassessmentandlanduse

plansandstrategiesonregularbasiswitha

multi-hazardapproachandinclusiverisk-

informeddecision-makingontheopenexchange

anddisseminationofdisaggregateddata.

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NationalDisasterManagementAuthority(NDMA)in

Pakistanduringashortspanof12years,sinceits

inception,hasdonetremendousprogressinpolicy

formulationanddecisionmaking,regularityand

legislativeimprovement,organizational

strengthening,capacitybuildingofstaffatalllevel.

Paradigm-shiftfrombureaucraticapproachtopublic

servicedeliveryapproachinNDMAisanexceptional

innovationinthecultureofgovernmentorganization.

NDMAisbuildingstrongercoordinationmechanism

withallthestate,civilsocietyorganizations,

diplomaticandglobalcommunity,corporatesectors

andNDMA'sownextendedarmsatprovincialand

districtlevelacrossthecountry,iswidely

acknowledged.NDMA'sroleisrecognizedasan

effectiveindustryleaderinAsiaPaci�icregion.

However,urgentactiontoeffectivelyemployrisk

assessmenttechniquesforlanduseplanning

decisionsaroundmulti-clustersclusters,aswellas

therelevantacceptabilityortolerabilitycriteriaare

yettobeformulatedinthecountryonprioritybasis.

Landuseplans,supportedbycomprehensiverisk

knowledgecanbeleveragedforthepurposeofpre-

duringandpostdisasterriskassessmentfor

prevention,mitigation,preparednessand

implementationofappropriate,andeffective

responsetodisasters.

Investinginland-useplanningrequiresamidtolong-

termcommitmentinhighriskproneareasaswellas

lowerriskproneregions.Landuseplanning,when

backedbystronginstitutions,couldbeconsideredan

instrumentfornegotiatingand“equalizing”risks

beforetheyaretransferredtomarginalized

populationsortaxpayers.

ItisexpectedthatNDMAandotherconcerned

authoritiesatthedifferentlevelinPakistanwillgear

uptopreparemulti-sectorialrisksassessmentand

landuseplanning;perhapsitisininitialstagesof

lobbyingforcommitmentormayhavemade

signi�icantstridesinriskassessment.

RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness

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AreWePreparedforDisasters?RealitiesandWayForward

Disasterpreparednessofanationcanbeassessedby

reviewingtheperformanceinactualeventsand

respondingtoperceivedcatastrophes;goingthrough

acontinuedphenomenontolearnfromtherealworld

andknowingwheretostrengthentheresilience.

Beforegoingintodetails,itisimportanttonoteabout

preparednessandresilienceatnationallevel.The

termpreparednesshasbeende�inedas;'the

capacitiesandknowledgedevelopedbygovernments,

professionalresponseorganizations,communities

andindividualstoanticipateandrespondeffectively

totheimpactoflikely,imminentorcurrenthazard

eventsorconditions'[UNISDR-2008].Whereas

resilienceistheabilitytoprepareandplanfor,

absorb,recoverfrom,ormoresuccessfullyadaptto

actualorpotentialadverseevents[UNISDRDFIDDRR

InteragencyCoordinationGroup2007].

Globalframeworksondisasterriskreductionhave

beenfocusingonstrengtheningpreparednessand

resilienceofmembercountriesandnowhave

developedconsensusonmeasuringnation's

achievementthroughadoptingcommonindicators.

Forexample,SendaiFrameworkonDisasterRisk

ReductionandtheSustainableDevelopmentGoals

(2015-30)de�ineoneofthecommonindicatorsto

assessnationalresiliencebyreducingdisaster

mortalityper100,000populationofthecountrytill

2030incomparisontowhatitwasin2015.Such

commonmeasuringgearsarefacilitatingglobalagreementondeclaringstatusofanationasprepared

ifessentially[NationalAcademyofSciencesUSA]:

Historicallyitisevidentthat'noperfectendstateor

endconditionofresilienceexists'.Rather,itisan

ongoingprocessof'BuildingResilience'which

requirescontinuedplanningandassessmentbyall

stakeholders.However,nationswithwell-de�ined

preparednessgoal,clearlyassignedstakeholders'

roles&responsibilities,continuedaddressing

challengesofcapacitiesforultimateresilienceof

communitieswithabottomupapproachand

deployingtoolsformonitoringprogress,canbebetter

protectedandstrengthenedagainstdisasters.

Pakistan'sDisasterResilience-settingacorevalue

ofdisasterresilienceincaseofPakistan,needsaprior

understandingofthecountry'sdisastermanagement

pro�ileandcurrentstatusofprogressinthisregard.

Pakistanemergedasacountryontheglobein1947

andexperienced�irstseverecalamityas�loodsin

1950claimingaround3000livesandaffectedmore

than10,000villages.Thenitcontinuedtosufferfrom

�loods,drought,cyclones,earthquakesandlandslides

oneaftertheotherandsubsequentlyvarious

legislationsandpoliceshavebeendevisedand

implementedtorespondtoemergingdisasters.

Initially,intheabsenceofacomprehensivedisaster

managementnationalpolicy,theWestPakistan

NationalCalamitiesAct1958wasformulatedand

usedasalegalremedythatregulatedthe

maintenanceandrestorationoforderindisasterhit

areasandreliefagainstsuchcalamities.Afterwards,theEmergencyReliefCell(ERC)establishedin1971

undertheCabinetDivision,workedasaninstitutional

disasterreliefsupportatnationalandprovincial

levels.Allsucheffortswererevolvingarounda

reactiveapproachofdealingdisastersinonlypost

disasterscenariosuntilintheaftermathofthe2005

KashmirEarthquakeandfollowingtheglobal

commitmentsofHyogoFrameworkofAction(HFA

2005-15),theGovernmentofPakistanpromulgated

theNationalDisasterManagementOrdinance

(NDMO)in2006tointroduceacomprehensive

NationalDisasterManagementSystem,followedby

Ÿ Suf�icientvulnerabilityandriskinformationis

availabletoall;Ÿ Governmentatalllevels,communitiesandthe

privatesectorhavedevelopedandadopted

resilientstrategiesandoperationplans;Ÿ Nationaldisasterdatabaseindicatessubstantial

reductioninlossoflife,cost,socioeconomicand

environmentalimpactsofdisasters,andŸ Reducedpercapitacostofrespondingdisasters

andrapidrecoveryincomparisontopastevents.

GhazalaNaeem

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AreWePreparedforDisasters?RealitiesandWayForward

NationalDisasterManagementAct2010.

Fallowingtheabovementionedlegalarrangementa

threetierdisastermanagementsystematnational,

provincialanddistrictlevelandNationalDisaster

ManagemtnCommission(NDMC)wereestablished.

Nationallevelpolicyframeworkaimingadisaster

resiliencewasdevelopedin2007(NationalDisaster

RiskManagementFramework)baseduponthemacro

levelcountry'sriskassessmentafterwardsare�ined

andtargetorientedplanevolvedasNationalDisaster

ManagementPlan(NDMP)2012-22withrevised

assessmentofriskatmacro(national)levelanda

pilotexerciseatadvancelevel(i.e.SindhProvince).

Thecountryenteredintonewglobalcommitmentof

disasterriskreductionbyadoptingtheSendai

Frameworkin2015foraperiodofnext�ifteenyears,

i.e.2030.

Pakistanhasprogressedindevelopingdisaster

resiliencethroughadoptingaparadigmshiftof

reactivetoproactiveapproachatlegal,institutional

andpolicylevel.However,togaugethisprogressin

termsofglobalcommonindicators,thecountryat

leastneeds:

Pakistan'snationalcommitmentandtheglobal

obligationsonDRRaresettledtogethersince2005onwards,however,asanationalimperative;required

disasterresiliencehasbeenachallengetoachieve.

Country'sdisasterpro�ile,frequencyofeventsandthe

capacityattainedsofarisyetunmatchedtobeableof

‘beingprepared'.Consistencyinpreparednessefforts

areyettobematched.Forexample،todealwith

�loods,beingaveryfrequentcalamityinrecentpast,

preparednessmeasuresaretakeninadvance.Months

aheadofmonsoonseason,stakeholderstake

collectivemeasurestogetreadyandrespond

upcoming�loodsituationthroughyearly'Flood

ContingencyPlanning'atvariouslevelsofthe

government.Multi-stakeholdersplannerysessions

andmeetingsbeginearlyintheyeari.e.MarchtoMay

fortakingprecautionarymeasuresandestablish

'EmergencyOperationCells'withineachrelevant

agencies/department/organizationoperationon

24/7basisduringmonsoonperiod(15Juneto15

October).Onthecontrary,forseismichazard,

nationalprecautionarymeasuresprovedtobe

absolutelyinsuf�icientdespiteofcontinuedsufferings

fromheavyhumanand�inanciallossesintherecent

eventsof2005KashmirEarthquake,2013Avaran

EarthquakeandOctober2015EarthquakeinKhyber

Pakhtunkhwaprovince.Legislationandeffective

implementationofthebuildingcodes,byelawsand

landuseregulationscouldnotbeenforcedinthe

country.Theeffortsmadetostrengthenpreparedness

sofarhavebeenprovedinsuf�icientincomparisonto

thepotentialseismichazardandtheprevailing

nationwidevulnerabilities.

Learningfromthepasteventsisyetnotadoptedas

de�inedproceduresinthecountry.Althoughefforts

aremadetodevelopposteventreportofanatural

calamity,butsuchreportsareusuallynotusedto

rectifytheshortcomingsonthebasisoflearningfrom

pastevents.Forexample,organizationsinvolvedin

theearlywarningchainarenotbound,asapolicy

matter,toreviewtheirperformanceandcapacity

aftereverydisasterandimprovetheirsystemand

proceduresaccordingly.Asacasestudy،the�lood,2010inPakistancreatedunprecedentedhavocand

losses.Thereviewofearlywarningeffectiveness

duringtheFloods2010wasconductedforthe

developmentofNDMP2012-22VolumeIIforEarly

Warninginthe33identi�ieddistrictsand�indings

were:

Ÿ Fullversionofvulnerabilitiesandrisks

informationaccessibletoalllevelsofthe

government,communitiesaswellasnon-

governmentstakeholderstodevelopandadopt

disasterresilientstrategies;Ÿ Anationaldatadisasterdatabasetoknowthe

costandimpactsofpastcatastrophiceventsand

recoveryspeedaftereachdisaster.

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AreWePreparedforDisasters?RealitiesandWayForward

No.ofDistricts EffectivenessofEWSduring2010Floods

2 Peoplecooperatedwithdistrictgovernmentandevacuatedtimely 9 NoEarlyWarningatallornotimeforevacuation 22 CommunitydisregardedEarlywarning Table1:Lessonlearnedfrom2010Floods,33districtssurveybyJICAstudyteam.Source:NDMP-EWS-Vol.II2012

AsaroutinepracticeofEarlyWarningSystem(EWS)

inPakistan,thedisastermanagementauthoritiesand

someotherstakeholdersinvolvemediawithin

disseminationchainandsharesameearlywarning

informationoriginallyissuedbyPakistan

MeteorologicalDepartment(PMD)orFloodForecast

Division(FFD),withoutdevelopingthemessage

furtherineasilyunderstandableformatsfor

communities.Theissuewasalsohighlightedduring

consultationwithcommunitiesheldatMardanKP

andDaadoinSindProvince,after2010Floods.Both

communitiesdisregardedthewarninginitiallyand

sufferedalot,complainingthecontentoftheEW

messagenotunderstood,“itwasinthousandsof

cusecswaterapproachingandwecouldnothave

estimationofquantitieswater,hadwebeentold

aboutkneeorwaisthighwaterlevelswecouldhave

respondedaccordingly”.

DespitethereviewprocessesconductedafterFloods

2010,thewarningmessagecontentsand

disseminationmechanismisyetunchangedinthe

country.Onthecontrary,nationswithstronger

resiliencecapacitiesalwaysaimatincorporating

lessonlearntinthedisastermanagementsystemfor

achievingadvancelevelofpreparedness.Forinstance,

inJapanasrequiredbytheDisasterCountermeasures

BasicAct,relatedagencieshavetosubmita'White

Paper'¹tothecentralgovernmentcontainingtheir

evaluationsofplansfordisasterpreventionunder

takenfordisasterinthatperiod.Surveyson

effectivenessofEWSaredoneonregularbasistotake

feedbackonenduserssatisfaction.Japan

MeteorologicalAgency(JMA)togetherwithother

agencieshavebeemsubmittingtheWhitePaperevery

yearsince1963andtilldatehasissuedmorethan50

editions.Similarly,aTechnicalInvestigationGroupon

'InheritanceofLessonfromDisasters'(TIGLD)was

establishedin2003undertheCentralDisaster

ManagementCouncil,aimingtocollect,systematically,

historicaldisasterrelatedinformationsuchas

damages,countermeasuresbythelocalandcentral

governments,andimpacts(onsociety&economy)in

ordertoconveytraditional“know-how”toyounger

residentsandmakepeopleawareofdisaster

preventionplans.Thecounciltargetsabout100

historicaldisastersandinvestigatingthoseoverten

yearsperiod[InstitutionalPartnershipinMulti-

HazardEarlyWarningSystem,ACompilationofSeven

BestPracticesandGuidingPrinciples;Maryam

Golnaraghi]

Anotherimportantfeaturetowardnation's

preparednessisthecapacitybuildingoflocal

communities.Pakistanhasmadetremendous

achievementinimplementingcapacitybuildingof

communitygroups.However,thishasalwaysbeena

one-timeprojectboundactivity,mostlyunderdonor

fundedcommunitybaseddisastermanagement

initiatives.Sustainableandcontinuedinvolvementof

suchtrainedcommunitygroupsandvolunteerscould

notbeensured.InBangladeshtheCyclone

PreparednessProgramme(CPP)usesover42,000

volunteersfordisseminationofwarningmessages

andcommunityresponse.Theyreceivetrainingon

responseplans,disasterimpactsand�irstaidevery

year,throughacomprehensivevolunteerstraining

programme.InBangladeshatunitlevelthereare

2,845teamsofvolunteerswitheachteamhaving10

maleand�ivefemalemembers,headedbyateam

leader.TheUnitteamsarefrontlinesoldiersofthe

warningsystemwiththeirmandatetodisseminate

¹TheWhitePaperonDisasterManagementinJapanisareportdesignatedbylawtobedrawnupandreportedannuallytotheordinarysessionoftheCabinetpursuanttotheDisasterCountermeasuresBasicAct,TheWhitePaperisissuedeveryyearasanoverviewoftheEWandDMSystemperformancesince1963.

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AreWePreparedforDisasters?RealitiesandWayForward

cyclonewarningsignalsamongvillagersandhelp

themintheirevacuation.Theteamsareequipped

withhandsirens,megaphonesandtransistorradios

toreceivemeteorologicalinformationandcyclone

warningsignalbulletinstransmittedbyRadio

Bangladesh.Volunteersareselectedbythevillagers

usingaclearlyde�inedasetofcriteria.TheCPPisa

volunteerorganizationorganizedin274Unionsof32

Upazilasandismadeupof2,845Units.Eachunit

servesoneortwovillageswithanapproximate

populationoftwotothreethousandeach.Fifteen

volunteersarerecruitedforeachUnitbythevillagers.

Theful�illmentofseveralcriteriabyapersonmakes

himorhereligibletobeavolunteer,accordingtothe

volunteerby-laws[InstitutionalPartnershipinMulti-

HazardEarlyWarningSystem,ACompilationofSeven

BestPracticesandGuidingPrinciples;Maryam

Golnaraghi].

Countrywidecomprehensivehazardpro�ilingand

vulnerabilityassessmentsalthoughinitiatedbutare

yettobecompletedasmandatedandplannedunder

NDMP2012inPakistan.WhereasnationalGISdata

baseismaintainedinJapanandinformationis

availabletoallstakeholderstillcommunitylevelfor

developingtheirrespectiveresilientstrategiesand

developmentplans.InBangladesh,hazardpro�iling

andvulnerabilityassessmentsaredonebymandated

agencies,nationaldatabaseisupdatedand

maintainedthroughNationalStatisticalBureauevery

year[InstitutionalPartnershipinMulti-HazardEarly

WarningSystem,ACompilationofSevenBest

PracticesandGuidingPrinciples;Maryam

Golnaraghi].

Focusedeffortsareneededtostrengthenedcoordinationwithinandamongorganizationsthrough

establishingrequiredprotocolandtestedthroughregularexercisesanddrillsandincorporationoflesson

learntasapartofnationalpolicyandlegislation.Establishingsynergizedandendtoendearlywarningsystemshallbeaddressedasanationalpriorityin

legislationandactionplanatalllevels.SettinguprequiredprotocolandStandardOperatingProcedures

(SOPs)wouldhelpinevaluatingperformancewithinandamongstakeholdersinvolvedindisaster

managementcycle.DisastermanagementlegislationneedstoestablishdetailedmandatedtaskssupportedbycoordinatedSOPs

forallstakeholdersinvolvedinbuildingnation'sdisasterresiliencei.e.agencies,organizationsand

departmentsresponsibleforriskassessment,monitoring&forecasting,communication&disseminationof

earlywarningsaswellaspreparedness&emergencyResponse.AnationallevelGISdatabaseofcomprehensivehazardpro�ilingandvulnerabilityassessmentsatmicrolevel

shallbedevelopedandaccessibletotheenduser.Advancingdisasterresilienceisalongtermprocessbutcanbeachievedthroughshortterm,achievableand

visiblegoalstosetandprogressmeasuredasafullandclearnationalcommitment.

WayForward

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TheRoleofHumanNetworksandtheirImplicationsforDisasterManagementPolicyandPractice

Inalldemocraticsocieties,theState,thePrivate

SectorandtheCivilSocietyareexpectedtoworkin

harmonytoensurethecollectivewell-beingofthe

citizens.Thisimperativebecomesespecially

signi�icantinthefaceofadversitiesofallkinds.One

emergingformofcivilsocietyinstitutionsisthe

networksofindividualsandorganizationsaround

themesofsharedinterest.Thisarticleseeksto

initiateadiscussiononthepotentialroleofcivil

societynetworksinmanagingdisasterrisksandhow

thenationalorsub-nationalpolicyregimesaffect

theminPakistan.

Theparticipationofcitizens'socialnetworksin

disasterpreparednesshasahistoryasoldasthe

countryitself.EntitieslikethePakistanRedCrescent

SocietyandthestatesupportedCivilDefences

Volunteershadbeenactiveinprovidingrelieftothe

affectedareasduringthetimesofcrises.Thesocial

transformation-particularlyduringthe1980sand

1990s-underminedalotofthistypeofvolunteerism

whiletheprofessionalizedCivilSocietyOrganizations

(CSOs)emergedandevolved,primarilyintheareasof

socialservicesandgrassrootsleveldevelopment.In

paralleltothis,theconventionalgovernmental

disastermanagementapparatustoohadbecome

outdated.

Theyear2005canbetermedasawatershedmoment

inthehistoryofPakistanwhenanearthquake

measuring7.6ontheRichterscaledevastatedvast

areasinNorthernPakistan,killingatleast76,000

peopleandleavingalargernumberinjured,homeless

andsociallyandeconomicallyscarred.The

governmentresortedtodeployingthearmedforcesto

leadthereliefoperationandthenationaland

internationalCSOsoperatinginPakistanjoinedthe

effort.Additionally,inresponsetoahumanitarian

appealbytheGovernment,alargenumberof

internationalhumanitarianorganizationspouredin

tosupplementthelocalefforts.Thisalsohappenedto

betheyearwhentheInterAgencyStanding

Committee(IASC)oftheUNhadjustagreeduponthe

HumanitarianArchitecturepopularlyknownasthe

HumanitarianClusterSystem.Pakistanbecamethe

�irsttestcaseofrollingouttheHumanitarian

Clusters.¹

Oneresultofdirectinteractionwiththeinternational

humanitarianworkerswasthegerminationofanew

cadreoflocalprofessionalsandvolunteerswith

hands-onexperienceonmodernapproachestowards

disasters.TheGovernmentofPakistan,learningfrom

theexperienceoftheearthquake,createdthe

NationalandProvincialDisasterManagement

AuthoritieswithaviewtopromoteDisasterRisk

Reductionandcoordinatedisasterpreparednessand

response.TheCSOsalsoorganizedthemselvesasthe

PakistanHumanitarianForum(PHF)andtheNational

humanitarianNetwork(NHN),representing,

respectively,theinternationalandnational

humanitarianpartners.

Sincethen,anumberofnational,sub-nationaland

locallevelinitiativestowardsriskreduction,

preparednessandresponsetothesubsequent

disastershavetakenplaceacrossthecountry.

StatutoryArrangementsforGovernment-CSO

CooperationinDisasterGovernance-Pakistan's

disasterriskmanagementanddisastermanagement

institutionalsetupisbasedupontheNational

DisasterManagementOrdinance2007(laterAct

2010)andthesubsequentsub-nationallegislation.

Theapexnationalbodyfordisasterriskmanagement

istheNationalDisasterManagementCommission

formallyheadedbytheChiefExecutiveandhas

representationbytheprovincesandthekeynational

ministries.Theactprovidesforcivilsociety

UsmanQazi

¹

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TheRoleofHumanNetworksandtheirImplicationsforDisasterManagementPolicyandPractice

representationintheCommission.²Theselection

processforthecivilsocietymembershiphoweverhas

beenlefttothediscretionofthechairofthe

Commission.Similarsituationexistsattheprovincial

Commissions.

PracticalImplicationsforGovernment-civilsociety

partnership-beingenvironmentallydiverse,Pakistan

offersamostvariedhazard-scapewithhighlevelsof

vulnerabilitiestogeo-seismicriskssuchas

earthquakesandtsunamis,aswellasextreme

climaticeventssuchas�loods,droughts,landslipsand

GlacialLakeOutburstFlooding(GLOF).Also,weak

governancestructures,competingdemandsonpublic

exchequerandtheweakrevenuebasewouldnot

allowforthestatemachinerytoensureadequate

publicsectorcapacityateverylevelformanaging

disastersanddisasterrisks.

Ontheotherhand,variousCSOsupportedlocal,sub-

nationalandnationalnetworksofprofessionalsand

volunteers,withwell-trainedandexperienced

individualsandorganizationsexistinallpartsofthe

country.Thesenetworksandtheirmembersoffera

greatpotentialtostrengthentheworkoflocalized

riskreduction,andalsotoincreasepredictabilityof

thecapacityforthe“�irstresponse”.Leavingasidethe

chroniclackoftrustamongvarioussegmentsof

society,particularlybetweenthepublicandvoluntary

sector,somepositiveexperienceshaveemergedinthe

recentpastwherethesigni�icanceoftheroleof

humanitariannetworkshasbeenrecognizedbythe

stateinstitutions.SigningofMemorandaof

Understanding(MoU)andjointlyorganizedtraining

workshopsarepositivestepsinthedirectionof

closingthegap.

ProspectsfortheFuture-anumberofpolicyand

practicelevelrecommendationscanbemadeto

furtherstrengthentheroleofhumanitariannetworks

andtochannelizetheirpotentialforintegratedand

coordinatedDRMandresponse.

PolicyActions:

Ÿ Therepresentationofthecivilsocietyactorsin

theapexstatutorybodiescanbemademore

meaningfulandtransparentbylayingdowna

procedureforconsultationwiththe

humanitariannetworkssothatthepolicylevel

discussionsatthenationalandprovincial

Councilscanadequatelybene�itfromthecivil

societyexpertise,experienceandinsightŸ Thecurriculaofthepublicsectortraining

institutionsshouldincludematerialonthe

value,roleandmodeofengagementwiththe

humanitarianagenciesingeneraland

humanitariannetworksinparticularŸ Thepublicsectortraininginstitutionsshould

reachouttohumanitariannetworkstoinclude

theirmembersasbothresourcepersonsaswell

asparticipantsinspecializedandgeneric

coursesrelatedtodisastermanagementŸ Thehumanitariannetworksshouldtrytoreach

outtothelegislatorsatalllevelsandfromacross

thepoliticaldividetoapprisethemoftheirrole

PracticerelatedActions

Ÿ Thehumanitariannetworksshouldmakesure

thattherelevantauthoritiesarefullyabreastof

alltheiractivitiesandfactortheseinwhile

preparingdevelopment,contingencyand

responseplansŸ Theprofessionals'databasesmaintainedby

somehumanitariannetworksshouldbe

accessibleto-andinclude-publicsectorof�icials

withthemandateandcapacityforDRMŸ Thehumanitariannetworksshouldimplement

targetedadvocacypackagestopromotegreater

transparencyandaccountabilityamongtheir

membersandtothepublicsectorŸ Thehumanitariannetworksmustcontinueto

striveforgreaterdemocratizationoftheir

structurestoensurethattheyareviewedbythe

societyatlargeasresponsible,accountableand

trulyrepresentativeoftheirmembers

²

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DisasterRiskReduction(DRR)MainstreamingInGovernanceWhereNowandWhereto?

Pakistanishighlysusceptibletoreoccurringdisasters

havingfaced311disastersover71years.¹The

populationofthecountryis21.70million(National

BureauofStatistics2017)and29.5%ofthe

populationinPakistanlivesbelowthenational

povertyline.²Naturaldisastersfrom1947to2016

haveaffectedover85millionindividualswhilehuman

displacementsince2009hasaffectedover5million

individuals.Asper2017HNO3.4millionpeopleare

inneedofassistanceinKPandFATA.Meanwhile

Sindhprovinceremainsontheradarduetoendemic

chronicandacutemalnutritioninmanyrural

communities.

YusraQadir

DisasterthreatlevelAssessmentMatrixbasedon70yearshistory

Disaster

Punjab

Sindh

Balochistan

KhyberPakhtunkhwa

AzadJammu

&Kashmir

GilgitBaltistan

FATA

FLOOD 53 32 26 34 7 5 1

EARTHQUAKES 25 3 35 30 5 13 3EXTREMETEMPERATURES 8 10 4 1 0 0 0

STORMS 6 7 2 1 0 2 0

EPIDEMICS 6 6 1 3 1 0 0

LANDSLIDES 0 0 0 6 4 3 0

CYCLONES 0 9 2 1 0 0 0

AVALANCHES 0 0 0 7 5 1 0

DROUGHTS 0 3 4 1 0 0 0DataSource:CountingDisasters1947-2016byPlanInternationalendorsedbyAnthropologyDepartmentQuaideAzamUniversityIslamabad

RecurringnaturaldisastersarecommoninPakistan

duetotheimpactsofclimatechange.Vulnerabilityis

compoundedbypoverty;poordevelopment

indicatorsanddeeprootedstructuralinequalities

basedongender,religionandsocialstatus.Pakistan

hasbravedmegadisastersthroughcrosssectoraland

multistakeholdercoordinationandcooperation.It

wouldbefairtosaythatPakistanisnomorenovicein

respondingtodisasters.Asadevelopingcountry

Pakistanischallengedtoallocaterequiredresources

toDRRandpreventivemeasures.Despitechallenges,

coordinationhasimprovedinterandintra

departmentally.Politicalawarenessandcommitment

(sometimestriggeredbytheeconomicconsequences

ofdisastersandclimatechange)havecontributedin

roleclaritybetweendepartmentsandbetween

centresandperipheralgovernancestructurestoo.

TheStatehasbeenverywelcomingfornon-state

actorstojoinhandsforcollaborationandthishas

beenwellreceivedandwellrespondedtobyallnon-

stateactors.

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DisasterRiskReduction(DRR)MainstreaminginGovernanceWhereNowandWhereto?

HyogoFrameworkforAction2005-2015explicitly

linkedsustainabledevelopmenttointegrationofDRR

intogovernanceprocesses:“Thereisnow

internationalacknowledgementthateffortstoreduce

disasterrisksmustbesystematicallyintegratedinto

policies,plansandprogramsforsustainable

developmentandpovertyreduction....Sustainable

development,povertyreduction,goodgovernance

anddisasterriskreductionaremutuallysupportive

objectivesandinordertomeetthechallengesahead,

acceleratedeffortsmustbemade.”

Whiletheground-breakingdevelopmentwithinDRR

inPakistanwaspushedbytheHyogoFrameworkfor

ActionbyGovernmentofPakistan'sapprovalof

NationalDisasterRiskReductionPolicyin2013,there

stillremainsalottobedone.Commitmentto

streamlinemulti-stakeholderDRRactivities,adoption

ofamoreproactiveapproach,investmentinDRRand

ensuringinclusivityofallgroupsandsupportingthe

fourpriorityareasofSendaiframeworkhave

repetitivelyresonatedfromtheState.However,they

havebeenaccompaniedbycallsforsupportin

coordination,expandingresourcebaseandcapacity

building.Whileitisunderstandablethatintegration

andmainstreamingdonothappenfastatgovernance

levelespeciallyforresource-strickencountries,itis

alsotruethattoensurecertaininertiasomepacehas

tobemaintained.

Thegovernmentshouldleadthewayinpersuading

andin�luencingcoordinationbetweennationaland

sub-nationalactorstojoinheadsandhandsto

manageandreducedisaster-relatedrisk.Increasein

publicawareness,investmentinscienti�icdata

generation,analysisanditslinktoplanning,setting

upofrobustearlywarningsystems,connecting

communitiestoearlywarningsystems,investingin

riskinsuranceandappropriateresourceallocation

remainthewaytogo.

InPakistan'sforeseeablefuturerecurrentdisasters(naturalandman-made)seeminevitable.Toensurethat

thepre-burdenedeconomyisnotstrainedwithlargescalereliefandreconstruction,itisimperativethat

PakistanadoptsaproactiveapproachforDRR.Aproactiveapproachhasbeenonthegovernanceagendafora

whilenow.Pakistan'sStatementduring5thSessionofGlobalPlatformonDisasterRiskReduction,Mexicoalso

speci�icallymentionedtheneedforandoverviewofeffortsbeingunderwaytoensuremainstreamingDRRin

governance.

Sofar,theGovernmentofPakistanistakingmeasurestoensureeffectiveimplementationoftheNationalDRR

policy.ThisincludeddraftingandapprovalofaNationalDisasterManagementPlan(NDMP)whichundertakes

scienti�icdataanalysisformacrolevelhazardandriskassessmentinlinewithSendaiFrameworkforAction

(SFDRR).ThePlanwillbeimplementedby2020andeffectiveimplementationwillrequireover2billionUS

dollars.Animplementationroadmapfortheplan'srolloutwaslaunchedin2015.Therehavealsobeen

concreteeffortstoensureadedicatedbudgetlineforDisasterManagementatnational,provincialanddistrict

levelsandactionsfordisasterriskinsuranceforvulnerablecommunitiestoreducetheirdependenceon

assistancearealsobeingpioneered.

Someprojectswhicharealmostapprovedencompass

a)Short&MediumRangeForecasting(allfour

provinces,federalcapital);b)ProjectforCapacity

BuildingofDRMInstitutionsinPakistan;c)Up-

gradationofIslamabadWeatherSurveillanceRadar;

c)UpgradationofKarachiWeatherSurveillance

Radar;d)SatellitebasedIntegratedFloodAlert

Systemfor�lash�loods;e)HumanResources

DevelopmentthroughMasterDegree&PhD

Programs.

Multipledonorsaresupportingclimatechangeand

DRRintegrationintodevelopmentworkthrough

NDMAandPDMAs.NGOsandmediaarealsoplayinga

collaborativeroletocomplementandaugmentthe

effortsandcommitmentbythegovernment.

Substantivesupportisalsobeingchanneledfor

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DisasterRiskReduction(DRR)MainstreamingInGovernanceWhereNowandWhereto?

mappingandassessments.Mostdonorshave

streamlinedandpooledtheirfundingtoensure

disbursementsinDRRandmitigation,

research/innovation/learningandresponse.Donors

haveimprovedcoordinationtoensureeffective

coverageoffundinggapswhereverpossible.There

havebeenprojectspilotingandtestingjointrosters,

pivotingcombinationofindigenouspracticeand

scienti�icknowledge,investmentsinimproving

scienti�ictechnologiesandforginglinkagesbetween

scienti�icdataanalysistocommunitiesandrelevant

departments.

A�iscaldisasterriskassessmentreportsupportedby

theWorldBankGroupandGlobalFacilityforDRR

revealedthatnearly3millionpeopleareaffectedby

disastersinPakistaneachyear;theestimatedannual

economicimpactof�loodsrangesbetween$1.2

billionto$1.8billion,equivalentto0.5%to0.8%of

Pakistan'sGDP.Theanalysisalsoshowedthatamajor

�loodevent,suchastheoneexperiencedin2010,

couldcauselossesinexcessof$15billion–almost

7%ofthenationalGDP.Concreteevidence-based

studies,commitmentfromtheGovernmentand

publicprivatepartnershipshaveresultedinimproved

investment(budgetallocations)toDRR.Punjabhas

beenleadingthewaywithsubstantialbudget

allocationtoDRRwhileotherprovincesarealso

steadilyincreasingfundingforDRR.

Whatneedsmorefocuspresentlyisthatpublic

awareness,politicalwillandrequiredcapacityall

needtobeinvestedinastheyarekeytoeffective

DRR.Naturaldisastersaffectthealreadyvulnerable

communitiesaugmentingthescaleoflossand

damagemanifold.ApartfrominvestmentinDRR,itis

criticaltoensureDRR'sintegrationinalldevelopment

agendasandpushingstrongerforinclusivityofall

groupswithindevelopmentandDRR.Supportive

governanceforvulnerableandmarginalizedgroups

canenablereductioninvulnerabilitywhichinturn

improvescopingcapacityforcommunities.Improved

copingcapacitycanresultinprofoundlylowerlevels

oflossanddamage.

EnsuringthatDRRisprioritizedandadequately

invested,requireseffectiveredressalofcompeting

interestsatpoliticallevel.Cashcompensationand

grantstodisasteraffecteessometimescarries

politicalbene�itsandisoptedfortoensure

constituenciesareretained.Bettergovernanceand

understandingthelong-termimpactsofnot

integratingDRRingovernanceshouldbeconsidered

todealwiththischallenge.Thereisnoshyingaway

fromthelackoffundsrequiredforeffective

implementationofNDMP.Theresourceprovision

cannotbesupportedbygovernmentordonorsinfull.

Weshouldalsobecognizantoftheinstitutional

challengesthatremainunaddressedorarisefrom

currentarrangementslikerelianceonmilitary

insteadofcapacitatingstateinstitutionsandtesting

theircapacities.Thisreinforcestrustandacceptance

ofthePakistanArmyasithasalwaysresponded

timelyandextensivelywhenevercalledupon.Atthe

sametimethishighlightsthefailureofStatetoinvest

inbuildingciviliancapacitytopredictandadequately

respondtodisasters.Aresearchbrieffromthe

StraussCentrepointsoutthatsometimes

legislation/policyexistsbutfailuretoimplementit

surfacesasastructural/institutionalissue.'For

example,theCanalandDrainageActprohibitsany

constructionon�loodplainsbutthegovernmenthas

nocapacitytogoafterillegalsettlementsand

implementthelaw'.

PakistanispavingitswayacrosstheDRR

mainstreamingandintegrationagendahoweverpace

needstobeenhancedtoensurethatwemeetour

internationalcommitmentsandareabletobuild

capacities,aslocalizedaspossibletominimizethe

impactofdisasters.

Symbioticprivatepartnershipscanbeakeyfor

resourcegenerationtofueleffectivepolicy

implementation.Itwouldneedmulti-stakeholder

collaborationandimplementationofinnovative

approachesbutpublic-privatepartnershipsisthe

waytogotobridgethefundinggap.

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DisasterRiskReduction(DRR)MainstreamingInGovernanceWhereNowandWhereto?

Forcommunitiestodecipherscienti�icdataor

implementDRRsomebasicamenitiesneedtobe

ensuredandacertainawarenesslevelneedstobe

reached–thistakesusbacktoinvestmentin

social/humancapitalandintegratingDRRacross

governance.Similarly,itneedstoberecognizedthat

otherdisasterslikecyclonesandheatwavesare

increasinginfrequencyandintensity.Theyshould

therefore,begivenimportanceandpriorityalong

withearthquakesand�loods.Itisalsoimportantthat

institutionsspearheadingDRRinPakistanrevisit

theirmissionsandvisionstoincludeDRRalongwith

disastermanagementandresponsesothatDRR

becomesasinstitutionalresponsibility.Beingamongstthetop10countrieswhichareworst

affecteesofclimatechange,Pakistanneedstobrace

itselfandhithomewithintegrationofDRRwithinthe

governanceumbrellaasitwillbethecornerstonefor

buildingresilientcommunities.Withthe

commitmentsofhighlevelof�icialsinthe

InternationalConferenceonDisasterManagementon

20thJune2018,wehopethatthepoliticaland

institutionalwillstaysstrongandtranslatesinto

effectiveactionsatdesiredpace.

Themeteorologicaldepartmentandthegeographic

surveyofPakistanhavedonevaluableworkin

settingupsystemstopre-emptdisasters.However,

westillhavealongwaytogointermsofoptimal

useoftechnologyandlinkingscienti�icdata

analysistodecisionmaking.Pakistanstillscored

verylow(8thoutof11Asiancountries)inuseof

scienti�icknowledgeindecisionmakingand

investmentinscienceandtechnologyinareport

producedbyInternationalCouncilforScience(ICS)

andIntegratedResearchforDisasterRisk(IRDR)in

2017titled'Assessingcountry-levelscienceand

technologycapacitiesforimplementingtheSendai

Framework'.

1. ArticleDailyTime(21June2018)'Strategyfordisasterriskreductionvitalforensuringsafetytohumanlives'

https://dailytimes.com.pk/255836/strategy-for-disaster-risk-reduction-vital-for-ensuring-safety-to-human-lives/2. CountingDisasters1947-2016:PakistanDisasterRiskIndex(2016)TailalMasood–PlanInternational–Thisstudyhasbeen

endorsedbyQuaideAzamUniversityIslamabad.3. FiscalDisasterRiskAssessmentOptionsforConsideration-Pakistan(2015)

http://documents.worldbank.org/curated/en/829791468070733917/pdf/944740WP0P13260ter0Risk0Assessment.pdfhttps://www.preventionweb.net/�iles/17429_4disasterriskreductiongovernance1.pdf

4. ImprovingPakistan's�iscalresiliencetonaturaldisasters(2017)HarisKhan,WorldBankBlog

http://blogs.worldbank.org/endpovertyinsouthasia/improving-pakistan-s-�iscal-resilience-natural-disasters5. PakistanLaunchesFirstDisasterRiskInsuranceFramework(2017)LEADPakistanWebsite

http://www.lead.org.pk/lead/postDetail.aspx?postid=3386. PakistanNationalprogressreportontheimplementationoftheHyogoFrameworkforAction(2013-2015)

https://www.preventionweb.net/�iles/42312_PAK_NationalHFAprogress_2013-15.pdf7. Pakistan:StatementmadeattheThirdUNWorldConferenceonDisasterRiskReduction(WCDRR)

https://www.preventionweb.net/english/professional/policies/v.php?id=440428. Pakistan'sStatementduring5��SessionofGlobalPlatformonDisasterRiskReduction,Mexico(22-26May2017)

https://www.preventionweb.net/�iles/globalplatform/GPDRR-%202017%20Country%20Statement-Pakistan[1].pdf9. Report:Assessingcountry-levelscienceandtechnologycapacitiesforimplementingtheSendaiFramework(2017)–International

CouncilforScienceandIntegratedResearchonDisasterRisk https://www.icsu.org/cms/2017/05/DRR-policy-brief-1-countries.pdf10. ReviewofNationalMulti-HazardEarlyWarningSystemPlanofPakistanincontextwithSendaiFrameworkforDisasterRisk

Reduction(2018)RabiyaMukhtarhttps://www.sciencedirect.com/science/article/pii/S187770581830036511. SendaiFrameworkforDRR(2015–2030)https://www.preventionweb.net/�iles/43291_sendaiframeworkfordrren.pdf12. ThePoliticalEconomyofDisasterPreparednessandRiskReductioninPakistan(StraussCentre2017)

https://reliefweb.int/sites/reliefweb.int/�iles/resources/CEPSA_Brief-5_DisasterPreparedness_1.pdf13. UNDP–DRR,GovernanceandMainstreamingArticle

References:

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DISASTERMANAGEMENTSYSTEMOFPAKISTAN

Introduction.

Sincebeforepartition,theareaofPakistanhas

seenmorethanitsfairshareofdevastating

disasters,fromearthquakes,tsunami,droughts

to�loods,landslidesandavalanches.Most

devastatingofthesedisasterstoaffectPakistan

pre-partitionwasthe1935QuettaEarthquake

whichcompletelydestroyedtheoldcityof

Quetta&killedapprox.60,000persons,

followedby1944Cyclonewhichhitcoastof

Karachi;leavinghomeless20,000personsand

the1945MakranTsunamiwhichkilledan

estimated4,000persons.Afterindependence,

Pakistanasanewnationmadeagreatdealof

progress,establishingitsCivilDefenceService

whichhadalargeandvariedmandate,

includingmanyaspectsofdisaster

management.Overtheyears,Pakistanhas

progressedgreatlyinitscapacitytomitigate

andrespondtodisastersituations.

InstitutionalFramework.

Sinceindependence,variouslegislationsand

institutionalbodieswerepromulgated/

established.Abriefrundownofthese

importantmilestonesis:-

a. TheCivilDefenceAct1952waspassedto

aidcivilpopulaceindefenceofanyformof

hostileactaswellasanycalamityor

disastersituation.ThisActhasbeen

amendedovertimeinviewofnational

requirements.b. TheCalamitiesAct1958wasmainly

focusedonorganizingemergencyresponse

(maintenanceandrestorationoforderin

areascalamitiesaffected).Thisactwas

lateramendedwhenthefourprovinces

werecreatedin1971.c. EmergencyReliefCell(ERC)wascreated

withintheCabinetDivisionin1971and

wasresponsiblefordisasterreliefat

nationallevel.Itprovidedassistancein

cashandkindtosupplementtheresources

oftheProvincialGovernmentsineventof

majordisaster.d. FederalFloodCommission(FFC)was

establishedin1977intheaftermathofthe

1973and1976Floodswhichwreaked

havocthroughoutthecountry.FFCwas

mandatedtohelpcoordinate�lood

preventionmeasuresatnationallevel.e. NationalCrisisManagementCell(NCMC)

wasestablishedinJuly1999underAnti-

TerroristActintheMinistryofInteriorto

coordinatewithProvincialCrisis

ManagementCellandtocollect

informationregardingvariousemergencies

inthecountry.f. EarthquakeReconstruction&

Rehabilitation(ERRA)Ordinance2005and

FederalReliefCommissionwaspassedto

establishanauthoritytocoordinatethe

recoveryandrehabilitationofareas

affectedbythedevastating2005Kashmir

Earthquake.Theordinancewaslater

passedasanAct.g. NationalDisasterManagementOrdinance

2007waspromulgatedresultantly,NDMA

wasestablishedin2007asaleadagencyat

federalleveltoimplement,coordinateand

monitorthewholespectrumofdisaster

managementincludingprevention,

preparedness,mitigation,response,

reconstructionandrehabilitation

programs.TheOrdinancewaslaterpassed

asanActin2010.h. OrganizationofNDMA.AspertheNDMAct

2010,theAuthorityisheadedbyChairman

whileithasthreeMembersheading

differentWings.TheChairmanalsoactsas

anex-of�icioSecretaryoftheNational

DisasterManagementCommission(NDMC)

whichischairedbyPrimeMinisterof

PakistanandNDMAservesasaSecretariat

ofNDMC.

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typesofdisasters,RiskInsurance,National

DisasterManagementPlan(NDMP)

includingimplementation&progressand

disasterawareness.Moreover,

CoordinationwithUNOrganisations,

Bilateral/MultilateralOrganisationsand

INGOs/NGOswithrespecttoallmatters

ingivendomainisalsocarriedoutbyDRR

Wing.(3) Operations(Ops)Wing. OpsWingdeals

withoperations/coordinationofNational

EmergencyOperationsCentre(NEOC),

relief,rescue,recoveryandrehabilitation

operationsduringalldisasters(inlandand

foreign).Italsocarriesoutcoordinationof

humanitarianassistanceandrescue,relief,

recovery,rehabilitationeffortswith

Federal/ProvincialAuthorities&

organizationsaswellasallstakeholders

includingUNOrganisations,INGOs/NGOs.

Moreover,preparationofcontingencyand

responseplansforvarioushazards.3. HistoryofMajorDisastersinPakistan.As

explainedbrie�lyintheintroduction,the

areaofPakistanhasseenmorethanitsfair

shareofsincebeforepartition&

independencein1947.Abriefoverviewof

themajordisasterstheareahasfacedis:-a. 1935QuettaEarthquake. Tookplaceon31

Mayat0233hoursatQuetta,

theearthquakehadamagnitudeof7.7and

killedapproximately60,000persons.b. 1944KarachiCyclone.On27Julyapower

cyclonemadelandfallatKarachi,causing

largescaledamagesleavingapproximately

20,000personshomeless.c. 1945MakranTsunami.Apowerful

earthquakewithmagnitudeof8.1

struckofftheMakranCoastnearPasni,the

subsequenttsunamiwithwavesashighas

15metersstruckthePakistancoastline

fromPasni,Gwadar,Ormara,Karachiand

KetiBandar.Itisestimatethetsunami

killedasmanyas4,000persons.1950PunjabFloods.Anestimated3,000

personswerekilledand900,000persons

weremadehomelesswhenRiverRavi

h. NDMA'sMandateasperNDMAct2010.

NDMA,theexecutivearmofNDMCis

assignedfollowingmainrolesand

responsibilitiesasperArticle9ofNDMAct

2010:-

(1) Actastheimplementing,coordinatingand

monitoringbodyforNationalPolicies

relatedtodisastermanagement.(2) PreparetheNationalPlantobeapproved

bytheNationalCommission.(3) Laydownguidelinesforpreparingdisaster

managementplansbydifferentMinistries

orDepartmentsandtheProvincial

Authorities.(4) Providenecessarytechnicalassistanceto

theProvincialGovernmentsandthe

ProvincialAuthoritiesforpreparingtheir

disastermanagementplansinaccordance

withtheguidelineslaiddownbythe

NationalCommission.(5) Co-ordinateresponseintheeventofany

threateningdisastersituationordisaster.(6) Laydownguidelinesfororgivedirections

totheconcernedMinistriesorProvincial

GovernmentsandtheProvincial

Authoritiesregardingmeasurestobetaken

bytheminresponsetoanythreatening

disastersituationordisaster.

(7) Foranyspeci�icpurposeorforgeneral

assistancerequisitiontheservicesofany

personandsuchpersonshallbeaco-opted

memberandexercisesuchpoweras

conferreduponhimbytheAuthorityin

writing.(8) Promotegeneraleducationandawareness

inrelationtodisastermanagement. FunctionsofVariousWings.Inorderto

carryouttheassignedtasks/functions,

NDMAisdividedintothreewingswith

followingtasks:-(1) AdministrationandFinance(A&F)Wing.

Providesalladminand�inancialsupport

fordailyNDMAOperations.(2) DisasterRiskReduction(DRR)Wing.

HandlesallmattersrelatedtoDisasterRisk

ReductionPolicies&Plansconcerningall

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GujratstarteddissipatingneartheSindh-

Gujaratborder.However,itcausedmassive

rainfalland�loodinginKarachi,Thattaand

Badinkilling609personsanddisplacing

200,000persons.k. 1998–2002PakistanDrought.

ConsideredworstdroughtinPakistan's

historyaffectingmorethan2million

personsthroughoutthecountry.l. 2005KashmirEarthquake.Thesinglemost

deadlyearthquaketohitthecountry,it

causedmassivedamagesinareasofAzad

Jammu&Kashmir,NorthwestFrontier

Province(nowKhyberPakhtunkhwa)and

IslamabadCapitalTerritory.Theearthquake

approximatelykilled73,338persons,

injured128,304personsandaffected3.5

millionpersons,causingbillionsofdollars'

worthindamagesandlosses.m.2007CycloneYemyin.Atleast730people

diedasaresultof�lash�loodstriggeredby

CycloneYemyin,whichstruckcoastalareas

ofSindhandBalochistaninJuly.

Approximately350,000peoplewere

displaced,1.5millionpersonswereaffected

andmorethantwomillionlivestock

perished.n. 2010PakistanSuperFloods.Thesingle

worstinstanceof�loodingtoaffectPakistan

whichstartedon20July.The�loodsaffected

KhyberPakhtunkhwa,Punjab,Sindh,

BalochistanandAzadJammu&Kashmir,

causingapproximately1,985deaths,

injuring2,946persons,affecting

20millionpersonsandleadingtoover10

billiondollarsworthofdamages

andlosses.o. 2010AttabadLakeLandslide.Attabad

villageinDistrictHunzaofGilgitBaltistan

wasdeclaredhazardousbyNDMAin

September2009basedonastudy

undertakenbyGeologicalSurveyofPakistan

(GSP).103familieswereevacuatedpriorto

theincident.On4Januaryamassive

landslideblockedthenatural�lowofRiver

HunzaleadingtothecreationofAttabad

Lake.

�looded,burstingitsbanks,thecityof

Lahorewastheworstaffected.e. 1964IndusValleyCyclone.Apowerful

cyclonemadelandfallalongSindhcoaston

12Junecausingmassivedamages,

approximatelykilling450personsand

leavinghomelessupto400,000persons.f. 1965KarachiCyclone.On15December,the

deadliestcycloneonPakistan'srecordshit

Karachileadingtothedeathsof

approximately10,000personsandmaking

numerousothershomeless.g. 1973Floods.The�loodsbeganonAugust8

anddeathsofpeoplewerereportedfrom

SialkotandGujranwala.Manyvillagesof

LahoreandWazirabadwereinundatedon

11August.Indus�loodwatersentered

Larkanaon21August,suburbanareasof

Sadiqabadcameunderwateron2

September.Massivelossesanddamages

werereported.The�loodsaffectedmore

than4.8millionpersons.h. 1974HunzaEarthquake.On28Decembera

magnitude6.2earthquakestrucktheHunza

Valleyat1211hours.Theeffectsofthe

earthquakewerefeltthroughoutthe

northernhalfofPakistan.Theearthquake

approximatelykilled5,300persons,injured

17,000personsandaffected97,000persons.

Itsdestructiveeffectscompletelydestroyed

thetownofPattaninNorthwestFrontier

Province(nowKhyberPakhtunkhwa).i. 1992Floods.The1992�loodscamein

Septemberduetotorrential

rains.Floodwarningwasissuedon12

September.RiverJhelumwitnessed�lood

peakon14Septemberandinundatedmany

villages.High�loodsituationwaswitnessed

inriversandwater�lowhadtobediverted

bywayofbreachesinanembankmentto

savecityofMultanon15Septemberand

breacheswerealsomadeon18September

tosavePunjnadHeadworks.These�loods

killedapproximately1,400personsand

affected12millionpersons.j. 1993SindhCyclone.On16Novembera

cyclonewhichmovedintoSindhfromIndian

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Accord.NDMAhasdevelopednumerous

contingencyplans,policiesandguidelines,

suchastheNationalIndustrial/Technical

DisasterContingencyPlan,NationalDisaster

ResponsePlanandHostNationSupport

GuidelinesforForeignAssistanceto

PakistanDuringDisasters.Ithasplayed

pivotalroleinraising,trainingand

establishmentofUrbanSearchandRescue

TeamsinIslamabad,Mardan,Karachi,

LahoreandevenforthePakistanArmy.

NDMAthroughitsNationalInstituteof

DisasterManagementhastrainedover

10,000governmentof�icialsandprivate

individualsinvariousaspectsofdisaster

management.

5. Asweworktowardsbuildingabetterand

disasterresilientPakistan,NDMAisworking

withstakeholdersandpartnersbothin

PakistanandInternationally,inthefuture,

NDMAisworkingtoestablishitsDisaster

ManagementComplex,apurposebuilt

institutewithstateoftheartNational

EmergencyOperationsCentreandbuildings

forNationalInstituteofDisaster

Management,aswellasestablishing

Pakistan's�irstspecializedNationalDisaster

ResponseForce(NDRF),whichwillberapid

responseforcethatcanbedeployed

anywhereinthecountrywithin6hours.

p. 2011SindhFloods.Duetounprecedented

rainfallinSindhoveraperiodof4weeksin

August,approximately167km²was

inundated.The�loodsapproximatelykilled

516personsandaffected9.3million

persons.

q. 2015KhyberPakhtunkhwaEarthquake.On

26Octoberat1409hrsan8.1magnitude

earthquakestrucktheHindukush

Mountainscausinglargescalelossesand

damagesinKhyberPakhtunkhwa(KP),

Gilgit-Baltistan(GB),AzadJammu&

Kashmir(AJ&K)andFederallyAdministered

TribalAreas(FATA).Theearthquake

approximatelykilled272persons,injured

856anddestroyed96,152houses.

4. NDMA&Pakistan'sProgressonDisaster

Management.Sinceestablishment

ofNationalDisasterManagementAuthority

in2007ourdisastermanagementsystem

hasbeensteadilydevelopingthroughfacing

numerousdisastersandlearningfromthem.

Wehavespearheadedmanyunique

practicesindisastermanagement,whichare

nowconsideredglobalbestpractices.

PakistanhasdevelopeditsNationalDisaster

RiskReductionPolicyanditsNational

DisasterManagementPlanin2013.Pakistan

isacommittedtoSendaiFrameworkfor

ActiononDisasterRiskReductionandisa

signatoryoftheParisClimateChange

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NationalHumanitarianNetworkPakistan(NHN)isavolunteernetwork,foundedin2010asaresultofaninteractivedialogueinNationalDisasterManagementAuthority(NDMA)toactasanindependentandvibrantvoicetoengagewithstakeholdersthroughoutPakistanforpromotionofhumanitarianvaluesbyin�luencingpoliciesandbuildingcapacitiestoensurerightbasedhumanitarianresponse.

NHNhasbeengiventhemandatebyitsmemberstorepresentthelocal/nationalNGOsontheforumsandplatformsrelatedtothewholespectrumofhumanitarianactivitiesrangingfromDisaster Preparedness & Disaster Risk Reduction (DP/DRR) to Response and Recovery &Rehabilitation.Structurally,theprimaryfunctionofNHNistotakealeadonissuesofcollectiveandsharedimportance,especiallytheissueswhereaunitedstanceisconsideredmoreeffectivethanindividualmembers’tacklingtheissueontheirown.ThiswouldimplythatNHNsteersclear of the functions and activities that arenot of a collectivenature andmight bring thesecretariatinacon�lictofinterestwiththemembers.TheNHNwouldbestremainfocusedonstrengthening the collective and shared values, stances, capacities and standards of thehumanitariancommunity.

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NHN National SecretariatApartment Number 306, 3rd Floor Imperial SquareKhalid Bin Waleed Road, E-11/2, IslamabadLand Line # 051-2305260-61E-Fax: 051-8311296www.nhnpakistan.orgwww.resourcecenter.nhnpakistan.org