ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME

AFTER ACTION REVIEW (AAR) OF THE GEDEO AND GUJI INTERNALLY DISPLACED PERSONS (IDP) RESPONSE

WORKSHOP PROCEEDINGS

Group picture of meeting participants

7 - 9 August 2019 Adama Ethiopia

PREFACE

The inter-communal conflicts in Gedeo and To address the crisis, the Federal Government of West Guji caused a massive displacement of more Ethiopia and NDRMC, in collaboration with Oromia than 800,000 people. The conflict led to substantial and SNNP Regional States and Guji and Gedeo Zones negative impacts on the displaced population. activated the Emergency Operation Center to save Households lost their long-established assets and lives and ensure effective coordination mechanisms. means of livelihoods. The displacements placed For the first time in Ethiopia response plan, EOC was enormous pressure on the host communities, the activated an Incident Command Post (ICP) in Gedeo environment and natural resources. According to and Guji Zones. the response plan of June 2018, a total of USD 117.7 million was required to meet the immediate needs of Organizational learning requires continuous the affected population. The Government of Ethiopia assessment of organizational performance, looking and partners have so far mobilized USD 6.99 million at successes and failures, ensuring that learning which is only 5.9 percent out of the total financial takes place to support continuous improvement. Key requirement to respond to the crisis. actors engaged in the IDP response need to learn and make corrective actions from how the response Following the crisis, Emergency Operation Centers was planned, operationalized and coordinated with (EOCs) were activated in July 2018 in both Gedeo and key stakeholders from the government, UN Agencies West Guji Zones to address the humanitarian needs and INGOs for effective IDP crisis in the future. and coordinate response activities. Therefore, the key stakeholders from the federal government to the community level reviewed the The response actions were implemented with performance of the EOC/ECC within the response the deployment of substantial financial and material timeline at an After Action Review (AAR) workshop to resources and senior national and international discuss issues in an open and transparent platform multi-sectoral experts from UN Agencies and INGOs and identify lessons to improve future humanitarian to support the various activities and functions. operations. The Emergency Operation Center brought both government and humanitarian communities The workshop conceptualization, design and together to better coordinate the utilization of overall facilitation was led by ADPC as part of a available resources and share information for better partnership to build the capacity of NDRMC and response. its partners in Ethiopia for improved humanitarian preparedness, response and recovery. The Government of Ethiopia commenced and led IDP return process in September 2018. However, These proceedings are the summary of key this effort was challenged by another round of experiences and perspectives from the government prolonged displacements in the following year. For and partners’ representatives from UN Agencies instance, the highest influx of IDPs was recorded in and INGOs, as well as presentations and key March 2019 since the one happened in April 2018. discussions of the AAR workshop including gathering The National Disaster Risk Management Commission feedback from the representatives of the affected (NDRMC) reported a total of 675,000 displaced communities. The outcomes will contribute to populations in Gedeo Zone in March 2019. In April future informed decisions and actions at federal, 2019, the Government of Ethiopia launched a plan to regional, zonal and woredas levels on effective IDPs return all IDPs to their place of origin and has been emergency response in the future. responding to the needs of the displaced, returnee and host communities.

WORKSHOP PROCEEDINGS ii COMMISSIONER’S MESSAGE

Mr. Mitiku Kassa, Commissioner of the National Disaster Risk Management Commission (NDRMC), welcomed representative from ADPC, regional government, Sectoral Lead Ministries and Agencies, UN and NGO partners, and Directors of NDRMC and opened the workshop by making key remarks.

The workshop has brought together various actors actively involved in Gedeo and Guji IDP Response Operation to reflect on what has been accomplished and identify key learning for the future. During the last two years, inter-communal violence has resulted in a massive displacement of about 2.8 million people. The displaced populations in Gedeo and West Guji were 800,000 which made it the largest and demanded high and complex response operation managed by the Ethiopian Government and its partners.

iii ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME The operation involved establishment of two NDRMC has established a partnership with ADPC EOC operations at Dilla and BuleHora towns to facilitate South-South Knowledge and Experience and deployment of huge financial, material and Exchange between Asia and Ethiopia and then to human resources including senior national and Africa. In light with this, ADPC and NDRMC are jointly international multi-sectoral experts to support the implementing two projects funded by the Bill & various functions of the response. Melinda Gates Foundation (BMGF) since June 2018.

Accompanying the activation of the EOC in the The After Action Review of Gedeo and Guji IDP two locations and simultaneous enhancement response, is a part of the ADPC project entitled of the response operation, the various national (Advancement of Recovery Initiatives for Safer coordination platforms moved their regular Ethiopia (ARISE)” that specifically focuses on meetings to the actual operation area for effective improving NDRMC and its partner organization timely decision making and provide closer leadership capacity to IDP response. support to the technical team deployed on the ground. The workshop is aimed at providing a platform for NDRMC and humanitarian organizations involved The Government (through NDRMC) and partners in the Gedeo and Guji IDP response to look back went through multiple challenges during the and review how the emergency response operation emergency operation to meet the mutual obligation was executed and identify key learning to improve of saving people’s lives. similar operations in the future.

The established coordination systems, Experts from diverse background and experience commitments by the Federal and Regional from the federal, regional, zonal levels of the Government and collaboration with the humanitarian government offices, UN Agencies, NGOs and donors partners made the response operation successful participated the After Action Review workshop. Most in addressing most of the needs of the displaced importantly, community representatives, not just as population and saving lives. beneficiaries but as key stakeholders participated in the workshop to contribute their inputs on IDP The lessons learned from the coordinated response coordination process at the community operations executed during Gedeo and Guji IDP level. crisis has helped NDRMC and the humanitarian partners to better plan and improve emergency The participants in this workshop have been responses to the IDP situations that came up during involved in the response operation in different roles. the latter part 2018 and 2019. Thy will have the opportunity to openly share their views freely and actively contribute to joint review However, it is crucial to properly identify, analyse, and learning process. synthesize and document the lessons learned from the implementation of IDP response operations to The After Action Review workshop will discuss improve organizational capacity development and key issues and challenges that faced during better prepare for effective response operations to implementation and come up with new learning similar eventualities of such kind in the future. and recommendations for capacity improvement.

With this context, NDRMC in collaboration with NDRMC is committed to taking forward to Asian Disaster Preparedness Center (ADPC) has the consolidated learning that comes out of this organized the After Action Review to bring together workshop to higher level government coordination and facilitate learning for the key stakeholder and partners’ coordination and find mechanism organizations and individuals directly involved in for integrating the suggested priority areas of Gedeo and Guji IDP response operation. improvement into the future engagements in humanitarian response operations.

WORKSHOP PROCEEDINGS iv CONTENTS

Preface ii Commissioner’s Message iii Executive Summary vii

1. INTRODUCTION 01 1.1 Purpose and Objectives 01 1.2 Methodology 02 1.3 Report Organization 02

2. INCIDENT OVERVIEW 03 2.1 Overview of Gedeo and West Guji Displacement and Emergency Operation Coordination 03 2.2 IDP Response Timeline 06

3. INCIDENT RESPONSE ANALYSIS 08 3.1 Overview of National Incident Management System 08 3.2 Issues and Challenges 09 3.3 Operationalization of Existing Plans and Capacities 11 3.4 Performance Assessment of ECC Capabilities 15

4. KEY FINDINGS AND RECOMMENDATIONS 16

5. CONCLUSION 19

ANNEX I. WORKSHOP AGENDA i ANNEX II. ECC CAPABILITY RATING iii ANNEX III. IMPROVEMENT PLAN MATRIX ix

v ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME ACRONYMS

AAR After Action Review ADPC Asian Disaster Preparedness Center DTM Displacement Tracking Matrix ECC Emergency Coordination Centre EOC Emergency Operation Centre IDP Internally Displaced People IOM International Organization for Migration OCHA Office for the Coordination of Humanitarian Affairs MAC Multi-Agency Coordination NDRMC National Disaster and Risk Management Commission NFIs Non-food Items NIMS National Incident Management System NGO Non-Governmental Organization UN United Nations

WORKSHOP PROCEEDINGS vi EXECUTIVE SUMMARY

Forty eight participants from the government In general, the After Action Review underscored offices, UN Agencies, Non-governmental the need to ensure ownership of the government Organizations, International Development Partners at different levels (from federal level down to local and community members attended the After Action level kebele administration) and strengthening the Review workshop in August 2019. The main activities capacity of the government structures at regional of the review workshop comprised presentations, zonal and weredas levels and improve timely plenaries, and discussions on IDP response timeline, guidance from the Multi-agency Coordination (MAC). priority issues and challenges, utilization of existing plan and capacities in the response, assessment The review also came up with recommendations of NIMS operationalization, and identification of for improvement in the areas of resource improvement actions and priority settings. The management, communication and information, and presentations and discussions raised key points planning and activation/deactivation of EOC/ECC. that represent learning, challenges and gaps and future directions for the humanitarian sector in In addition, enhancing an integrated early implementing IDPs crisis response. warning system at all level of the government structures and ensuring the linkage among the Millions of people were displaced from the West- different platforms have been identified as the key Guji and Gedeo due to inter-communal conflict, areas of improvement to prevent or mitigate future which led to massive IDP crisis. An overview Mr. crisis. Key areas recommended are familiarizing Muluneh Woldemariam, Gedeo EOC Coordinator for stakeholders and partners with NIMS Guideline, the 2018/2019 Emergency Operation Coordination in developing federal level operation plan, improving West Guji and Gedeo, highlighted historical Gedeo the logistics system including storage facilities, and Guji relationship, the 2018/19 conflict situation mainstreaming DRM into sectors development and displacement, crisis impacts, needs assessment plan and strengthening information management and coordination arrangements. and communication. A small working group composed of government, UN Agencies, and NGOs An over view of National Incident Management was established to review the guideline and make System (NIMS) was presented by Beletu Tefera, Senior possible revisions per AAR recommendations, and DRM Expert at NDRMC and highlighted the principles, follow up the implementation of the guideline. purposes, benefits and components – Multi-Agency Coordination System (MAC); Emergency Operations The review workshop was wrapped up by Center (EOC/ECC) and Incident Command System developing an action plan that comprises actions (ICS). The After Action Review workshop outlined for improvements, areas for capacity building and the activation of EOC/ECC, followed by activation of responsibilities for future interventions. The review various clusters. It brought together various actors process created a common understanding of IDP from the federal, regional, zonal level government response operations, and the lessons learned from stakeholders and the humanitarian partners for a the Gedeo and Guji Emergency Operations Centers joint and coordinated intervention. will serve as a working procedure for future incident interventions. The response, however, has been hindered by internal and external challenges. Some of these major challenges are discrepancy of IDP figure and its timeliness, change of dynamics, lack of clarity on return plan and ownership by regional and zonal officials, delay of response, poor resources and information communication system, political sensitivity in IDP response issue and delayed EOC activation.

vii ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 1. INTRODUCTION

1.1 Purpose and Objectives of the Workshop Objectives of the Workshop The main purpose of the workshop was to The workshop is aimed to achieve these objectives: provide a platform for NDRMC and humanitarian • Identify timelines in the response operation, organizations involved in the Gedeo and Guji IDP challenges and good practices in the Gedeo response to review how the emergency response and Guji IDP emergency response operations operations were executed and identify learnings • Assess the functional capacity of existing to improve similar operations in the future. emergency coordination system of NDRMC and its partners looking at effectiveness of The After Action Review (AAR) Workshop is current policies, procedures, systems and focused on the Gedeo and Guji IDP response and plans in coordinating a multi stakeholder its emergency coordination platform, Emergency response operations for IPD through the Operation Centre (EOC) or Emergency Coordination government Emergency Coordination Center Centre (ECC) at Federal, Regional, Zonal and (ECC) woreda levels. The review analyzed the response • Identify key learnings in the emergency process from EOC activation to its deactivation response operations that can be improved and details of emergency coordination structures and strengthened for better response in the and response. While included some instance of future. coordination experiences in other regions, the • Develop corrective action plan with practical review was bound to the Gedeo and Guji operation actions for improving existing capacities since June 2018. Within the framework of NIMS that can be integrated in the emergency Guideline, the review highlighted the practicality preparedness programs of NDRMC and of EOC/ECCs, achievements, challenges, gaps and respective humanitarian organizations as part areas of improvement. of priority capacity building activities. • Document and share specific experiences of the The AAR was held in Adama from 7 to 9 August Gedeo and Guji response stakeholders in the 2019 and brought together representatives government and humanitarian organizations from the federal, zonal and woreda government structures, UN-agencies, NGOs and community members all directly involved in the response operation. Notably, the workshop involved IDP returnee representatives from both Gedeo and West Guji Zones.

IDP returnee girl in West Hararghe, Meisso Woreda, Sara Baumann

WORKSHOP PROCEEDINGS 01 1.2 Methodology These proceedings, organized around four It was an interactive and a combination of sections, provide a record of the main highlights of multiple activities – keynote remarks, brainstorming the workshop. of expectations, plenary sessions, informative presentations and group exercises. The thematic- Section 1: Opening plenary session, contains based group discussions were guided by briefing the welcome and keynote address by the NRDMC instructions to facilitate open and vibrant Commissioner deliberations. Section 2: Introduction, contains the purpose, At the beginning of the workshop, the participants scope, methodology and structure of the proceedings. indicated their expectations and concerns of the workshop. Their expectations is summarized as: Section 3: Incident overview, contains IDP increase their understanding of EOC and response response timeline and humanitarian partners’ timeline; identify challenges, gaps and achievements; integration. learn from the Gedeo and Guji operation and prepare for the future; prepare action plan and share Section 4: Incident response analysis, contains responsibilities; and listen to and reflect on the voices key issues and challenges, operationalization from the field (communities). The participants were of existing plans and capacities, performance concerned with time constraints, broad topics, time assessment of ECC capabilities and strengthens of management and language of communication with ECC operations. the community members. Section 5: Key findings and recommendations Ground rules were set by the participants; some of on communications and Information; resource these were (1) focusing on performance of response, management; and ECC planning, activation, not to judge success or failure of individuals, (2) deactivation, staffing & structure. encouraging individual participation transparent discussion and respect or value for all idea and inputs, Section 6: Conclusion and (3) ensuring shared accountability and learning. Workshop participants were assigned to translate for community participants to understand discussions and express their views.

1.3 How is the Report Organized? The workshop ran for a day and a half, beginning with a plenary session where a keynote address was delivered by Mr. Mitiku Kassa, Commissioner of NDRMC. The main technical presentations, exercises and discussions were organized around these main themes (Overview of Gedeo and Guji IDP Response, IDP Response Timeline, Prioritization of Issues and Challenges, National Incident Management System & EOC and Analysis on How Existing Plans & Capacities were Utilized in the Response). The report summarizes the discussions and presentations representing an effort to identify learnings of emergency response and coordination schemes for improved intervention in the future.

02 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 2. INCIDENT OVERVIEW

2.1 Overview of Gedeo West Guji Displacement In March 2018, violent conflict between the two and Emergency Operation Coordination people resulted in displacement of 239 000 people Muluneh Woldemariam (from NDRMC and Gedeo from West Guji to Gedeo. The displaced people EOC Coordinator) presented the general background returned home after peace and reconciliation deal of the Gedeo and West Guji IDP crisis and the brokered by the Government. However, as a result coordination arrangements implemented during the of a renewed violence along the borders of Gedeo response operation. and Guji between May and July 2019, one million people were displaced from West Guji, East Guji and Gedeo and Guji relationship, conflict situation, Gedeo Zones. The violence resulted in casualties and crisis impact and needs overview damages to properties. The most recent violence in March 2019 resulted in displacement of 500,000 The presentation started with describing the people from West Guji to Gedeo Zone. nature and history of relationship between Gedeo and Guji communities. The two people live side by The violent conflict between May and June 2019 side as neighbors in Oromia and SNNP Regions in resulted in a massive human displacement, human the Southern Ethiopia. They have a long history suffering, injuries, deaths, family separation and of cooperation, interdependence and friendship. property loss and damage. The majority of the IDPs Their relationship ranges from sharing adjacent lost most of or all of their household, farm and geographical landscape, economic transaction, livestock assets. A significant number of IDPs fled with cultural practices and intermarriage to the extent nothing more than their personal possessions and of myth of ‘common ancestry’ of the Kushitic origin. their houses were fully or partially damaged. Services including schools, health centers, and warehouses Despite the good relation of the two people, there were disrupted and damaged. Displaced people were are records of conflict over water and pasture since sheltered in collective sites, spontaneous camps and 1970s. The conflicts have become more frequent and in dispersed settlements which were overcrowded violent and increased in scale and magnitude over the putting the IDPs in a dire and undignified situation. subsequent years. It was in 1994 that the first major round of violence fighting took place in 1998, which claimed the lives of hundreds of people.

Areas affected by inter-communal conflicts

Figure 1 Areas affected by inter-communal conflicts

WORKSHOP PROCEEDINGS 03 A rapid observation and assessment by the the federal level, high level officials from NDRMC, Government and humanitarian partners have shown Federal Affairs, Communication, Health, Water, that the IDPs need support with food and non-food Irrigation and Electricity, Women and Children items, dignified temporary living condition, health and Affairs, Education and Transport were represented wash services, access to education, legal services and in the council, and from the regional government the communication facility, and protection and safety. Presidents of Oromia and SNNPR and their officials were members of the council. Coordination Arrangements – GSTC and EOC The council organized a Special Technical Before EOC actors launched the response Committee which was tasked to run the day-to-day operation, the host communities were indicated as activities, and chaired by the Federal and Pastoralist pioneers in responding to some of the immediate Development Affairs Minister and comprised high needs of the affected population. Local institutions level officials from Federal, Regional and Zonal and private businesses made significant contributions offices including Chief Administrators of Gedeo and too. The Government and humanitarian partners (UN Guji Zones. Agencies and INGOs) deployed their team of experts to coordinate responses at Gedio and West Guji Zones. Overall, the high level committee has carried out these roles: evaluating the day to day performance In this regard, two types of coordination on the ground; making decisions on allocation of arrangements, namely (Government Steering and scarce resources (by prioritizations); providing Technical Committee, and Emergency Operation overall strategic guidance and direction to EOC Center) were established to facilitate the response Managers; facilitating and leading people to people operation in the Gedeo and Guji IDP crisis. conferences; and coordinating the IDP returnee programme. Government Steering and Technical Committee Emergency Operation Center The Government Steering and Technical Why was it needed to activate EOC? Committee (GSTC) was organized at the federal and 1. High influx of IDP population and increased regional levels. The National Steering committee or needs. council was established in June 2018 to oversee the 2. Requests from the Regions and Zones for case of Gedeo and Guji conflict incident. The council more coordinated response. was represented by regional officials and chaired by 3. The Federal Government’s direction to the Deputy Prime Minister Demeke Mekonnen. From strengthen coordination.

IDP’s inside the temporarily provided shelter and NFI materials in East Hararghe, Oboo, Sara Baumann

04 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME Based on these needs for a better coordination, Cluster Coordination Meeting was chaired by the the Emergency Operation Centre (EOC) was Management of Emergency Operation Center. activated in Gedeo-Dilla on 7th July 2018 and Regular meetings such as daily situation update revitalized in March 2019. The West Guji-BuleHora meetings, bi-weekly inter-cluster meetings at EOC EOC was activated on 19th July 2018. In both cases the level, and weekly clusters meetings were conducted. activation process was made by the support of NIMS The meeting calendar was revised as needed. (National Incident Management system) specialist. Through EOC, the government and the The EOC structure is composed of Management, humanitarian partners started operations jointly Planning, Operation and Logistics sections. in both Oromia and SNNP Regions. They jointly The Management section was composed of conducted assessment, identified priority needs representatives of the government (federal, region and took response actions. Joint verification and and zone) and UNOCHA and managed the overall targeting, and Standard Operating Procedures for coordination, liaison, communication and security. Targeting and Registration of IDPs was developed, The planning section of the EOC had the same agreed up on and practiced. Joint Response and representation and were responsible for collecting Early Recovery Plan to IDPs and Returnees was and disseminating information and prioritizing prepared in alignment with the Humanitarian and resource needs and tracking. The logistics section Disaster Resilience Plan (HDRP). In addition, the plan had the role of identifying resources, facilitating was prepared to adhere with the principles of IDPs effective and timely delivery and warehouses and (Voluntariness, Safety, Dignity and Sustainability) mapping transport routes. The operation section and to enable partners to access both IDP and was composed of mainly regional and zonal levels returnee areas to continue to provide humanitarian and responsible for coordinating the overall daily assistance. follow up with the woreda level activities and oversee the performance of clusters. After this presentation, participants were asked to reflect on the successes and challenges of the The EOC arrangement has achieved remarkable coordination process. successes in coordinating the response operation through activation of clusters and regular meeting. In general, EOC performed successful IDP It brought together key actors, government and response operation including serving as a physical humanitarian partners for a joint intervention. place and liaison; simplifying information verification; Government officials from federal line ministries improving continuity and efficiency; providing access operate at zone level in EOCs and regional experts to available information; conducting resource assisted the operation at the wereda level. identification and mobilization; and managing Humanitarian partners deployed 418 officers in resource prioritization, allocation, distribution and Gedeo Zone and 100 government officers (excluding delivery; and facilitating and coordinating high level medical team) were deployed in IDP sites. EOC visit and briefing. successfully facilitated joint assessment, response and early recovery plan. The gaps with the coordination process were late establishment and activation of EOCs, slow resources Health, nutrition, ES and NFIs, WASH, Food, mobilization and poor capacity at BuleHora, lack Protection and Logistics cluster coordination of warehouse at local level, disparities with IDP forums were activated and led by their respective figures and data inconsistency, inadequate tracking sector heads. Site management unit was also of IDP population dynamics at the beginning of the established and played a significant role. Inter- operation, low local government readiness, and lack of clarity on the transition from response to recovery.

WORKSHOP PROCEEDINGS 05 2.2 IDP Response Timeline As the massive displacement was unexpected Participants were divided into four small groups it put too pressure on the host communities, the and requested to discuss and identify key events, government and humanitarian partners. The host dynamics, issues and challenges on the assigned ECC communities were the first to support the IDPs functions (Management, Operations, Planning, and with available resources; and this was followed by Logistics & Supply) along the crisis response timeline the support from the local level governments. Lack beginning with the initial phase of the response, of food, shelter, clean water and other non-food activation of EOC, until the time of return of IDP to items were the challenge, and there wasn’t proper their areas of origin. The key situations and events coordination system and response plan in place. are indicated as: Gideo-Guji IDP Crisis Timeline

ERP & EOC/MAC Activation 2nd IDP Govt-UN-NGO Coordination Return Plan

Initial Response / 1st IDP Regional request to Resource Return Plan NDRMC Mobilization / IDP Return to original places $117M Appeal SEP

APR MAY JUN JUL AUG APR MAY JUN 2018 2019

860,056 145,856 675,000 IDP IDP IDP

Gedeo and Guji IDP crisis timeline AAR Discussion Scope

Figure 2 Gedeo and Guji IDP crisis timeline

It was indicated that the first Gedeo and Guji In May 2018, the regional governments made displacement happened in West Guji and Gedeo a formal request to NDRMC with IDP response. Zones. Since the beginning of the crisis, the IDP In collaboration with the humanitarian partners, situation and events have gone through different IDPs Emergency Response Plan was prepared in phases. June 2018, and EOCs were activated in July 2018. However, timely and accurate IDP data, prioritization and availability of resources, and clear and well- represented coordination system remained the challenge with response operations.

06 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME Despite the fluctuating figures, the total IDPs reached 860,056 population in July 2018. In 2018 the first return was conducted in September and the number of IDPs was reduced to 145,856. Since then, response was only provided to this population until March 2019. At the end of March 2019, the government officially recognized 675,000 IDPs only in Gedeo zone. With the dynamics changing very fast, the next return was launched before April 2019 and continued in the following months. As a result, the response was shifted from IDP to returnee and Return Response Plans for both Gedeo and West Guji IDPs were developed.

The response operation and return operations went many challenges in the areas of management, planning, operation and logistics. Inconsistent IDP figures, security issues, limited involvement of zone and region in coordination, absence of clear information on EOC level of activation as well as EOC deactivations were some of the challenges which affected the response process.

NDRMC and partners IDP assessment in Gedeo-Gudji, Degif Sisay

After Action Review workshop participants in group discussion, Degif Sisay

WORKSHOP PROCEEDINGS 07 3. INCIDENT RESPONSE ANALYSIS

3.1 Overview of National Incident NIMS contains four key components: Preparedness, Management System (NIMS) Communications and Information Management, Beletu Tefera, Senior DRM Expert at the NDRMC, Resource Management, Command and Management, presented two key points: Multi-Agency Coordination and Ongoing Management and Maintenance. System (MAC) and Emergency Operations Center (EOC/ECC). The presentation is meant to provide Multi-Agency Coordination System (MAC) the ECC functions, structures and procedures to be achieved in EOC operations in the country in MAC is a process that allows all levels of accordance with the National Guideline. government, UN agencies, NGOs, and private sector to work together efficiently and effectively. National Incident Management System (NIMS) The personnel in MAC group comprises Sector or The National Incident Management System Agency representatives with jurisdictional, functional (NIMS) is a program adopted to strengthen NDRMC’ or significant support to incidents, and members s Response capacity (Preparedness, Coordination embers are fully authorized to commit their funds and &Response) by integrating selected components of resources and members must be knowledgeable about NIMS (MAC, EOC, ICS) into the existing DRM system. their fiscal, incident, and safety or risk management.

A set of principles that provides a systematic With regard to the function, a MAC group determines proactive approach guiding government agencies incident priority, allocates critical resources, sets at all levels, nongovernmental organizations, and policy and guidelines, coordinates with elected and private sector to work seamlessly to prevent, protect appointed officials, provides strategic direction, against, respond to, recover from, and mitigate monitors effective and efficient operations, conducts the effects of incidents, regardless of cause, size, long-range strategic planning and directs ECC activities. location or complexity in order to reduce the loss of life or property and harm to the environment. Emergency Coordination Centers (ECC)

NIMS aims to ensure clear chain of command, An ECC is the physical location where information minimize duplication of efforts & resources, and resources are coordinated in support of on-scene encourage decentralized approach and Multi-hazard or tactical operations. It is a facility that implements & Multi-sector coordination as well as facilitate rapid the MAC group decisions, and where the on-scene response operations. incident management system makes request for resource needs. ECC brings together representatives of different organizations during an emergency to coordinate response and recovery actions. Positions

NDRMC technical Directorate staff on ECC training (Photo from NDRMC documentation)

08 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME in the ECC are filled by the government and supported overwhelm the Regional capacity by non-government organizations or humanitarian • If similar incidents in the past required ECC partners in support of an emergency. activation • When the Regional or Jurisdictional Emergency Operations Centers (ECC) government request assistance • When a Federal Ministry requires support An EOC is a pre-arranged space and activated with coordinating response to an incident when needed only. EOCs include everything from • When an emergency is imminent such as simple to complex and can be 24/7 operations at severe weather warnings, river/flash flooding, times of crisis incidents. and escalating disaster

EOCs and MACs The decision to activate the ECC varies by jurisdiction, such as Federal ECC, Regional ECC, Emergency Operations Centers are part of the WECC or an Agency ECC. The decision making Multiagency Coordination System. EOCs and MACs process should be documented in policy and share common functions of information collection all personnel must understand: Who makes the and evaluation/analysis, coordination, priority decision; the circumstances for activation; and the setting, resource coordination and communications timeframes for activation. facilitation. 3.2. Prioritization of Issues and Challenges ECC Activation Procedures The EOC or ECC structure is composed of Level of ECC activation. Management, Planning, Operation and Logistics • Conditions for determining ECC activation at components. These components had their own the Federal level: respective roles in the IDP response process. • When ECC activation levels described in the Participants were divided into small groups and Emergency Coordination Center Guide occur asked to classify and rank the identified issues and • When one or more Region requires federal challenges in the categories of (1) Leadership or assistance Governance & Decision-making Issue, (2) Resources • When resource and information coordination Issue, (3) Communication & Coordination Issue, (4) Information Management Issue.

a. Management Section In the management roles of EOC/ECC, the following key issues are presented in priority order.

Leadership/ Resource Issues Communication & Information Governance & Decision Coordination Issues Management Making Issues Issues Resource gap limited Resources were scarce Different sectors Lack of timely and the capacity to and response process were not engaged as accurate data collection implement the recovery was slow and didn’t intended. plan. commence on time. Exit strategy was not Funding constraints for Duplication of resources there for EOC. EOC recovery plan was deactivated and communication with partners was ceased. EOC was not in its full Reconciliation process capacity in West Guji. was not cascaded timely. Duplication of resources Lack of transparency on were observed during the number of IDPs. NDRMC technical Directorate staff on ECC training (Photo from NDRMC documentation) the operation.

WORKSHOP PROCEEDINGS 09 b. Planning Section In the planning roles of EOC/ECC, the following key issues are presented in order of priority.

Leadership/Governance Resource Issue Coordination & Information and Decision Making Communication Management Issue Poor representations Lack of resources Poor representations Variations in IDP figures of sectors, regions and for some sectors like of sectors, regions and zones in EOC agriculture zones in EOC Delay in providing MBL, Delay of resource Reluctance to follow Inclusion and Exclusion delivery commitment by proper channel, few error supporter partners Challenges with Preference of areas of Road inaccessibility identifying IDPs from intervention host communities (non- IDPs) Inconsistencies of IDP figures Challenges with distributing the available resources Security concern c. Operation Section In the planning roles of EOC/ECC, the following key issues are presented in order of priority.

Leadership/Governance Resource Issue Communication & Information & Decision-making Issue Coordination Management Issue Security problem Shortage of Non-Food Less coordinated Inconsistent IDP figure Items (NFIs) and water response supply Limited implementation Inadequate or delayed Task duplication Double counting of return response plan response EOC was not in place at Shortage of recovery Lack of prioritizing most BuleHora and rehabilitation fund vulnerable IDPs Locations were not Resource duplication Delay in custom easily accessible clearance Inconsistent direction Low involvement of by the Government regions Impediment with restoring landholding certificate of returnees Return response was given less attention

10 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME d. Logistics Section In the logistics roles of EOC/ECC, the following key issues are presented in order of priority.

Leadership/Governance Resource Issues Communication and Information and decision making coordination Issue Management issues Inconsistency of data Shortage of NFIs at the Inconsistency of IDPs Inconsistency of IDPs and information beginning of response figure figure operation Challenges with Warehouse and storage Challenge with management, problems for response identifying IDPs from coordination and operation items host communities level of commitment in Oromia and Gedeb woreda (Gedeo Zone) Security Problem Challenge with identifying IDPs from host communities Low representation of Road access constraints Oromia Officials during response activities in West Guji Too many assessments, Using Rub Halls for but poor commitment in unintended purposes responses Road access constraints IDPs return to their areas of origin was challenged.

3.3 Analysis of Operationalization of and structure), communications and Existing Plans and Capacities information management, and resource Participants were divided into small groups to mobilization and management. analyze the operationalization of existing response plans and capacities in Gedeo and Guji response Discussion points for UN Agencies and NGOs: operation. • What were the original mission, plans and strategies? How was it operationalized in the Discussion points for Federal, Regional, Zonal actual response? and Woreda level government: • Was the original plan utilized and • What were the original mission, plans and appropriate? What were the gaps in the strategies? How was it operationalized in the existing coordination plans? actual response? • Discussion focus - Humanitarian Coordination • Was the original plan utilized and Structure (S-MAC, EOC, Clusters/sector appropriate? What were the gaps in the task forces, etc.), synergy and integration existing coordination plans? of organizational coordination system to • Discussion focus - Emergency Response the government and communications and Coordination, ECC linkages (internal and information management. external), ECC (planning, activation, staffing

WORKSHOP PROCEEDINGS 11 Discussion points for Representatives of the Local The response was strong in terms of establishing Communities (IDPs and Returneed): the Incident Command Post at woreda level (in • How did the humanitarian actors engage your Gedeb woreda), making decisions collectively, and community in the areas of Assessment and engaging of MAC representatives, NGOS and UN Planning of Response, Emergency Response Agencies. To strengthen the response, coordination Operations and Monitoring & Evaluation of mechanisms need to be improved per the NIMS Response Activities? Guideline. • Was the information about the response readily available and shared with your The information communication performance community? Were you aware of how to access was remarkable. It was successful in deployment such information? of public relations experts, issuing press release, • What are the mechanisms to communicate engaging the international media and making use with the government, UN Agencies and NGOs of 5 W’s. However, there were challenges with about your situation and needs? How did information flow from woreda level to EOC, managing you provide feedback about the response the social media and tracking displacement data. activities? • Have you experienced “IDP Fatigue” due Resource management by both the government to lack of coordination of humanitarian and partners has been identified as one of the response in your community? serious challenges for the response operation. There was a capacity problem by the government The following part summarizes the outcomes of to effectively utilize the resources from the civic the group discussion by the representatives of the societies, philanthropies, institutions and donors. government offices, UN Agencies and NGOs, and Partner’s rules and regulations were not flexible to the community members. allow utilization of the available IDP response funds for returnees as a humanitarian support. Federal Government Better resource management, preparedness After EOC activation, the National Incident for IDP crisis, clear government plan, participation Management expert lead the response in Gedeo and of the humanitarian community in the process, West Guji and put into operation EOC components and allowing flexibility for partners would ensure (management, planning, operation and logistics effective and timely IDP response. sections). However, decisions were made with an engagement of various stakeholders and woreda to The Gedeo EOC was more effective and federal level officials were strategically requesting stronger in its structure, planning, communication the required resources. and information management, and response coordination when compared to the Guji EOC. Realities Areas of Improvement Zone and Woreda Level Activation was as the Activation should come result of collective from bottom to top The mission of the Disaster and Risk Management decision, federal, Office (DRMO) at zonal and woreda level is region and zone (top to to build resilience to different shocks, saving bottom) lives during crisis and provide timely response. EOC was reactive EOC should be DRMO is responsible for data collection, analysis, mechanism proactive mechanism interpretation and dissemination information on Region and Zone Full ownership of the weather condition, seedling performance, livestock, food security, disease outbreak, market price, etc level government response by zones and to relevant bodies. DRMO conducts Multi-Sectorial lack commitment and regions. Assessment twice a year to ensure readiness. ownership

12 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME The response operation at zone and woreda and response planning. In order to facilitate this, levels was challenged with weak coordination among it requires clarity and certainty as resources are partners, low involvement of sector offices, poor very limited. Partners were mainly reprogramming government attention, limitations with evaluation, to responds in Gedeo and West Guji. Resource rapidly changing dynamics, limited participation of mobilization has remained a major challenge for local government in EOC/ECCs, communication and the response. information, and resource management. Had it been coordinated with full local level accountability, the Access constraint - In Gedeo Zone, there were response wouldn’t have been beyond the technical constraints with physical access Gotiti in Gedeb capacity of region, zone and woreda together. woreda and Chiriku in Yirgachefe woreda. Security was a concern in some areas of West Guji Zone. UN Agencies and NGOs Overall, EOCs played key roles in coordination, The IDP response operated in line with strengthening cluster and creating synergy between the framework and strategic objectives of the clusters and respective sectors. Establishment Humanitarian Response Plan (HRP), which are of EOCs created convenient physical space for saving lives and providing protection for affected all actors to effectively organize and coordinate communities. At the beginning of the response, their response operations. However, poor chain coordination was very limited and partners triggered of command, confusing politics with humanitarian response separately to meet the immediate needs issues, lack of ownership by sectors, lack of ways of the affected population. After the establishment of working among ministries, zones, etc. and poor of EOC and preparation IDP response plan, communication and information management were coordination became well organized and effective. the major challenges. Overall, the response was less than the highest standard in terms of timelines However, the challenges listed below affected and relevance. the actual implementation vis-`a-vis the mission, plan and strategy: IDP Returnee Representatives Representatives of the IDP/returnee community Lack of clarity - Government did not provide stressed that the humanitarian community should clear guidance on IDP response. Response duration allocate resources in the actual place of displacement and IDP return timetable was not known. Several to avoid distrust and overlapping of resources. failed return attempts hindered partners to plan EOC need to check the commodity package and properly. In addition, prohibition of assistance in intervene in the selection of IDP sites/locations some locations and directing assistance to other based on actual needs. Continuous monitoring places to encourage return made resource planning of the overall response including IDP data and and mobilization more difficult. It was only in March timeliness should be in place. There were gaps with 2019 that the government developed and put into effective distribution of the allocated resources effect the National IDP Strategic Plan. and the support to the community was not enough particular from the Government. The response was Figures discrepancy – The numbers of IDPs irregular and inconsistent – some distributions took was inconsistent and discrepant from time of up to 4 months gap. “If we are provided with assistance assessment to resource commitment by partners. we would be happy, if not, we don’t complain,” The government could not provide consistent commented community members. information on IDPs and this affected resource planning and mobilization by partners. The returnee representatives stressed the need for continued assistance in their place of origin. Difference in decision making and planning They requested the government and humanitarian framework - As a result of the dynamics, UN Agencies partners to provide assistance with rehabilitation and NGOs need to consult with their respective and recovery. They suffered property loss and headquarters and donors for decisions making damage, and it will take years to regain their livelihoods.

WORKSHOP PROCEEDINGS 13 SUMMARY

While response focused under the principles of saving affected population, the following were some of the key issues identified by all partners.

Functionality: Given the limitations with resources, technical capacity, and partners’ field presence, it is important to agree on the ‘when’, ‘how’ and ‘what level’ of decentralization EOCs operate in Ethiopia. In the EOC guideline, each level of EOC has to function per its responsibility. Deployment from the federal government should be limited to providing the required backdrops and filling the gaps.

Ownership: Participants highlighted that there was unsatisfactory involvement and engagement by the regions and zones. The degree of attention given from responsible bodies of the government was minimal. The cluster approach, led by the government, is a recognized approach that helps to effectively channel resources and respond to the affected population. This was, however, challenged by low level of involvement by sectors in taking the responsibility of the clusters.

Response: The Gedeo and West Guji response operation was consistently affected by the delay in distribution of items. It took longer time to provide identify real IDPs and the Master Beneficiary List. As the response operations are interlinked, the delay of one activity affects the overall IDP response process.

Data/Figures: IDP figures were discrepant at different levels of government reporting and between government and DTM IOM data. In Gedeo and West Guji, data from the government is used for operational purpose while DTM data is used for planning purposes. Though its timeliness is questionable, data remains an important element in humanitarian response. Practically, DTM data are compiled by IOM on time and finally endorsed by the government, which may take up to two months. The government needs to provide data endorsement on time. On the other hand, DTM data tracking depends on the caseload of population in one area. Areas with a caseload less than 5000 IDPs are not considered in a tracking exercise. DTM’s capacity to observe these cases need to be scaled up. A mechanism should be in place to enable joint assessments.

14 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 3.4 Performance Assessment of ECC The Gedeo and Guji IDP crisis began in April 2018 Capabilities while the activation of ECC took place in July 2018. To assess the NIMS operation, participants The initial phase of the crisis is marked by lack of were divided into small groups to identify areas coordination and response. Timely activation of ECC of improvement in the overall response, resource therefore ensure effective coordination and prevent management, communication and information resources duplication. and EOC activation/deactivation, and develop improvement action plan by identifying corrective In addition, enhancing the early warning actions, capability Element (Planning, Organization, system at all levels of the government structures Equipment, Training, or Exercise), responsible and ensuring the linkage among the different Organization, Organization Point of Contact (POC) platforms was identified as one of the key areas for and start and expected date of completion. improvement to prevent or mitigate crisis. These reflect the spectrum of the response that require The inputs are intended to improve the existing further action. capacities that can be integrated in the emergency preparedness programme of NDRMC and respective ECC operation has been successful with humanitarian organizations as part of priority coordination of technical assistance and support; capacity building activities. partnership with members of the taskforce / clusters; request resources from other federal ministries and The review outlined the need to ensure ownership agencies; development of regular situation reports; of the local government, liaising with regional, provide timely notification to NDRMC staff, line zonal and woreda level government, improve ministries, and humanitarian partners regarding ECC timely guidance from MAC and establish response activation; and conduct planning activities, strategic priorities to address the needs of vulnerable and meetings and briefings. utilize the resources effectively.

To improve communication and information, quality communication equipment should be made available for facilitating coordination, and information sharing including strengthening joint meetings.

The following areas have been suggested to improve resources management. Some assessments and field visits helped with informing identified gaps. Resources gap assessment should be conducted consistently according to the changing dynamics. Resources allocation and dispatch needs to be conducted per priority. Gedeo and Guji crisis had the attention of the international community, which allowed mobilization of resources at national and global level. This requires tracking of the status of resources daily.

WORKSHOP PROCEEDINGS 15 4. KEY FINDINGS AND RECOMMENDATIONS

I. GENERAL Recommendations • Strengthen liaison with regional, zonal and Description woreda level governments. • Create a mechanism by which local Review and measurement of EOC/ECC analyzed government has the capacity to lead and elements that determine coordination structure, own the process. There is a need to ensure response capacity and its effect on response. that the NIMS Guideline is fully operational Hence, the review outlined that EOC/ECC needs to and being implemented. The guideline stated be strengthened in liaising with regional, zonal and that EOC should be managed at zonal and woreda level governments and ensuring ownership regional level. of the response. • Activate and sustain the role of MAC in the response. Summary of Key Findings • Ensure the implementation of the NIMS guideline. The initial stage of the IDPs response was tested by challenges related to establishing response II. COMMUNICATION AND INFORMATION priorities, providing legal and financial support and creating partnership with members of the task Description force/clusters. The challenges were resolved after the activation of EOC/ECC. Timely activation of EOC/ Information communication is one of the major ECC facilitates easy planning and implementations platforms required to facilitate humanitarian of response operations. response.

The participation of the Federal Government Summary of Key Findings in response operation has been important in the response process. However, there should be a Inefficient information sharing was one of the mechanism whereby the regions and zones have the challenge at Gedeo and Guji operation due to capacity to own and lead the response. In this case, limitation of linkage between EOC/EOCs in Dila and the Government’s capacity should be strengthened BuleHora. Physical access was also constrained by through trainings, inputs and exposure learning. A poor road condition particularly between woredas strategic approach should be in place to effectively and within specific woredas where IDPs are located. utilize available resources at woreda and zone levels In this case, availability and quality of communication for EOC operation. For instance, available meeting tool has a significant effect on coordination. On the hall can be used for EOC operation in time of disaster other hand, development regular situation reports events and establish the possibility of having were one of the strengths in the Gedeo and Guji periodic simulation exercise on EOC operation response operation. based on experience gained from various previous response operations.

16 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME Recommendations IV. ECO PLANNING, ACTIVATION, DEACTIVATION, • Ensure availability of communication tools. STAFFING AND STRUCTURE • Strengthen information management and communication. After activation of EOC in July 2018 in Gedeo and • Improve data quality and timeliness. West Guji Zones, regular planning activities, strategic • Ensure communication platforms that can be meetings and briefings were conducted. Notably, the utilized across emergencies. operations in both locations faced difficulties due to • Enhance integrated early warning system at frequent change of coordinator and fragmentation all levels, including at woreda level. of activities. • Establish early warning readiness system at regional level. Recommendations • Timely activate EOC/ECC to ensure smooth III. RESOURCE MANAGEMENT coordination of response. • The requirement to establish the EOC is Description explicitly set in the guideline. The Federal Government should set the minimum Resting on the planning stage, resource standard to activate the EOC. This includes management is a key component in humanitarian development of a checklist for activities and programme cycle. steps to be taken in EOC activation, operation and deactivation that can be used for a quick Summary of Key Findings reference. • EOC is a temporary arrangement established EOCs played a key role in soliciting resources during crisis or activated at times of crisis. from the Federal Ministries and Agencies, and in Establishing EOC in all regions ensures tracking resources. However, enough resources readiness for crisis. were not mobilized due to funding constraints. The • Ensure implementation of NIMS Guideline, limited available resources affected the allocation determine the level of activation and and dispatch of resources per prioritization. The communicate to partners. coordination had to deal with identification of gaps • Organize regular simulation exercises and as an additional task. The need to improve fleet train involving all levels of the responsible management and local level warehousing of relief government structures and partner items, revise the 5W matrix and resource tracking organizations sheet were also raised as key areas for improvement • Develop clear TOR/ MOU on the roles and responsibilities to be played by each sector Recommendations ministries and government structure (at • Government should communicate its region zone and woreda) to ensure shared resource capacity. accountability • Facilitate timely approval of the requests • Increase the level of engagement of EOC made. in rehabilitation and recovery process and • Conduct assessments to inform resource establish linkages between EOC operation management. and local peace building effort as a transition • Maintain resource status information and to recovery. evaluate its applicability at various levels.

WORKSHOP PROCEEDINGS 17 V. GENERAL RECOMMENDATIONS Strengthen the working relation and linkage between EOC and MAC. MAC activation needs Develop, strengthen and enhance integrated Early to serve the coordination of long-term solution Warning System (EWS) at all levels. Early Warning activities beyond the humanitarian response. System should be strengthened with training, EOC should be capacitated to support long-term capacity building, resources and other requirements programmes. especially at Woreda level. Establishing early warning readiness system at regional and woreda Key stakeholders from UN Agencies, NGOs and levels improves the system of information sharing Ministries need to be familiar with NIMS guideline for preventive or mitigation actions. Develop (MAC, EOC, ICP training). Establish a small working emergency operation plan at federal level. group composed of Government offices, UN Agencies, and NGOs and revise the guideline (per The Government should review and expand AAR recommendations and as necessary) and follow the current national early warning system from up the implementation of the guideline. its focus on natural disaster to conflict instigated crisis. Furthermore, early warning system for natural Strengthen the information management disaster is currently managed by NDRMC while early and communication to improve data quality and warning for conflict is the mandate of the Ministry of timeliness. Peace. There is a need to coordinate early warning information sharing system in the country jointly. Enhance logistics systems including storage facilities. Mainstream conflict early warning system across sectors and DRM into the sectors development plan.

After Action Review workshop participants in group discussion, Degif Sisay

18 ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 5. CONCLUSIONS

The learning event is the first of its kind to give The discussions by the working groups were made an opportunity to reflect on and learn from the with openness and commitment. The systematic implementation of IDPs response operation in application of AARs across an organization can Ethiopia. help drive organizational change and can be a key aspect of the internal system of learning and Despite the complex situation of IDP crisis and motivation. The key findings, learning points and multiple associated challenges, the IDPs response recommendations are well taken and will serve as operation has saved people’s lives. Rebuilding of inputs for future learning and improvements. livelihoods is an ongoing operation through the recovery and rehabilitation plan. The lessons learned from the Gedeo and Guji Emergency Operation Centers will serve the working The Gedeo and Guji IDP response provided procedures for future incidents that may happen at opportunity for NDRMC to implement the different any given time and place. functions of National Incident Command Systems (NIMS) including the EOC, MAC and ICP. The learning derived from this operation would directly help the stakeholders to act and improve planning, designing and operations.

Taking into consideration the successful joint efforts, the Gedeo and Guji response operation deserves to be the sample exercise for the “After Action Review”. The stakeholders participated in the review process are those who directly involved in the response operations, including the government representatives at all levels, the community members, partner organizations (UN Agencies and INGOs).

IDP’s village in Gedeo-Gudji

WORKSHOP PROCEEDINGS 19 ANNEX I. WORKSHOP AGENDA

6 August 2019

14:00-17:00 Arrival and Check-in of participants 19:00-21:00 Dinner

7 August 2019 - DAY 1

08:00-08:30 REGISTRATION Degif Sisay / NDRMC 08:30-09:00 Opening Ceremonies Nazareth Fikru, ADPC H.E. Commissioner Ato Mitiku Kassa, NDRMC 09:00-09:30 Participants Introduction Nazareth Fikru, ADPC 09:30-10:00 Workshop Introduction John Abo, ADPC 10:00-10:30 Presentation: Overview of Gedeo-Guji IDP Response Ato Muluneh / Mariam 10:45-11:00 BREAK 11:00-12:00 Exercise 1: IDP Response Timeline John Abo, ADPC Exercise Instructions (10 min.) Facilitator Team Small Group Discussions & Gallery Walk (40 min.) Synthesis (10 min.) 12:00-13:00 Exercise 2: Prioritization of Issues and Challenges John Abo, ADPC Small Thematic Group Discussions (30 min.) Facilitator Team Plenary Reporting and Q&A (30 min.) 13:00-14:00 LUNCH 14:00-15:00 Presentation: National Incident Management System & EOC Beletu, NDRMC Q&A and Plenary Discussions 15:00-15:45 Exercise 3: Analysis on How Existing Plans & Capacities were John Abo, ADPC Utilized in the Response Facilitator Team Small Group Discussion - ECC Functional Areas (45 min.) 15:45-16:00 BREAK 16:00-17:00 Plenary Reporting and Q&A (60 min.) 17:00-17:15 End of Day Evaluation Nazareth Fikru, ADPC 19:00-21:00 Dinner

i ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 8 August 2019 – DAY 2

08:00-08:30 Review of previous day 08:30-09:45 Presentation: UN and Government Response Interface UNOCHA Q&A and Plenary Discussions 09:45-11:00 Exercise 4A: Assessment of NIMS Operationalization “What John Abo, ADPC worked and what needs improvement” Facilitator Team Performance Assessment of ECC Functions (45 min.) Plenary Reporting and Q&A (30 min.) 11:00-11:15 BREAK 11:15-13:00 Exercise 4B: Assessment of NIMS Operationalization “What John Abo, ADPC worked and what needs improvement” Facilitator Team Performance Analysis of ECC Functions (60min.) Plenary Reporting and Q&A (45 min.) 13:00-14:00 LUNCH 14:00-14:30 Review of Exercise 4 and Setting up Exercise 5 14:30-15:30 Exercise 5: Identification of Improvement Actions and John Abo, ADPC Priority Setting Facilitator Team Small Group Discussions (60min.) 15:30-15:45 BREAK 15:45-16:30 Plenary Reporting and Q&A (45 min.) 16:30-16:45 End of Day Evaluation Nazareth Fikru, ADPC 19:00-21:00 Dinner

9 August 2019 – DAY 3

08:00-08:30 Review of previous day 08:30-10:00 Tabletop Exercise (TTX): Emergency Response Coordination John Abo, ADPC 10:00-10:30 BREAK 10:30-11:00 TTX Debriefing 11:00-11:30 Synthesis and Summary of the workshop Ato Tadesse Bekele 11:30-12:00 Workshop Evaluation Nazareth Fikru, ADPC 12:00-12:30 Closing Ceremony Nazareth Fikru, ADPC H.E. Commissioner Ato Mitiku Kassa, NDRMC 12:30-13:00 Logistics and Admin Degif Sisay. ADPC

WORKSHOP PROCEEDINGS ii Annex II. ECC CAPABILITY RATING

ECC Capability Rating – Federal

S/N ECC/EOC CAPABILITY RATE Comments 1 General 1.1 Establish response priorities S • Peak time is taken as peak time • There are challenges such as resource limitation, interest of users and donors in contrast with EOC, that is presence of conflict of interest among different actors/ users 1.2 Provide legal support M • EOC should be legally supported, • More than major challenges, Provide financial support M /S • Payment for transport was delayed in west Guji side • Zonal bank account was opened • The zone finance has supported to payment rule, • Zonal finance was standby and work as the EOC direction. • The finance payment affects the food timely assistance and transporting to the stores • Even though delayed, EOC use woreda, zone or region • There were no system based management and flow of finances which should be handled by EOC • Finance was not conducted in applicable plan • Majority participants say = M 1.3 Liaison with regional, zonal P Almost all were available and woreda levels government 1.4 Received timely guidance and S There is decision making at the site by MAC members decision making from MAC Groups 1.5 Coordination of technical S Some sectors were not continue their efforts like Agriculture assistance and support 1.6 Partnership with members of P Almost all Cluster/ Taskforce were coordinated the Taskforce / clusters (New) 2 Communication and Information 2.1 Availability and quality of S There were some challenge communication equipment 2.2 Development of regular P Very good updating system like security update situation reports 2.3 Dissemination of information S • Minutes were disseminated for partners to response stakeholders and • Limited for planned dissemination of information public

iii ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 2.4 Sharing information on the S There were no perfection, there is limited capacity incident with other ECC 2.5 Request for resources or S • Limited support not enough/ systematic support were support from other ECC not presence/ resources were sent to West Guji, when NFI saturated in Dila EOC • West Guji was request Dila EOC, even EOC request for West Guji EOC 2.6 Request technical assistance S Clusters members help the other EOC to provide technical from other ECC assistance 3 Resource Management 3.1 Request resources from S Discussion was done with other ministry like transport, other federal ministries and road and electric authority agencies 3.2 Identification of resource gaps S Identification of gaps were done effectively but number of IDPs affect the real gaps and was done by verification for food assistance. 3.3 Dispatch and allocation S Resource limitation of resources according to established priority 3.4 Tracking of resources / S • Government NFI help immediately and fill the real gaps Maintain resource status other than partners resources were in pipeline. information • 5W matrix was developed for tracking information. • The challenge were “pipeline resources” delay • There were monitoring track sheet to allocate resources for the needy/ place/ IDPs • To track resources Government NFI should be standardized ( contents of Kits) 3.5 Timely approval of resource S There were delayed request approval of food amount for request IDPs by the region due to consistent number of IDPs 4 ECC planning, activation, deactivation, staffing and structure 4.1 Timely activation of ECC M After 2 months was establish which should be established as emergency occurred as proactive mechanism 4.2 Provide timely notification to P Disseminated information of establishment of EOC for NDRMC staff, line ministries, concerned bodies even through partners communication and humanitarian partners regarding ECC activation 4.3 Follows the ECC activation U Not defined during establishment but achievement were level not affected 4.4 Follows the ECC Planning S Schedule

WORKSHOP PROCEEDINGS iv 4.5 Conduct planning activities, P strategic meetings and briefings 4.6 Provides sustained operations S Some sector were interrupted due to resources or any over extended periods obstacle 4.7 Performance of Management S and General Staff duties and responsibilities 4.8 Deactivation U No deactivated

ECC Capability Rating – Zone

NAME OF GROUP: Zonal and woreda level REPORTEUR: S/N ECC/EOC CAPABILITY RATE Comments 1 General 1.1 Establish response priorities S Magnitude of disaster and resource shortage 1.2 Provide legal and financial S Resource shortage support 1.3 Liaison with regional, zonal M Commitment and resource problem and woreda levels government 1.4 Received timely guidance and M Except Federal decision making from MAC Groups 1.5 Coordination of technical S Less attention by sectors assistance and support 1.6 Partnership with members of M/S M For W.Guji staff not regularly attend the Taskforce / clusters 2 Communication and Information 2.1 Availability and quality of M/U U For W.Guji Resource shortage communication equipment 2.2 Development of regular P It assumed as duet situation reports 2.3 Dissemination of information S/M S For GEDEO because of incovinance to response stakeholders and public 2.4 Sharing information on the P Partners are sensitive incident with other ECC

v ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 2.5 Request for resources or P No one oppose request support from other ECC 2.6 Request technical assistance S Depending on existence of technician from other ECC 3 Resource Management 3.1 Request resources from P It is possible to request through the sectors other federal ministries and agencies 3.2 Identification of resource gaps M IDP FIGURE FLACTUATION and Complexity of the situation 3.3 Dispatch and allocation S Resource demand and supply was not balance of resources according to established priority 3.4 Tracking of resources / S Inaccessibility ( Road, Geography) Maintain resource status information 3.5 Timely approval of resource S Delay in data verification request 4 ECC planning, activation, deactivation, staffing and structure 4.1 Timely activation of ECC P Since it activated after EOC establishment 4.2 Provide timely notification to P EOC was there NDRMC staff, line ministries, and humanitarian partners regarding ECC activation 4.3 Follows the ECC activation S Engagement of respective sectors level 4.4 Follows the ECC Planning P As a result of EOC functioning Schedule 4.5 Conduct planning activities, P EOC is active every day strategic meetings and briefings 4.6 Provides sustained operations S over extended periods 4.7 Performance of Management S Due to intention of Regular activities and General Staff duties and responsibilities 4.8 Deactivation P Regulated

WORKSHOP PROCEEDINGS vi ECC Capability Rating – UN/NGO

S/N ECC/EOC CAPABILITY RATE Comments 1 General 1.1 Establish response priorities S The fact that the ECC prioritize based on sectors not on need, giving much priority to food sector resulted in neglecting the other sectors 1.2 Provide legal and financial Not clear, need more clarity on this support 1.3 Liaison with regional, zonal M The relationship did not exist in the initiation phase and and woreda levels government deteriorated at some point when attempt was made to create it, starting with the gradual withdrawing of the line ministries from the ECC in Dilla and never existed in Bule Hora 1.4 Received timely guidance and U There was not MAC existence. decision making from MAC Groups 1.5 Coordination of technical S Was bad In the initial phase but there was much assistance and support improvement as things were moving 1.6 Partnership with members of S There were some challenges at the onset especially in the Taskforce / clusters providing the guidance, and coordinating assessment but there was improvement later on. 2 Communication and Information 2.1 Availability and quality of M Very few and insufficient communication gadget communication equipment 2.2 Development of regular S Situation reports were usually shared at the onset of the situation reports ECC activation but stopped at some point, 2.3 Dissemination of information M Its done but with major challenges, to response stakeholders and public 2.4 Sharing information on the U There was no communication between the Gedeo and incident with other ECC West Guji ECC, attempts made to create a mechanism of communication between the 2 but failed due to unknown reason 2.5 Request for resources or N/A support from other ECC 2.6 Request technical assistance N/A from other ECC

vii ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 3 Resource Management 3.1 Request resources from P Yes, several requests were made but mobilizing the other federal ministries and resources was an issue agencies 3.2 Identification of resource gaps S Resources from the gov’t part is always not clear, also, the Govt should have the capacity to conduct assessment by itself, not to rely on partners. 3.3 Dispatch and allocation M It was a major challenge to achieve as the plans mostly did of resources according to not correspond with Government plans, the Government established priority at some point suddenly prioritized the return areas when partners are working in IDP scenarios. 3.4 Tracking of resources / M Was a gap Maintain resource status information 3.5 Timely approval of resource N/A ECC has no mandate to approve requests request 4 ECC planning, activation, deactivation, staffing and structure 4.1 Timely activation of ECC M 4.2 Provide timely notification to P Information dissemination is timely and coordinated NDRMC staff, line ministries, and humanitarian partners regarding ECC activation 4.3 Follows the ECC activation U Activation was informed but information on the process level of the level of ECC activation is a serious gap 4.4 Follows the ECC Planning N/A Not there in the manual Schedule 4.5 Conduct planning activities, P Well conducted strategic meetings and briefings 4.6 Provides sustained operations M During the height of the crisis there was enhanced over extended periods response. However, the operation was not sustained for long. 4.7 Performance of Management M Frequent change in the coordinator or inconsistencies in and General Staff duties and staff deployment responsibilities 4.8 Deactivation U Still active

WORKSHOP PROCEEDINGS viii ANNEX III. IMPROVEMENT PLAN MATRIX

Improvement Action Plan - Federal

ECC Issue/ Corrective Capability Primary Organization Start Completion Capability Area for Action Element1 Responsible Point of Date Date Improvement Organization Contact 1. General 1.1 Establish Addressing Planning NDRMC TBA Before response vulnerability the priorities and affected incidence peoples Effective decentralization and utilization of limited resources 1.2 Liaison with Having rapid Organization NDRMC / TBA regional, response, lead agency zonal and consolidated woreda levels plan, awareness government building of regional /local level senior officials on MAC, EOC and ICS 1.3 Received Revise existing Planning NDRMC / TBA timely SOPs and lead agency guidance dissemination, and decision Having timely making from responses, MAC Groups develop national disaster and regional, local disaster declaration directives 2. Communication and Information 2.1 Availability Information was Equipment NDRMC / TBA and quality of disseminated lead agency communication timely for users equipment

1 Capability Elements are: Planning, Organization, Equipment, Training, or Exercise.

ix ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 2.2 Development Coordinated Planning NDRMC / TBA of regular responses lead agency situation reports 2.3 Dissemination Minimize Planning NDRMC / TBA of confusion lead agency information to response stakeholders and public 3. Resource Management 3.1 Identification Covered gaps Planning NDRMC / TBA of resource lead agency gaps 3.2 Dispatch and Saving lives Planning NDRMC / TBA allocation lead agency of resources according to established priority 3.3 Tracking of Having Planning NDRMC / TBA resources information for lead agency / Maintain prioritization resource status information 4. ECC planning, activation, staffing and structure 4.1 Timely Better Planning / NDRMC / TBA activation of coordination training lead agency ECC and responses within short time 4.2 Follows the Planning NDRMC / TBA ECC activation lead agency level 4.3 Deactivation Planning NDRMC / TBA lead agency

WORKSHOP PROCEEDINGS x Improvement Action Plan – Zone and woreda

ECC Issue/ Corrective Capability Primary Organization Start Completion Capability Area for Action Element1 Responsible Point of Date Date Improvement Organization Contact 1. General 1.1 Liaison with Ensure Exercise Regional, Administrators Sep 2019 Oct 2019 regional, commitment, zonal, zonal, and responsibility woreda woreda level and Administration government accountability through Having clear TOR for each actors’/ government sectors based on EOC guideline and Develop Job action sheet that can be regularly follow up and monitored 2. Communication and Information 2.1 Availability Integration of Organization DRMO DRMO Sep 2019 Nov. 2019 and sectors and Representative quality of equipment communication equipment 3. Resource Management 3.1 Tracking of Involve relevant Exercise DRMO RDMO Sep 2019 Dec. 2019 resources actors for Representative / Maintain information resource status information

2 Capability Elements are: Planning, Organization, Equipment, Training, or Exercise.

xi ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME 4. ECC planning, activation, staffing and structure 4.1 ECC Capacity Training NDRMC NDRMC Sep 2019 Dec 2019 planning, building at Representative activation, different levels deactivation, staffing and structure

Improvement Action Plan - UN/NGO

ECC Issue/ Corrective Capability Primary Organization Start Completion Capability Area for Action Element1 Responsible Point of Date Date Improvement Organization Contact 1. General 1.1 Received Formal Organization, RDRMC NDRMC 1 timely activation of Equipment and Month guidance Mac Group NDRMC and decision Establishment Planning, RDRMC NDRMC 1 making from of way of organization NDRMC, Month MAC Groups Working (Early MAC warning at woreda level and triggers etc) Organization, MAC NDRMC 1 [Establishment Planning and NDRMC Month of SOP] Exercise 2. Communication and Information 2.1 1. Sharing Planning and NDRMC/ ECC Ongoing Ongoing information training Regions coordinator on the Planning and NDRMC/ ECC Ongoing Ongoing incident with training Regions coordinator other ECC Exercise and NDRMC/ ECC Ongoing Ongoing Planning Regions coordinator

3 Capability Elements are: Planning, Organization, Equipment, Training, or Exercise.

WORKSHOP PROCEEDINGS xii 3. Resource Management 3.1 1. Dispatch Joint planning- Planning ECC and ECC As As and Strengthening and partners coordinator appropriate appropriate allocation of fleet & exercise resources warehouse according to management established Advocacy Organization Partners ECC As As priority for more and training coordinator appropriate appropriate transparency Prepositioning Equipment, ECC and ECC As As of resources planning partners coordinator appropriate appropriate and Exercise Implementation Planning ECC and ECC As As of the Joint training partners coordinator appropriate appropriate targeting and Exercise 4. ECC planning, activation, staffing and structure 4.1 1. Deactivation Identifying Planning, NDRMC ECC As As the levels of exercise coordinator appropriate appropriate existing crisis and organization Clear Planning, NDRMC ECC As As communication exercise coordinator appropriate appropriate by the EOC Coordinator Following the Exercise NDRMC ECC As As guidelines and coordinator appropriate appropriate organization

xiii ADVANCEMENT FOR RECOVERY INITIATIVE FOR SAFER ETHIOPIA (ARISE) PROGRAMME WORKSHOP PROCEEDINGS xiv CMYK version

1 1 /2 H /2 H

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1/ H 1/ H 2 Implemented by Supported by 2

1 1 /2 H /2 H For more information please contact: Mr. Sisira Madurapperuma Director Preparedness for Response and Recovery LOAsianGO Disaster CONTRAST Preparedness Centre V (ADPC)ERSION Email: [email protected]

C : 0 C : 30 C : 100 C : 0 M : 100 M : 100 M : 100 M : 10 Y : 100 Y : 100 Y : 100 Y : 10 K : 30 K : 50 K : 100 K : 80