THE INTERAGENCY CONTINGENCY

PLANNING WORKSHOP FOR NATURAL DISASTERS

MANAGEMENT

WORKSHOP REPORT

Submitted to:Management Team

JICA Nepal OfficeHarihar Bhawan, Pulchowk, Lalitpur

ONLY FOR INTERNAL USE

Kathmandu (Nepal)

Submitted by: Raj K Pandey

AS OfficerJICA Nepal Office

Harihar Bhawan, Pulchowk, LalitpurKathmandu (Nepal)

4-5 June, 2007

TABLE OF CONTENTSExecutive Summary Page

General Context

Inter-Agency Workshop

Methodology

Agency Presentation

Government’s Existing Capacity

National Strategy for the Disaster Risk Management in Nepal

ICRC and Disaster Management

Information Management

Natural Disaster Response Capacity

Group Discussion

Next Day Presentation

UN Department Security Plan For UN Staff in Nepal: Natural Disasters

UN Emergency Coping

UN Response in Crisis Situation

UN Information Management System For Crisis

Coordination Lesson Learnt

Strengths

Constraints

Recommendations

Necessary Next Step

UN Civil Military Coordination

Inter-Agency Standing Committee

Work Plans

DPNet Nepal

DPNet’s Strengths

Architecture of Coordination Groups

Need for updates to the current condition

The Priority and Procedures

Contingency Plan Setting

Conclusion

Recommendation

LIST OF APPENDIXES

LIST OF ABBREVIATION

ADB Asian Development Bank

CBS Central Bureau of Statistics

DFID Department For International Development (UK)

DDC District Development Committee

GDP Gross Domestic Product

GoN Government of Nepal

HAN Hotel Association of Nepal

ICIMOD International Center For Integrated Mountain Development

IUCN World Conservation Union Nepal

JICA Japan International Cooperation Agency

MAN Management Association of Nepal

MoGA Ministry of General Administration

MoTT Ministry of Travel and Tourism

MoHA Ministry of Home Affairs

MoPPW Ministry of Physical Planning and Works

NASC Nepal Administrative Staff College

NATA Nepal Association of Travel Agency

NDF Nepal Development Forum

NPC National Planning Commission

NTB Nepal Tourism Board

OPMCM Office of the Prime Minister and the Council of Ministers

RNAC Royal Nepal Airlines Corporation

SASEC South Asian Sub-Regional Co-operation

SDC Swiss Development Corporation

SNV Netherlands Development Organization

UK United Kingdom

UN United Nations

UNDP United Nations Development Programme

VDC Village Development Committee

WB World Bank

WTO World Tourism Organization

WTO World Trade Organization

Executive Summary

Nepal is one of the complex countries in terms of its geography, socio-politics, socio-economic and psycho-socio prospective. The nation has variety of geographical biodiversity which is boon for the national development but it is one of the causes of the problems as well. Due to difference nature of climate, soil, forestry, flora and fauna throughout the country, it has different kind of disasters caused by various reasons. Nepal has been facing disasters which have no consistent attributes in terms of causes but have uniformity in terms of losses.

Nepal is on the lap of Himalayan range which is technically disaster prone areas as it is said that the great earthquake may occur at any time and its disaster may be huge. The seismologists have predicted for the great losses particularly in the Kathmandu valley. On the other hand, manmade disasters such as deforestation and fire are also root causes of disasters in the context of Nepal. Consequently, there are losses of millions annually that could be prevented with the effective management of the disasters.

Nepal seems minimal level of serious in terms of prevention and disaster preparedness and there is dire need of concrete contingency plans, policies and strategy to address the issues more proactively in the days to come. For this purpose, the GoN need to include its long-term and short-term planning that could best address the disaster situation and should enact for the disaster related laws as soon as possible. For this purpose, the law makers must serious and should have political commitments to address the disaster related issues.

Nepal is lacking contingency planning at macro level that has reverse impacts for the disaster preparedness, mitigation and management activities. The GoN has a disaster management unit under the Ministry of Home Affairs which is involving especially for the relief works. Moreover, the disaster management unit under the Ministry of Physical Planning and Works is mainly responsible for reconstruction related activities in Nepal. Similarly, the CDO is liable for the coordination and management of the district level disasters.

All multilateral and bilateral donor communities, I/NGOs and CBOs have realized the need of national level contingency plans which could proved more effective to

all the stakeholders for disaster management activities. In this connection, a two day workshop was organized in Kathmandu during 4-5 July to discuss on this issue and providing backstopping supports to the GoN in formulating the efficient and effective plans and policies. The same workshop is expected to be useful to all the stakeholders in extending their mutual cooperation and collaboration that could strengthen the possible partnership activities to work jointly in the future.

All most all the stakeholders who are involving on the disaster preparedness and management activities in Nepal actively participated on the two day workshop. The workshop outcome is expected to be incorporated into the proposed national level contingency plan that is most essential for the coordination.

JICA Nepal Office, in partnership with the GoN, has been actively involving for the disaster preparedness, management and mitigation activities. The workshop was also attended by a newly appointed JICA Nepal Office’s A.S. Officer.

General Context

Disaster preparedness, management and mitigation activities mainly require an assessment and planning, reducing physical risks and developing ability to respond. It is a gradual process that is not accomplished overnight which is the combination of series of plan of actions. The natural as well as man-made disasters are increasing in an alarming rate, which are the major threats for the global communities that need to be seriously addressed for the sustainable development for the future generations.

Nepal is also facing several kinds of natural disasters and it lies in the prone area of earthquake. Nepal has the bitter experiences of several great earthquakes in different time periods. It is estimated that Nepal, particularly Kathmandu city, is in great risk in case of major disasters since it has not been properly prepared to cope the unforeseen challenges that may occur at any time in the days to come.

For this propose, Nepal needs to be more alert and GoN should formulate proper plans, policies and strategies at the central and grassroots level. The GoN can closely work with the different stakeholders, which are actively involving in this sector. It certainly requires huge resources to cover these areas so that joint efforts, mutual understanding and inter-agency coordination are necessary. For the efficient and effective contingency planning process, there should be series of serious discussions, interactions and collaboration among all the stakeholders.

Inter-Agency Workshop

For this rational, an inter-agency contingency planning workshop for the natural disasters management was held on 4-5 June 2007 at Dwarika’s Hotel, Kathmandu. The workshop was organized by the United Nations Office for the Coordination of Humanitarian Affairs (OCHA). The main objectives of the contingency planning workshop were: to address the humanitarian response reform; introducing the cluster approach; responsibilities of the cluster leads; and develop a workplan for improving preparedness within the cluster for the joint cluster mechanisms.

Representatives form different multilateral and bilateral agencies including GoN and I/NGOs participated on the two-day contingency planning workshop. Most of these stakeholders are directly and/or indirectly involving for the emergency disaster preparedness, management and mitigations activities in Nepal. The workshop provided an excellent platform to all the stakeholders to share their experience, know-how and plan of actions to intervene the disasters. (See Annex: For List of Participating Agencies)

In this connection, JICA Nepal Office was also invited through e-mail to participate on the workshop. JICA’s newly appointed A S Officer actively took part on the workshop and s/he realized that JICA has great positive reputation among the stakeholders in addressing the disaster related issues in Nepal. JICA’s efforts on the disaster mitigation activities were highly appreciated and recognized on the same workshop. (See Annex: Invitation e-mail)

Methodology

The contingency planning workshop was started from the introductory session where all the participants introduced themselves and their respective agencies that they represented. The workshop was based on interactive participatory method that was supported by power point and question-answer round.

The first round of session covered humanitarian response reform that introduced cluster, responsibilities of leads, flash appeals, (See Annex: Workshop Schedule)

Similarly, a representative from concerned ministry presented national framework on the policy and strategy that covered the initiative taken by the GoN.

Agency Presentation

Some agencies also presented their action plans and on going activities on the disaster management issues. The initiatives undertaken by the GoN, ICRC, UNDP, INSARAG, UNDAC and their lesson learnt experience on the disaster management activities were highlighted on the first round of the workshop. (See Annex: Nepal’s Map on Disaster Preparedness and Response Capacities 2007)

The INSARAG was established in 1991 following the Armenia’s earthquake experience in 1988. There are 80 member countries and organizations associated with the agency. Moreover, UNDAC is involving for the disaster assessment, management and support for national authority in the disaster related activities.

A clear policy is essential for the effective disaster management, which should have clear vision and it must be equitable and sustainable. The vision should transform into the reality. The priority consideration for the efficient disaster preparedness should include knowledge management. The priority consideration should covet the disaster reduction through right-based approach and alleviation of the poverty through the effective disaster management.

Government’s Existing Capacity

There is some existing disaster management unites under the Ministry of Home Affairs (MoHA) and Physical Planning (MoPP) separately. The Joint Secretary at the MoHA is the focal point for the disaster related issues at the national level. The MoHA, however, is mainly concerned for relief works and MoPP for reconstruction. The Chief District Office (CDO), under the MoHA, is responsible for the district level disaster management activities in their respective districts.

GoN has been involving on the process of developing a specific organizational structure to address the disaster management issue at the central level. A committee has been proposed under the Chairmanship of Prime Minister. In order to formulate the proposed disaster management committee, the GoN has conducted series of workshops and interaction programs in collaboration with the several multilateral and bilateral donor agencies based in Nepal. They have also been developing concept papers to enact the efficient and effective policies, guidelines and strategies to cope the national level disaster in the countryside.

Similarly, the MOHA and UNOHR have signed a MoU document on the last week of May to jointly work on disaster related issues. An international level meeting is supposed to be held in Geneva which will be lead by the Home Secretary.

National Strategy for the Disaster Risk Management in Nepal

The UNDP participant presented proposed national strategy, its need, structures, scope and process. Donors have time and again expressed the lack of cohesive approach to the disaster management activities in Nepal.

Similarly, the IASC cluster approach needs a clear-cut national framework to facilitate the post disaster international response it would lead. Moreover, Nepal has made a global commitment for the disaster management, which is equivalent to the MDGs for poverty alleviation.

It is essential for the external development partners such as donors for the purpose of investment and protection of the development activities. International and national organization such as I/NGOs and CBOs feel its necessity for the less threatened by the disasters. The central level GoN’s institutions require it for the hazard mitigation as well as it is needed for the local bodies for effective service delivery purpose.

The proposed structure and scope of strategy includes a cluster that is inter-linked to the IASC cluster. It is proposed for a sector-wise SWOT of identified key sectors and it is also a guide for the further development. Moreover, it covers the cross-cutting issues such as Human Rights as well.

ICRC and Disaster Management

The Red Cross and Red Cresent Movement and its tasks are mandated by the Geneva Convention. The disaster management is also a core activity of ICRC which is being undertaken under the different approaches throughout the world. In the context of Nepal, the ICRC is involving in relief and disaster management where preparedness, response and rehabilitation are the main pillars. The approach of the ICRC in this connection is:

Rapid Deployment Unit Early Warning, Alert and Emergency Preparedness and Prioritization Facilitate Rapid Development (i.e. teams with to be deployed within 72 hours) Lesson Learnt Identification and Application

Information Management

Earthquake management in Pakistan and importance of information was presented by UN expert. On the first day of an emergency, to obtain accurate information on need is most critical that was experienced during the earthquake relief in Pakistan. Consequently, the rapid assessment form was quickly developed to cope the reverse situation as there was no up dated data earlier.

Several agencies coordinated to tackle the crisis. They were able to collect the ariel map that was not sufficient to locate the communities and road network hence data collection was the first priority. Similarly, Cossovo shelter assessment was under taken with the mutual cooperation of the several agencies to assess the real damage.

As a result, it is said that information management and crisis management will be the greatest single emergency response issue.

Baseline data, standard coding, assessment forms are the most vital tools to coordinate the collection and analysis of the overall situation.

Natural Disaster Response Capacity

A Specialist on geography presented slides on the possible earthquake and its consequences. The best security on such situation is “Duck and Cover Vs Triangle of Life”. At the end of this presentation, a slide cartoon was presented to disseminate the information during earthquake. (See Annex: Earthquake–So What Should You DO?)

Group Discussion

The entire participants were divided under the different eight groups to discuss on thematic areas during emergency operation. The groups were categorized as:

Protection Education Food Security Health Water and Sanitation Communication Logistics Emergency, Shelter and Camp Management

After the group exercise, brainstorming and discussions, the inputs were collected through flip charts and each group presented findings. The main

guiding questions for the group task were the SWOT Analysis of the existing capacities, possible solutions to the problems and innovative projects that could best address the disaster related problems in the days to come. Moreover, the groups were also assigned to address the possible stakeholders to identify for who are responsible for what.

All most all groups highlighted on the need of coordination from central to grassroots level where network of NGOs and CBOs is most essential to cope the problems at the field level. Similarly, there are several strengths that the concerned organizations currently have which are mainly related to the information, education, human capital, etc. However, there are also several factors, which are directly related with the socio-political, geo-political, socio-economic and psycho-socio related issues and these are the major weaknesses and threats to the disaster management.

Moreover, the group also realized that there is very low priority, particularly from the government side, in the disaster preparedness and management since political commitments and consensus on this regards are lacking among the leaders. On the other hand, post-disaster syndrome surveillance mechanism is also necessary to control the epidemic and huge human losses.

The rapid assessment forms, flow up, psycho-socio support, training, resource mapping, coordination and cooperation, etc. are the better remedies to overcome these problems.

Next Day Presentation

The second day started with the re-cap of the previous day and it also highlighted the outlines of the day.

UN Department Security Plan For UN Staff in Nepal: Natural Disasters

UN Official presented the department security measures for the safety and security for the UN staffers particularly for the Nepal based UN and its specialized agencies’ staff members. The presentation mainly focused on the following issues:

Anticipated Crisis Improvement to Crisis UN Response Priorities Internal Crisis Response External Crisis Response Role of DSS Country Team in Crisis

The UN security and emergency team including all the staff members are well aware of their security and preparedness activities.

The organization is well-equipped with the high-tech tale-communication media such as radio and VHF. The team is conscious for security of the UN property, vehicles and employees.

UN Emergency Coping

Evacuate staff in case of emergency Residence and office security monitoring Manage the containerized emergency equipment Supplies to pre-located centers in each region Staff tracking system through the computerized programming Ensure no rivalry and domestic violence among staff’s family members Coordinate media aid

In order to effectively implement the security and emergency related activities within the specialized UN Agencies and its field offices, emergency operation centers in the different regions of Nepal, have been established. On top of that, there has been assigned an alternative DO, ASC and wardens in every region.

Moreover, the UN System has a crisis management group where Specialist Advisors consisting various experts with the specific knowledge and skills have been involved. Moreover, there is Operation Team which implements the decisions made by the Crisis Management Group. The Operation Team is also located in all the regions of Nepal.

The host government remains responsible fort the UN staff security in line with the MoU although UN is serious for its security and emergency related issues. Consequently, Resident Representative (RR), Resident Coordinator (RC) and Humanitarian Coordinator (HC) are involved in the Crisis Management Team, whereas UNCT/SMT consists the UN country team and others.

The DSS provides the emergency operational centers and CMS provides pre-planning for the emergency situation. These teams may also actively take part in evacuating the staff from the neighboring countries if needed.

UN Response in Crisis Situation

Crisis Management Team Cluster Groups Specialists Security Operation Team Crisis Review Team

UN Information Management System For Crisis

The security management team uses the pre-written contingency plans provided by the DSS with DO and SMT authorization. They have specific plans and procedures of planning data; emergency operation centers in five regions; planning room; twenty-four hour UN center radio; security coordination office and alternative EOC’s.

Coordination Lesson Learnt

Last year, the monsoon rain started on the last week of August. Due to rain, there was a great disaster in Accham district where 81,982 people from 12,105

families were badly affected. On the same incident, 46 people died and 22 were injured. To tackle this situation, there was an immediate need of rescue and relief activities to be undertaken in urgent basis.

Nepal Red Cross (NRC) took lead role with cooperation and collaboration with the other different stakeholders. NRC provided food for one week as immediate response and another 30 days for emergency response by the WFP support. NRC joined hands with the different organizations to fight for the disasters.

The main partner agencies were: Swiss Red Cross, ICRS, IFRC, SCF (US), WFP, UNICEF, UNOCHA, UNDP, DFID/CSP, CARE, PLAN and Oxfam including GoN particularly Army and Police. The assistance was received in both technical and financial especially for management, logistics, information coordination and transportation sectors. The NRC implemented the flowing approaches:

Mobilization of volunteers and staff for rapid assessment Deployment of NDRD Food and non-food items distribution Multi-sectoral coordination i.e. central to local level Communication channel was defined All supports were chanelized thought the one-window policy

After relief package, there was a one-day interaction program as lesson learned among all the stakeholders in Nepal Gunj. The same workshop identified that the coordinated efforts is the best approach to fight for disaster. Moreover, it is also realized that such approach needs to be strengthened and institutionalized. The lesson learned from the same interaction program were as flowing:

Strengths

One way window proved effective Good team work Multi-sectoral coordination Effective network Active participation of local communities Well managed distribution system Media support

Constraints

Lack of proper initial information Lack of pre-established one way system Neutrality issue with the local partners Lack of media briefing and advocacy Lack of trained manpower for relief at local level Lack of adequate preparedness

Recommendations

Continue working on strengthening corps of volunteers One window relief system should be defined in policy

Institutionalization of coordination Coordination and common assessment system Standardization of relief package Provision of minimal sustenance for package volume Media advocacy needed Stockpiling of relief items (food and non-food) essential Access to use helicopters, boats to be pre-determined Provision of temporary shelter to be exercised

Necessary Next Step

Assessment Information Management Media Advocacy and Management Resource mapping at central and regional level regularly The NRC relief in Achham disaster was based on the principle of one window

system, which was undertaken with the inland resources. However, such arrangement may be useful only on small-scale relief but it may not be applicable for the large-scale disaster management activities.

Nepal Government’s central level disaster management committee also realized the lesson learned and consequently the paradigm has been sifted. The GoN doubled the relief budget and twenty-five trained volunteer manpower have been deployed to the every cluster of the field level.

After NRC presentation, there was a floor discussion among the participants and some voiced that there should be ‘relief assistance’ before visiting field assessment. Moreover, there should be quality food items during the relief operation. Life saving component such as pure drink water should be seriously considered at the time of relief. On the other hand, cluster approach for the social sector, particularly the health and education, should be properly addressed while providing the relief after the post-disasters.

The NRC presentation was silent on the medical assistance component and death rate seemed double than the injuries, which indicates that rescuers should be alert for the life saving than only relief package.

UN Civil Military Coordination

UN OCHA Regional Office representative presented about the UN’s CMCoord. The CMCoord is active for joint planning, information and task sharing among its members countries globally. It’s scope is mainly security which is highly visible in emergencies. It is also rendering its services for the logistics, communication, transportation and information in case of need in its member states. It has specific structures and run by different guidelines enacted during different time period. CMCoord operates upon request from the government and UN body. The Oslo guidelines states for focusing on:

Air, land and sea survey and assessment Recognization of the disaster zone and access Services

Engineering Communication Logistics Support

In the context of Nepal, it is mapping current military structure and capacity which will enable the identification of the most suitable military MADRO roles and coordination mechanisms. It also maps all the potential external military support options; ensures coordination of potential response and check SOFA and arrangement to ensure timely response on aviation.

Inter-Agency Standing Committee

Inter-Agency Standing Committee was established in Nepal in 2005 to copy the structure in New York and Geneva. Its membership are from UN specialized agencies engaged in humanitarian activities and also IFRC, RCRC etc.

Similarly, It also has Sub Working Group that is being chaired by the UN OCHA and its members are WFP, UNICEF, WHO, UNDP, NRCS, ODFA and ICRC.

Work Plans

Expected customs procedures Share communication Data presentation Contingency planning coordination Simulation inter-agency Civil military coordination Media advocacy Flash approach framework preparation

DPNet Nepal

DPNet, with an objective of fostering knowledge on disaster, was established as a network in strengthening mechanism of coordination and sharing information among its members. During early nineties, a strong need of network was felt and consequently 23 partner organizations formed the DPNet at the Red Cross office premises. Currently, it has 49 member organizations and it has adopted its charter in 2001. The charter provides for General Assembly and Executive Committee. (See Annex: Template For Natural Disaster Response Capacity)

It has objectives of fostering coordination, cooperation and collaboration among its member organization; capacity building of the partners; promoting right-based approach through advocacy; facilitating information sharing, etc.

The DPNet is closely working with government, donors, I/NGOs and CBOs on the partnership basis and it has also implemented a DPNet Strengthening Project under assistance from UNDP, EU, Oxfam and Action Aid. However, it is not clear about the status of DPNet as it is not registered as a NGO. What is the status of DPNet only as network organization or something else?

DPNet’s Strengths

Forum for all Ensure respect Facilitate capacity building Flexibility Information management and resource center Promotion of groups and sub-groups based on themes

The DPNet has extended its activities for the coordination and collaboration with national partner networking, thematic networking and district or local networking. It has also focused for the advocacy and awareness related activities through its networks. However, DPNet also has some gaps such as inconsistency in service delivery; non-comprehensiveness in data base; inadequate capacity building; weak functioning linkage with district and local network; need further streamlining of information management; limited coordination in terms of thematic issues; and lack of system to include the skilled human resources.

Architecture of Coordination Groups

There are some challenges for inter-agency coordination due to different level of capacities, lack of resource mapping, clusters are not prepared for the enough preparedness, plans and ToR, etc. The flowing measures can improve the coordination more effectively:

Regular cluster coordination meeting Simulation OCHA to conduct a CMCoord course in Nepal Encourage personnel contacts and networking through various methods such as

district level tabletop excises, soccer matches, volleyball competition, etc. Mapping the resources stockpiles through the country and regions Mapping coordination personnel inventory

Need for updates to the current condition

The scenario for Kathmandu should be accepted and from this, there will follow the need to up date in the current situation. The existing structure is not so functional so that there is urgent need of formulating the new laws. The major challenges for this purpose are there is lack of collective national level contingency plans and reluctant culture for the information. However, the national level platform may be able to bring all the stakeholders into an effective umbrella organization. (See Annex: Major Natural Disaster Scenario For Nepal)

For this purpose, identification of the sharing of information; mandatory preparation of DDC-DM plans; development of regular monitoring and evaluation mechanism; standardized assessment forms; organizational commitment, etc. may solve some of the problems in a large extend.

The national level platform, which is supposed to be formed in the near future, at central government level, should address the specific roles and responsibilities of all the concerned stakeholders – who to supply drinking water and who to provide relief assistance, should clearly mentioned in the forth coming policies and programs enacted by the GON.

The Priority and Procedures

Visit field and confirm the safety status Make alert to all Establish inter-agency communication Declare state of emergency in case of major disaster by GoN Provide relief support Activate the contingency plan on integrated approach

The contingency plan may not be the total solution since what will happen if there is lack of chain of command due to disaster? Who will operate the plans and who will make the decisions? Who will instruct the team? These are the issues that need to be timely addressed on the proposed national level contingency plan.

As far as cluster approach is concerned, UNICEF has started working with the Lalitpur Municipality for drinking water supply. On the other hand, the OCHA will discuss with the regional office for the simulation.

Contingency Plan Setting

The contingency plan should cover: scenario/situation, likelihood/degree, panic, number of displacement, general assumptions, need assessment, sequence, government/public service and humanitarian response, etc. Similarly, it may also cover estimation requirements for food and security and sectoral operational plan. It may mention the objectives and situations clearly and its temple should have flowing:

SWOT Analysis Plan of Action HR Requirement Supplies of Equipment Logistics Arrangement Partnership Arrangement Coordination Arrangement Budget and Cash Requirement Immediate Preparedness Activities

Conclusion

The consistency planning workshop in a large extend was able to share the knowledge and experience from all its stakeholders. The most of these organizations have been involving for the disaster preparedness, mitigation and management activities in different parts of the countryside. The workshop was proved as a best platform for all to disseminate the information about their activities. On the other hand, it was a milestone effort to make a commitment for the formulation of a national level contingency plans.

The GoN has been considering for the enactment of new laws and policies as suggested by the different donor agencies that may certainly cover the several disaster related issues from relief to rehabilitation.

Recommendations

These kind of workshop is essential to bring all stakeholders into an umbrella where members can understand each others’ ethos in addressing the disasters jointly. Hence, regular interactions on such issues are necessary for all members.

Resource mapping, knowledge and experience sharing activities should be increased regularly among its members organization.

Monthly or quarterly meetings among the network is essential for partnership. Journals and periodic magazines may be useful to share the writings of all. The focal point and organization should effectively keep in touch to all. The DPNet can play proactive roles for coordination with all members. The trained human capital on this regard is essential at grassroots level. The background reading materials should be distributed to all participants.