UNITED NATIONS
OFFICE FOR THE COORDINATION OF HUMANITARIAN AFFAIRS
United Nations Disaster Assessment and Coordination (UNDAC) Disaster Response Preparedness Mission to Papua New Guinea
2 – 16 May 2009
15 May 2009
Foreword
Papua New Guinea is a particular disaster prone country with active volcanoes, frequent earthquakes due to its location on the Pacific Ring of Fire, mud- and landslides, floods, cyclones, Tsunami’s and sea swells. It is expected that the frequency of the disasters will increase in the years to come, in line of what is being reported in the Climate Change discussions. Already, there are a number of displaced populations as a result of the impact of natural disasters and climate related events.
As such, Papua New Guinea is familiar with responding to natural disasters, but found itself under-prepared when Cyclone Guba hit the Province of Oro in 2007. It was widely recognized by the Government, the UN, donors and the NGO community that the response highlighted some key gaps in the disaster management structure. The willingness for change has been shown by both the Government and non- governmental sectors and in recognition of this, the Government of Papua New Guinea has requested for a United Nations Disaster Assessment and Coordination (UNDAC) Team to carry out an assessment of the country’s disaster preparedness plans, procedures and capacities. The United Nations Country Team in Papua New Guinea commends the Government for taking the initiative to strengthen and improve its ability to cope with natural disasters, which we know can occur anytime and anywhere.
This report by the United Nations Disaster Assessment and Coordination Team (UNDAC) provides a snapshot of the country’s ability and capacity to deal with natural disasters. The recommendations presented in this report will hopefully inform and guide future activities of the Government’s efforts on disaster response preparedness, supported by the development partners such as the UN and donors.
In our common endeavor to achieve the Millennium Development Goals in Papua New Guinea, it is critical that due attention be paid by the Government and its partners to enhancing the country’s capacity for disaster preparedness and response. It is critical that we now build on the momentum gained from this mission and its report and make a conscious and joint effort to assist the Government implement its recommendations successfully.
Dr. J. Badcock United Nations Resident Coordinator
1
TABLE OF CONTENTS
EXECUTIVE SUMMARY ...... 4
1. INTRODUCTION ...... 10
1.1. UNDAC Mission, Background and Terms of Reference ...... 10
1.2. Scope and Methodology...... 10
1.3. Field Visits...... 11
1.4. Team Composition...... 13
2. NATURAL DISASTER RISK IN PNG...... 13
2.1. Disaster Risk and Vulnerability Factors...... 13
2.2. Disaster Definitions...... 14
3. LEGAL, INSTITUTIONAL AND ORGANISATIONAL FRAMEWORK FOR DISASTER MANAGEMENT IN PNG...... 14
3.1. Disaster Management Legal and Institutional Framework ...... 14
3.2. National Disaster Management Planning and Coordination ...... 17
3.3. Disaster Management Linkages National and Provincial Levels...... 20
4. EMERGENCY RESPONSE SERVICES, STOCKPILES & LOGISTICS 22
4.1. Police, Defense Force, Fire and Rescue Services...... 22
4.2. Medical Emergency Services ...... 28
4.3. Emergency Telecommunications...... 29
4.4. Management and Procurement of Emergency Relief Goods ...... 30
4.5. Logistics: (air)ports, warehouses, stockpiling...... 31
4.6. Water and Sanitation...... 32
4.7. Shelter...... 33
4.8. Protection ...... 34
4.9. Relocation and displacement ...... 35
4.10. Food Security ...... 36
4.11. Environment...... 38
2 4.12. Information Management...... 39
5. EARLY WARNING PUBLIC INFORMATION AND EDUCATION ...... 40
5.1. Early Warning and Contingency Plans...... 40
5.2. Preparedness Measures in Place ...... 43
5.3. Public Information...... 44
5.4. Education ...... 45
6. MANAGING INTERNATIONAL ASSISTANCE, RESPONSE MOBILISATION AND ALLOCATION...... 46
7. CONCLUSION ...... 55
8. SUMMARY OF RECOMMENDATIONS ...... 48
ANNEX 1 ...... 57
ANNEX 2 ...... 59
ANNEX 3 ...... 61
ANNEX 4 ...... 63
ANNEX 5 ...... 69
ANNEX 6 ...... 79
ANNEX 7 ...... 81
3 EXECUTIVE SUMMARY
Situated on the Pacific Ring of Fire, Papua New Guinea (PNG) is no stranger to natural disasters. The most recent high-impact disaster – the 2007 Cyclone Guba and subsequent flooding in Oro province – underscored the need for a comprehensive national framework to better prepare for and respond to disasters. In recognition of this the Government of PNG (GoPNG), through the UN Resident Coordinator (UNRC), requested the UN Office for the Coordination of Humanitarian Affairs (OCHA) deploy a UN Disaster Assessment and Coordination (UNDAC) team to assist in meeting this challenge.
Over a two week period the twelve person team, comprised of disaster managers from national governments, UN agencies and the Red Cross, undertook a comprehensive review the state of disaster response preparedness in PNG. The team also conducted provincial and district level consultations in four of the most disaster-prone provinces and the Autonomous Region of Bougainville.
The Team’s findings and recommendations address issues at both the strategic level – including the need for enhanced political commitment and clarification of mandates – that need to be addressed as well as operational and technical issues relating the different aspects of disaster management in PNG. A summary of these issues and key recommendations follows.
Enhanced political commitment to disaster management needs to translate into budgetary allocations by government.
Recent disasters have served to raise awareness within GoPNG of the risk posed by natural disasters and the need to be prepared to respond on all levels. Despite this, disaster management is not yet considered a national priority. As a result, the budgetary support necessary to establish a minimum level of disaster management capacity in PNG has not been forthcoming. For instance, Government investment in national scientific and technical agencies (such as the National Weather Service) seems to have been steadily eroded over a number of years.
To ensure a stronger culture of disaster preparedness for response, effective disaster management needs to be acknowledged by GoPNG as critical to protecting hard-won progress against the Millennium Development Goals (MDGs). It is therefore of significant importance that disaster management is considered a core development issue and included in the next PNG Medium Term Development Plan (MTDP) 2010-2015; GoPNG and development partners should advocate for this.
Review of existing disaster management legislation and clarification of institutional roles and responsibilities is needed.
Several well intended efforts to review existing disaster management legislation and to rationalize emergency services have commenced but are yet to be endorsed by GoPNG. Not only has this contributed to confusion regarding the status of current legislative and institutional arrangements, it also hinders effective coordination of disaster preparedness and response at all levels. Many stakeholders have different interpretations of the current disaster management arrangements and thus an
4 inconsistent appreciation of their respective roles and responsibilities. This is a significant obstacle to effective disaster management in PNG.
The Team found consensus around the identified need for GoPNG to review and harmonize existing disaster management and related legislation and to clarify the institutional roles and responsibilities that flow from these various documents. This has clearly been recognized by GoPNG and work has commenced since 2008. The current direction by the NEC for the development of Disaster Management Protocols (‘the Protocols’) by the NDC provides an excellent and crucial opportunity to start addressing this issue, acknowledging that more work on these needs to be done. The Protocols are with Cabinet for further endorsement of the process of development. In this regard it is important to note that development of new or revised disaster management structures and up-to-date legislation must take place in tandem to ensure consistency and that continued wide consultation is imperative for broad understanding and ownership. Detailed recommendations, including with respect to the Protocols, are made within the Report but can be broadly summarized as follows:
Priority should be given to the review and harmonization of existing legal frameworks for disaster management. Flowing from this, a comprehensive practical framework outlining roles and responsibilities arising from legislation should be developed along with SOPs to guide application and implementation of arrangements. These documents should form the building blocks of a comprehensive framework for disaster management in PNG, as also proposed by the Protocols. Current efforts to review and streamline the financial and administrative processes for speedy and transparent disbursement of funds for relief operations and the efficient receipt of international assistance should be progressed as a matter of priority. Further consultation on the development of the draft Protocols should involve the broad spectrum of disaster management stakeholders in PNG – national, provincial, district and international partners. The national and provincial disaster risk management coordination structures for disaster management proposed within the Protocols could be simplified by prioritizing and phasing core activities and services for disaster preparedness and response at all levels. A top heavy structure should be avoided. As provinces and districts are well placed, from a governance and disaster risk management perspective, to deal with disaster response, emphasis should be on capacity building at those levels as well.
Coordination platforms require further development with active participation of all stakeholders
It is important that all stakeholders in disaster preparedness and response share information, coordinate activities and combine and share resources for improved disaster management. It is widely agreed that a more holistic and inclusive approach to disaster management should be taken, whereby GoPNG, at national and provincial levels, actively supports sustained and inclusive coordination platforms including:
Revitalization of the National Disaster Committee (NDCom) to ensure active participation by all members in response as well as preparedness. NDCom
5 should review current membership to ensure all core national disaster management stakeholders are represented. The National Disaster Centre (NDC) should facilitate a national coordination platform for national and international NGO’s and/or actively seek collaboration with existing NGO coordination groups (for example: the International Development Council1). The NDC should more actively participate in the regular IASC DMT and other relevant sector coordination platforms. Establishment of sectoral coordination to prepare in key disaster management sectors such as health, water, sanitation a& hygiene, emergency logistics, communications and early warning. This should include NDC and key line ministries, NGOs and international partners. Given the significant role that national and foreign military has played in major emergencies in PNG, the development of Civil-Military coordination capacity should be considered for both military and civilian staff involved in disaster management. Guidance should be given to Provincial Administrations and Provincial Disaster Committees (PDCs) for facilitation of inclusive coordination. Consideration should be given to the establishment of Provincial Disaster Offices (PDOs) that jointly build upon existing staffing and networks from provincial stakeholders including ambulance and fire services, police, health, communications and agriculture; engagement should be supported by agencies at the national level. Key disaster management coordinators, such as Controllers, NDC and PDC staff should, in addition to relevant disaster management skills have access to training in relevant emergency management tools and practical inter-agency coordination skills.
Provincial and Central governments should invest in integrated provincial disaster management
Clearly form the above mentioned key issues it follows that disaster risk management in PNG needs more investment to create a robust system of public awareness, early warning and early action, adequate preparedness and timely response and recovery. In addition to that increased collaboration and coordination can provide low-cost measures to strengthen the system. As Provincial Administrations will be at the front- line of any disaster response it is recommended that:
Provincial Governments and the Autonomous Bougainville Government (ABG)2 invest in PDCs to be the focal point for preparedness and response coordination, integrating or collaborating as much as possible with other available emergency management resources such as existing radio networks
1 The International Development Council is a recent initiative of several international organizations including Oxfam, World Vision, CARE and Save the Children to exchange information and coordination development planning, programming and activities, including disaster risk management. Membership is upon request. 2 Whenever this report makes general references to ‘Provinces’ it will include the Autonomou8s Region of Bougainville, acknowledging its status as an autonomous region in the Independent State of Papua New Guinea. 6 (health, police), volunteer networks (Red Cross, faith based organizations), fire and ambulance services. Reinforcing Section 17 of the DM Act, the Director NDC should work with Provincial Administrators to support the development of effective disaster management arrangements and to foster provincial level leadership.
National Disaster Center’s focus and core mandate requires clarification.
The NDC should focus on core advisory and coordination activities for disaster preparedness and response, including:
Advisory and coordination support to NDCom for disaster preparedness and response; Coordination and support of national and provincial inter-agency preparedness planning for response through provision of expert staff, tools and guidance on methodology; Operational coordination and facilitation of disaster response with coordination of operational response areas (logistics, transport, health) delegated to relevant line ministries and to PDCs at the provincial.
Information Management for disaster preparedness and response is a critical role of the NDC, with strong involvement and support of the National Statistics Office (NSO) and the National Mapping Bureau (NMB). Greater integrated support by these agencies to key technical and disaster management organizations, as recommended above, will also allow for better information for decision-making on emergency issues. A key recommendation is the establishment of an Information Management Working Group (IMWG) to provide a forum for GoPNG and development partners to establish standardized datasets and information tools relevant to disaster preparedness and response including baseline data, spatial data standards (pcodes), assessment mechanisms, contact directories, meeting schedules, Who-What-Where (3W) data, and harmonized reporting and monitoring systems. The IMWG could include technical information management personnel from such agencies as the NDC, NSO, NMB, University of PNG, PNG Red Cross, UNDP and UNICEF.
The financial management of relief funds is another critical function of the NDC. Financial and administrative processes for speedy and transparent disbursement of funds for relief operations and the efficient receipt of international assistance requires priority attention. These functions should be managed by designated staff whose primary role is the establishment and maintenance of effective financial and administrative arrangements for the NDC. NDC has already developed new DRM Financial Policy & Procedures to this effect.
Other operational activities and specific sector coordination, such as logistics coordination, relief distribution and field assessments should be left as much as possible to relevant line ministries with specific and existing capacity, with an advisory and support role for NDC.
Emergency response services and disaster management actors should grasp opportunities for enhanced collaboration, coordination and joint planning
7 As mentioned also above, while capacity appears limited in operational areas of the various emergency services at national and provincial levels to deal with emergencies, there are opportunities to strengthen response preparedness by combining resources and improving coordination at both national and provincial levels. Recommendations include:
That priority is given to appointing (a pool of) dedicated potential Controllers, at national and provincial level, and equipping them with appropriate professional development opportunities and training including opportunities to participate and practice their roles in table top exercises. Possible training could include: International Humanitarian Law, Civil Military Coordination, Search and Rescue, logistics management, communications, human rights, stress management and incident control. As a priority, the Royal PNG Constabulary (RPNGC), Fire Service and St John’s Ambulance (with support from the relevant government ministries) must investigate the feasibility of implementing a single nationwide 111 emergency call system linked to a joint communications centre. That medical emergency services coordinate and map out the available stockpiles of basic drugs and medical equipment in PNG and the region (especially in Australia), with support of IASC DMT, Ministry of Health, and WHO. NDC, Ministry of Health, St John’s Ambulance, PNG National Telecommunications Authority and Police to jointly review existing emergency communications infrastructure (including radio) for emergency purposes at national, provincial and district levels. The interoperability of these communication systems is critical. Establishment of an Early Warning coordination group that sets up joint 24/7 communications procedures for receipt, analysis and distribution of warnings for all relevant hazards. Suggested membership includes: National Weather Service, the Port Moresby (POM) Geophysical Lab, Rabaul Volcano Observatory, Department of Geohazards and Mineral Policy, Media organisations, St. John’s Ambulance, NDC and the PNG Red Cross. Following from the above, to strengthen public information on disaster management, NDC should facilitate coordination among relevant government agencies and devise an information management system to disseminate key information during emergencies. A mechanism by which information is readily accessible to national and keep track of available information materials that can be easily accessed by all stakeholders at all national, provincial and district levels. Given there is no lead agency for logistics coordination – resulting in a significant bottleneck in disaster response - the establishment of a Logistics Coordination Group should be considered as a priority. This group could include: NDC, PNGDF, Health, private sector (including aviation), Ministry of Works (Restoration Coordination Unit), Civil Aviation, Port Authority and international partners. First steps should be drafting of Terms of Reference and identification of a lead agency. In the area of environment, there is a clear need for coordination between NDC and DEC to better address the environmental precedence and consequences of disaster events. This includes both rapid environmental assessment tools and community outreach programmes.
8 With the knowledge that sustainable solutions to relocation because of natural disasters have already proved difficult and the expectation that with climate change these issues become a daily reality in many parts of PNG, and building upon the experiences from current relocation exercises as for instance in Manam, Manus and Bougainville it is recommended that GoPNG creates a high level multi-disciplinary advisory group consisting of specialists on legal, humanitarian, lands, protection, livelihood, hazards, climate change issues to map out a strategy that can deal with these complex issues. International development, humanitarian and academic partners should support this. An Information Management Working Group (IMWG) be established to provide a forum for government, development and relief agencies to agree upon authoritative sources for standardised datasets and information tools relevant to disaster preparedness and response including baseline data, spatial data standards (pcodes), assessment mechanisms, contact directories, meeting schedules, Who-What-Where (3W) data, and harmonised reporting and monitoring systems. The working group could include technical information management personnel from such agencies as the NDC, NSO, NMB, University of PNG, PNG Red Cross, UNDP and UNICEF. Finally, to facilitate the mobilisation of international assistance during major disasters, the streamlining of the process for official request for assistance is necessary and standard operating procedures (SOPs) for the acceptance and the receipt of international emergency assistance on a large scale should be developed by the Government. This should include expediting/waiving visas for humanitarian workers and facilitating customs and immigration procedures for foreign relief personnel and supplies, including international urban search and rescue (USAR) teams.
Follow up and monitoring by the GoPNG should involves all relevant stakeholders in Disaster Management, including a coordinated interaction between Government entities involved in disaster management, UN Agencies, NGOs, technical institutes, universities and the international disaster response systems. There are several coordination forums already in place for this, including the IASC Disaster Management Team.
Specifically from the UN side, UNDAC will ensure there will be a follow up mission in approximately a year’s time to review the recommendations. In the meantime, the OCHA office in PNG as well as the OCHA Regional Office for Asia Pacific and the Regional Disaster Response Advisor based in Fiji will closely monitor the process regarding the implementation of the recommendations and serve as focal points for NDC and partners.
9 1. INTRODUCTION
1.1. UNDAC Mission, Background and Terms of Reference
At the request of the Government of Papua New Guinea (GoPNG), through the United Nations Resident Coordinator (UNRC), the United Nations Office for the Coordination of Humanitarian Affairs (OCHA) deployed a United Nations Disaster Assessment and Coordination (UNDAC) Team (‘the Team’) to Papua New Guinea (PNG) from 2 – 16 May 2009.
In accordance with the agreed Terms of Reference (TOR, Annex 1), the UNDAC mission worked with the GoPNG under the overall guidance of the UNRC, to achieve the following objectives:
An evaluation of the disaster management system in PNG, providing an analysis of current capacities and future needs at the national and provincial level in the areas of planning for and implementing preparedness programmes, response operations and recovery programmes; and
A mission report summarizing the analysis and conclusions, making key recommendations towards the strengthening of central and provincial level capacities, identifying the resources needed and proposing a timeline for implementation of the recommendations.
1.2. Scope and Methodology
10 The UNDAC Team formulated its recommendations on the basis of research, field visits, meetings and interviews undertaken during the Team’s two week mission (see Annex 7). Work was undertaken in Port Moresby and in five of the eight most disaster prone provinces (Bougainville, East New Britain, Morobe, Eastern Highlands and Oro) as advised by GoPNG and Inter-Agency Standing Committee Disaster Management Team (IASC DMT). The team’s work was assisted by reference to a number of reports and studies (see Annex 2).
In preparing this Report and considering its recommendations, the Team took into consideration the following principles of national disaster management:
The principle of liability
Authorities responsible for a sector under normal circumstances, should take responsibility, under the authority of one single line of command, throughout the disaster cycle i.e. mitigation, preparedness, response, early recovery, rehabilitation and reconstruction.
The principle of normality
Emergency response should follow established procedures and processes that are as close to the norm as possible, without causing unnecessary delay, as personnel will already be familiar with these processes.
The principle of the lowest effective operational unit
Emergency response should be implemented and coordinated at the level of the lowest (or most localized) effective operational unit. On-going disaster management activities therefore need to have a local basis, where locally defined risks, vulnerabilities and needs direct the attention and actions of government at all levels.
The UNDAC Team took funding and resource considerations into account in making their recommendations, with a focus on maximizing the use of existing organizations and their systems/mechanisms. This focus on affordability and strengthening existing systems would help ensure that the recommendations could practically and realistically be implemented by the relevant authorities. Whilst it is appreciated that funding and resources are important factors, prudent investment in a robust disaster preparedness system will in the long run be cost-effective.
As an implementation guide, the report’s recommendations have been categorized into three timelines: short term – within 1 year medium term – within 3 to 5 years and long term within 5 to 10 years.
1.3. Field Visits
Mission to Popondetta, Oro Province
11 On 6 to 8 May, five members of the UNDAC team visited Oro Province. Meetings were held with the Provincial Governor, the Provincial Administrator, the Provincial Disaster Committee, as well as the Provincial Executive Council. The team also held meetings with the NGO community and the provincial council for women as well as the UNDP capacity development specialist. The Provincial authorities shared the recently approved Disaster Management Plan with the UNDAC team. The team also had the chance to see the areas affected by cyclone Guba in 2007, which are still in dire need of reconstruction.
Mission to Lae, Morobe Province
On 9 to 12 May, two members of the UNDAC team visited Morobe Province, and met with the Provincial Administrator, the Provincial Disaster Centre, and the Provincial Disaster Committee members. The Team visited some of the recent disaster-affected areas such as the Kumalu river (affected by landslides), Busu river (flooding), Bumbu river (land erosion), and some health facilities (a general hospital and health centres).
During the meeting of the Provincial Disaster Committee, the Provincial Disaster Centre (PDC) presented its Disaster Report 2008, and the Lae city Hazard Map, which had just been completed. Members of the Committee made presentations on their capacities and resources, and called for coordinated roles and responsibilities to be delineated. This could be planned and tested via simulation exercises and mock drills. They also pointed out the need for developing baseline data and disaster management plans at the provincial and lower levels, based on hazard maps.
Mission to Eastern Highlands
Between the 6 to 8 May, three members of the UNDAC team visited Goroka in the Eastern Highlands Province. The Team met with the Provincial Administration, Provincial Disaster Coordinator and held meetings with a small group of NGO’s. The UNDAC team also travelled to the site of a recent landslip that claimed several lives near Dualo Pass on the main highway.
Mission to Bougainville
A team composed of 4 members of the UNDAC team visited the Autonomous Region of Bougainville (ARB) from 6-8 May. The team was welcomed by key officials headed by Hon. Jonathan Ngati, the Minister for Local Level Government (LLG) and Mr. Patrick Koles, Acting Chief Administrator. The Team attended the Bougainville Disaster Committee Meeting and met the Committee members. The Autonous Bougainville Government (ABG) Acting Disaster Coordinator, Mr. Franklin Lacey was also able to organize several meetings with various local government divisions (district administrators, planning, health, education, information, technical services, police), the Observer from Mt. Bagana Volcano Observatory and various NGOs (Red Cross, CARE, World Vision, Toulele Peisa Group). The team visited the UNDP Office, Buka General Hospital, Karoola Attols Resettlement and Manoub Relocation Sites.
Mission to Rabaul, East New Britain Province
12 A team composed of 2 members of UNDAC team visited East New Britain Province from 9-12 May. The team was met by the newly appointed Provincial Disaster Coordinator, Mr. Allan Pinia and Disaster Programme Officer, Mr. Elias Babate. The team met with representatives from various provincial offices (technical services, health, fire bureau, works, etc) held at the PDC office housed in the PNG Fire Service, Kokopo. The team was also able to visit the office of a local NGO, ENB Social Action Committee (ENBSEK), and had a meeting with the chairman of the Rabaul Chamber of Commerce. The team visited the Rabaul Volcano Observatory and Nongan General Hospital. The town of Rabaul, severely affected by the volcanic eruption which started in 1994, is still in the process of being rehabilitated after more than 15 years.
1.4. Team Composition
Peter Muller, OCHA, Team Leader Carolina de Borbon Parma, OCHA, Deputy Team Leader Atu Kaloumaira, Fiji Graeme MacDonald, New Zealand Hari Srinivas, UNEP Leveni Aho, Tonga Ma. Mylene Villegas, Philippines Rebecca Shaw, Australia Yosuke Okita, Japan Roger Lye, APHP Australia Kevin Napthali, APHP Australia
Associate Member: Helga-Bára Bragadóttir, IFRC
The UNDAC team benefited from additional support in carrying out its mission from the Government of Australia, additional APHP support from New Zealand, guidance on current disaster response law in PNG from IFRC’s Asia-Pacific International Disaster Response Laws, Roles & Principles programme, as well as logistical support for the mission from the Japan International Cooperation Agency (JICA).
2. NATURAL DISASTER RISK IN PAPUA NEW GUINEA
2.1. Disaster Risk and Vulnerability Factors
PNG has an estimated population of 6 million people, with almost 87% living in rural areas. Approximately 800 languages are spoken and each language group has a distinct culture. There are large socio-cultural differences between and within provinces. The official languages are English, Pidgin and Motu.
Access to widely scattered rural communities is often difficult, slow and expensive. Only 3% of the country’s roads are paved. Many villages can only be reached on foot and most travel between provinces is by air.
13 PNG’s geography underscores its potential for natural hazards, see also the hazard risk map in annex 8. Many parts of the country experience very high rainfall that can cause flooding and landslides. There is dependence on regular rainfall through much of the country so any shortage can rapidly develop into drought in some parts of the country. Many of the smaller atolls have limited water resources and are particularly vulnerable. In the Highlands, frost and drought can cause famine in the cool months (May-Oct) at altitudes of 2700m above sea level.
PNG is situated close to the boundary between the Pacific and the Australian tectonic plates on the so called Pacific Ring of Fire. The country has a number of active volcanoes and experiences regular earthquakes with an average of one or two events of magnitude 6 or higher occurring in its region every year. Secondary effects of this seismic activity include landslides and local tsunamis.
One of the most significant recent earthquakes was the Aitape earthquake (magnitude 7.0) in 1998, which triggered a tsunami that killed 2,183 people, injured thousands and left 500 missing. Similarly, Cyclone Guba, which hit Oro Province in 2007, killed approximately 150 people and displaced almost 10,000.
In the last 12 years four UNDAC teams have deployed to PNG in response to natural disasters, notably the 1997 drought and frost, the Aitape Tsunami (July 1998), Mount Pago Volcano and Earthquake in East Sepik (2002) and recently the Sea Swells Floods (December 2008).
2.2. Disaster Definitions
It is necessary for all stakeholders to have a common understanding of what constitutes a disaster and to differentiate disasters from incidents.
In the context of disaster management (DM), disasters refer to natural or manmade hazards that cause widespread human and material loss and overwhelm the local response capacity. Disasters are generally large-scale and complex. They require a multi-faceted response from numerous organizations with substantial amount of resources. They differ from incidents which can be handled at the local level within existing resources.
Recommendations It is suggested that an all-hazards approach to disasters be adopted, in which a disaster is defined as ‘a serious disruption of the functioning of a community or a society involving widespread human, material, economic or environmental losses and impacts, which exceeds the ability of the affected community or society to cope using its own resources’ (UN International Strategy for Disaster Reduction, 2009).
3. LEGAL, INSTITUTIONAL AND ORGANISATIONAL FRAMEWORK FOR DISASTER MANAGEMENT IN PNG
3.1. Disaster Management Legal and Institutional Framework
14 Disaster Management in PNG is guided mainly by two key legal documents: The Constitution of 1975 and the Disaster Management Act of 1987.
The Disaster Management Act (Chapter no. 403 of 1987, the ‘Act’) sets out the legislative framework for the management of disasters at the national and provincial level. It provides for the establishment of both National and Provincial Disaster Committees. It also sets out the membership, meetings, functions, powers and reporting obligations of each of these entities.
The Act also establishes the National Disaster Centre (NDC), stating only that its mandate is to ‘coordinate all disaster situations and surveillance matters’ (Section 15). The Act states that Provincial Disaster Committees may request financial and other assistance from the NDC. It provides that the first K15,000 shall be borne by the Provincial Government; any excess over K15,000 and up to K100,000 shall be borne equally between the National Government and the Provincial Government – whilst any excess over K100,000 shall be borne solely by the National Government.
The Act 1987 is preceded by the PNG Constitution of 1975, which also holds provisions for emergencies during natural disasters.
Under the Constitution, a national emergency is declared ‘if the National Executive Council is of the opinion that an emergency exists or is about to come into being…the Head of State, acting with, and in accordance with, the advice of the National Executive Council, may publicly declare the existence of a national emergency in relation to the whole or part of the country’.
Before or during a period of declared national emergency, the Parliament may make Emergency Acts to make provision for dealing with the emergency. Under these Emergency Acts the NEC appoints a Controller and Deputy Controller to manage the daily operations. During natural disasters, the Controller will often be military (rank of Colonel), whilst the Deputy Controller will be from the police.
The Head of State, with the advice of the National Executive Council, can make Emergency Regulations within 24 hours after Parliament first sits following the declaration of a national emergency. An Emergency Committee must be established; the Committee has to be available to meet at all times during the period of national emergency. The Prime Minister is required to provide the Committee with regular updated information on the disaster situation, in particular concerning proposed and existing emergency laws.
The GoPNG is in the process of developing a new framework for disaster management in the form of Disaster Management Protocols (the ‘Protocols’). It is understood that Cabinet has been asked to approve the broad concept set out within the draft Protocols, but that changes to and refinement of the document is still possible. It is important to note that endorsement of the Protocols will necessitate amendments to the disaster management Act.
Key Findings The current Act does not clearly set out roles, responsibilities and lines of decision making, especially in regard to the National Disaster Centre, National
15 and Provincial Disaster Committees, the Controller, and the parliamentary Emergency Committee. Many stakeholders have different interpretations of the current disaster management legislative and institutional arrangements and thus an inconsistent appreciation of their respective roles and responsibilities. This is a significant obstacle to effective disaster preparedness and response in PNG. The decision to declare a national disaster or emergency, required for the mobilisation of national and international resources, has proved a lengthy and inefficient process. Attempts to review current arrangements and legislation (in particular 2004 and 2005/6) have never been endorsed by GoPNG thus contributing to confusion regarding the status of the various versions. The existing legislation has not been harmonized or reviewed; although proposed, this has not yet been addressed in the draft Protocols.3 There are no comprehensive laws, policies, frameworks or other arrangements in place specifically for the facilitation of international assistance in the event of a large scale disaster. As a result, issues - whether relating to tax exemption on relief items, quarantine requirements or issuing of visas for humanitarian workers – are dealt with in an ad hoc and inconsistent manner.
Recommendations There is an urgent need for GoPNG to review and harmonize existing disaster management related legislation and to clarify the institutional roles and responsibilities arising from these various documents. Development of new disaster management structures (such as those contained within the draft Protocols) should take place in tandem with associated legislative reviews to prevent further inconsistencies and confusion. A comprehensive practical framework outlining roles and responsibilities should be developed along with detailed SOPs to guide application and implementation of disaster management arrangements. These documents should form the building blocks of a comprehensive framework for disaster management in PNG, as also proposed in the draft Protocols. Priority should be given to streamlining GoPNG processes for declaration of a national disaster and initiating a response. This will necessitate review and clarification of the roles and activities of: o NDC and National Disaster Committee in providing information to NEC for rapid decision-making; o the Parliament for provision of the Emergency Act following the declaration of emergency; and o the Ministry of Foreign Affairs in establishing liaison with international partners. Current efforts to review the financial and administrative processes for speedy and transparent disbursement of funds for relief operations and the efficient receipt of international assistance should be progressed as a matter of priority.
3 Some of the legislation that will require review and harmonization includes: Disaster Management Act 1987, Defence Act 1974, Constitution 1975, Fire Services Act 1962, Building Act 1942, Draft Disaster Management Protocols, Draft, Guidelines for Emergency Operation Centre, Institutional roles and responsibilities of and among the following will also require clarification: NEC, National Disaster Committee, National Disaster Centre, Controller, Ministry of Defence / Military Forces, Police, Provincial Administration, Provincial Disaster Committee, Provincial Disaster Centre Ministry of Foreign Affairs.
16 Establishment of arrangements to facilitate the receipt of international assistance should be considered with reference to IFRCs ‘Guidelines for the Domestic Facilitation and Regulation of International Disaster Relief and International Recovery Assistance’. Desktop disaster exercises to test the draft Protocols during the development phase should be considered; this could be supported by the IASC DMT if necessary.
3.2. National Disaster Management Planning and Coordination
Despite PNG’s vulnerability to natural disasters, disaster risk management is not identified as a priority in PNG’s current Medium Term Development Strategy; this is a critical constraint to the sustainability of any attempts to improve disaster management in PNG. As such, disaster management planning and coordination is still being guided by the Disaster Management Act of 1987 and the 1975 Constitution.
The National Disaster Committee has, in addition to a coordinating and oversight role in disaster preparedness, a disaster response coordination role, including to: assign responsibilities for disaster-related activities to GoPNG Departments and other bodies; coordinate relief actions and collate national relief requirements; advise the NEC if requests for international assistance are required; examine, and where necessary, approve all grants from national funds for emergency relief; supervise the establishment of stockpiles of relief supplies; and in the case of a disaster, update the NEC on the situation and provide advice regarding the declaration of a national Emergency under the Constitution.
The role of the Provincial Disaster Committees includes to: prepare and supervise emergency plans with guidance from NDC; coordinate stock piling of relief supplies and relief operations; and receive all applications for relief assistance.
In accordance with the Disaster Management Act, it is understood that the NDC becomes the national emergency operating centre in times of disaster. Draft guidelines for the set up of national and provincial Emergency Operations Centres (EOCs) are currently part of the draft Protocols. The disaster management Act does not, however, outline the intended role of the Controller following the Declaration of Emergency.
There have been several well intended initiatives to review and modernize planning and coordination for disaster management, but all of these have stalled at various stages of the process. This includes a draft National Disaster Management Plan of 2001.
Similarly, the Disaster Risk Reduction and Disaster Risk Management National Framework for Action 2005-2015 was created by the NDC in 2005 but has never been approved by NEC or Parliament. Based on the Hyogo Framework for Action and the Regional Pacific Framework for Action (2005-2015), this Framework sets out a comprehensive roadmap of reform for the DRM sector in PNG.
17 In addition, the Ministry of Inter-Government Relations in 2005 launched a process to investigate the rationalization of Emergency Services. This effort to integrate the services of NDC, St. John’s Ambulance and the Fire Service is currently stalled pending the development of the draft Emergency Protocols.
In 2007 NDC and UNOCHA initiated an inter-agency contingency planning process with participation of relevant government agencies, provincial disaster coordinators, UN agencies, NGO’s, Red Cross organizations and donor partners.
Following the Oro floods of 2007, the GoPNG “directed for the establishment of the necessary corrective measures to better manage disasters and emergencies” in 2008. The development of the protocols for improved and better management of disasters and emergencies in Papua New Guinea in the future, therefore, is a National Government direction through the National Executive Council Decision No. NG 41/2007 at its Special Meeting No. NG 8/2007 on 19th November 2007 Paragraph 8 which “directed the Minister for Inter Government Relations to develop protocols for managing disaster in the country.” Since the directive, the NDCom and NDC have started the development of a set of policy and guidance documents (the DRM Protocols and Standard Operating Procedures – “the Protocols”) through a technical working group to achieve the objective of better management of disasters and emergencies. The draft Protocols were presented in March to the National Executive Council (NEC) of GoPNG seeking commitment to further development and proposed further engagement of Provincial DRM partners for better understanding of the Protocols and Standard Operating Procedures, Guidelines, Policies & Plans. The DRM Protocols, whilst still under development, currently consist of a set of related, old and new, documents that must be read in conjunction: the DM Act 1989, DRM Financial Management Policies and Procedures, DRM procurement policy and procedures, DRM Logistics Plan, DRM Communication Plan, National DM Plan 1987, DRM Principles, DRM Risk Assessment & Mitigation Matrix and the PNG Emergency Operation Centres (EOCs) SOPs. The draft Protocols also propose an elaborate set of organizational structures for disaster management coordination for different disaster phases and government levels. The UNDAC team was asked to consider the draft Protocols as part of its Review.
Recommendations Effective disaster management needs to be acknowledged by GoPNG as critical to protecting hard-won progress against the Millennium Development Goals (MDGs). Disaster management should be considered a development issue and therefore be reflected in the next PNG Medium Term Development Plan (2010-2015), supported by government agencies and (international) development partners. As such, disaster management strategies and plans require formal endorsement by GoPNG and should be allocated an appropriate budget linked to action plans. The National Disaster Committee should be revitalised to ensure active participation by all members. NDC should also review current membership to ensure all core national DM stakeholders are represented. The NDC should facilitate a national coordination platform for national and international non-governmental organisations and/or actively seek
18 collaboration with existing coordination groups (e.g. the International Development Council). The National Disaster Committee should continue to actively support the inter-agency contingency planning process undertaken in 2007 and 2008; the NDC and UNOCHA should continue to lead this process. The NDC should more actively participate in the regular IASC DMT and other relevant sector coordination mechanisms. Effective coordination requires continued development of tools and skills. Key staff in coordination positions (Controllers, disaster focal points, NDC staff, Provincial Disaster Coordinators) should actively pursue training in this area. The NDC, together with national and international partners, should facilitate this training (e.g. project coordination, logistics coordination, civil-military coordination). Targeting potential Controllers is particularly important.
Recommendations for the draft Disaster Management Protocols With respect to the draft Disaster Management Protocols being developed, the following recommendations are made:
In general, the proposed ‘National Level Scope and Arrangements for Disaster Management’ of the DRM Protocols are in line with UNDAC recommendations made above, such as the proposed legal review and sectors or clusters that coordinate response in technical areas on national and sub- national levels. Implementation of these arrangements requires a legal foundation; this will necessitate review and harmonization of the current framework simultaneously. Further consultation on the development of the draft Protocols should continue to involve the broad spectrum of disaster management stakeholders in PNG – national, provincial, district and international partners. The national and provincial structures for disaster management proposed within the Protocols could be simplified by i) prioritizing and ii) phasing core activities and services for disaster preparedness and response at different levels. A top heavy structure should be avoided. As provinces and districts are well placed, from a governance and disaster management perspective, to deal with disaster response, emphasis should be on capacity building at those levels as well. An implementation plan for the proposed arrangements and organisational structures contained within the Protocols should be clearly prioritized and phased. Priority should be given to the clarification of core functions and activities expected of National Disaster Committee members, the National Control Group (NCG) and the NDC and PDCs. This will lay the foundations for development of cluster groups at national, provincial and district level. More specifically, it is recommended to first strengthen overall coordination mechanism for preparedness and response at national and provincial level, as well as strengthening sectoral coordination in key disaster management sectors, such as health, Water, Sanitation & Hygiene, Logistics, Emergency Services and Communications. In a second phase capacity can then be further strengthened at the provincial and district level and other (national) sectors relevant for disaster management. Once proper DM capacity is in place in NDC and PDCs, it can be expanded to work in disaster risk reduction.
19 In terms of organisational and coordination roles and structures, it is suggested that: i) the NCG includes representatives from the Ministry of Education, Department of Lands, National Statistical Office and National Mapping Bureau; ii) the draft Protocols should the role of the Controller is clarified; iii) the PDCs include (international) NGO representatives, Police, Defence, private sector representatives, and other relevant stakeholders. Finally, inconsistencies in language, concepts and proposed institutional arrangements in the various documents that constitute the draft Protocols need to be addressed - for instance, the disaster management organigrammes and the EOC SOPs propose different organizational structures; DM and DRM are used interchangeably, when these are two related by different concepts.
3.3. Disaster Management Linkages National and Provincial Levels
The Disaster Management also provides for the establishment of Provincial Disaster Committees, financial and other assistance. Membership, powers and functions of committees are outlined, together with reporting requirements. Some provinces have local legislation enacted to support the national legislation.
Despite the legislation, disaster response and preparedness capacity at the sub- national level is generally very low. It should be noted, however, that across the 19 provinces and the Autonomous Region of Bougainville there are Provincial Administrators and Provincial Disaster Committee members who do take their legislative responsibilities seriously - there are some excellent examples of working Provincial Disaster Committees. These examples of how the legislation was originally intended should act as best practice within the PNG disaster management sector.
The majority of Provincial Disaster Committees, however, have failed to meet their legislative obligations. The NDC has little executive authority or influence to address this. Further, roles, responsibilities and engagement between the Provincial Disaster Coordinators/Committees and the NDC are unclear resulting in often poor relationships and communication.
Some Provincial Administrations have been slow in appointing Provincial Disaster Coordinators and in establishing appropriate office facilities. Many are yet to appoint full-time Provincial Disaster Coordinators as the common understanding is that they are only really necessary during times of disasters. Where such staff have been appointed it is often the case that the official selected requires capacity building to enhance their skills and competencies to be effective in preparedness and response. It is often the case that officials operate in isolation of the wider disaster management sector in PNG.
The challenge then is to build capacity at the sub-national levels where response and preparedness activities will have the greatest value. Building the understanding and awareness of senior level provincial administration staff is also a challenge.
Allied to the above is the issue of resourcing. It follows that where Provincial Administrations do not view disaster management as a core responsibility, they are reluctant to allocate scarce funding to this function. Where funding is allocated, it is often erratic, with budgets fluctuating dramatically from year to year. 20
The NDC provides ad hoc support to the Provinces, including office hardware (computers, VH radios), and training for PDC staff, but does not have a dedicated budget for this purpose. It is not uncommon for delegations from PDCs to visit the NDC in search of financial support.
Resources for disaster management reduce even further moving down the administrative chain to the district and local government levels. There is a need to ensure that sufficient resources exist at the sub-national level for a robust system of disaster management.
Key Findings Provincial Governments and ARB are best placed to be the first line of response to disasters because of the high degree of autonomy at sub-national level and the diversity of provinces in terms of disaster risk, resources, languages and culture. Many Provincial Disaster Committees have never met. As a result, no planning has occurred, arrangements are not in place, the key relationships and networks have not been established. Linkages between the NDC and sub-national level are unclear - this contributes to a lack of coordination during emergencies. No clear line of communication between NDC and PDCs exists, resulting in an ad hoc response on all levels including information management, financial and resource management, preparedness planning and response coordination. As such, Provinces have adopted a range of inconsistent disaster management structures. The roles and functions of NDC and Provincial Disaster Committees need to be re-assessed to determine appropriate staffing capacity and remuneration. PDCs are in the main poorly resourced and lack the necessary qualifications for the role that they play. Professional development opportunities do not exist and there is little engagement between the staff within the offices and those agencies who will provide support during a response, in particular NGO’s. Opportunities do exist for PDCs to be proactive and engage with their communities and for the NDC and develop key partnerships with little fiscal investment.
Recommendations Given the fact that the provincial level should be the first line of response to disasters, Provinces should be adequately resourced to manage disasters with appropriate support from central agencies. The Provincial Administrations and ABG should invest in PDCs to be the focal point for preparedness and response coordination, integrating or collaborating as much as possible with other available emergency management resources such as existing radio networks (health, police), volunteer networks (Red Cross, faith based organisations), fire and ambulance services, etc. Guidance documents should also be developed which outline basic steps and tools to assist in developing effective and inclusive Provincial Disaster Committees that provide a platform for information exchange and decision making with respect to disaster preparedness and response including for
21 government, NGOs, faith-based organisations, private sector, UN, international community and other stakeholders. The NDC should take steps to engage more closely with the PDC’s to provide advice, guidance and policy. This should be replicated down to District and local level. Examples of best practice should be shared (i.e.: circulation of contact lists, provincial disaster plans, list of international agencies operating in provinces, contact lists and SOP’s). Reinforcing Section 17 of the Act, that the Director NDC works with Provincial Administrators to support the development of efficient and effective disaster preparedness and response arrangements and foster leadership at the provincial level with national level support. Priority should be given to strengthening the linkages between the NDC and the Provincial Disaster Committees and Coordinators to ensure that appropriate guidance, tools, mentoring and expertise are shared. Consideration should also be given to developing a National Professional Development programme for Provincial Disaster Coordinators to ensure that consistency develops across the sector. Development partners can support these activities. In times of disaster, the staffing of National or Provincial EOCs has to be expanded to include seconded staff from key National Disaster Committee members, cluster coordination groups and international partners including officers from Health, Mapping, Works, Defence, Police, etc. Consideration should be given to development of networks/regional support hub to facilitate support (response, preparedness) between provinces (for example, the role played by Morobe province during the recent Oro floods).
4. EMERGENCY RESPONSE SERVICES, STOCKPILES AND LOGISTICS
4.1. Police, Defense Force, Fire and Rescue Services
(a) Rationalisation of Emergency Services
A recent initiative proposes that the National Disaster Service, the Fire Service and the Ambulance Service combine under one Authority. It is proposed that this Authority – to be called the National Disaster and Emergency Authority – report to a new Ministry for Defence and Emergency Services. The proposal is based on the perceived need to foster better coordination between the three key response agencies, and to shorten the government’s reaction time through more decentralised decision- making. The need to elevate the political profile of the emergency services was also identified. The vision of the rationalized service is a combined elite, disciplined force committed to serving the people of PNG. GoPNG has not finalised the proposal electing to await the outcome of the Protocol process prior to committing to a decision.
(b) Police
The Royal Papua New Guinea Constabulary (RPNGC) is the national police force with jurisdiction throughout PNG. Each province has a Deputy Assistant Commissioner acting under the authority of the Commissioner. The Autonomous
22 Region of Bougainville’s unit of the Royal Constabulary is headed by an Assistant Commissioner of Police.
The RPNGC has an approved Corporate Plan for the period from 2005 - 2010.
Disasters create complex problems for the maintenance of law and order and the performance of standard police roles. By virtue of their day-to-day role and 24 hour availability, the police are frequently required to accept the initial responsibility at disaster scenes. Initial actions can include establishing a command post, cordoning and containing the area and gathering initial information. In response to man made emergencies they may also be involved in investigating the circumstances from a criminal culpability perspective. Coronial services and reporting to the coroner are also responsibilities of the RPNGC.
The RPNGC has experience in dealing with natural and man made disasters of various scales, however they do have a number of obstacles that restrict and inhibit their ability to respond effectively and efficiently.
In their Corporate Plan they have committed to provide Professional Development Training for all personnel and to a well equipped professional police service. The Code of Conduct is the tool to ensure that police discipline is maintained.
When a national disaster occurs a senior police officer is usually appointed as the deputy to the Controller who is generally a Military Colonel. If the disaster is man made then a senior police officer may be appointed as the Controller and the military as a deputy (see further discussion on controllers under “Defence Forces”).
A number of Senior Officer’s have qualifications at high levels, including University Degrees and some have attended officer and other police related courses off-shore. At the recruit level, basic training is a six month program with a probationary period of two years. During that time there is no formal exposure to any disaster management education.
The RPNGC have some documented internal contingency plans in place and during disasters they develop Operational Response Plans in isolation of the other response organisations.
During response to emergencies and other incidents where the police, fire and ambulance and other agencies come together to respond there is no common incident management systems that provides for teamwork, common terminology, operating structures, integrated communications and a joint plan of action.
The RPNGC are identified in the current legislation as members of the NDC and PDCs. Links between the provincial disaster responders on the PDC’s and the police varies from province to province depending on the level of activity within the Committee. As a consequence inter agency planning, cooperation, coordination and importantly the building of sound relationships can vary.
The ability of the scientific agencies and the National Weather Service to provide information on warnings of possible emergency events has been identified as a weakness by the police. The provision of warning information to the police will 23 strengthen preparedness and provide lead in time for activities to be planned. Currently the RPNGC do not receive any form of warning information. They have a radio network that reaches to Police Stations at community level capable of being used within the police for warning distribution.
The ability of the public to contact the police during an emergency event by telephone or cell phone is also restricted. Currently the police do not have a national emergency telephone number or call center capable of receiving emergency calls.
The RPNGC have no ability to carry out Disaster Victim Identification procedures and there are no forensic services available in country.
Key Findings The RPNGC does not have in place formal training processes for preparedness or response in a disaster which impacts on effective and efficient response. There is no training on dealing with disaster victims. On occasions senior officers of the RPNGC and Military are appointed to the position of Controller, or Assistant Controller during nationally declared disasters. There is no specific professional development programme or opportunities linked directly to the Controller’s role in an emergency. There are no position or job descriptions with appropriate qualifications and competencies outlined. Appointment of a Controller and declaring a national disaster takes time, and the delay has a direct impact on the effectiveness of response activities. The RPNPC is not involved in inter agency pre-event planning, which leads to a lack of clarity of roles and responsibilities, uncertain information management and exchange; and confusion about command, control and coordination. Disaster Management and Response is not identified in the RPNGC Corporate plan as a core role of the police. The RPNGC has no capacity to carry out Disaster Victim Identification processes and have no in-country capacity for forensic services. That there is no Search and Rescue capability in PNG within the police. That there is no common inter-agency operating platform or mechanism for agencies that come together during incidents and emergencies.
(c) Defence Force
The Papua New Guinea Defence Force (PNGDF) has been activated to respond to emergencies of a national consequence and have played significant roles in response activities recently in disaster events in Oro, Aiatape, Rabaual and Morobe.
The Military Act 1962, s.22, provides that ‘the military at the request of the appropriate civil authority, the Defence Force or a part of the Defence Force, at the direction of the Minister, may give assistance to the civil power in the event of a civil disaster’.
The military involvement in emergency response includes the deployment of assets, including aircraft; both fixed wing and rotary, transport, marine vessels and manpower. Some of the military assets that are mentioned are out of service, which
24 reduces the capability and capacity of the military to respond. The Defence Force operates under its own command structure and has considerable experience in logistics management and distribution.
Approval to activate the PNGDF to respond and appointment of the Controller generally takes Parliament a number of days, leading to unnecessary delays that have implications for the affected population. Bureaucratic processes in times of emergency often inhibit resource deployment and assistance.
The Controller is often appointed from the Defence Force at the rank of Colonel, usually with a Police Assistant or deputy (and vice-versa). This appointment is based upon the experience of the appointee. Professional development and training is critical for key staff that are at the forefront of emergency response, particularly in the role of Controller. The appointed Controller may not have had the opportunity to work alongside those that are at the NDC and other support agencies. The role of the Controller is critical; it is also complex and demanding. It comprises a mix of coordination responsibilities - management, decision making, coordination and leadership.
Funding approval to support the deployment of defence force assets is also an issue. Prior to deployment a budget is required from the defence force which takes time to prepare and approve, and once the funding is approved by Parliament then it is made available through the Treasury to the NDC who have responsibility for disbursement. During past events the funding which has been budgeted for the defence force has not been paid to them as budgeted.
They have no trained Search and Rescue capacity, and on occasions have provided this service on an ad hoc basis, deploying soldiers with limited equipment and training to carry out search and rescue activities.
Recently the defence force have been involved in multi-national exercises with military from neighbouring countries - for example, Exercise Longreach, a biannual exercise based upon delivery of disaster relief and humanitarian assistance. Exercises of this nature contribute to effective response and the PNGDF are committed to continuing their involvement in future exercises of this nature.
Key Findings Clear coordination mechanisms are not in place between PNGDF and other DM stakeholders. Plans that are developed by the NDC do not include input or consultation with the military and there is no forward planning on how the two agencies will interact during emergency events. In turn leads to an inability to communicate effectively and exchange information. The roles and responsibilities expected of the Controller are not well defined (see issues above under Police). There is a lack of clarity with respect to NDC – PNGDF roles and responsibilities in coordination; PNGDF sees a strong role for itself in logistics coordination.
(d) Fire Service
25 The PNG Fire Service has the responsibility for fire fighting services – it is largely a responsive organisation rather than being proactive in preventing or preparing for incidents. Currently the service is composed of four stations in Port Moresby, ten stations in the provincial centres and a Fire Service College based in Gerehu. The response capability is limited to seven urban areas.
The Fire Service Act 1962 outlines the purpose and responsibilities of the Fire Service.
Despite having a dedicated staff and committed leadership the fire service is grossly under resourced and has significant challenges to overcome in its day to day operations. Examples include the inability to provide basic equipment, some stations are dilapidated, and have mal-functioning telephones or services which have been disconnected due to non payment of accounts. Radio communications are also limited and as a consequence Fire Service operational capability is ineffective and varies from station to station.
Key Findings The Fire Service Act 1962 has never been amended; it is now outdated and inadequate. The Fire Service has limited ability to provide some basic level urban search and rescue capability. It has specialised training in vertical ascent, and entry into enclosed spaces. It has equipment for forcible entry into buildings and vehicles, equipment for extracting people from collapsed and collapsing buildings. The Fire Service has developed in isolation some SOPs however partner agencies have not been involved in the development of key plans. There is little evidence of interagency exercises, whether table top or practical exercises. Volunteer involvement in the current fire service structure is nil and opportunities exist within the service for volunteers to be involved in fire fighting. The use of volunteers should be encouraged. Currently Fire Service training does not include disaster preparation or response activities. The Fire Service has embarked on a process to investigate international best practice for coordinated joint responses to incidents with other emergency services. This is a positive step and needs to be supported and continued with partner agencies. The Fire Service is also endeavouring to strengthening partnerships with key agencies and has been involved in the Emergency Services Rationalisation process (discussed below). PNG Fire Service lacks authority to deal with HAZMAT and subsequently has no capacity.
(e) St John Ambulance Service
26
The St John Ambulance Service is well organized NGO and provides a national ‘111’ telephone service capable of being called from any part of PNG, by mobile or landline. The operations base monitoring these calls has a 24/7 capability, answering approximately 17,000 phone calls per month. The base also monitors the National Health Radio HF Network system, consisting of about 2000 sites across PNG. The service also administers a newly acquired UHF trunk radio network for use by emergency services. St Johns also has an emergency services communications bus to enhance coordination of incidents. Regional operations centres are being established in Madang and Rabaul. The dispatch software is the same as that used by emergency services counterparts in Australia and New Zealand. The system enables use of Geographical Information System which provides for accurate GPS identification of each incident and operations vehicles.
Key Findings All funding for St John are drawn either from the government, donations or commercial activities, which include providing First Aid courses. The St Johns in PNG has experience in disaster response and in particular deployment to the Oro Cyclone Guba with a small team that supplemented the on the ground medical team. St Johns also recognise the need to provide support to those that are deployed to the scene of emergencies. This is a role that is often overlooked. The St Johns in PNG has very strong links and interfaces with the Queensland Emergency Services and Johanitter (German based organization). St Johns also participated as an active member in the recent Rationalisation Programme and is very supportive of the concept of a single commission to oversee the three agencies (Fire, NDC and St Johns). St Johns is also supportive of the need to establish a shared communications centre with the fire service. St Johns is also keen to invest in volunteers for ambulance services and to provide as part of the training package information on disaster management. The blockage to moving ahead with this proposal is funding. St Johns owns and operates the ‘111’ service in Papua New Guinea and funding is not available to progress the communications center to a shared facility with other emergency agencies.
Recommendations That priority is given to appointing dedicated controllers, at national and provincial level, prior to emergency events, and equipping them with
27 appropriate professional development opportunities and training including opportunities to participate and practice their roles in table top exercises (i.e.: International Humanitarian Law (IHL), Civil Military Coordination, Search and Rescue (SAR), logistics management, communications, HR and stress management, incident control). That a practical Controllers guideline is developed which contains a comprehensive overview of the role, job descriptions, person specifications, skills and competencies, roles and responsibilities, guidance on directing the emergency and the key relationships that a controller must develop prior to an emergency. As a priority RPNGC, Fire and St John Ambulance with support from the relevant government ministries must investigate the feasibility of implementing a single nationwide 111 emergency call system linked to a joint communications centre. That the RPNGC incorporate into their recruit training and general training programmes and structure learning modules that include hazard and risk management, preparedness and response, and dealing with victims of disaster. That the NDC lead a working group including the RPNGC, Fire Service, St Johns, and other government agencies with emergency response responsibilities to implement a common operating procedure for attendance at and emergencies. That the RPNGC establish arrangements with other international police agencies to facilitate the Disaster Victim Identification processes. That all emergency services take an active membership role in supporting and contributing to the establishment of Provincial Disaster Committees. That the PNGDF proactively contributes to the establishment of a multi- stakeholder logistics coordination group as also suggested in the draft DM protocols. That the PNGDF contribute to development of SOPs to facilitate the receipt and deployment of international military assistance during a disaster. That the Ministry of Intergovernmental Relations support the Fire Service in its endeavour to work towards further developing its Search and Rescue capability and that links be strengthened with the International Search and Rescue Advisory Group (INSARAG), Australasian Fire and Emergency Services Authorities Council (AFAC) and Pacific Island Fire Service Association (PIFSA). That GoPNG takes steps to ensure the Fire Service is adequately funded to provide at least minimum levels of service. That all emergency services are included in discussions regarding the establishment of new coordination structures as proposed in the draft Protocols.
4.2. Medical Emergency Services
Local hospitals, NGOs (e.g. Save the Children, CARE, Caritas, MSF), and faith based organizations are the primary providers of emergency medical services in disaster- affected provinces. Despite this, the Team found hospitals and NGOs to be understaffed and to lack supplies of basic drugs. There is, therefore, a dependence on external medical assistance in the event of a large-scale disaster. In previous cases this assistance has been sent from Port Moresby and/or internationally - the latter
28 most significantly through the Australian Defence Force (ADF). Medical assistance is generally delivered through the local general hospital or via a field hospital. For a range of reasons it tends to take some time to establish that a request for external assistance is necessary causing delays in mobilization of emergency medical services.
PNGDF, St John Ambulance, ADF, and commercial flight companies would all contribute to transportation of medical personnel and drugs to disaster affected areas. They also assist to evacuate critically injured disaster victims requiring specialist treatment not available at the provincial level. There are no standing agreements/arrangements in place with any of these providers thus assistance is sought on a case-by-case basis often resulting in delays in the provision of urgent medical care.
Coordination of emergency medical services among provincial/local governments, local hospitals and NGOs is not well established.
Key Findings Lack of logistics capacity (from Port Moresby to and within the Provinces) is the main obstacle to effective provision of emergency medical care during disasters. Provincial hospitals, in general, lack adequate numbers of staff and stockpiles of basic drugs and their resources already stretched even in normal times. Whilst it can generally be assumed that external medical assistance will be required during large-scale disasters, the time taken for an official request for assistance to be made delays mobilization. A system/plan for the transfer of critically injured disaster victims to Port Moresby is not well established. It is unlikely that all disaster-affected communities, especially women and people in the remote areas, can access medical services in the event of a disaster.
Recommendations NDCom, lead by MOH and supported by the IASC DMT, to map out the available stockpiles of basic drugs and medical equipment in PNG and the region (especially in Australia) for emergency response. Establish referral system for critically injured victims who require specialist treatment in Port Moresby or other countries, and transportation and procurement system for medical personnel and drugs in emergency situations, in cooperation with PNGDF, St John Ambulance, faith based organisations, ADF and commercial flight companies. Consideration should be given to recognize NGOs as an integral part of medical services and include them in coordination mechanisms.
4.3. Emergency Telecommunications
Communication systems are a critical element of any disaster management system. Agencies using emergency communications networks need to emplace effective technical support (including personnel) and a structured maintenance program. The testing of these systems as a part of broader disaster preparedness efforts is essential. Real-time information exchange between all responders to a disaster allows for
29 informed decision-making. It is essential, therefore, that communication tools used in disasters must be reliable and compatible across all responders.
In PNG there are numerous telecommunication systems for use by emergency agencies. Communication between national agencies is limited to land or mobile telecommunications. At the national level, communication between the NDC and PDCs is via the Health Department radio communications network. The NDC utilizes the Health Department Radio Communication Network to relay warning/forecast messages to the provinces during times of emergencies. PDCs play an important role in disseminating information to communities and national agencies during emergencies.
Key Findings Police and Health (including St. John Ambulance) have a telecommunication infrastructure based around HF radio. A limited number of PDCs have HF radio communications. PDCs are limited by the Radio Communications and the Disaster Centres operational hours (8am to 4pm working days only). There is no integrated incident management communication network across the emergency sector agencies. Communication Standard Operating Procedures and a NDC Communication Plan have been developed for disaster telecommunication and are currently in review.
Recommendations NDC, Health, St John Ambulance, PNG National Telecommunications Authority and Police to jointly review existing emergency communications infrastructure (including radio) for emergency purposes at national, provincial and district levels. The interoperability of these communication systems is critical. Following from the above, NDC, Health, St Johns and Police to investigate establishment of a joint 24/7 emergency communications network via the upgrading of existing infrastructure (creation of a 24 hour Provincial Disaster Centre). For example, main police stations in provinces are maintained 24 hours and could be utilized as after hours emergency warnings receptions. Establishment of an Early Warning coordination group (including media) that sets up joint 24/7 communications procedures for receipt, analysis and distribution of warnings. Suggested membership of this group includes: NWS (National Weather Service), the POM Geophysical Lab (POM GL), Rabaul Volcano Observatory (RVO), DGMP (Department of Geohazards and Mineral Policy), media organizations, St. John Ambulance, NDC and PNG Red Cross.
4.4. Management and Procurement of Emergency Relief Goods
Evidence exists that the management and distribution of relief goods during previous disasters in PNG has not been managed in a coordinated, cost effective and efficient manner. Gaps also exist in the manner in which goods are obtained.
30 Positive steps have been taken to address this problem with the development of a comprehensive draft Disaster Risk Management Procurement Policy that addresses the following: International and local humanitarian protocols as they relate to the provision of goods; Services in the relief and recovery phases of disaster risk management; Procurement practices that are timely, efficient, and cost effective and meet expectations; and Requirements of financial probity, key stakeholders and the public interest.
The Procurement Policy is aligned with requirements of the Sphere Standards, Finance Act of PNG, and principles outlined by the Central Supply and Procurements Board of PNG.
The NDC has accepted the responsibility for implementation of the policy.
Key Findings The draft Procurement Policy is comprehensive and addresses the key requirements for the Management and Procurement of Emergency Relief Goods.
4.5. Logistics: (air)ports, warehouses, stockpiling
The Team could not identify a central point within GoPNG for logistics coordination. However, many partners identified logistics as a key bottleneck for effective disaster response. Logistical arrangements at airports and ports for emergency relief are limited throughout the country. Most landing strips in the Provinces are small and would likely be damaged by C-130s or other large aircraft landing there. Should this occur, there is no capacity or allocated funding to rapidly repair landing strips.
The PNGDF has a limited number of fixed wing and rotary air assets located in Port Moresby. A number of air assets are not in a serviceable state. There are a small number of naval assets co-located between Port Moresby and Manus Island.
Key Findings Logistics is a major bottleneck to effective disaster response. Improved logistics coordination is of critical importance. There is no inventory of locally available equipment that could be used during a disaster event.
31 All military assets are hindered in their use due to cost of operation and lack of disaster financing. At national and provincial level there is little or no pre-positioning of supplies prior to the rainy season or in disaster-prone areas. There is no liaison or coordination between the national and provincial agencies for the management of relief supplies. There are no standing arrangements with private logistics providers.
Recommendations Establishment of a Logistics Coordination Group including: NDC, PNGDF, Health, private sector (including aviation), Ministry of Works (Restoration Coordination Unit), civil aviation, port authority and international partners. As a priority the group should develop TORs and establish a lead agency. NDC, with IASCD DMT support, to establish a database outlining locations in which NGOs, Red Cross and other International partners have pre-positioned relief supplies.
4.6. Water and Sanitation
PNG is blessed with abundant rainfall, being situated in the tropical rain belt between 2o-20o south of the equator. Rain can occur at any time of the year, but is generally lower from May to October. Water harvesting the most common rural water supply system in use, followed by some gravity fed systems, with groundwater wells the least favoured. The terrain in some areas is very steep making access to streams arduous. Gravity fed systems are vulnerable to sedimentation and contamination during floods, and microbiological pollution for those in the lowlands from upstream catchments developments and habitation is a problem.
Water systems are easily contaminated as a result of volcanic eruptions and tsunamis. Prolonged drought events, such as the 1997/98 ENSO event, have resulted in water shortages with rivers and creeks drying up. Parts of the country, namely Ports Moresby, are seasonally dry with drought being experienced on a number of occasions.
In rural areas, Provincial Health Departments approve water sources and supply systems, whilst the construction works for those supply systems are managed by the Public Works Department. Communities are then expected to manage their own water supply systems. However, there are no water quality monitoring programmes in place nor is there a concerted effort to raise awareness in water supply sanitation issues amongst the community. Poor sanitary water supply systems provide a breeding ground for mosquitoes and create unhealthy situations where micro-biological contamination from wandering animals, decaying organic matter and human habitation in the upper catchment areas are an issue. In municipalities in towns, the Water Board has the responsibility water supply systems.
As a public health measure, the Eastern Highlands recently started distributing mosquito nets as part of a national drive to stamp out malaria. Diarrhea and typhoid are other prevalent epidemics in the country that good sanitary water supplies will help address.
32 Key Findings There is a need to consider preparedness and risk mitigation measures to protect the local water supply. There is currently no adherence to the widely accepted Sphere standards for water supplies. There is little documentation existing with NDC and the Ministry of Health regarding good preparedness measures to safeguard water systems and sources. These measures could include (a) rainwater harvesting – first flush provisions or sieving in roof catchment systems to stop salt and biologically contaminated water flowing into tanks; (b) raised lips and covers on wells against sea swells; (c) detachable down pipes to protect from volcanic hazards water already stored waters; (d) structurally strengthened tank platforms and dams in earthquake prone areas and (e) community training in disinfecting stored water in tanks. To better prepare communities against epidemics of water borne diseases, there is a need to raise awareness on water supply sanitation issues, particularly given the use water tanks continues to increase.
Recommendations The Provincial Health Departments and Water Boards should research and disseminate good practice on protecting water supply systems against disasters. The Provincial Health Departments and Water Boards should promote water security in communities through the identification and development of multiple sources of water and its prudent management (including rainwater harvesting). Strengthening coordination between PDCs and NGOs is essential to increase awareness on safe water and sanitation and to develop practical water quality monitoring and water conservation at the community level. In addition to the above focus on increased awareness, minimum preparedness should be in place through relevant minimum stockpiles for ready response during disasters opf water containers, water purification tablets and equipment, trained personnel, guidelines, etc.
4.7. Shelter
In many provinces, the general standard of housing is very basic and highly vulnerable to disasters. A number of regional and international organisations are providing information and guidelines to give decision makers, town planners, architects and engineers better baseline design information, such as SOPAC, UN Habitat, Habitat for Humanity, IFRC, UNOCHA, UNCRD. In addition to these general resources, local disaster managers should rely on historical records and past knowledge on safe and sustainable building practices – passed down through generations and more recently from disaster to disaster.
In provinces visited by the teams there are no plans for alternative shelter in the event of disaster other than stockpiles of tarpaulins. In some provinces, Provincial Disaster Managers indicated that certain buildings had been identified as temporary camps or care centres in the event of disaster, but no concrete preparedness plans were in place.
33 In Bougainville, there are plans to build shelter for those families that are relocating from low lying outer islands, such as the Carterets.
With regards to building control, provinces have building boards in place, under the administration of the Ministry of Works. The building board is responsible for the issuing of building permits and the Ministry of Works is responsible for the inspection of buildings. Reference had been made to the Building Act 1942 but this was not readily available at the provinces. In the observation of buildings currently under construction there are no signs of any building control in place.
Recommendations As part of minimum preparedness planning and dependent on local scenarios, PDCs should: o map out the available and necessary construction and shelter materials for immediate relief following disasters, based on risk maps and vulnerable populaitions, such as volcanic areas, atoll islands. o At these locations, PDCs to already agree on basic designs and identify available skilled carpenters and macons. o Identify and pre-negotiate the availability of land with (traditional) land owners, where relevant.
4.8. Protection
The Team found that many stakeholders consulted did not have a good awareness of protection issues in emergencies and that the issue had unfortunately not been afforded high priority in previous emergency response operations. However, it is common that human rights abuses, protection issues as well as gender based and domestic violence increase following a crisis situation. While not properly documented, there is a lot of anecdotal evidence that these are serious issues in disaster situations in PNG as well. In these situations, it is not clear the extent to which the particular vulnerabilities of women and children have been addressed. Nor is it clear whether women are adequately incorporated in decision making processes – particularly at the provincial and district level. However, given the above and the general high levels of (gender based) violence in PNG, it is important that protection becomes an area of attention for disaster managers. Also, given the cultural diversity in PNG there are bound to be tensions between various groups and clans both during emergencies as well as the response phase afterwards, especially when land and compensation issues come to play.
A good example from the Cyclone Guba lessons learned exercise is the recommendation that Care Centre Leaders be trained in Care Centre Management and the use of the Sphere Guidelines. The various disaster management stakeholders in 34 PNG would benefit from this training, including relevant GoPNG stakeholders. This could include incorporation of protection issues in relevant guidelines / SOPs.
Key Findings Very limited awareness of protection issues in emergencies exist amongst disaster management stakeholders in PNG. There is scope to raise awareness of key humanitarian guidance documents that address protection issues including the Sphere Guidelines and Good Enough Guide.
Recommendations The Department for Community Development (DCD) should be incorporated into disaster management structures and plans to provide guidance on protection related issues at the national, provincial and district levels, including police and Village Courts, in response and Contingency Planning. DCD District Welfare Officers should be focal points for provision of protection services in emergency response. They can be supported by relevant UN agencies (UNICEF, UNOHCHR, UNHCR, UNIFEM, UNDP) and NGO’s such as Oxfam, World Vision, CARE, MSF and Save The Children. Police at community level, as well as other key disaster managers, should be trained on protection in emergencies. The above organisations could support this. The proposed capacity building of the DCD by the UNICEF Asia Pacific Service and Support Centre, which includes knowledge building on the core commitments for children (CCC) for child protection, should be incorporated into NDC planning.
4.9. Relocation and displacement
Several provinces (e.g. Manus, Madang) and Bougainville are involved in relocation programmes where people displaced by natural disasters (volcanic eruption, sea swells, landslides, and other disaster and climate related events) are relocating from outer islands to the mainland or main island. For instance, both the ABG and NGO and Catholic Church have started an initiatives to identify land that can be used for resettlement from the Carteret’s and other atoll island groups.
Key Findings Without exception, relocation and recovery processes are extremely complex as issues such as negotiations regarding land and resource access with landowners, livelihoods, protection, safety and security require lengthy, inclusive and sustained involvement of stakeholders to come to a durable solution. There is currently no established authority or institution that can provide guidance and advices or exchange experiences to government agencies or non- government initiatives dealing with relocation. There is an expectation that in the immediate future there will be more instances where populations will need to be relocated because of disasters and climate related events.
Recommendation
35 With the knowledge that sustainable solutions to relocation cases have already proved difficult and the expectation that with climate change these issues become a daily reality in many parts of PNG, and building upon the experiences from current relocation exercises as for instance in Manam, Manus and Bougainville it is recommended that GoPNG creates a high level multi-disciplinary advisory group consisting of specialists on legal, humanitarian, lands, protection, livelihood, hazards, climate change issues to map out a strategy that can deal with these complex issues. International development, humanitarian and academic partners should support this. From this partnership, a first priority is to develop guidelines and best practices around disaster induced relocations.
4.10. Food Security
At least 80% of PNG’s population live in rural areas with a subsistence style livelihood steeped in traditional customs. Cash crops are predominantly coffee, cocoa, copra and palm oil, produced through small farm holdings. Livestock is not practised on a large scale, but as small family units.
Shifting cultivation is widely practiced in the higher altitudes for the production of staple food crops - mainly sweet potatoes and bananas. This exposes large tracts of very steep slopes to erosion and weakening of substrata, as a result of which slope failures and landslides are now frequently occurring and have become major hazards. Sago is the staple food in the wet lowlands and coastal areas - the increasing frequency of flood and the consequential damages on sago plants place at risk this staple food. In other areas staple foods include breadfruit, yams, banana, cassava, taro and other root crops. These are all liable to severe damage if affected by natural disasters.
GoPNG recently restructured the Department of Agriculture and Livestock (NDAL) with extension services decentralised to the Provinces, and quarantine services reformulated as NAQIA. The NDAL now only provides technical advice through its regional, provincial and district offices. With little resources and lack of capacity in the Provinces, extension services have also generally weakened.
Decreasing soil fertility is a big issue with shifting agriculture practices now supporting a growing population. More farms are also practising plant-intensive
36 systems. Some areas of PNG are also very vulnerable due to low soil fertility where people cannot rely just on subsistence farming.
The National Agriculture Research Institute (NARI) has its own mandate for applied research on food and livestock, and has established its own regional and provincial offices. Its research programmes focus on agricultural systems that are best suited for each of the key ecosystems in the country (namely, Highland, Lowland, Dense Tropical Forest, Wetland / Swamp, Savannah grassland). NARI also carries out applied research into strengthening disaster resistance of staple crops, focusing on basic preparedness measures - seed distribution, planting timing etc. NARI is also promoting rice production that serves to spread risks associated with food security, as rice can be stored over long periods.
Some NGOs such as CARE International are developing community-based food security programs – these are not, as yet, being progressed in partnership with GoPNG.
Key Findings Traditional subsistence farming practices are now under pressure, with more people likely to turn to relief food supplies during disasters. Unsustainable land conversion and land use practices, as well as changing rainfall patterns, are likely to induce more slope failures, landslides in upstream areas, and sedimentation and floods in the downstream areas. Agriculture extension services are very weak, and this could lead to an increasing risk of food shortages should a disaster occur, particularly in inaccessible remote areas. There is a need to promote food preservation techniques to assist provinces cope with storing food supplies in disasters, while simultaneously being commercially viable. There is a need for contingency planning to ensure seeds and planting materials are available for all staple foods of the different ecosystem regions of PNG in order to assist communities in disaster affected areas to meet their food needs and recover in the long run. Recent disasters, resulting in flood waters and contamination, have had a considerable impact on agriculture crops - for example, the impact of coconut growing in Rabaul. . Recommendations NDC, in collaboration with NDAL, NARI and other relevant agencies, should research and disburse information on food security preparedness practices suiting the various ecological regions and hazard risks. These aspects need to be included in NDC and PDC contingency plans. The outputs and outcomes of NARI’s programmes need to be better aligned and coordinated with those of NDAL. NDAL and NARI need to explore revamping the current arrangements to improve domestic food security preparedness and stockpiling of essential planting material that can be distributed to disaster-affected communities. PDC and Provincial Administrations should co-opt provincial Chambers of Commerce into the Provincial Disaster Committees in order to develop an inventory of available food stock for emergency food supplies.
37 4.11. Environment
The work of the Department of Environment and Conservation (DEC) is mandated under the Environment Act of 2000, which amalgamates earlier environmental-related laws such as the Water Resources Act and Environmental Contaminants Act.
Three programmes make up the DEC: o EPA: Environmental Protection Agency o SEP: Sustainable Environment Programme o PCE: Policy Coordination and Evaluation
DEC’s activities under the above programmes are decentralized to some of the provinces in the form of local offices in the Provincial Administration (for example, Goroka and Western Provinces). Some provinces have their own environmental units (for example, Eastern Highlands, East and West New Britain and Morobe)
The key activity of the DEC is carrying out environmental impact assessments (EIAs) on development projects. Mandated by law, EIAs have to be carried out for all major LLG projects using information drawn from project proposals and feasibility studies. Scientists from DEC usually carry out the EIAs for projects classified as Level 1 (minimal impact) and Level 2. For projects classified as Level 3 (high environmental impact, from activities such as mining), DEC utilizes services of third party consultants to gather data and process it to make an informed decision on the EIA of the project. Final project approvals are provided by the Environment Council, a multi- stakeholder body consisting of a wide range of individuals, and chaired by the Secretary of DEC.
Key Findings Provincial Administrations can request the assistance of DEC to carry out environmental assessments of projects being undertaken in their provinces. For example, the Cement Works and Warf projects in Lae city were assessed by DEC at the request of the Morobe Province. DEC has carried out water pollution monitoring and river sedimentation assessment in different parts of the country. DEC has guidelines for EIAs on general development projects, but these do not specifically deal with disaster events. DEC does not, also, carry out Rapid Environmental Assessments (REAs) as a disaster response service. DEC has a division on Environment Science and Information Data Management that collects data on the environment. This data, if comprehensive and current, can be a key resource to gauge the state of the environment in the country, and can form a baseline for reference in disaster management plans. DEC’s advocating of ‘Environmentally Sustainable Economic Growth’ is a step in the right direction, focusing on environmental protection, optimal resource use and the poverty nexus.
Recommendations There is a clear need for coordination between NDC and DEC to incorporate the environmental precedences and consequences of disaster events. This
38 includes (a) rapid environmental assessment tools, and (b) community outreach programmes. DEC, in collaboration with disaster centres at the provincial level, should initiate monitoring of environmental degradation in order to map underlying risk factors and to develop appropriate response mechanisms. Risks posed by toxic and hazardous materials used by factories and private sector entities need to be inventorized and contingency plans put in place for proper response. DEC, in collaboration with NDC and PDCs, should adopt its guidelines for EIAs to be used to specifically assess environmental damage during disasters and create appropriate response mechanisms.
4.12. Information Management
In emergency situations, information is a critical element of the coordination and decision making process - a unified, coordinated and systematic approach to data collection is therefore critical. Despite this, there is no unified system of collection, analysis, prioritization and distribution of information in real time for decision making in the event of disasters, nor are there adequate mechanisms for distribution of information to the press and general population. As mentioned in the Information Management review carried out by the OCHA Regional Office for Asia-Pacific, there does not appear to be an integrated use of baseline data and assessment data, nor commonly agreed indicators to define humanitarian needs, nor consistent use of the findings within the decision making process.
There is recognition within the emergency management community that information management is becoming increasingly diverse and that systems are necessary to facilitate information access and sharing. Governments and communities increasingly expect support to be provided in a variety of circumstances and access to emergency management information is integral to this. In the preparation and response to disasters, skills and knowledge no longer sit within one organisation, requiring ever greater collaboration across sectors.
Key Findings In meetings with government, the UN, NGOs and donors there was a universal recognition that information in the Oro flood operation was insufficient to effectively support the response, and that many of those gaps remain today. There does not appear to be an integrated use of baseline data and assessment data, nor commonly agreed indicators to define humanitarian needs, nor consistent use of the findings (as during the Oro floods) within the decision making process. There is a lack of information management capacity in many bodies involved in disaster response, including the NDC, PDCs and UN country team. There are many resources available within government but are only partially exploited for disaster management. Papua New Guinea has many of the baseline datasets that have been used successfully in other operations worldwide to manage the initial phases of a relief operation. These include geographic data standards (often referred to as ‘pcodes’), population data and digital map data.
39 Recommendations Based on the finding of the UNDAC mission and the recommendations outlined in the Report from the OCHA Regional Office for Asia Pacific: A strategy for enhancing information management within the disaster response community is developed, that establishes overall aims and activities and establishes roles and responsibilities for government, the IASC DMT and other non-government actors. This could be jointly undertaken by the NDC and UNDP through existing and planned information management expertise, with additional support from OCHA as needed. An Information Management Working Group (IMWG) be established to provide a forum for government, development and relief agencies to agree upon authoritative source for standardised datasets and information tools relevant to disaster preparedness and response including baseline data, spatial data standards (pcodes), assessment mechanisms, contact directories, meeting schedules, Who-What-Where (3W) data, and harmonised reporting and monitoring systems. In Papua New Guinea the working group could include technical information management personnel from such agencies as the NDC, NSO, NMB, University of PNG, PNG Red Cross, UNDP and UNICEF. The NSO and NMB to develop baseline datasets and spatial data down to the community level for use by the NDC. In the event of an emergency, technical staff from the NSO and NMB to be seconded to the NDC (NEOC) and relevant PDCs to provide support with data collection, management, analysis and mapping. The NDC to discuss possible areas of cooperation with the University of Papua New Guinea, including the Centres for Remote Sensing (RSC) and Disaster Reduction (DRC), which could include development of baseline datasets as described above, hazard and risk analysis, secondment of technical expertise during emergencies to name a few. The NDC to lead development of rapid assessment formats to gather baseline data in the event of common emergencies (floods, earthquake, landslides, etc.), with support from NSO, OCHA and others. Information management capacity within the NDC and PDC structure should be expanded to ensure future operations see an improvement in the quality and timeliness of data to support decision-making. Thought needs to be put in how to utilize the 2010 census and consideration given on how to use the census to develop information tools of use for preparedness, disaster management, early recovery and development.
5. EARLY WARNING PUBLIC INFORMATION AND EDUCATION
5.1. Early Warning and Contingency Plans
In PNG there are multiple disseminators of emergency warnings. The Port Moresby Geophysical Observatory (PMGO) and Rabaul Volcano Observatory (RVO), both under the Department of Geohazards and Mineral Policy (DGMP), are responsible for the dissemination of earthquake and volcanic emergency warnings/forecasts. The National Weather Service (NWS) is responsible for general weather forecasts for both land and sea (including cyclones).
40 (a) Monitoring and Early Warning
Considering that PNG is an active region for hazards such as earthquakes, tsunami, volcanic eruption and tropical cyclones, its technical monitoring agencies are lagging behind in terms of (a) existence of sufficient basic monitoring instruments, (b) human resources with required technical expertise; and (c) a reliable communication network.
The PMGO, responsible for monitoring earthquakes and tsunami, has only one instrument installed to detect earthquakes for the entire country. Ideally, at least three such instruments are required for location of earthquake hypocenter and calculsation of earthquake magnitude. PNG currently relies on the international seismic network for location of earthquakes and tsunami warnings [through the Australia Tsunami Warning System (ATWS), United States Geological Survey (USGS) and Pacific Tsunami Warning Centre (PTWC)]. There is an ongoing project in partnership with SOPAC (under the European Union funded programme, EDF 9B Envelope) to upgrade the seismic monitoring network with plans to increase the number of seismic instruments to 10 by the end of 2009. This will significantly improve PNG’s capability to detect, immediately plot and accurately locate local inland as well as offshore earthquakes. However, maintaining operation of this network of instruments once installed will require continued, committed financial support from GoPNG.
The Rabaul Volcano Observatory (RVO), responsible for monitoring all 14 active volcanoes is faring better. RVO, as the central volcano monitoring station, is equipped with a sufficient seismic monitoring network around the Rabaul area. In addition, it is to a limited extent able to monitor other volcanoes and has observatories in 8 volcanoes. All these observatories are directly linked with RVO via HF radio and RVO transmits to NDC and other relevant agencies via internet, SMS and fax. But most monitoring is still limited to 1 seismic instrument per volcano, with the exception of Mt. Bagana Volcano Observatory (Bouganville) which has no seismic instrument at all. The RVO volcano observatories still rely heavily on visual observation. No other monitoring parameters are regularly measured. Volcanic hazard maps are in existence but the scope of distribution to local governments and extent of their use by the intended recipients in not clear or is not evident at the Provincial level.
There are Alert Level Stages devised by RVO in the event of heightened volcanic activities used at Rabaul. It is not clear, however, if other provinces are familiar with or have been oriented with the Alert Level Stages and whether these have incorporated in the Province Disaster Management Plans (if they exist). There are hazard mapping activities conducted for most active volcanoes but the maps seem to be not readily available to the public.
The PNG National Weather Service (NWS) is responsible for keeping track of the daily weather situation in the country. It is responsible for tracking cyclones but does not have the weather radar necessary to make accurate forecasts. Currently there are 14 stations in 12 provinces. There is a proposal to establish NWS sub stations in the 8 remaining provinces. The agency communication system is linked with NDC via radio. In collaboration with POM GL and NDC, the NWS operates 24/7. Its communication system is used to relay information received from the Australian Tsunami Warning System (ATWS) for earthquake and tsunami information. The 41 NWS lacks the capacity to undertake flood forecasting. A watershed and river basin approach to assessment and establishment of a flood early warning system (wherein communities in the identified areas can participate) has not been explored.
Communication flow for the distribution of early warning information is not clearly established at either the national or sub-national levels. Written SOPs and communication flow schemes are being drafted at the national level. These should clearly define how information including advisories and warnings from monitoring agencies are disseminated to NDC and from NDC to the various levels of the government until it reaches the intended recipients. Currently available communication systems are via internet and SMS which are not sufficient during emergencies. It is not clear how well emplaced the HF radio connection between technical monitoring agencies and the provinces – down to the districts – is. The Health Department has a stronger communication set-up via HF radio that covers the entire country.
Although there is a rapid expansion of SMS providers, caution is required before depending too heavily on a bulk SMS system for EWS. Past disaster experiences (including cyclones and volcanic eruptions) have shown them to be unreliable and prone to system breakdown during emergencies. The NDC should have continued uninterrupted links via HF radios with the provinces in times of emergencies. It is still better to have redundancy in the system (such as maintaining HF radios) as these are more reliable when it comes to communication during emergencies.
Key Findings There is no local system in place to monitor local earthquakes that could generate tsunamis. The NWS has no equipment to track and forecast severe storms. There is no flood forecasting system for major river basins used in tandem with community-based flood EWS. Assessing the status of any volcanic activity will be very difficult with given limited baseline monitoring data. Insufficient communication systems exist at all levels; they are disjointed and do not have capacity to disseminate timely advisories in support of a multi- hazard EWS. There are hazard maps generated by different agencies but these are not readily available; there is no identified central repository for relevant disaster management information and tools. There is emerging reliance of national and sub national levels on SMS and internet to relay information - this is not a reliable system in times of emergencies. Most have expressed that it is expensive to maintain repeater sites for HF radios.
Recommendations There is need to assess and develop strategies for a long-term, phase by phase upgrade of earthquake, tsunami, volcano and hydro-meteorological monitoring (including monitoring hardware, communications, human resources and sustainability) to enhance the quality of scientific technical information generated by agencies such as the Geohazards Department (RVO and POM GL) and the NWS.
42 With the upcoming/anticipated installation of seismic monitoring instruments (10 sites distributed all over PNG through the EU EDF 9 funds for 2009), the Department of Geohazards and Mineral Policy needs to make provision for funding to maintain this 10-site network in succeeding years. Coordination between NDC, NWS and the DGMP should be strengthened and processes (including SOPs) for emergency warning dissemination need to be developed. While the national level is establishing its EWS system, local governments and districts should partner with development partners to be able to establish community-based EWS for the different hazards when applicable. Priority to be given to support the upgrading of monitoring network of RVO and volcano observatories under it. This is to support its role for effective volcano emergency warning dissemination. As a priority, the NWS should be supported in upgrading of forecasting infrastructure to track severe storms in PNG. This infrastructure aligned with effective emergency warning dissemination is an effective means to prepare communities and lessen the impact of severe storms.
(b) Contingency Planning
On the national level, NDC and OCHA are leading efforts to develop an inter-agency contingency plan. A document drafted in 2008 is available, but this has not been approved and adapted for operations.
In most of the provinces visited there is lack of written contingency plans. Of the five provinces visited during this mission, only the Northern Province has managed to produce a disaster management plan (May 2009). This plan is in draft form however, and is yet to be approved. For provinces that have disaster preparedness plans (i.e Rabaul, East New Britain) contingency plans also need to be updated on a regular basis to take into account the impact of recent events. There are some provinces that have used available hazard maps for DM planning. Detailed hazard studies would allow for development of hazard maps which could underpin contingency planning, preparedness and response.
Key Findings Indicative and detailed hazard maps for PNG are not currently accessible - this information is important for contingency planning. Contingency plans are generally not available at the sub-national levels.
Recommendations The NDC, together with technical agencies, should facilitate development of indicative maps of various hazards that are shared with the provinces. This should in time be supported by detailed study of hazards present in specific regions and areas. Hazard maps should be the basis to come up with reasonable scenario-based contingency plans at the province.
5.2. Preparedness Measures in Place
People at risk from disasters can take actions that save lives, reduce losses, speed up response, and reduce human suffering when they receive accurate warnings in a
43 timely manner. Early notification allows time for readiness, and provides time for communities and authorities to prepare for or take actions in relation to the potential or actual event.
To be effective, warnings must be supported by plans and processes that are widely distributed, people-centered and understood by those stakeholders and communities that have a role to play in responding to the warnings.
Key Findings No evidence exists that there are procedures, plans and processes in place for the dissemination and receipt of warning messages from the national to the local level, including evacuation planning and care centre establishment when warnings are issued. Hazard knowledge and consequence of hazard events at the community level is low which leads to very low levels of motivation for preparedness planning and action.
Recommendations The Early Warning Coordination Group (see chapters 5.3 and 6.1.a) develops a national level warning plan, which supports Provincial Disaster Committees to develop provincial level warning plans that outline lead agency responsibilities, dissemination processes, stakeholder roles and responsibilities for actioning warnings and testing procedures, evacuation processes and care centre establishment.
5.3. Public Information
NDC produces information materials to increase awareness and preparedness but the extent of distribution of these materials is limited. Some provinces have available hazards maps that can be used for their DM planning
RVO has produced many information materials about specific active volcanoes. There are some localized information campaign activities - lectures in schools and communities and distribution of posters and pamphlets about various hazards, specifically those initiated by RVO in provinces with volcanoes and to some extent, for tsunami by POM Geophysical Laboratory in partnership with NDC. But the extent of coverage of these activities and what actions communities took after they received the information materials could not be ascertained. The NWS is also engaging in information and education activities but on localized levels. The NWS also has its own program on awareness about meteorological hazards for students and teachers.
There is lack of coordination regarding availability and
44 accessibility of baseline spatial information (base maps with locations of elements at risk as well as major lifelines, various hazard maps, segregated census data). Various hazard maps are currently available in the different government agencies and other organizations but not all entities are aware of what are available. The maps are not readily available in the provinces.
Key Findings No systematic national program or information campaign exists to increase awareness and preparedness about all hazards. Each mandated agency is undertaking information activities in isolation. The role of education in raising the awareness of and preparedness for potential hazards is not recognised. The Department of Education is not a prominent player in increasing disaster awareness and preparedness among students. There is no national system for management of information relevant to DRR. There is a need to strengthen linkages amongst the National Mapping Bureau, NWS, POM GL and RVO.
Recommendations A coordination group should be established including Health, Fire Bureau, National Weather Service, Rabaul Volcano Observatory and the POM Geophysical Laboratory. Education, and other relevant agencies should develop a national program that is multi-hazard in approach and aims to increase public awareness and the collaboration of all technical agencies in support of the NDC. The Department of Education, through the schools, should be tapped as a major player in increasing awareness and preparedness through injecting topics into school curriculum.
5.4. Education
Education is not compulsory in PNG and it is difficult to gauge what percentage of children in PNG currently have access to education as the census data is not updated. Education is not free and is only partly subsidized by the national government, and parents still have to pay a certain amount if they send their children to school.
There is huge opportunity for PNG to tap the education sector in ‘building a culture of preparedness’. There are localized initiatives in some provinces to include hazards topics in school discussions (i.e. information campaigns in the form of lectures and distribution of information materials conducted at various schools in the southern slope of Mt. Bagana initiated by RVO and ABG). But at the national level, there is little evidence to suggest that DRR is already being mainstreamed in education.
Key Findings At the national level, the education sector has not been an active participant in hazard awareness and preparedness activities.. The level of participation of schools in hazards awareness and preparedness campaigns varies widely from province to province.
45 Recommendations GoPNG should mainstream DRR into school curriculum as part of the new MTDP. Where possible, resources and lessons should be drawn from other initiatives around the world (UNICEF, UNESCO, UNISDR, SOPAC, and other relevant agencies). Distribution of disaster-related information materials to schools should be undertaken to increase hazard awareness and preparedness.
6. MANAGING INTERNATIONAL ASSISTANCE, RESPONSE MOBILISATION AND ALLOCATION
A number of disasters experienced in PNG, including the Aitape tsunami and recent Oro floods, have overwhelmed national response capacity. The international community, including donors, UN agencies and NGOs have played a substantial role in assisting the GoPNG to respond. As a result of the many challenges outlined throughout this report, this will continue to be the case for some time.
The international community has established a wide range of mechanisms to assist disaster-affected countries including the UNDAC system and the network of INSARAG. Whilst a reasonable awareness of the UNDAC system exists at the national level and in some provinces (as a result of previous UNDAC missions) GoPNG is not part of the regional INSARAG network nor the international Civil-Military Coordination network.
The NDC is the focal point for international assistance but does not appear to have well established links with the international community; this is also true of some PDCs. This contributes to many of the coordination challenges faced during emergencies; one anecdote provided to the team indicated that GoPNG and NGOs distributed relief items to the same disaster-affected communities and neglected others through lack of basic knowledge of ‘who does what where’. In many provinces, NGOs are not required to register or report on their activities; not only does this contribute to a lack of coordination, but also results in a lack of awareness of NGO capacity and thus underutilization of NGOs by GoPNG during emergencies.
As national focal point NDC bears responsibility for preparing and distributing an official request for assistance to the international community. The request must first be approved by MFA and the PM’s office – the time involved in doing so means the request is often communicated by word of mouth with the more official letter to follow later. Despite this, delays in mobilizing international assistance are often experienced. Further, the difficulties faced in obtaining timely and accurate information from the field hampers NDC’s ability to communicate to partners a clear picture of impact and priority needs.
46 There are no formal procedures to receive and integrate international assistance into nationally-led response efforts. There is limited awareness of general principles and best practices of domestic facilitation and regulation of international disaster relief and initial recovery assistance, including the International Disaster Response Guidelines (IDRL Guidelines, Annex 5).
Issues of registration and legal status, including designated aid status, of foreign missions and international organisations and UN agencies are addressed in Aid status law, diplomatic immunity laws and individual agreements. The process for obtaining legal status for foreign entities depends on the nature of the entity itself. Current mechanisms are not designed for disaster situations.
Migration act and visa arrangements do not have provisions for humanitarian personnel arriving in disaster situation. They depend on nationality of the individual or the legal status of an organisation already in-country they are affiliated with.
Customs and tax laws, in addition to the above mentioned laws and agreements, provide for exemptions for goods imported for the purpose of performing functions under an aid agreement and for non commercial purposes. These provisions are depending on the organisation concerned and do not directly address importation and re-exportation of relief goods and equipment. Also, the provisions do not cover expedited procedures in the event of a disaster. In practice this has lead to complex and frustrating situations where well established (international) relief organisations have not been able to provide humanitarian assistance.
During disasters, the Team found that some development partners were unclear of the division of responsibility between NDC and PDC as well as the various line ministries. Partners were also unsure as to who was in overall control of disaster response at a field level – the Controller or the PA. Such confusion could be easily clarified pre-disaster.
The NDC appears to provide some limited logistics (transport) support to international responders, however they are constrained by lack of assets – whether government owned, Defence or from the private sector. Large delays in transporting goods to affected provinces are regularly experienced, partly due to the geographic challenges of the country. Pre-disaster clarification by GoPNG of the logistical support partners can expect to receive would allow for earlier investigation of alternative avenues.
Key Findings Strong links between GoPNG and international DM Community do not exist resulting in poor coordination during disasters Little awareness exists about principles and best practices of domestic facilitation and regulation of international assistance. Limited procedures are in place for receipt of international emergency assistance. This appears to be dealt with in an ad hoc way. Development partners are unclear of division of responsibilities within GoPNG during disasters
47 Recommendations Streamlining of process for official request for assistance is necessary and SOPs for the acceptance and the receipt of international emergency assistance on a large scale should be developed by the Government. This should include expediting/waiving visas for humanitarian workers and facilitating customs and immigration procedures for foreign relief personnel and supplies, including international USAR teams. The GoPNG should be provided and familiarized with information on available international tools for disaster response, including UNDAC and INSARAG, and financial assistance (i.e. bilateral funds, international agency emergency funds, Central Emergency Response Fund (CERF)). A focal point should be nominated within the National Disaster Centre and specific procedures elaborated in advance for liaising with representatives of the international community. Increase awareness and knowledge among national and international actors of general principles and best practices of domestic facilitation and regulation of international disaster assistance. Arrangements for receiving and regulating international assistance to be reviewed and integrated into new and existing laws and regulations of relevant sectors.
7. CONCLUSION
The UNDAC team is of the opinion that the new draft Protocols on Disaster Management in PNG are a major step towards creating a framework which is needed to protect the people of PNG should a sudden natural disaster strike. What is needed as a priority, is a harmonization of existing disaster management legislation, clarification of roles and responsibilities of the key disaster management actors, increased collaboration and coordination both within the GoPNG and between GoPNG and non-government players and concrete and actionable SOPs to guide actions and activities laid out in the overall DRM framework.
It is also crucial that GoPNG is committed to implementing follow-up actions that involve all relevant stakeholders in Disaster Management, including a coordinated interaction between Government entities involved in disaster management, UN Agencies, NGOs, technical institutes, universities and the international disaster response systems.
The UNDAC team has no doubt that, considering the commitment of the GoPNG in establishing a functional disaster management structure in PNG; this can be achieved in a relatively short period of time.
From the UN side, UNDAC will ensure there will be a follow up mission in approximately one year’s time to review the recommendations. In the meantime, the OCHA office in PNG as well as the OCHA Regional Office for Asia Pacific and the Regional Disaster Response Advisor based in Fiji will closely monitor the process regarding the implementation of the recommendations and serve as focal points for NDC and partners.
The UNDAC team expresses its sincere appreciation to all national institutions, United Nations bodies and non-governmental organizations for all the support provided during the mission. The team wishes to convey its particular appreciation to the National
48 Disaster Committee as well as the National Disaster Centre in the Ministry of Intergovernmental Relations, as well as the Provincial Administrations, civil society representatives and UN and Red Cross partners in Port Moresby, Buka, Rabaul, Lae, Goroka, and Popondetta for their time and their openness in receiving the mission, and for their support and assistance during the conduct of the mission. Last but not least, we would like to thank the UN Resident Coordinator in PNG as well as the OCHA Humanitarian Affairs Analyst for supporting the team to be fully functional for the duration of 2 weeks.
49 8. SUMMARY OF RECOMMENDATIONS
Short Term Disaster Management Legal and Institutional Framework There is an urgent need for GoPNG to review and harmonize existing disaster NDC, IASC DMT, IFRC management related legislation and to clarify the institutional roles and responsibilities arising from these various documents. Development of new disaster management structures (such as those contained within the draft Protocols) should take place in tandem with associated legislative reviews to prevent further inconsistencies and confusion. A comprehensive practical framework outlining roles and responsibilities should be developed along with detailed SOPs to guide application and implementation of disaster management arrangements. These documents should form the building blocks of a comprehensive framework for disaster management in PNG, as also proposed in the draft Protocols. Priority should be given to streamlining GoPNG processes for declaration of a national disaster and initiating a response. This will necessitate review and clarification of the roles and activities of: o NDC and National Disaster Committee in providing information to NEC for rapid decision-making; o the Parliament for provision of the Emergency Act following the declaration of emergency; and o the Ministry of Foreign Affairs in establishing liaison with international partners. Recommendations on the draft Protocols With respect to the draft Disaster Management Protocols being developed, the following NDCom, NDC. IASC DMT recommendations are made: In general, the proposed ‘National Level Scope and Arrangements for Disaster Management’ are in line with UNDAC recommendations made above, such as the proposed legal review and sectors or clusters that coordinate response in technical areas on national and sub-national levels. Implementation of these arrangements require a legal foundation; this will necessitate review and harmonization of the current framework simultaneously. Further consultation on the development of the draft Protocols should involve the broad spectrum of disaster management stakeholders in PNG – national, provincial, district and international partners. The national and provincial structures for disaster management proposed within the Protocols could be simplified by i) prioritizing and ii) phasing core activities and services for disaster preparedness and response at different levels. A top heavy structure should be avoided. As provinces and districts are well placed, from a governance and disaster management perspective, to deal with disaster response, emphasis should be on capacity building at those levels as well. An implementation plan for the proposed arrangements and organisational structures contained within the Protocols should be clearly prioritized and phased. Priority should be given to the clarification of core functions and activities expected of National Disaster Committee members, the National Control Group (NCG) and the NDC and PDCs. This will lay the foundations for development of cluster groups at national, provincial and district level. More specifically, it is recommended to first strengthen overall coordination mechanism for preparedness and response at national and provincial level, as well as strengthening sectoral coordination in key disaster management sectors, such as health, Water, Sanitation & Hygiene, Logistics, Emergency Services and Communications. In a second phase capacity can then be further strengthened at the provincial and district level and other (national) sectors relevant for disaster management. Once proper DM capacity is in place in NDC and PDCs, it can be expanded to work in disaster risk reduction. In terms of organisational and coordination roles and structures, it is suggested that: i) the NCG includes representatives from the Ministry of Education, Department of Lands, National Statistical Office and National Mapping Bureau; ii) the draft Protocols should the role of the Controller is clarified; iii) the PDCs include (international) NGO representatives, Police, Defence, private sector representatives, and other relevant
50 stakeholders. Finally, inconsistencies in the various draft Protocol documents need to be addressed - for instance, the disaster management organigrammes and the EOC SOPs propose different organizational structures. National Disaster Management Planning and Coordination Effective disaster management needs to be acknowledged by GoPNG as critical to NDCom protecting hard-won progress against the Millennium Development Goals (MDGs). Disaster management should be considered a development issue and therefore be reflected in the next PNG Medium Term Development Plan (2010-2015), supported by government agencies and (international) development partners. As such, disaster management strategies and plans require formal endorsement by GoPNG and should be allocated an appropriate budget linked to action plans. The National Disaster Committee should be revitalised to ensure active participation by all members. NDC should also review current membership to ensure all core national DM stakeholders are represented. The National Disaster Committee should continue to actively support the inter-agency contingency planning process undertaken in 2007 and 2008; the NDC and UNOCHA should continue to lead this process. The NDC should more actively participate in the regular IASC DMT and other relevant sector coordination mechanisms. Disaster Management Division National and Provincial Levels Given the fact that the provincial level should be the first line of response to disasters, NDC, PDC Provinces should be adequately resourced to manage disasters with appropriate support from central agencies. The Provincial Administrations and ABG should invest in PDCs to be the focal point for preparedness and response coordination, integrating or collaborating as much as possible with other available emergency management resources such as existing radio networks (health, police), volunteer networks (Red Cross, faith based organisations), fire and ambulance services, etc. Guidance documents should also be developed which outline basic steps and tools to assist in developing effective and inclusive Provincial Disaster Committees that provide a platform for information exchange and decision making with respect to disaster preparedness and response including for government, NGOs, faith-based organisations, private sector, UN, international community and other stakeholders. The NDC should take steps to engage more closely with the PDC’s to provide advice, guidance and policy. This should be replicated down to District and local level. Examples of best practice should be shared (i.e.: circulation of contact lists, provincial disaster plans, list of international agencies operating in provinces, contact lists and SOP’s). Reinforcing Section 17 of the Act, that the Director NDC works with Provincial Administrators to support the development of efficient and effective disaster preparedness and response arrangements and foster leadership at the provincial level with national level support. Priority should be given to strengthening the linkages between the NDC and the Provincial Disaster Committees and Coordinators to ensure that appropriate guidance, tools, mentoring and expertise are shared. Consideration should also be given to developing a National Professional Development programme for Provincial Disaster Coordinators to ensure that consistency develops across the sector. Development partners can support these activities. In times of disaster, the staffing of National or Provincial EOCs has to be expanded to include seconded staff from key National Disaster Committee members, cluster coordination groups and international partners including officers from Health, Mapping, Works, Defence, Police, etc. Police, Defence Force, Fire and Rescue Services That priority is given to appointing dedicated controllers, at national and provincial level, NDCom, IASDC DMT prior to emergency events, and equipping them with appropriate professional development opportunities and training including opportunities to participate and practice their roles in table top exercises (i.e.: International Humanitarian Law (IHL), Civil Military Coordination, Search and Rescue (SAR), logistics management, communications, HR and stress management, incident control). As a priority RPNGC, Fire and St John Ambulance with support from the relevant RPNGC, Fire Services, government ministries must investigate the feasibility of implementing a single nationwide MoIGR 51 111 emergency call system linked to a joint communications centre. That all emergency services take an active membership role in supporting and contributing to the establishment of Provincial Disaster Committees. That the Ministry of Intergovernmental Relations support the Fire Service in its endeavour to work towards further developing its Search and Rescue capability and that links be strengthened with the International Search and Rescue Advisory Group (INSARAG), Australasian Fire and Emergency Services Authorities Council (AFAC) and Pacific Island Fire Service Association (PIFSA). That all emergency services are included in discussions regarding the establishment of new coordination structures as proposed in the draft Protocols. Medical Emergency Services NDCom, lead by MOH and supported by the IASC DMT, to map out the available Health, IASC DMT stockpiles of basic drugs and medical equipment in PNG and the region (especially in Australia) for emergency response. Establish referral system for critically injured victims who require specialist treatment in Port Moresby or other countries, and transportation and procurement system for medical personnel and drugs in emergency situations, in cooperation with PNGDF, St John Ambulance, faith based organisations, ADF and commercial flight companies. Consideration should be given to recognize NGOs as an integral part of medical services and include them in coordination mechanisms. Emergency Telecommunications NDC, Health, St Johns Ambulance, PNG National Telecommunications Authority and NDC, Health, St. Johns, Police to jointly review existing emergency communications infrastructure (including radio) Police with RVO, NWS, for emergency purposes at national, provincial and district levels. The interoperability of POM GL these communication systems is critical. Establishment of an Early Warning coordination group (including media) that sets up joint 24/7 communications procedures for receipt, analysis and distribution of warnings. Suggested membership of this group includes: NWS (National Weather Service), the POM Geophysical Lab (POM GL), Rabaul Volcano Observatory (RVO), DGMP (Department of Geohazards and Mineral Policy), Media organisations, St. Johns Ambulance, NDC, PNG Red Cross. Logistics Establishment of a Logistics Coordination Group including: NDC, PNGDF, Health, private NDCom, NDC sector (including aviation), Ministry of Works (Restoration Coordination Unit), civil aviation, port authority and international partners. As a priority the group should develop TORs and establish a lead agency. NDC, with IASCD DMT support, to establish a database outlining locations in which NGOs, Red Cross and other International partners have pre-positioned relief supplies. Water and Sanitation Minimum preparedness should be in place through relevant minimum stockpiles for ready NDCom, NDC, PDC response during disasters opf water containers, water purification tablets and equipment, trained personnel, guidelines, etc. Shelter As part of minimum preparedness planning and dependent on local scenarios, PDCs NDCom, NDC, PDC should: o map out the available and necessary construction and shelter materials for immediate relief following disasters, based on risk maps and vulnerable populaitions, such as volcanic areas, atoll islands. o At these locations, PDCs to already agree on basic designs and identify available skilled carpenters and macons. o Identify and pre-negotiate the availability of land with (traditional) land owners, where relevant. Protection The Department for Community Development (DCD) should be incorporated into disaster NDCom, management structures and plans to provide guidance on protection related issues at the UNICEF,UNOHCHR, national, provincial and district levels, including police and Village Courts, in response and UNHCR, UNIFEM, UNDP, Contingency Planning. DCD District Welfare Officers should be focal points for provision of IASC DMT protection services in emergency response. Police at community level, as well as other key disaster managers, should be trained on protection in emergencies. 52 The proposed capacity building of the DCD by the UNICEF Asia Pacific Service and Support Centre, which includes knowledge building on the core commitments for children (CCC) for child protection, should be incorporated into NDC planning. Food Security NDC, in collaboration with NDAL, NARI and other relevant agencies, should research NDC, NDAL, NARI and disburse information on food security preparedness practices suiting the various ecological regions and hazard risks. These aspects need to be included in NDC and PDC contingency plans. PDC and Provincial Administrations should co-opt provincial Chambers of Commerce into the Provincial Disaster Committees in order to develop an inventory of available food stock for emergency food supplies. Environment Risks posed by toxic and hazardous materials used by factories and private sector entities DEC need to be inventorized and contingency plans put in place for proper response. Information Management An Information Management Working Group (IMWG) be established to provide a forum for NDC, NSO, NMB, government, development and relief agencies to agree upon authoritative source for University of PNG, PNG standardised datasets and information tools relevant to disaster preparedness and Red Cross, UNDP, response including baseline data, spatial data standards (pcodes), assessment UNICEF, OCHA. mechanisms, contact directories, meeting schedules, Who-What-Where (3W) data, and harmonised reporting and monitoring systems. In Papua New Guinea the working group could include technical information management personnel from such agencies as the NDC, NSO, NMB, University of PNG, PNG Red Cross, UNDP and UNICEF. In the event of an emergency, technical staff from the NSO and NMB to be seconded to the NDC (NEOC) and relevant PDCs to provide support with data collection, management, analysis and mapping. The NDC to discuss possible areas of cooperation with the University of Papua New Guinea, including the Centres for Remote Sensing (RSC) and Disaster Reduction (DRC), which could include development of baseline datasets as described above, hazard and risk analysis, secondment of technical expertise during emergencies to name a few. Monitoring and Early Warning There is need to assess and develop strategies for a long-term, phase by phase upgrade Dept of Geohazards and of earthquake, tsunami, volcano and hydro-meteorological monitoring (including monitoring Mineral Policy- POM GL hardware, communications, human resources and sustainability) to enhance the quality of and RVO, NWS scientific technical information generated by agencies such as the Geohazards Department (RVO and POM GL) and the NWS. Contingency Planning NDC, together with technical agencies, should facilitate development of indicative maps of NDC, Dept of Geohazards various hazards that are shared with the provinces. This should in time be supported by and Mineral Policy- POM detailed study of hazards present in specific regions and areas. Hazard maps should be GL and RVO, NWS the basis to come up with reasonable scenario-based contingency plans at the province. Public Information A coordination group should be established including NDC, Health, Fire Bureau, National NDC, Health, Fire Weather Service, Rabaul Volcano Observatory, POM Geophysical Laboratory, Education Services, NWS, RVO, and other relevant agencies to develop a national program that is multi-hazard in approach PMGO, NMB, NSO, for increasing public awareness and the collaboration of all technical agencies to support Education NDC will be important in this undertaking The Department of Education through the schools should be tapped as major player in increasing the awareness and preparedness through injecting topics into the curriculum Education GoPNG should mainstream DRR into school curriculum as part of the new MTDP. Where Dept of Education, NDC possible, resources and lessons should be drawn from other initiatives around the world (UNICEF, UNESCO, UNISDR, SOPAC, and other relevant agencies). Distribution of disaster-related information materials to schools should be undertaken to increase hazard awareness and preparedness. Medium Term Disaster Management Legal and Institutional Framework Current efforts to review the financial and administrative processes for speedy and NDCom, IFRC, IASC DMT transparent disbursement of funds for relief operations and the efficient receipt of international assistance should be progressed as a matter of priority. Establishment of 53 arrangements to facilitate the receipt of international assistance should be considered with reference to IFRCs ‘Guidelines for the Domestic Facilitation and Regulation of International Disaster Relief and International Recovery Assistance’. Desktop disaster exercises to test the draft Protocols during the development phase should be considered; this could be supported by the IASC DMT if necessary. National Disaster Management Planning and Coordination The NDC should facilitate a national coordination platform for national and international NDCom NGO’s and/or actively seek collaboration with existing NGO coordination groups (e.g..: the International Development Council). Disaster Management Division National and Regional Levels Consideration should be given to development of networks/regional support hub to NDC, PDC facilitate support (response, preparedness) between provinces (for example, the Oro disaster and the role played by Morobe province). Police, Defence Force, Fire and Rescue Services That a practical Controllers guideline is developed which contains a comprehensive NDC, Defence, Police overview of the role, job descriptions, person specifications, skills and competencies, roles and responsibilities, guidance on directing the emergency and the key relationships that a controller must develop prior to an emergency. That the RPNGC incorporate into their recruit training and general training programmes and structure learning modules that include hazard and risk management, preparedness and response, and dealing with victims of disaster. That the NDC lead a working group including the RPNGC, Fire Service, St Johns, and other government agencies with emergency response responsibilities to implement a common operating procedure for attendance to emergencies. That the RPNGC establish arrangements with other international police agencies to facilitate the Disaster Victim Identification processes. That the PNGDF proactively contributes to the establishment of a multi-stakeholder logistics coordination group as also suggested in the draft DM protocols. That the PNGDF contribute to development of SOPs to facilitate the receipt and deployment of international military assistance during a disaster. That GoPNG takes steps to ensure the Fire Service is adequately funded to provide at least minimum levels of service. Water and Sanitation The Provincial Health Departments and Water Boards should research and disseminate Water Board, Health good practice on protecting water supply systems against disasters. The Provincial Health Departments and Water Boards should promote water security in communities through the identification and development of multiple sources of water and its prudent management (including rainwater harvesting). Relocation and Displacement With the knowledge that sustainable solutions to relocation cases have already proved NDCom difficvult and the expectation that with climate change these issues become a daily reality in many parts of PNG, and building upon the experiences from current relocation exercises as for instance in Manam, Manus and Bougainville it is recommended that GoPNG creates a high level multi-disciplinary advisory group consisting of specialists on legal, humanitarian, lands, protection, livelihood, hazards, climate change issues to map out a strategy that can deal with these complex issues. International development, humanitarian and academic partners should support this. From this partnership, a first priority is to develop guidelines and best practices around disaster induced relocations. Food Security The outputs and outcomes of the programmes of NARI need to be better aligned and NDAL, NARI coordinated with those of NDAL. NDAL and NARI need to explore revamping the current arrangements to improve domestic food security preparedness and stockpiling of essential planting material (including tissues culture) that can be distributed to disaster-affected communities Environment There is a clear need for coordination between NDC and DEC to incorporate the NDC, DEC environmental precedence and consequences of disaster events. This includes (a) rapid environmental assessment tools, and (b) community outreach programmes. DEC, in collaboration with disaster centres at the provincial level, should initiate monitoring 54 of environmental degradation in order to map underlying risk factors and to develop appropriate response mechanisms. DEC, in collaboration with NDC and PDCs, should adopt its guidelines for EIAs to be used to specifically assess environmental damage during disasters and create appropriate response mechanisms. Information Management A strategy for enhancing information management within the disaster response community NDC, IASC DMT is developed, that establishes overall aims and activities and establishes roles and responsibilities for government, the IASC DMT and other non-government actors. This could be jointly undertaken by the NDC and UNDP through existing and planned information management expertise, with additional support from OCHA as needed. The NSO and NMB to develop baseline datasets and spatial data down to the community level for use by the NDC. The NDC to lead development of rapid assessment formats to gather baseline data in the event of common emergencies (floods, earthquake, landslides, etc.), with support from NSO, OCHA and others. Thought needs to be put in how to utilize the 2010 census and consideration given on how to use the census to develop information tools of use for preparedness, disaster management, early recovery and development. Monitoring and Early Warning Priority should be given to support the upgrading of monitoring network of RVO and Department of geohazards volcano observatories under it. This is to support its role for effective volcano and Mineral Policy- POM emergency warning dissemination. GL With the upcoming/anticipated installation of seismic monitoring instruments (10 sites distributed all over PNG through the EU EDF 9 funds for 2009), the Department of NDC Geohazards and Mineral Policy needs to make provision for funding to maintain this 10-site network in succeeding years. Coordination between NDC, NWS and the DGMP should be strengthened and processes NDC, NWS, DGMP (including SOPs) for emergency warning dissemination need to be developed. As a priority, the NWS should be supported in upgrading of forecasting infrastructure for NWS the ability to track severe storms in PNG. This infrastructure aligned with effective emergency warning dissemination is an effective means to prepare communities and lessen the impact of severe storms. Preparedness Measures in Place The Early Warning Coordination Group (see chapters 5.3 and 6.1.a) develops a national NDC, NWS, DGMP- PVO level warning plan, which supports Provincial Disaster Committees to develop provincial and POM GL, Police, etc level warning plans that outline lead agency responsibilities, dissemination processes, stakeholder roles and responsibilities for actioning warnings and testing procedures, evacuation processes and care centre establishment.
Long Term National Disaster Management Planning and Coordination The National Disaster Committee, together with development partners, should develop NDC, PDC tools to actively support the establishment and functioning of Provincial Disaster Committees. Effective coordination requires continued development of tools and skills. Key staff in coordination positions (Controllers, disaster focal points, NDC staff, provincial disaster coordinators) should actively pursue training in this area. NDC together with national and international partners should facilitate these different types of training (e.g. project coordination, logistics coordination, civil-military coordination). Targeting potential Controllers is particularly important. Emergency Telecommunications Following the review of existing emergency communications structure, NDC, Health, St NDC Johns and Police to investigate establishment of a joint 24/7 emergency communications network via the upgrading of existing infrastructure (creation of a 24 hour Provincial Disaster Centre). For example, main police stations in provinces are maintained 24 hours and could be utilized as after hours emergency warnings receptions. Water and Sanitation Strengthening coordination between PDCs and NGOs is essential to increase awareness on safe water and sanitation and to develop practical water quality monitoring and water
55 conservation at the community level. Environment DEC will have to link itself up to regional and national Early Warning Systems in order to be DEC able to advise and assist the NDC on the environmental aspects of disaster response. Information Management Information management capacity within the NDC and PDC structure should be expanded NDC, PDC to ensure future operations see an improvement in the quality and timeliness of data to support decision-making. Monitoring and Early Warning While the national level is putting up its EWS system, local governments and districts PDC, LLGs, communities should partner with development partners to be able to establish community-based EWS for the different hazards when applicable.
56 ANNEX 1
Terms of Reference for Papua New Guinea UNDAC Disaster Preparedness Mission – April 2009
The UNDAC mission to Papua New Guinea would work with the Government of Papua New Guinea, under the overall guidance of the United Nations Resident Coordinator in Papua New Guinea, to achieve the following results:
o An evaluation of the disaster management system in Papua New Guinea, providing an analysis of current capacities and future needs at the provincial and district level in the areas of planning for and implementing preparedness programmes, response operations and recovery programmes o A mission report summarizing the analysis and conclusions, making key recommendations towards the strengthening of provincial and district level capacities, identifying the resources needed and proposing a timeline for implementation of the recommendations
The UNDAC mission should cover the following areas:
1. Analysis of provincial and district level operational response capacity, including: o the organisation and function of disaster management at provincial/district/village, departmental and municipal levels o command and control systems o coordination mechanisms, including with other national actors, donor agencies, international organizations, NGOs, Red Cross, and the private sector o communication systems o Logistics arrangements o Early warning systems o assessment, reporting and information management systems o Arrangements for search and rescue, evacuation, temporary shelter, restoration of lifelines and delivery of humanitarian assistance.
2. Assessment of current authorities and capacities of provincial and district governments to plan and prepare for emergencies, including:
o Establishing/maintaining command and control arrangements o setting local policies and administrative procedures; o preparing technical guidelines and instructions for staff o undertaking risk assessments o conducting training, exercises and simulations
57 o informing and educating the public; o protecting and upgrading infrastructure, supplies and equipment o protecting livelihoods and the environment o undertaking recovery and reconstruction planning o working with donors, UN agencies and NGOs to ensure local needs are respected and being met.
3. Assessment of capacities for the management of external assistance, including:
o Arrangements for the reception and integration of both requested and unrequested external resources (human and material) into local disaster response operations; o Administrative procedures for receiving, disbursing and accounting for external assistance.
4. Assessment of current authorities and capacities of provincial and district governments to plan and implement recovery programmes after an emergency.
The UNDAC mission should also take any and all opportunities to inform and advocate for the international disaster response system and undertake awareness-raising on the role of the UN System, OCHA and the UNDAC Team in major disasters.
The UNDAC mission should aim at formulating recommendations on the basis of the research, visits and interviews undertaken, to be included in a Mission Report.
This document should be finalized with the agreement of the NCDM and the UN DMT before the end of the mission and submitted to the Government of Papua New Guinea and the UN Resident Coordinator.
58 ANNEX 2 Bibliography
National society programme support plan 2008-09. (PNGRCS), Papua New Guinea Red Cross Society (2009).
EVI Country Profile Review - PNG, South Pacific Applied Geoscience Commission,. Miscellaneous report 527 (July 2003).
Food Garden Assesment Report Buka District." DI-BUKA, Helen Punus: Food Security. Division of Primary Industries.
Disaster Risk Reduction in 8 Pacific ACP States
Report on Emergency Visit to the Atolls. Franklyn Lacey: Division of Health, Atolls District. 10 February 2009.
Bougainville Situation Report 5 January - 12 February 2009. Kimai, H. Autonomous Bougainville Government, 12 February 2009.
Timely and Effective Management of Disasters Through Disaster Risk Management, Inter Agency Standing Committee Disaster Management Team Meeting, (3 March 2009).
Rationalisation of Emergency Services in PNG. MES, Isaac K Silas.
UNDAC Mission Report on East Sepik Earthquake and Mount Pago Volcano (2002).
Cyclone Guba Lessons Learned Report_Draft 03. NDC and IASC DMT.
Multisectoral Pandemic Preparedness Planning 17 - 18 March 2009. Ingo Neu, OCHA -. March 2009.
PNG – Information Management Mission Report -. Craig Willams (UNOCHA) March 2008.
Draft Disaster Management Act Chapter 403. Independent State of PNG. 2004.
Contingency Plan for a Human Influeza Pandemic – United Nations PNG (October 2006).
Operations Update 04. Papua New Guinea Cyclone Guba 2007. IFRC and RCS. 31 July 2008.
Pacific and Papua New Guinea: Appeal 2006-2007 — PNG Red Cross (1 May 2008).
59 NZAID Evaluation Report to World Vision Humanitarian/Livelihood Response to the Manam Island Internally Displaced -Rosa Koian, Antonia Massella, Tony Wrightson (June 2007).
Oro Provincial Administration's Emergency Response Capacity Review - Report. Evans Omari (UNDP Capacity Development)
Mission Report Southern Highlands Province, Papua New Guinea 26 July - 2 August 2006,Antonio Massella (UNOCHA), Peter Muller (UNDP) (2006)
Hazard Identification Tool, Environmental Emergencies Unit, , Joint UNEP/OCHA Environment.
PNG Disaster Management Protocols (2009), National Disaster Center
The Aitape Disaster Caused by the Tsunami of 17 th July 1998, UNDAC (1998)
Famine Caused by Drought and Frost, UNDAC (1997)
PNG Common Country Assessment, United Nations (2001)
National Disaster Mitigation Policy, National Disaster Center (?)
60 ANNEX 3
61
62 ANNEX 4
List of Persons Consulted by UNDAC Team
(a) National Government NAME POSITION ORGANISATION Hon. Job Pomat Minister Ministry of Inter-Government Relations Manasupe Zurenuoc Secretary and Department of Provincial & Local Government Affairs Chairman National Disaster Committee Martin Mose Acting Director National Disaster Centre
Andrew E. Oageo Advisor, Logistics and NDC Communications Sabina Fuluvii Secretariat Officer NDC Philomena M. Emilio Training/ Education Officer NDC Thomas Ninicama Finance Administrative NDC Officer Eric Ani Consultant NDC Frank Warner Consultant NDC Raphael Huafolo DPS Assistant Commissioner RPNGC QPM Police - Operations Peter Ilau, DMS CBE Commodore Chief of PNGDF Defence Force Betty Palaso Commissioner General Internal Revenue Commission Paul Iramu Assistant Commissioner Internal Revenue Commission Regional & Revenue Management - Customs William Sapak Director - Tariff & Trade Internal Revenue Commission Leka Bablu Director - Litigation - Policy & Internal Revenue Commission Legal Elpat Enoch Acting First Assistant Department of Treasury Secretary, Budgets Michael Gideon Director National Mapping Bureau- Department of Lands and Physical Planning Kave Godua Staff National Mapping Bureau- Department of Lands and Physical Planning John Arumba Director Geohazards Management Division, Department of Geohazards and Mineral Policy Chris Mckee Asst Director POM Geophysical Observatory, Dept of Geohazards and Mineral Policy Jack S. Abrahams Engineering Geology Geohazards Management Division, Department of Geohazards and Mineral Policy Elizabeth Michael Engineering Geology Geohazards Management Division, Department of Geohazards and Mineral Policy Raymond Yamai Engineering Geology Geohazards Management Division, Department of Geohazards and Mineral Policy
63 Lawrence Anton Geophysical Observatory Geohazards Management Division, Department of Geohazards and Mineral Policy Theresa Siaguru, MBE Principal Advisor, Strategic Department of Prime Minister and Policy and Coordination National Executive Council Division Tau Vali Deputy Secretary Department of Provincial and Local Government Affairs Jimmy U Ovia a/ Director-General Ministry of Foreign Affairs and (Economic and Development Trade Cooperation Division) Reuben Saka a/ First Assistant Secretary Department of Finance, Revenue Divison Andrew Yamanea Managing Director National Agriculture Quarantine and Inspection Authority Isaac K. Silas Chief Fire Officer Papua New Guinea Fire Service Dr James Macpherson, Papua New Guinea Fire Service MBE Jacob Ariman Department of National Planning and Monitoring Nick Suvulo National Statistician National Statistical Office Samual Mahia Acting Director National Weather Service (NWS) Tau Ray Gabi Assistant Director Facilities, Observation and Technical Support (NWS) Kasis Inape Assistant Director Climatology, Agrometeorologial and Special Services (NWS) Joel M. Luma Secretary Department of Works Michael Bongro Executive Manager Policy Department Environment and International Conservation Hon. Job Pomat Minister Ministry for Inter Government Relations Warikapani Venua Southern Region - Livestock Primary and Industrial Support Services,NADL Leka Mou Regional Director Primary and Industrial Support Services,NADL Goru Babona Southern Region - Crops Primary and Industrial Support Services,NADL Michael Siri Soil Scientist Land Use, Momase, Primary and Industrial Support Services, NDAL Mai Baiga Soil Scientist Land Use, Momase, Primary and Industrial Support Services, NDAL Prof Udai R Pal Research Programme National Agriculture Research Leader Institute
(b) Provincial Government NAME POSITION ORGANISATION Morobe Asigau Tau Lae City Council Morobe Disaster Centre Charley Masange Disaster Officer Morobe Disaster Centre Leo Kautu Disaster Officer Morobe Disaster Centre Roy Kamen Director Morobe Disaster Centre Kamas Tomala Provincial Administrator Morobe Province
64 Pafilias Gamato Deputy Provincial Morobe Province Administrator Alphonse Amia Inspector PNG Fire Service Bal Kena Superintendent PNG Fire Service Peter Guinness Provincial Police Morobe Province Commander Lae Mark Sahin Airport Operations Manager Nadzab Civil Aviation Authority Maj John Giregire Acting Commanding Officer PNGDF Engineer Battalion Nema Mondiai Commander Royal PNG Constabulary Taikone Gwakoro Coordinator Minerals, Natural Resources and Environment, Morobe Province Administration Wiap B. Mawapom Provincial Works Manager Morobe Provincial Government Charles Pepe HIV/AIDS Response Morobe Provincial AIDS Coordinator Committee Secretariat East New Britain Allan Pinia Provincial Disaster ENB PDC Coordinator Elias Babate Disaster programme Officer ENB PDC Jonathan Kuduon Senior Seismologist Rabaul Volcano Observatory Allan Tovue Advisor Technical Services ENBPA Fidelis Bola Advisor Health Division Vitus Koian Provincial Works Manager Dept of Works Edward Tomme Acting Provincial Fire PNG Fire Bureau Commander Arnold Tavatuna Finance/Admin Manager ENBSEK Sharon Nerius Gender and Youth ENBSEK Participation Wevisi Bolasa Assistant Coordinator Env ENBSEK Advocacy Esira Mitlom Comm Dev ENBSEK Northern (Oro) Owen Awaita a/ Provincial Administrator Provincial Disaster Committee Trevor Magei Provicial Disaster Provincial Disaster Centre Coordinator Copland Gewa National Functions Provincial Disaster Centre Coordinator Suckling Tamanaba Governor Northern Province Eastern Highlands Ben Hali Director Health Services Office of Health, Eastern Highlands Provincial Administration Namanea Omahe Coordinator Extended National Functions, Eastern Highlands Provincial Administration Munare Uyassi Provincial Administrator Eastern Highlands Provincial Administration Jacob Nagamisvo Retired Disaster Office Staff Extended National Functions, Eastern Highlands Provincial Administration Bougainville Henry Starlay Liason and negotiation Attols Integrated Development Program Ephraim Eminori Special Projects Officer Bouganville Admin Patrick Herduate DMDS PMDS (LLG)
65 Franklin Lacey Acting Disaster Coordinator Hon Jonathan Ngati Minister Ministry of Local Gov Patrick Koles Acting Chief Admns John Kolan CEO Technical Services Anthony Tsora Manager/ District Selao District Adminstrator Norh Stevenson Division of Education Tom Mausing Observer Mt. Bagana Volcano Observatory Peter Nesatt Police Commissioner Police –ACP Vuvu Laup Head of Customet Service Power-Technical Services Henry Starling Head of Physical Planning Lands Dr. Cyril Imako Chief Executive Officer Buka General Hospital
(c) UN, NGOs and Donors NAME POSITION ORGANISATION Port Moresby, NCDC Dr Curt von National Director World Vision Boguslawski Gerard Van Gramberg Manager, Humanitarian & World Vision Emergency Affairs Jenny Mori Officer CHILDFUND Kay Beese Counsellor Rural and Human European Union Resources Development David Freyne Attache European Union Takahiro Yokota Assistant Resident JICA Representative Shun Nesaki Assistant Resident JICA Representative Douglas J. Kelson Chief Commissioner St John Ambulance Dr Isaac Ake Commissioner St John Health Service Dr. Alexandra Edmund Epidemiologist World Health Organisation Rosewell Dr Jacqueline Badcock Resident Coordinator UNDP Hamish Young Head of Office UNICEF Naomi Morris Training Coordinator MAP ACTION Esmie Sinapa Secretary General Red Cross Mark Wedd Second Secretary - Disaster AUSAID Management Ms Eileen Turare Programme Officer AUSAID Walpurga Englbrecht UNHCR Representative UNHCR Asger Ryhl UNFPA Representative UNFPA Eileen Kolma Country Representative Oxfam International (PNG) Rajesh Kayastha Operations Manager UNICEF Dr. Andre Reiffer Programme Coordinator WHO Paul Norton Head of Delegation International Organisation for Migration Vini Talai Humanitarian Affairs Analyst UNOCHA Jan-Jilles van der Deputy Resident Coordinator UNDP Hoeven Morobe Teria Kevere Director Lutheran Development Services - LAE Joshua Daniels Coordinator Lutheran Development Services - LAE
66 Captain David Vele Divisional Commander Salvation Army North Coastal Division Lucy Kovoko Poro Sapot Project Save the Children in PNG Northern (Oro) Sarea Meakora Caritas Augustine Biaro Caritas Raga Nama ADRA Donoun Newager ADRA Sam Tuki ADRA James Namo Salvation Army Rose Senai Caritas Elijah Sarigari Anglican Education Reginald Kauro Anglican Response to Oro Disaster Evans Omari Capacity Development UNDP Specialist- Early Recovery Eastern Highlands Carlos Baraka Assistant Programme Officer UNICEF Doreen Iga Manager, Community Care International Development and Emergencies Henry Braun Country Director Care International Carol Nelson Assistant Country Director Care International Maryanne Luan Senior Programme Officer, Save the Children Logistics and Security Nyoka Kirori Executive Assistant Save the Children Rexson Kenimo Divisional Programme Salvation Army Secretary Bougainville Boniface Wadari Area Programme Manager World Vision David Hapoto Program Coordinator Care International Charles Bivi Tulele Pelsa Ephraim Sawa Research Officer Tulele Pelsa John Bosco Baremes Counselling Tulele Pelsa Ursula Rakova Tulele Pelsa Wesley Kenneth Project Coordinator UNDP Steve Nobi Programme Coordinator CARE-PNG Gerard Van Gramberg Manager, Humanitarian and World Vision Emerency Affairs
(d) Other Organizations NAME POSITION ORGANISATION Port Moresby, NCDC Dr. Joseph O. Espi Division Leader, Earth UPNG Science Division Lara Aisi Centre for Disaster UPNG Reduction John Hosea IASC DMT Member PNG Red Cross Society Chris Lucas Coordinator Red Cross Dr. D. K. Pal Head Department of Surveying & Landslides, PNG University of Technology East New Britain
67 Bruce Alexander Chairman Rabaul Chamber Rabaul Chamber of Commerce of Commerce; Owner, Rabaul Hotel Northern (Oro) Edward Jinga Red Cross Cathy Magioudi Community Development Ethel Bogembo National Council of Women Bougainville Aidah Kenneth Chairperson C branch Red Cross Herbert Kimai Thomas Rabanz Chairman Bougainville Business Association
68 ANNEX 5
Guidelines for the Domestic Facilitation and Regulation of International Disaster Relief and Initial Recovery Assistance (IDRL guidelines)
Introduction
1. Purpose and Scope
1. These Guidelines are non-binding. While it is hoped that States will make use of them to strengthen their laws, policies and/or procedures related to international disaster response, as appropriate, the Guidelines do not have a direct effect on any existing rights or obligations under domestic law.
2. They draw from many existing international instruments, including United Nations General Assembly Resolutions 46/182 of 1991 and 57/150 of 2002, the Measures to Expedite International Relief of 1977 and the Hyogo Framework for Action of 2005.
3. Their purpose is to contribute to national legal preparedness by providing guidance to States interested in improving their domestic legal, policy and institutional frameworks concerning international disaster relief and initial recovery assistance. While affirming the principal role of domestic authorities and actors, they recommend minimum legal facilities to be provided to assisting States and to assisting humanitarian organizations that are willing and able to comply with minimum standards of coordination, quality and accountability. It is hoped that the use of these Guidelines will enhance the quality and efficiency of international disaster relief and initial recovery assistance in order to better serve disaster- affected communities.
4. These Guidelines are not intended to apply to situations of armed conflict or disasters that occur during armed conflicts, or to imply changes in any rules governing relief in those contexts. They are also not intended to recommend any changes to, or affect the meaning or implementation of, any existing international law or agreements, including but not limited to:
(a) International humanitarian, human rights and refugee law;
(b) The legal personality and status of States, inter-governmental organizations, the International Federation of Red Cross and Red Crescent Societies and the International Committee of the Red Cross;
(c) International law related to privileges and immunities;
(d) The Statutes and regulations of the International Red Cross and Red Crescent Movement and existing legal arrangements between the individual components of the Movement and States; and
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(e) Existing agreements between States or between States and assisting actors.
2. Definitions
For the purposes of these Guidelines,
1. “Disaster” means a serious disruption of the functioning of society, which poses a significant, widespread threat to human life, health, property or the environment, whether arising from accident, nature or human activity, whether developing suddenly or as the result of long-term processes, but excluding armed conflict.
2. “Disaster relief” means goods and services provided to meet the immediate needs of disaster-affected communities.
3. “Initial recovery assistance” means goods and services intended to restore or improve the pre-disaster living conditions of disaster-affected communities, including initiatives to increase resilience and reduce risk, provided for an initial period of time, as determined by the affected State, after the immediate needs of disaster-affected communities have been met.
4. “Goods” means the supplies intended to be provided to disaster-affected communities for their relief or initial recovery.
5. “Services” means activities (such as rescue and medical care) undertaken by disaster relief and initial recovery personnel to assist disaster-affected communities.
6. “Equipment” means physical items, other than goods, that are necessary for disaster relief or initial recovery assistance, such as vehicles and radios.
7. “Personnel” means the staff and volunteers providing disaster relief or initial recovery assistance.
8. “Affected State” means the State upon whose territory persons or property are affected by a disaster.
9. “Assisting State” means a State providing disaster relief or initial recovery assistance, whether through civil or military components.
10. “Originating State” means the State from which disaster relief and initial recovery personnel, goods and equipment begin travel to the affected State.
11. “Transit State” means the State through whose territorial jurisdiction disaster relief or initial recovery assistance has received permission to pass on its way to or from the affected State in connection with disaster relief or initial recovery assistance.
12. “Assisting humanitarian organization” means a foreign, regional, inter-governmental or international non-profit entity whose mandate and activities are primarily focused on humanitarian relief, recovery or development.
13. “Eligible assisting humanitarian organization” means an assisting humanitarian organization determined to be eligible to receive legal facilities pursuant to Part V by the originating, transit or affected State, as applicable.
70 14. “Assisting actor” means any assisting humanitarian organization, assisting State, foreign individual, foreign private company providing charitable relief or other foreign entity responding to a disaster on the territory of the affected State or sending in-kind or cash donations.
Part I: Core Responsibilities
3. Responsibilities of Affected States
1. Affected States have the primary responsibility to ensure disaster risk reduction, relief and recovery assistance in their territory. National Red Cross and Red Crescent Societies, as auxiliaries to the public authorities in the humanitarian field, and domestic civil society actors play a key supporting role at the domestic level.
2. If an affected State determines that a disaster situation exceeds national coping capacities, it should seek international and/or regional assistance to address the needs of affected persons.
3. Affected States have the sovereign right to coordinate, regulate and monitor, disaster relief and recovery assistance provided by assisting actors on their territory, consistent with international law.
4. Responsibilities of Assisting Actors
1. Assisting actors and their personnel should abide by the laws of the affected State and applicable international law, coordinate with domestic authorities, and respect the human dignity of disaster-affected persons at all times.
2. Assisting actors should ensure that their disaster relief and initial recovery assistance is provided in accordance with the principles of humanity, neutrality and impartiality, and in particular:
(a) Aid priorities are calculated on the basis of need alone;
(b) Provided without any adverse distinction (such as in regards to nationality, race, ethnicity, religious beliefs, class, gender, disability, age and political opinions) to disaster-affected persons;
(c) Provided without seeking to further a particular political or religious standpoint, intervene in the internal affairs of the affected State, or obtain commercial gain from charitable assistance;
(d) Not used as a means to gather sensitive information of a political, economic or military nature that is irrelevant to disaster relief or initial recovery assistance.
3. To the greatest extent practicable, their disaster relief and initial recovery assistance should also be:
(a) Responsive to the special needs, if any, of women and particularly vulnerable groups, which may include children, displaced persons, the elderly, persons with disabilities, and persons living with HIV and other debilitating illnesses;
(b) Adequate for the needs of affected persons and consistent with any applicable international standards of quality;
(c) Coordinated with other relevant domestic and assisting actors;
71 (d) Provided and conducted in a manner that is sensitive to cultural, social and religious customs and traditions;
(e) Carried out with adequate involvement of affected persons, including women, youth and the elderly, in their design, implementation, monitoring and evaluation;
(f) Provided by competent and adequately trained personnel;
(g) Commensurate with their organisational capacities;
(h) Building upon and conducted in a manner that strengthens local disaster risk reduction, relief and recovery capacities and reduces future vulnerabilities to disasters;
(i) Carried out so as to minimize negative impacts on the local community, economy, job markets, development objectives and the environment; and
(j) Provided in a transparent manner, sharing appropriate information on activities and funding.
5. Additional Responsibilities of All States
1. States providing funding to other assisting actors should encourage them to act in a manner consistent with the provisions of paragraph 4.
2. All States should actively encourage members of the public interested in contributing to international disaster relief or initial recovery to make financial donations where possible or otherwise donate only those types of relief goods expressly requested by the affected State.
6. Responsibilities Concerning Diversion and the Intended Use of Resources
1. States and assisting humanitarian organizations should cooperate to prevent unlawful diversion, misappropriation, or fraud concerning disaster relief or initial recovery goods, equipment or resources and initiate proceedings as appropriate.
2. Affected States should use funds and relief goods donated to them, and which they have accepted in relation to a disaster, in a manner consistent with the expressed intent with which they were given.
Part II: Early Warning and Preparedness
7. Early Warning
In order to minimize transboundary impacts and maximize the effectiveness of any international assistance that might be required, all States should have procedures in place to facilitate the expeditious sharing of information about disasters, including emerging hazards that are likely to cause disasters, with other States and assisting humanitarian organizations as appropriate, including the United Nations’ Emergency Relief Coordinator.
8. Legal, Policy and Institutional Frameworks
1. As an essential element of a larger disaster risk reduction programme, States should adopt comprehensive legal, policy, and institutional frameworks and planning for disaster prevention, mitigation, preparedness, relief and recovery which take full account of the auxiliary role of their National Red Cross or Red Crescent Society, are inclusive of domestic civil society, and empower communities
72 to enhance their own safety and resilience. States, with the support, as appropriate, of relevant regional and international organizations, should devote adequate resources to ensure the effectiveness of these frameworks.
2. These frameworks should also adequately address the initiation, facilitation, transit and regulation of international disaster relief and initial recovery assistance consistent with these Guidelines. They should allow for effective coordination of international disaster relief and initial recovery assistance, taking into account the role of the United Nations Emergency Relief Coordinator as central focal point with States and assisting humanitarian organizations concerning United Nations emergency relief operations. They should also clearly designate domestic governmental entities with responsibility and authority in these areas. Consideration should be given to establishing a national focal point to liaise between international and government actors at all levels.
3. Where necessary and appropriate, national governments should encourage other domestic actors with authority over areas of law or policy pertinent to international disaster relief or initial recovery assistance, such as provincial or local governments and private regulatory bodies, to take the necessary steps at their level to implement the Guidelines.
9. Regional and International Support for Domestic Capacity
1. With a view to increasing resilience and reducing the need for international disaster relief and initial recovery assistance, the international community, including donors, regional and other relevant actors, should support developing States, domestic civil society actors and National Red Cross and Red Crescent Societies to build their capacities to prevent, mitigate, prepare for and respond to disasters domestically.
2. The international community should also support developing States to build the capacity to adequately implement legal, policy and institutional frameworks to facilitate international relief and initial recovery assistance. This support should be provided to States in a coordinated manner among the relevant actors.
Part III: Initiation and Termination of International Disaster Relief and Initial Recovery Assistance
10. Initiation
1. Disaster relief or initial recovery assistance should be initiated only with the consent of the affected State and in principle, on the basis of an appeal. The affected State should decide in a timely manner whether or not to request disaster relief or initial recovery assistance and communicate its decision promptly. In order to make this decision, the affected State should promptly assess needs. Consideration should be given to undertaking joint needs assessments with the United Nations and other assisting humanitarian organisations.
2. Requests and offers for assistance should be as specific as possible as to the types and amounts of goods as well as the services and expertise available or required, respectively. Affected States may also wish to indicate particular types of goods and services likely to be offered that are not needed.
3. Affected States should make available to assisting actors adequate information about domestic laws and regulations of particular relevance to the entry and operation of disaster relief or initial recovery assistance.
73 11. Initiation of Military Relief
Military assets should be deployed for disaster relief or initial recovery assistance only at the request or with the express consent of the affected State, after having considered comparable civilian alternatives. Prior to any such deployment, terms and conditions (including such issues as the duration of deployment, whether they must be unarmed or may be armed the use of their national uniforms, and mechanisms for cooperation with civilian actors) are to be agreed by the affected and assisting States.
12. Termination
When an affected State or an assisting actor wishes to terminate disaster relief or initial recovery assistance, it should provide appropriate notification. Upon such notification, the affected State and the assisting actor should consult with each other, bearing in mind the impact of such termination on disaster-affected communities.
Part IV: Eligibility for Legal Facilities
13. Facilities for Assisting States
It is recommended that transit and affected States grant, at a minimum, the legal facilities described in Part V to assisting States with respect to their disaster relief or initial recovery assistance.
14. Facilities for Assisting Humanitarian Organizations
1. Subject to existing international law, it is the prerogative of originating, transit and affected States to determine which assisting humanitarian organizations will be eligible to receive the legal facilities described in Part V with respect to their disaster relief or initial recovery assistance.
2. It is recommended that States establish criteria for assisting humanitarian organizations seeking eligibility for legal facilities. These criteria should include a showing by the organization of its willingness and capacity to act in accordance with the responsibilities described in paragraph 4 of these Guidelines.
3. Any additional requirements imposed on assisting humanitarian organizations should not unduly burden the provision of appropriate disaster relief and initial recovery assistance.
4. Determination of eligibility by the State granting the facilities should be possible in advance of a disaster, or as soon as possible after its onset. Applicable procedures and mechanisms should be as simple and expeditious as possible. They should be clearly described and information about them should be made freely available. They might include the use of a national roster, bilateral agreements or reliance upon international or regional systems of accreditation, if available.
5. Retention of the legal facilities in Part V should be made dependent on ongoing compliance with the provisions of subsection 2 of this paragraph. However, entitlement to legal facilities should not be changed arbitrarily, retroactively or without notice appropriate to the circumstances.
15. Facilities for Other Assisting Actors
Affected States may also wish to extend, upon request, some of the legal facilities in Part V to assisting actors other than those covered by paragraphs 13 and 14, such as private companies providing charitable relief, provided this does not negatively affect operations of assisting humanitarian organizations or assisting States. Any actor receiving such facilities should be required to abide, at a minimum, by the same conditions described in paragraph 14.
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Part V: Legal Facilities for Entry and Operations
It is recommended that States provide the legal facilities described in paragraphs 16-24 to assisting States and eligible assisting humanitarian organizations. It is understood that the granting of these facilities will be subject to the interests of national security, public order, public and environmental health, and public morals of the concerned affected, originating and transit States. Measures to protect such interests should be tailored to the exigencies of the specific disaster and consistent with the humanitarian imperative of addressing the needs of affected communities.
Where specific facilities recommended here are within the competence of authorities other than the national government, the national government should, where possible and appropriate, encourage those authorities to provide the relevant facilities to assisting States and eligible assisting humanitarian organizations.
16. Personnel
1. With regard to disaster relief and initial recovery personnel of assisting States and eligible assisting humanitarian organizations, affected States should:
(a) Grant visas and any necessary work permits, ideally without cost, renewable within their territory, for the time necessary to carry out disaster relief or initial recovery activities;
(b) In disaster relief operations, waive or significantly expedite the provision of such visas and work permits;
(c) Establish expedited procedures for temporary recognition of professional qualifications of foreign medical personnel, architects, and engineers, drivers licences and other types of licenses and certificates that are necessary for the performance of disaster relief or initial recovery functions and that have been certified as genuine by the concerned assisting State or eligible assisting humanitarian organization, for the time necessary to carry out disaster relief or initial recovery activities;
(d) Facilitate freedom of access to and freedom of movement in and from the disaster- affected area, bearing in mind the safety of disaster relief and initial recovery personnel.
2. Upon request, originating and transit States should likewise waive or promptly issue, ideally without cost, exit or transit visas, as appropriate, for the disaster relief and initial recovery personnel of eligible assisting humanitarian organizations.
3. Assisting States and eligible assisting humanitarian organizations should consider to what degree disaster relief and initial recovery objectives can be met through hiring local staff.
17. Goods and Equipment
1. With regard to disaster relief and initial recovery goods and equipment exported or imported by, or on behalf of, assisting States and eligible assisting humanitarian organizations, originating, transit and affected States should:
(a) Exempt them from all customs duties, taxes, tariffs or governmental fees; (b) Exempt them from all export, transit, and import restrictions; (c) Simplify and minimize documentation requirements for export, transit and import; (d) Permit re-exportation of any equipment or unused goods which the assisting State or assisting humanitarian organization owns and wishes to retain.
75 2. With regard to disaster relief goods and equipment only, originating, transit and affected States should additionally:
(a) Waive or reduce inspection requirements. Where waiver is not possible, clear relief goods and equipment rapidly and as a matter of priority, through a “pre-clearance” process where feasible; and
(b) Arrange for inspection and release outside business hours and/or at a place other than a customs office as necessary to minimize delay, in accordance with the safety regulations of the affected State. Assisting States and eligible assisting humanitarian organizations should respect any routes and delivery points prescribed by the affected State.
3. In order to benefit from the facilities above, assisting States and assisting humanitarian organizations should, in accordance with agreed international standards, appropriately pack, classify and mark disaster relief and initial recovery goods and equipment, and include detailed manifests with each shipment. They should additionally inspect all such goods and equipment to ensure their quality, appropriateness for the needs in the affected State, and conformity with the national law of the affected State and international standards.
4. Assisting States and eligible assisting humanitarian organizations should assume responsibility for removing or disposing of any unwanted and unused relief and initial recovery goods, particularly if they may pose a threat to human health or safety, or the environment.
18. Special Goods and Equipment
In addition to the facilities described in paragraph 17:
1. Affected States should grant temporary recognition to foreign registration and plates with regard to vehicles imported by assisting States and eligible assisting humanitarian organizations or on their behalf in disaster relief and initial recovery assistance.
2. Affected States should waive or expedite the granting of any applicable licenses and reduce any other barriers to the use, import or export of telecommunications and information technology equipment by assisting States and assisting humanitarian organizations or on their behalf in disaster relief and initial recovery assistance. Without discrimination against or negative impact to domestic relief actors, affected States should also grant (or where, appropriate, encourage other domestic actors to grant) assisting States and eligible assisting humanitarian organizations priority access to bandwidth, frequencies and satellite use for telecommunications and data transfer associated with disaster relief operations.
3. Originating, transit and affected States should reduce legal and administrative barriers to the exportation, transit, importation and re-exportation of medications and medical equipment by assisting States and eligible assisting humanitarian organizations or on their behalf in disaster relief and initial recovery assistance, to the extent consistent with public safety and international law. Assisting States and eligible assisting humanitarian organizations should take all reasonable steps to ensure the quality, appropriateness and safety of any such medications and equipment and in particular:
(a) Any medications they import should be approved for use in the originating and affected State;
(b) Medications they use in their own operations should be:
(i) transported and maintained in appropriate conditions to ensure their quality and;
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(ii) guarded against misappropriation and abuse.
(c) Any medications they donate for use by others in the affected State should be:
(i) at least twelve months from their expiration date upon arrival, unless otherwise agreed by receiving authorities;
(ii) transported and maintained in appropriate conditions to ensure their quality until they reach the affected State; and
(iii) appropriately labelled in a language understood in the affected State with the International Nonproprietary Name or generic name, batch number, dosage form, strength, name of manufacturer, quantity in the container, storage conditions and expiry date.
4. Originating, transit and affected States should consider whether normal requirements regarding fumigation and prohibitions and restrictions on food imports and exports by assisting States and eligible assisting humanitarian organizations in disaster relief operations can be modified or reduced.
19. Transport
1. Originating, transit and affected States should grant, without undue delay, permission for the speedy passage of land, marine and air vehicles operated by an assisting State or eligible assisting humanitarian organization or on its behalf, for the purpose of transporting disaster relief or initial recovery assistance and, ideally, waive applicable fees.
2. In particular, permission should be granted for overflight, landing and departure of aircraft. Such aircraft should also be authorized to operate within the territory of the affected State as required for the delivery of assistance.
3. Any applicable exit, transit and entry visas for the operating personnel of such transport vehicles should be promptly issued.
20. Temporary Domestic Legal Status
1. Affected States should grant relevant entities of assisting States and eligible assisting humanitarian organizations, upon entry or as soon as possible thereafter, at least a temporary authorization to legally operate on their territory so as to enjoy the rights, inter alia, to open bank accounts, enter into contracts and leases, acquire and dispose of property and instigate legal proceedings, for the purpose of providing disaster relief and initial recovery assistance.
2. Assisting States and eligible assisting humanitarian organizations should also be granted the right to freely bring the necessary funds and currencies in or out of the country through legal means and to obtain legal exchange rates in connection with their disaster relief or initial recovery assistance.
3. Affected States should allow assisting States and eligible assisting humanitarian organizations to legally hire and terminate the contracts of local personnel.
21. Taxation
Affected States should provide exemptions to assisting States and eligible assisting humanitarian organizations from value-added and other taxes or duties directly associated with disaster relief and initial recovery assistance.
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22. Security
Affected States should take appropriate measures to address the safety and security of disaster relief and initial recovery personnel of assisting States and eligible assisting humanitarian organizations and of the premises, facilities, means of transport, equipment and goods used in connection with their disaster relief or initial recovery assistance. Assisting States and assisting humanitarian organizations should also take appropriate steps in their own planning and operations to mitigate security risks.
23. Extended Hours
Affected States should endeavour to ensure, when necessary, that State-operated offices and services essential to the timely delivery of international disaster relief function outside of normal business hours.
24. Costs
1. The costs of providing international disaster relief or initial recovery assistance pursuant to these Guidelines should normally be borne by the assisting State or assisting humanitarian organization. However, assisting States may agree in advance with the affected State for the reimbursement of certain costs and fees, or for the temporary loan of equipment.
2. Affected States should consider, when it is in their power and to the extent possible under the circumstances, providing certain services at reduced or no cost to assisting States and eligible assisting humanitarian organizations, which may include:
a. In-country transport, including by national airlines; b. Use of buildings and land for office and warehouse space; and c. Use of cargo handling equipment and logistic support.
78 ANNEX 6 ACRONYMS
ABG Autonomous Bougainville Government ADF Australia Defence Force APHP Asia Pacific Humanitarian Partnership ARB Autonomous Region of Bougainville AUSAID Australian Agency for International Development DEC Department of Environment and Conservation DGMP Department of Geohazards and Mineral Policy DMT Disaster Management Team DRM Disaster Risk Management DRR Disaster Risk Reduction EIA Environmental Impact Assessment EOC Emergency Operations Centre EWS Early Warning Systems GoPNG Government of Papua New Guinea IASC Inter-Agency Standing Committee ICT Information, Communication and Technology IDRL International Disaster Response Laws IFRC International Federation of Red Cross and Red Crescent Societies IHL International Humanitarian Law IM Information Management IMWG Information Management Working Group INGO International Non-Government Organization INSARAG International Search and Rescue Advisory Group IOM International Organization for Migration JICA Japan International Cooperation Agency LLG Local Level Government MDG Millennium Development Goal MOU Memorandum of Understanding MSF Médecins Sans Frontières (Doctors Without Borders) MTDS Medium Term Development Strategy MTDP Medium Term Development Plan NAQIA National Agriculture Quarantine and Inspection Authority NARI National Agriculture Research Institute NCG National Control Group NCW National Council of Women NDAL National Department of Agriculture and Livestock NDCom National Disaster Committee NDC National Disaster Centre NDMA National Disaster Management Act NEC National Executive Committee NEOC National Emergency Operations Centre NGO Non-Government Organization NSO National Statistics Office NWS National Weather Service NZAID New Zealand Agency for International Development OHCHR Office of the High Commissioner for Human Rights PDC Provincial Disaster Centres
79 PDO Provincial Disaster Offices PNGDF PNG Defence Force PNGRC PNG Red Cross PMGO Port Moresby Geophysical Observatory PTWC Pacific Tsunami Warning Centre ROAP Regional Office Asia Pacific (UN OCHA) RPNGC Royal PNG Constabulary RSC Remote Sensing Centre RVO Rabaul Volcano Observatory SAR Search and Rescue SoE State of Emergency SOP Standard Operating Procedures SOPAC Pacific Islands Applied Geo-Science Commission SPC Secretariat of the Pacific Community UNDAC United Nations Disaster Assessment and Coordination UNDP United Nations Development Programme UNDSS United Nations Department of Safety and Security UNEP United Nations Environment Programme UNESCO United Nations Educational, Scientific and Cultural Organisation UNHCR United Nations Office of the High Commissioner for Refugees UNICEF United Nations Children’s Fund UNIFEM United Nations Development Fund for Women UNISDR United Nations International Strategy for Disaster Reduction UNOCHA United Nations Office for the Coordination of Humanitarian Affairs UNOHCHR United Nations Office of the High Commissioner for Human Rights UNRC United Nations Resident Coordinator UPNG University of Papua New Guinea USAR Urban Search and Rescue USGS United States Geological Survey WFP World Food Programme WHO World Health Organization
80 ANNEX 7
Mission Programme UNDAC Disaster Response Preparedness Mission to Papua New Guinea 1 – 16 May 2009
Friday, 1 May 2009
1335- 1530 Arrival of some UNDAC team members and check-in at Holiday Inn
Saturday, 2 May 2009
1335- 1530 Arrival of all UNDAC team members and check-in at Holiday Inn
1600-1630 Courtesy call to UN Resident Coordinator a. i,
Team sets up at Port Moresby
Sunday, 3 May 2009 Team preparations at UN Conference room, level 14 Deloitte Tower
1330-1430 Team’s meeting with OCHA and GoPNG Focal Points on admin and logistical arrangements- Holiday Inn
Monday, 4 May 2009 0900- 1000 Briefing with acting Director NDC, Mr. Mose and Mr. Manasupe Zurenuoc, Secretary for Department of Provincial and Local Level Gov’t (DPLGA)1030-1130 Briefing with Minister (TBC)
1215- 1330 Lunch at NDC with members of National Disaster Committee
Time Group – Group – B Group – C Group – D Group E A 1400 – Internal Revenue NDC technical staff World Vision, Caritas, 1500 Commission Oxfam, MSF, ChildFund 1530 – AusAID EU NDC Technical staff PNG, Salvation Army ( 1630 Tuesday, 5 May 2009 Meetings at Port Moresby
Time Group – A Group – B Group – C Group - D Group E
0830 – Department of DPLGA Deputy 0930 Finance Secretary 1000 – Department of Department of Dept of Agriculture, Department of PM PNG Royal 1100 Foreign Affairs Treasury FAO representative and NEC Constabulary and Immigrations & NARI Department of NAQIA PNG Mapping Bureau Defence Force Planning & Monitoring 1300 – Lunch Lunch Lunch Lunch Lunch 1400 1430- Dept of Transport & Civil IASC DMT Meeting Fire Service (Saturday 1530 Geohazards and Aviation 9 May) Mineral Policy & POM Geological Observatory
81 1600- UPNG Centre UNDP, WHO, 1700 for Disaster UNHCR, UNFPA Reduction 1800 Debriefing and preparations for next day
Wednesday, 6 May 2009 Teams depart for Provinces as follows: Team A: Eastern and Central Provinces Team B: Bougainville and East New Britain Province Team C: Northern and Morobe Provinces
Flight Details for field visits are as follows: Team A: Eastern Highlands Depart POM at 0915 and arrive in Goroka at 1025 Flight PX960
Team B: Bougainville Depart POM at 0630 and arrive in Buka at 0810 Flight PX 254
Team C: Popondetta Depart POM at 1255 and arrive in Popondetta at 1330 Flight PX856
Thursday, 7 May 2009 Teams A continues with appointments in Eastern Highlands Province Team B continues with appointments Bougainville Teams C continues appointments in Northern Province
Friday 8 May 2009 Teams A and B continue with appointments in the respective provinces Team C departs Popondetta at 1350 and arrives in POM at 1425 on flight PX857
(Scheduled UNCT Meeting at 09h30)
Saturday, 9 May 2009 Team A departs Goroka at1045 and arrives in POM at 1155 on PX961 Team B departs Buka for Rabaul at 1135 on PX 253 arriving on Rabaul at 1215 Team C departs for Lae on PX100 at 0600 arriving at 0645
Sunday, 10 May 2009 Team A continues with meetings. Team B continues field trip in East New Britain Team C continues field trip in Morobe provinces
Monday, 11 May 2009 Field Trip to Central Province cancelled Team B continues field trip in East New Britain Team C continues field trip in Morobe provinces
Time Group A Group B Group C 0830-0930 1000-1100 NAQIA
1130-1230 1245-1345 Lunch 1400-1500 Department of Works
Tuesday, 12 May 2009
82 Groups B and C return from Provinces Team B depart Rabaul on PX 275 at 0705 arriving at POM at 0825 Time Group A Group B Group C 0830-0930 National Weather Service 1000-1100 Minister for Inter Environment and National Statistical Government Relations Conservation- At NDC Office Conference room 1130-1230 Meeting with Resident St John, Coordinator 1245-1345 Lunch 1400-1500 Briefing at NDC 1530-1630 UNICEF
Wednesday, 13 May 2009 All groups synthesis and finalize mission report 1615 - Meeting with WHO 1700 - Meeting with UNDP
Thursday, 14 May 2009 1100 - Meeting with UN Resident Coordinator 1530 - Meeting with NDC acting Director and Secretary for DPLGA
Friday, 15 May 2009 0900- 1000 Final mission report presentation to UN Country Team 1030- 1130 Final mission report presentation to DMT and Development Partners 1330-1500 Final mission report presentation to Government of Papua New Guinea
Saturday, 16 May 2009 0730 UNDAC Team departs Papua New Guinea
83 Annex 8: Papua New Guinea - Natural Hazard Risk
84