Assessment Report on Mainstreaming and Implementing Disaster Risk Reduction in Mozambique

Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique Ordering information

To order copies of Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique by the Economic Commission for Africa, please contact: Publications Economic Commission for Africa P.O. Box 3001 Addis Ababa, Ethiopia Tel: +251 11 544-9900 Fax: +251 11 551-4416 E-mail: [email protected] Web: www.uneca.org © United Nations Economic Commission for Africa, 2015 Addis Ababa, Ethiopia All rights reserved First printing October, 2015 Language: Original- French ISBN: 978-99944-61-65-3 eISBN: 978-99944-62-65-0 Material in this publication may be freely quoted or reprinted. Acknowledgement is requested, together with a copy of the publication. Designed and printed by the ECA Publishing and Distribution Unit. ISO 14001:2004 certified. Layout: Godfrey Munanga - UNON, Publishing Services Section, Nairobi, ISO 14001:2004-Certified. Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique Table of contents

Acronyms and abbreviations v Acknowledgements vii Executive summary viii 1. Introduction 1

1.1 Background 1 1.2 Conceptual framework and methodology 2 1.3 Report outline 4 2. Review of national disaster risks 5

2.1 Overview of main hazards in Mozambique 5 2.2 Key socioeconomic and environmental disaster impacts 10 3. Review of main past and ongoing DRR interventions 12

3.1 Establishment of institutional and strategic DRR frameworks 12 3.2 DRR programmes and projects 16 4. Mainstreaming and implementation of DRR within national plans and strategies 20

4.1 Overview of key mainstreaming frameworks 20 4.2 Mainstreaming of DRR in different frameworks 21 4.3 DRR implementation strategy and stakeholders 24 5. Good practices and lessons learned 25

5.1 Overview of good practices 25 5.2 Additional information on selected good practices 27 6. Conclusions and recommendations 33

6.1 Conclusions 33 6.2 Recommendations 33 References 35 Annexes 37 Annex 1: People interviewed 37 Annex 2: Expanded list of DRR and adaptation to climate change actions 38 Annex 3: Policies and strategies relevant for DRR 39

iii Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

List of figures

Figure 1: Conceptual DRR framework 3 Figure 2: Map of Mozambique 5 Figure 3: Flood prone areas 6 Figure 4: Cyclone prone areas 7 Figure 5: Drought prone areas 8 Figure 6: Earthquake prone areas 9 Figure 7: Forecast frequency trend of main natural hazards 10 Figure 8: DRR management structure in Mozambique 14 Figure 9: Interface of government and international actors in emergency response 15 Figure 10: UNDP mainstreaming framework 20 Figure 11: Provention mainstreaming framework 21 Figure 12: Local disaster management committees 30 List of tables

Table 1: Main flooding events since 1980 7 Table 2: Main cyclone events since 1980 8 Table 3: Main recorded drought events since 1980 9

iv Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Acronyms and Abbreviations

AU �� African Union CBDRR �� Community based disaster risk reduction CC �� Climate change CCA �� Climate change adaptation CCGC �� Conselho Coordenador de Gestão de Calamidades CCPCCN �� Conselho Coordenador de Prevenção e Combate as Calamidades Naturais CENOE �� Centro Operativo de Emergência CLGRC �� Comité Local de Gestão de Risco de Calamidades CERUM �� Centro de Recursos de Uso Multiplo CTGC �� Conselho Tecnico de Gestão de Calamidades DARIDAS �� Direcção de Desenvolvimentodas Zonas Áridas e Semi-Áridas DFID �� Department for International Development DPCCN �� Departamento de Prevenção e Combate as Calamidades Naturais DRR �� Disaster risk reduction ECOWAS �� Economic Community of West African States ENAMMC �� Estratégia Nacional de Adaptação e Mitigaçãoàs Mudanças Climáticas FAO �� Food and Agriculture Organization of the United Nations GDP �� Gross domestic product IFRC �� International Federation of Red Cross and Red Crescent Societies INGC �� Instituto Nacional de Gestão de Calamidades IPCC �� Intergovernmental Panel on Climate Change MICOA �� Ministério para a Coordenação da Acção Ambiental MINAG �� Ministério da Agricultura MPD �� Ministério de Planificação e Desenvolvimento MPF �� Ministério de Plano e Finanças MTN �� Metical Novo NAPA �� National Adaptation Plan of Action NEPAD �� New Partnership for Africa’s Development NGO �� Non-governmental organization PARP �� Plano de Acção para Redução da Pobreza PPCR �� Pilot Programme on Climate Resilience PQG �� Five-Year Programme SADC �� Southern Africa Development Community UEM �� Universidade Eduardo Mondlane UNDAF �� United Nations Development Assistance Programme UNDP �� United Nations Development Programme UNISDR �� United Nations Office for Disaster Reduction WFP �� World Food Programme

v Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

vi Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Acknowledgements

The present report on mainstreaming and imple- Segametsi Moatlhaping and Blessing Siwela of the menting disaster risk reduction in Mozambique secretariat of the Southern Africa Development was prepared within the framework of the Community (SADC). United Nations Development Account project on strengthening capacities of African policymakers The team wishes to acknowledge the contribution to mainstream natural disaster risk reduction into of Dr. Luis Joao Artur, of the Eduardo Mondlane national and regional development policies and University, Mozambique, to the preparation of the strategies in Africa. The project was conceived and report. We would also like to thank all colleagues implemented jointly by the Economic Commission from the Special Initiatives Division and other ECA for Africa (ECA) and the United Nations Office for divisions and the subregional offices for their use- Disaster Risk Reduction (UNISDR). ful comments. The report also benefited from the constructive comments and inputs provided by The report was prepared under the overall guid- participants at the SADC subregional platform ance of Fatima Denton, Director of the Special on mainstreaming and implementing disaster Initiatives Division of ECA, and Sharon Rusu and risk reduction into development frameworks in Pedro Basabe, the current and former heads of the SADC subregion, which was held on 28 and the UNISDR Regional Office for Africa. Isatou 29 November 2013. The meeting was organized Gaye, Chief of the Green Economy and Natural by the SADC secretariat in collaboration with ECA, Resources Section of the Special Initiatives UNISDR and UNDP. Division, provided substantive guidance and su- pervision in the preparation of the report. The team is grateful for the valuable adminis- trative and organizational support provided by The report preparation team comprised Charles Martha Messele, Tsigereda Assayehegn, Fitsum Akol (team leader), Benjamin Banda, Andrew Kidanemariam, Rahel Menda, and Gezahegn Allieu, Yacouba Gnegne, Richard Osaliya, Mathilde Shiferaw of ECA. Closset and Somlanare Romuald Kinda, of ECA; Animesh Kumar and Julius Kabubi, of UNISDR; Lastly, Demba Diarra, Chief of the ECA Publications Youcef Ait-Chellouche, formerly of UNISDR; Aliou Section and his team, including Marcel Ngoma- Dia and Sophie Baranes, of the United Nations Mouaya, Teshome Yohannes and Charles Ndungu, Development Programme (UNDP); Almami are acknowledged for their efficient handling of Dampha and Leah Wanambwa, of the African the editing, text processing, proofreading, design Union Commission; and Kennedy Masamvu, and printing process.

vii Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Executive summary

The world is facing unprecedented disaster oc- The report’s findings are based on informa- currence because of increased hazards and expo- tion obtained through literature review, in- sure. Although disasters are global events, they terviews with key informants and focus group affect African countries most adversely because discussions. of low resilience. In order to withstand disasters, African countries approved, in 2004, the Africa Mozambique is a disaster prone country. It lies Region Disaster Risk Reduction Strategy with the along the coast of the Indian Ocean and down- aim to: stream main subregional basins of rivers such as the Zambezi and the Limpopo. The country’s geo- i) Increase political commitment to disaster risk graphical location, combined with the limited re- reduction (DRR); silience of the majority of its population – due to ii) Improve identification and assessment of dis- prevalent poverty –create perfect conditions for aster risks; disaster occurrence. Mozambique has a long his- iii) Enhance DRR knowledge management; tory of man-induced or natural disasters. iv) Increase public awareness of DRR; v) Improve governance of DRR institutions; and Statistics from the National Institute for Disaster (vi) integrate DRR in emergency response Management (INGC) show that droughts, floods, management. cyclones, and strong winds are the main causes of disasters. Between 1956 and 2008, INGC recorded This assessment report on the mainstreaming ten main droughts that affected 16,444,000 peo- and implementing DRR in Mozambique was ple and claimed 100,200 lives; 20 flood events prepared within the framework of the United that affected 9,039,251 people and claimed 1,921 Nations Development Account (DA) project on lives; and 13 cyclones and five strong winds that mainstreaming disaster risk reduction in national together affected 3,002, 400 people and claimed and regional development strategies. Their pur- 317 lives. pose is to support efforts to meet the Millennium Development Goals and sustainable develop- The social, economic and environmental impacts ment goals in Africa. The Economic Commission of these disasters were hard to capture in full due for Africa (ECA) and the United Nations Office for to limited documentation. They destroyed social Disaster Risk Reduction (UNISDR) jointly designed and economic infrastructure and networks such the project. as roads, schools, hospitals and farms, and directly impacted on the national Gross Domestic Product The report presents the findings of the assessment (GDP). For example, it has been estimated that be- of progress and experiences in mainstreaming the tween 1980 and 2003, disasters cost the national DRR international development frameworks in economy $ 1.74 billion. However, this estimate Mozambique. The Secretariat of Southern African largely underestimates the loss and impact that Development Community (SADC), ECA and the poor suffer, because official statistics do not UNISDR jointly commissioned the assessment. capture them.

viii Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Analysis of past and ongoing planned DRR actions cal risk management and mainstreaming DRR in shows that Mozambique has been strengthening Mozambique; and the Save the Children project its capacity to deal with disasters. In 2006 and in on floodplain management in the Zambezi valley. line with the Hyogo Framework of Action (HFA), the Government approved a ten year DRR master plan. As a result of all the above efforts, Mozambique is The overall goal of this plan is to reduce the death now one of the international references on DRR toll and economic loss due to disasters. This is to and is likely to achieve, by 2015, most of the ex- be achieved through actions to reduce vulnerabil- pected HFA outcomes. The country has clear struc- ity (e.g., by reinforcing disaster prevention and mit- tures to respond to drought, flood, and cyclone igation) and to strengthen disaster preparedness events, and is politically and financially committed. and response. To achieve the outlined objective, It has also approved its national vision and strategy several DRR actions and those aimed at helping to on adaptation to and mitigation of climate change adapt to climate change have been implemented. (2013-2025), which has a clear focus on DRR. DRR is an integral part of the national planning and funding system. Every year, the Government funds Assessment of the extent to which DRR has been DRR actions, mostly by integrating DRR into dis- mainstreamed into national plans and sectoral and trict planning and establishing regional centres for local level strategies showed that DRR has been emergency response (CENOEs). DRR actions have embedded into the Government’s five-year plan been decentralized and therefore brought closer (PQG), the national five-year strategy for poverty to disaster prone areas. alleviation (PARP), and annual plans and budgets (PES). Disaster prone districts have designed annu- INGC is the key DRR actor in Mozambique. It al contingency plans, and integrate and budget for spearheads the formulation of policy frameworks, DRR in their annual plans (PESOD). Additionally, key and coordinates DRR implementation. To this line ministries have focal points that oversee DRR end, INGC has been expanding thematically and integration into their sectoral planning. Partners geographically, shifting from reactive disaster re- such as the United Nations system have also main- sponse to integrate issues of disaster prevention, streamed DRR into their development framework. disaster preparedness, disaster response, early recovery, reconstruction and resettlement. Other The Government’s main tool in to mainstream actors such as the Ministry of Environmental DRR is the Coordinating Council for Disaster man- Affairs (MICOA) and the Ministry of Planning and agement (ConselhoCoordenador de Gestão de Development (MPD) and the United Nations sys- Calamidades – CCGC). It is a high ranking coun- tem have all been very influential in strengthen- cil that the country’s Prime Minister chairs, and is ing national capacity and in mainstreaming DRR composed of ministers from key line ministries. into policies and programmes in Mozambique. This decision-making council provides political support and allows key decisions on DRR to be Some of the most significant actions include the mainstreamed sectorally and geographically. ongoing Pilot Programme on Climate Resilience (PPCR), under the MICOA and the MPD. The Good DRR mainstreaming and implementation Programme focuses on creating resilience across practices have evolved over the past 10 years. different sectors such as road, agriculture, the Among the most effective are: integration of DRR coastal area and water management. The others and CCA into the national planning and budgeting are interventions include the “United Nations de- systems; design and funding of contingency plans; livering as one” programme on strengthening lo- establishment of a community-based DRR ap-

ix Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique proach; establishment of technological innovation vi) There is still a need to enhance DRR knowl- centres in the drought prone areas; annual drills edge and cover all sectors and regions. for flood and cyclone preparedness; and establish- Research on DRR and integration of cross- ment of resettlement programmes in the highly cutting issues such as gender, HIV and AIDS flood prone areas along the main river basins. in DRR should be undertaken. v) In order to scale up DRR, there is a need to Despite these achievements, the country is still at strengthen DRR documentation and estab- a crossroads in terms of DRR. Over the past years, lish a better DRR information management development actions have reframed old risks and and sharing system in the country. This could brought along new challenges. The following rec- include the creation of a national DRR infor- ommendations were made on the basis of findings: mation sharing and management platform, which could also serve as a repository for DRR i) The Government needs to urgently recog- documentation. nize and address urban and social risks, which vi) There is also a need to critically review and re- have so far not been the central concern of form community-based DRR systems in order DRR in Mozambique. to enhance their performance. ii) The Government should strengthen environ- vii) In order to scale up DRR measures, coherent mental protection mechanisms, especially as and concerted inter-institutional and interre- integral priorities of new investments in natu- gional coordination are necessary to enable ral resources, such as gas and coal, to make synergies and avoid overlaps. In this connec- sure that these do not generate new disaster tion, continuous interaction and dialogue risks or aggravate existing ones. with neighbouring countries to discuss and iii) In order to implement DRR measures, part- agree on, among others, key issues related to ners should provide more resources because transboundary water management and DRR the Government’s capacity to extend re- measures along the main river basins, should source allocation to DRR is limited. be strengthened.

x Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

1. Introduction

1.1 Background In July 2013, the Government announced that due to flooding, GDP growth for 2013 would be Disasters are no longer a field of humanitarian ac- 1per cent lower, thus declining from the expect- tion alone. They have become a matter of “good ed 8.4per cent to 7.4per cent. Overall, disasters development”. The vicious cycle of badly planned swallow, on average, 1 per cent of the national development and response to disasters is now GDP every year. Economic analysis of climate the focus of all development and humanitarian change impacts in Mozambique suggests that professionals. Mainstreaming disaster risk reduc- this could go up to 5per cent (World Bank, 2010). tion into development planning in order to en- Mainstreaming and implementing disaster risk hance local resilience is widely proclaimed as the reduction (DRR) measures has therefore become most effective way of addressing and reducing crucial for the well-being and sustainable devel- disasters worldwide. opment of Mozambique.

Mozambique has been under continuous threat This assessment report on mainstreaming and from disasters for a long time. During the past 50 implementing DRR in Mozambique was pre- years, 68 natural disasters hit the country, killing pared within the framework of the United Nations more than 100,000 people and affecting up to 28 Development Account project on mainstreaming million others. As much as 25per cent of the pop- DRR in national and regional development strate- ulation is at risk from natural hazards (World Bank, gies, in support of efforts to meet the Millennium 2010:8). By 2010, Mozambique ranked second Development Goals and attain sustainable devel- most vulnerable country to economic losses from opment goals in Africa. natural disasters just behind Haiti (Maplecroft, 2010). The Economic Commission for Africa (ECA) and the United Office for Disaster Risk Reduction (UNISDR) Recurrent disasters, triggered by natural hazards jointly designed the project. Key partners in pro- such as floods, cyclones and drought, have all ject implementation included the Southern been hampering attempts by the Government Africa Development Community (SADC), the and its partners to reduce poverty levels. The Economic Community of West African States 2008 poverty assessment showed poverty lev- (ECOWAS), the African Union Commission els similar to those of 2003. Occurrence of fre- (AUC) and the United Nations Development quent and intense hazards such as floods is Programme (UNDP). the key underlying cause (MPD, 2010). In 2013, flooding in the Limpopo basin claimed about The report presents findings on the assessment of 117 lives, displaced 176,000 people and caused progress and experiences in mainstreaming the economic damage of about $513 million (INGC, planning and implementation of DRR measures 2013). as part of Mozambique’s national development

1 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique strategies, plans and programmes. The Secretariat natural) is susceptible to, and unable to cope with, of the Southern Africa Development Community the adverse effects of climate change, including (SADC), ECA and UNISDR jointly commissioned climate variability and extreme events (adapted the assessment. from IPCC, 2001: 6). The (individual)capacity refers to people’s own skills, resources and strengths This report provided input to the preparation of that allow them to anticipate, cope with, resist the Southern Africa subregional assessment re- and recover from hazard impact (adapted from port. It also served as a key resource for the sub- DFID, 2005: 2). regional DRR capacity development workshop which, among others, show-cased and promoted Disaster risk is the likelihood, over a specified good practices to scale up mainstreaming and time period, of severe alterations in the normal implementation of DDR measures as part of de- functioning of a community or a society due to velopment frameworks. hazardous physical events that interact with vulnerable social conditions, leading to widespread adverse human, material, economic, or environ- 1.2 Conceptual framework and mental effects that require immediate emergency methodology response to satisfy critical human needs and that may require external support for recovery. Disaster 1.2.1 Conceptual framework risk reduction is a policy goal and objective. It Climate-related and other natural hazards have comprises strategic and instrumental measures a tremendous impact on people’s livelihood to anticipate future disaster risk; reduce existing worldwide, especially in poor countries. The 2000 exposure, hazard, or vulnerability; and improve flooding in Mozambique claimed more than 700 resilience (IPCC, 2012). lives and more than $600 million in economic loses. The 2004 tsunami alone, considered a ma- Vulnerability consists of different dimensions. It jor disaster in the 21st century, claimed the lives includes a physical dimension with regard to the of more than 200,000 people. It affected and de- fitness of the local environment/ecosystems and stroyed the livelihoods of more than 2.4 million in to the geographical location of housing and other 12 countries across Asia and Africa. The tsunami buildings, jobs, assets and how they relate to the accounted for nearly $8 billion direct damage hazards; a financial-economic dimension(people’s on physical infrastructure (IFRC-RCS, 2005:197). financial power to prevent or respond effectively Avoiding or reducing the risk of disaster has been to disaster risks); a social dimension, which takes part of the mandate of the United Nations since account of social networks that are relevant for its establishment in 1945. withstanding disaster impacts; an informational dimension relating to assessment and use of cli- Disaster risk reduction aims at making people mate and disaster reduction information; and an and asset less vulnerable to disaster impacts and attitudinal dimension, that is, people’s own beliefs fostering people’s capacity to withstand them. and attitudes toward disasters and how they react Vulnerability is defined in different ways depend- to them. ing on the field of study. The climate change and disaster fields define vulnerability as the degree All DRR actions need to focus on reducing peo- to which a subject (e.g., an individual, commu- ple’s vulnerability and enhancing their capacity to nity, sub-group, structure, etc.) or system (social or withstand disaster impacts (see figure 1).

2 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Figure 1: Conceptual DRR framework

DRR

VR INTER IC

Interface analysis Local and project Perceptions, capabilities, resources, activities and organization Legend Adaptation/livelihood strategies DRR - Disaster Risk Reduction (diversi cation, drought resistant crops, water VR - Vulnerability Reduction Interface harvesting among others) IC - Increase Capacity outcomes INTER - Intervention Livelihood outcomes (adaptation, maladaptation)

Source: Own construction

1.2.2 Methodology • The Annual Contingency Plans This report is based on data and information col- • National Institute of Disaster Management lected and analysed as indicated below. (INGC) annual reports.

The report applied the following data collection Besides these documents, theses, papers and methods: consultancy reports on DRR in Mozambique were reviewed. i) A review of documents or desktop study – the following key documents were reviewed: ii) Interviews: in total, 23people from different • The AU regional Disaster Risk Reduction institutions working in DRR in Mozambique strategy and the programme of action for were interviewed in the capital Maputo and the implementation of the strategy in Guijá, one of the districts 2013 floods af- • The Mozambican Master Plan for Disaster fected most. Of particular relevance, the Risk Reduction study interviewed staff from INGC, MPD and • The Mozambican Adaptation Action Plan MICOA. The list of key stakeholders inter- (NAPA) viewed is presented in Annex 1. • The National Study on Climate Change iii) Focus group discussions: two focus group and Disasters discussions (one composed of women and • The National Paper on Poverty Reduction another of men) took place in Guijá district, (PARP) to assess response and DRR mainstreaming • The 5-year government programme after the event. • The national Constitution iv) Observations: this tool was used to witness • The National Strategy on Climate Change what was being done for DRR in the flood (ENAMMC) prone districts of Chokwe and Guijá.

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Collected data were analysed using the pattern- 1.3 Report outline matching technique. In this technique, all data are clustered around a thematic area or points of in- The report is divided into six chapters. This chap- terest. On the basis of the assessment objective, ter provides an overview of the research’s back- all gathered information (quantitative and qualita- ground, objectives, framework and methodol- tive) was grouped around a given objective and ogy. Chapter 2 provides a review of the national then discussed to bring out key lessons. For the disaster risks in terms of occurrence and trends of case study, the good cases were chosen on the main hazards and their socioeconomic and envi- basis of the following criteria: ronmental impacts. Chapter 3 presents main past and ongoing DRR actions that cover institutions, i) Ownership of the practice/measures/inter- policies and planning frameworks. Chapter 4 dis- ventions by stakeholders; cusses mainstreaming DRR and climate change ii) Adequate backing by a sound statistical and into national plans and strategies. Chapter 5 information basis; presents good practices, success factors and iii) Participation and involvement of all stake- lessons learned. Finally, chapter 6 presents key holders including non-traditional DRR inter- conclusions and recommendations from the est groups; assessment. iv) Effective institutional arrangements for DRR; v) Consideration of the social, economic and environmental dimension; vi) Moving from policy/strategy and plans to tangible on the ground results; vii) Effectiveness and successfulness of the practice in DRR and enhancement of resilience; viii) Replicability of the intervention/practice, where applicable; and ix) Sustainability of proposed/adopted measure/ practice.

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2. Review of national disaster risks

2.1 Overview of main hazards in Democratic Republic of the Congo and the Niger Mozambique (UNDP, 2013:146).

In 2008, nearly half of the children under the Figure 2: Map of Mozambique age of two were chronically malnourished, and more than half the population had no access to potable water and hospital care (UNDP and GoM, 2008:12). Due to prevalent poverty, Mozambique has been depending on external aid for more than 25 years. Mozambique is one of Africa’s biggest aid receivers (about $65.6 per capita per year), and the world’s eighth most aid dependent countries (Arndt et al., 2006:3; Renzio and Hanlon, 2007:3).

Disasters are a key factor of prevalent poverty. The Government has pointed out the occurrence of frequent and intense disasters in the country as a key factor of limited poverty reduction(MPD, 2010). The 2000 great flood is a case in point. It caused a drop in national GDP from an expected 10per cent growth to just 1.6per cent in 2000, and inflation rose from 2.9per cent in 1999 to 12.7per Source: Author construction based on Cenacarta database. cent in 2000 (MICOA, 2011:9). The 2013flooding in the Limpopo basin claimed about 117 lives, displaced 176,000 people and caused economic Located on the eastern coast of the southern damage of about $513 million (INGC, 2013). In Africa region (see figure 2), Mozambique is one of July 2013, the Government announced that due the poorest countries in the world. Its economic to the flooding, the GDP growth for 2013 would growth was impressive in the past, with a 15per be 1per cent lower, i.e., declining from the expect- cent reduction in absolute poverty over the 1997- ed 8.4per cent to 7.4per cent. 2003 period. However, the poverty reduction per- centage dropped from 69per cent to 54per cent Mozambique is highly vulnerable to natural haz- (MPF et al., 2004) and by 2008, more than half of ards and disasters for a number of reasons. About the population still lived on less than $1 per day, as 60per cent of the population live along the coast- poverty reduction stagnated at 54per cent (MPD, line. This area is vulnerable to an increasing occur- 2010). The Human Development Index ranks rence of cyclones and rising sea levels, because Mozambique close to the bottom, just above the nearly 45per cent of the country is 100 metres be-

5 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique low sea level. The country is also a lower riparian Flooding scenarios in Mozambique have demon- zone of nine international rivers, and more than strated a relatively well defined pattern with re- 50per cent of the country’s water flows depend gard to their timing and geographical locations. on the countries upstream. Drought particularly They occur every two to three years along the sev- affects the southern region in the arid and semi- en major rivers that cross the country, namely the arid regions in the Gaza and Inhambane prov- Incomati, Limpopo, Save, Buzi, Pungue, Zambezi inces, while flooding mostly affects the Zambezi and Licungos. The map (see figure 3) shows criti- and Limpopo basins. About a quarter of the to- cal flood prone areas in Mozambique. Red sym- tal Mozambican population is at risk from natural bolizes highest risk of flooding and white low/no hazards (World Bank, 2010:8). Economic analysis flood risk. of these hazards suggests that every major shock reduces Mozambique’s GDP growth by 5.5per The extent of flooding depends not only on the cent on average (World Bank ibid). The main dis- amount of rainfall in the country but also on the asters affecting Mozambique are floods, cyclones, amount of rainfall in neighbouring countries, droughts, and to a less extent, earthquakes. These where flooding rivers originate. In 2000-2001, are discussed below. The socioeconomic and en- Mozambique experienced its worst flooding in vironmental impacts of disasters in Mozambique 150 years. It affected about 2 million people. are presented in the section 2.2. The most likely time for floods to occur is from Figure 3: Flood prone areas November to March in the south of the country and from January to April in the centre and north, due to heavy rains in Mozambique and/or in the countries upstream. There is also a high probabil- ity of flooding as a result of cyclones. For example, the 2000 floods were accompanied by three cyclones: Eline, Gloria and Hudah. Floods tend to increase food insecurity, disease outbreaks and infrastructure damage. They also displace large numbers of people. Floods also expose people to homelessness, water-borne diseases and malnutrition, which make children chronically ill and elderly people even more vulnerable. The National Directorate of Water (DNA) monitors water flows and levels in the main river basins in the country and issues warnings in case of immi- nent flooding. Overall, INGC records (2009:3) show that between 1956 and 2008,20 flood events hit Mozambique, displaced 9,039,251 people and claimed 1,921lives. The table below is an overview of the main floods that have affected the country Source: Fewsnet and INGC (2007). since 1980.

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Table 1: Main flooding events since 1980

Year Event 2013 Flooding along the Limpopo river basin: 176,000 people displaced; 117 deaths and economic losses of about $513 millions 2008 Flooding of the Zambezi river basin: 258,000 people displaced 2007 Flooding of the Zambezi river basin: 250,000 people displaced 2001 Flooding of the Zambezi river basin: 500,000 people displaced; 115 deaths 2000 Worst floods in 150 years. Unprecedented rains and three cyclones caused flooding of the Limpopo, Maputo, Umbeluzi, Incomati, Buzi and Save rivers, displaced 2 million people and claimed 640 lives 1999 Floods in the provinces of Sofala and Inhambane: heaviest rains in 37 years. National EN1 highway closed for two weeks, cutting off road traffic between the south and north of the country: 300,000 people displaced and 100 deaths 1997 Flooding of the Buzi, Pungue and Zambezi rivers. Road traffic to Zimbabwe interrupted for two weeks: 300,000 people displaced and 100 deaths 1996 Flooding of all southern rivers: 200,000 people affected 1985 Southern region affected by the worst floods in 50 years after 4 years of droughts: 500,000 people displaced 1981 Limpopo river basin: 500,000 people displaced Source: INGC, 2013; INGC, UEM and FEWS NET (2011); INGC, 2009.

Figure 4: Cyclone prone areas

prone to this hazard are Nampula (Angoche district), Zambezia (Nicoadala district), Sofala (Dondo and Buzi districts) and Inhambane (Vilankulos and Massinga districts). The map (see figure 4) shows the geographical pattern of cyclone proneness in Mozambique. In red (along the coast) are the most highly prone areas, and in green (inland) the least prone areas. From January to March, there is a greater risk of cyclone occurrence. The National Meteorological Institute (INAM) monitors cyclone activity.

Mozambique has a flag-based warning system for local communities in the event of approaching cyclones. The blue flag means that cyclone will land within 24-48 hours; the yellow flag that the cyclone will land within 24 hours and, and the red flag that the cyclone will land within 6 hours. Data from INGC (2009:3) show that cyclones and strong Source: Fewsnet and INGC (2007). winds have affected 3,002,400 people (about 600,480 households), whose houses or other Tropical depressions or cyclones that enter properties, such as crops, winds have completely Mozambique from the southwest of the Indian or partially demolished. The following table shows Ocean frequently hit the country’s long coastal the main cyclones that have hit the country over area. From November to April, the provinces most the past 30 years.

7 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Table 2: Main cyclone events since 1980 Year Event 2008 Cyclone Jokwe: 200,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 2007 Cyclone Favio: 160,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 2003 Cyclone Japhet: 100,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 2000 Cyclone Udah: 11,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 2000 Cyclone Gloria:650,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 2000 Cyclone Eline: 650,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 1997 Cyclone Lisette: 80,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 1996 Cyclone Bonita: 200,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 1994 Cyclone Nadia: 900,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 1988 Cyclone Filão: 90,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) 1984 Cyclone Demoina: 350,000 people affected (their houses and/or other properties such as crops partially or totally destroyed) Source: adapted from INGC, UEM and FEWS NET, 2011.

Figure 5: Drought prone areas Cyclical droughts, which occur every two to three years, have affected Mozambique. The south of the country has experienced drought for five of the last seven years. Droughts are likely to occur every year and are relatively chronic, particularly in the southern and central parts of the country (see figure 5 – brown represents highly drought prone areas and dark green no drought risk). It is not only the total amount of rainfall that determines the occurrence of drought, but its spatial and tempo- ral distribution as well. Prolonged dry spells can easily lead to drought, particularly in remote areas, where agriculture is absolutely dependent on rain-fed crops.

As a result, vulnerable communities may experience reduced access to water, outbreak of communicable diseases, hunger and eventually malnutrition.

Source: Fewsnet and INGC (2007).

8 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Table 3: Main drought events since 1980 Year Event 2010 60 districts and 350,000 in need of food assistance in the southern and central regions 2008 60,000 people requiring food assistance in the southern and central regions 2007 520,000 requiring food assistance in the southern and central regions 2004-2005 600,000 people in need of food assistance in the southern and central regions 2002-2003 600,000 people requiring food in the southern and central regions 1999 100,000 people requiring food assistance in the southern and central regions 1994-1995 1.5 million people requiring food assistance in the southern and central regions with a high shortage of drinking water and cholera outbreak 1991-1993 1.32 million people requiring food assistance countrywide with a high shortage of drinking water and cholera outbreak 1987 8,000 people requiring food assistance in the Inhambane province 1981-1984 Long dry period countrywide, combined with the civil war, claimed about 100,000 lives and put nearly 5 million people in need of food assistance 1980 60,0000 people in need of food assistance in the southern and central regions

Source: adapted from INGC, UEM and FEWS NET, 2011

Figure 6: Earthquake prone areas lative shocks that droughts cause. The south of the country is particular prone to drought due to low rain patterns (400-600 mm/year), prevalent low fertility sand soils and limited water re- tention capacity. These limit food security from agricultural production. On average, own agricultural production provides food security for about four to five months, especially in the Gaza and Inhambane provinces. For the remainder of the year, households depend heavily on remittances from male emigrants in South Africa or Maputo, livestock rearing, natural resources and petty trad- ing. Historically, drought has been the main killer in Mozambique. INGC (2009:3) suggests that between 1956 and 2008, drought affected about 16,500,000 people, claiming 100,200 lives. The table below shows the main droughts that have affected Mozambique since 1980.

Mozambique is situated on the southern end of the East African Rift Valley (a 50-60 km wide zone of active volcanic fault lines in eastern Africa, cov- Source: WFP, 2004. ering more than 3,000 km from Ethiopia in the north to the Zambezi river in the south). Although Most households, already vulnerable due to other seismic activities are not frequent in this area, socioeconomic factors including the impact of INGC has identified the need to consider earth- HIV, are often too weak to cope with the cumu- quake preparedness as a priority for contingency

9 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique planning since February 2006, when an earth- 2.2 Key socioeconomic and quake measuring 7.2 on the Richter scale struck environmental disaster central Mozambique. The earthquake occurred 220 km south-west of Beira, 235 km south of impacts Chimoio and 530 km north of Maputo, injuring 27people and damaging infrastructure (health Mozambique faces a key challenge in terms of centres, schools and houses) in the Espungabera, documenting disaster impacts. Besides recording Beira and Chimoio areas. displaced persons and deaths and conducting a basic economic analysis of damage to infrastruc- Figure 6 above shows earthquake prone areas ture, there has been limited analysis of social and along the Rift Valley in Mozambique. To monitor environmental impacts, partly due to the com- earthquakes, Mozambique has five seismographic plexity of capturing these dimensions. Drought stations in Nampula, Tete, Manica, Lichinga and impacts, in particular, are hard to capture as Changalane. The first three stations have lower drought is a slow on set hazard. Droughts are his- coverage estimated at approximately 650 km of torically the main hazard in Mozambique because ray. Hence, precise monitoring depends heavily the majority of the population (about 70per cent) on external observatory stations. INGC (2009:3) depends on rain-fed agriculture for their subsist- refers to one earthquake that occurred between ence. Droughts in Mozambique have led to crop 1956 and 2008 which displaced 1,440 people and failure/loss, livestock mortality, food insecurity, killed 4 others. scarcity of potable water, poor sanitation and diseases. As agriculture performance declines, there INGC (2009) modelling suggests that these main is a loss of income from this key national sector risks will most likely continue to occur and expand and increased expenditure on food, which forces over the coming years (see figure 7), due largely to people to take financial loans, thus increasing the the impacts of climate change and national socio- risk of indebtedness. To overcome drought shocks, economic dynamics, such as population growth people tend to dispose of/sell their assets, provide and environmental degradation. cheap labour on local markets, migrate or rely on

Figure 7: Forecast frequency trend of main natural hazards

24 Flood trend

16 Cyclone trend Flood trend

Drought trend 12 Drought trend Cyclone trend 8 Number of events per decade Number of events

1970s 1980s 1990s 2000s 2010s 2020s 2030s 2040s 2050s 2060s

Source: INGC, 2009.

10 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique forest products such as fruits, tubes and roots. As assets, destruction of infrastructure, displacement drought expands, forest plant seeds dry and the and resettlement. On average, Mozambique ex- likelihood of bush fires increases, bringing with periences floods that cost around $240 million them further negative environmental impacts every 4 years and those that cost around $45 mil- such as loss of flora and fauna. All this tends to lion every 3-4 years. This translates into a direct deepen poverty and environmental degradation. long-term fiscal liability of over $70 million annually. The total costs of water shocks between 1980 Floods have been known to produce both posi- and 2003 were approximately $1.75 billion (World tive and negative impacts, which vary depend- Bank, 2010). It is estimated that between 1981 and ing on the floods’ magnitude, spatial distribution/ 2004, Mozambique’s GDP growth was reduced by coverage, timing and duration. Floods have the an average of 5.5per cent each time a major wa- potential to nourish soils and increase fertility, ter shock occurred. This translates into an average replenish aquifers, and bring along plankton for 1per cent of GDP lost every year due to the im- fish. All this tends to lead to higher crop and fish pacts of water shocks. If no measures are taken, production, which attracts people to live in the the future costs to the national economy will be flood prone areas and resist resettlement. This much higher. Assuming the country’s GDP grows has been the case particularly along the Zambezi at an annual rate of 5per cent, by 2030 the total basin. On the other hand, floods and associated economic costs due to floods and droughts will cyclones have caused widespread deaths, loss of reach about $3 billion (World Bank, 2005).

11 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

3. Review of main past and ongoing disaster risk reduction interventions

Disasters have been part of Mozambique’s history the name suggests, this commission was not only since the pre-colonial period. Droughts, flooding involved in relief mobilization, but also had a po- and epidemics were all trigger factors and shaped litical mandate to mobilize and organize people, the appearance, disintegration or disappearance especially the flood victims, to live in communal of kingdoms in the pre-colonial era (Newitt, 1995: villages. This was a new development framework, 32-33; Serra, 2000:88). During the colonial period, established in 1977 at the third Frelimo congress disasters triggered by nature and human inter- that took place in Maputo. Aid was distributed se- vention continued to hit the country on different lectively to people willing to move to communal scales, and shaped, and reshaped many invest- villages. According to Coelho (2001:7), the first ments. Continued droughts in the south were, for 26 communal villages were established in Gaza example, a key factor in the establishment, under province following the 1977 floods. In 1978, many the colonial administration, of the Chokwe irriga- other communal villages were set up after the tion scheme in 1960s. In addition, recurrent flood- floods that occurred in the Zambezi delta. People ing along the Zambezi led to the transfer of the still refer to these floods in terms of the communal Sena Sugar company to Marromeu and Luabo villages, i.e., “madzi a maldeia” (water villages). along the Zambezi delta from Mopeia and Caia regions in the 1930s. 3.1.2 Establishment of the Coordinating Council for Natural Disaster Prevention and 3.1 Establishment of Mitigation institutional and strategic Failure to mobilize enough external and inter- nal support to achieve this political objective DRR frameworks led to the replacement of the Inter-Provincial Commission for Natural Disasters and Communal 3.1.1 Establishment of the Inter- Villages in 1980 with the Coordinating Council Provincial Commission for Natural Disaster Prevention and Mitigation for Natural Disasters and (Conselho Coordenador de Prevenção e Combate Communal Villages as Calamidades Naturais –CCPCCN). This was a Mozambique became independent in 1975. political structure whose operational/technical in- It established its first formal commitment and strument was the Department for Natural Disaster planned attempt to manage disaster in 1978. Prevention and Mitigation (DPCCN). The two struc- Due to heavy floods in the Limpopo basin in tures were heavily involved in mobilizing and dis- 1977 and in the Zambezi delta in 1978, that same tributing aid during the civil war, with the back- year, the Government set up a commission to ing of external actors. In 1983, the United States mobilize and coordinate relief called the Inter- pressured the Mozambican Government into ac- Provincial Commission for Natural Disasters and cepting the Cooperative for Assistance and Relief Communal Villages (Commissão Inter-provincial Everywhere (CARE) to work with DPCCN in provid- das Calamidades Naturais e Aldeias Comunais). As ing technical assistance and handling the financial

12 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique aspects of disaster-related projects. This was one of Coordinating Council for Disaster Management the conditions that Mozambique had to accept in (CCGC) backs the Council of Ministers in its deci- order to access US aid. In 1984, a Logistic Support sion-making role. CCGC is an inter-ministerial fo- Unit, which CARE managed, was created within rum comprising about 15 ministers and is chaired DPCCN, and DPCCN became mainly an aid delivery by the Prime Minister. unit depending on the Unit. USAID, SIDA, NORAD, and ODA financed the Unit. This reactive structure INGC is an autonomous institution under the was operational until the end of the civil war in Ministry of State Administration and has represen- 1992 and the post-conflict resettlement by 1995. tations in all the provinces. Its key responsibility is to oversee disaster management in Mozambique, 3.1.3 Establishment of the from policy and strategy formulation down to co- National Institute for Disaster ordination of all DRR actions. It implements or co- Management and enabling ordinates the political decisions of CCGC and runs policy frameworks all day-to-day matters relating to disasters. DRR changed from a reactive to a preventive disaster management system in 1999. That year, INGC receives technical support from the Disaster the Government approved different frameworks Management Technical Council (CTGC), composed that included the first National Policy for Disaster of representatives of the different ministries that Management, the first National Action Plan for make up CCGC. The CTGC also has representatives Disaster Management and replaced DPCCN of NGOs, the private sector and civil society organi- with the existing National Institute for Disaster zations. Under the leadership of INGC, the CTGC Management (INGC). The establishment of these meets ordinarily four times a year and provides in- new institutions, including the replacement of formation and advice to CCGC leaders, so that they DPCCN with INGC, was intended to create more make sound and timely decisions. The provinces flexible and proactive, rather than reactive disaster have similar structures in the form of the Provincial management structures. The slogan “prevention is Technical Council for Disaster Management better than cure” (valemaisprevenirqueremediar) (Conselho Tecnico Provincial – CTP), while districts was stamped on every INGC car and became part have District Technical Council (Conselhos Tecnicos of every newspaper. This was particularly seen in Distritais – CTD). The technical councils work as 2006, when the first (and currently in use) master DRR platforms. They are the only institution that plan for disaster risk reduction was approved and brings together state, NGO/CSO and private sector a new INGC director, Mr. Paulo Zucula, took office. actors to discuss matters related to DRR.

National policy recognized the need to involve dif- The technical councils have also been very in- ferent actors in DRR and the need for local actors fluential in the design and implementation of to play an active role. Chapter II of the National contingency plans. These, presented in section 5 Policy for Disaster Management states that the as one of the good DRR practices developed in affected communities should play a crucial role Mozambique, are plans developed by the techni- in planning and implementing activities related cal councils that allow required human, material to disaster management. The action plan de- and financial resources to be pre-positioned in a fines structures and responsibilities from central/ disaster prone area before a disaster strikes. This national level down to community level. At cen- preparedness tool has been very powerful in re- tral level, the Council of Ministers (chaired by the ducing the number of people affected and the President) oversees disaster management. The death toll, as well as in reducing economic losses.

13 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Figure 8: DRR management structure in Mozambique

Council of ministers

MAE CCGC (Oversee INGO) (Chaired by Prime minister)

INGC

Partners/HCT (organized along CTGC di erent clusters)

Defense Regional representations Meteorology

Natural resources Regional representations Health

Industry and commerce District representations Environment

Agriculture Community level Water

Infrastructures ......

Source: Adapted from INGC 2006.

At community level, the action plan requires INGC committees throughout the country1. CLGRC are to train brigades to disseminate alerts and organ- discussed further in section 5 as one of good DRR ize humanitarian operations if disaster hazards practices developed in Mozambique. They have strike their communities. This is carried out through also been influential in reducing the number of the Local Disaster Risk Management Committees people affected and the death toll from disasters. (CLGRC). After the 2000 great flood, the Mozambican Figure 8 summarizes the existing disaster manage- Government started creating local disaster risk re- ment structure in Mozambique. duction committees (Comités Locais de Gestão de Riscos de Calamidades – CLGRC). The Government 3.1.4 Establishment of the did so through INGC, in partnership with different Mozambican DRR Master Plan stakeholders such as the German Association for The Mozambican DRR Master Plan (Plano Director Technical Cooperation (GIZ) and the Mozambican de Gestao de Calamidades), approved in 2006 for Red Cross. The first local committee was created 10 years, is the key DRR framework in Mozambique in 2001 in Buzi district and ever since, such com- (INGC, 2006). Its main objective is to reduce mittees have been promoted and mushroomed countrywide. There are now about 855 local 1 Interview with INGC.

14 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique human and asset loss due to disaster, by focusing • The Directorate for the Coordination of on vulnerability reduction and disaster prevention Resettlement and Reconstruction and mitigation. The Plan’s activities aim to: • The National Operative Centre of Emergency (CENOE) – replicated in 3 re- i) Reduce vulnerability to slow onset disasters gions (south, centre and north), which (drought) prepares for and coordinates emergency ii) Reduce vulnerability to rapid onset disasters response (floods, cyclones and earthquakes) • The National Unit for Civil Protection – for iii) Prevent and mitigate: search and rescue operations. • preparedness • search and rescue This structure allows the Government to inter- • early recovery. vene coherently and in concert with its partners because each directorate is responsible for a par- In order to achieve the goals above, INGC struc- ticular DRR component, as the names of the direc- tures established the following directorates: torates themselves suggest. In case of emergency requiring national and international coordinated • The Directorate for Prevention and responses, the Government and international ac- Mitigation tors share responsibilities. They do so through the • The Directorate for the Promotion of United Nations Disaster Management Team, the Development in Arid and Semi-arid Zones Humanitarian Country Team and the Humanitarian for Drought Risk Reduction Country Team Working Group (see figure 9).

Figure 9: Interface of government and international actors in emergency response

CCGC

INGC

CMT/UNDMT HCT CTGC

CENOE HCTWG HCTWG Secretariat

UNAPROC Cluster Cluster Shelter Education

Cluster Cluster Sector Telecommunication Health Communication Cluster Cluster Logistics Nutrition Sector Infrastructure Cluster Cluster Protection WASH Sector Information Cluster Planning Food Security

Sector Social Services

Source: INGC 2006.

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For the past five years, INGC has been working to and the Ministry of Planning and Development reduce vulnerability and increase capacity by link- (MPD). MICOA is the lead institution on climate ing DRR to climate change. In 2009, The Institute change and has been very influential in main- produced a comprehensive study on the impacts streaming DRR and CC. Amongst other actions of climate change on disaster risks in Mozambique. that the National Adaptation Action Plan (NAPA) On the basis of the study’s conclusions, INGC out- undertook in 2007, were DRR measures for ex- lined nine key areas of DRR action in the context ample to strengthen early warning systems and of climate change: farmers’ capacity to deal with recurring disasters. In 2012, NAPA designed the National Strategy on i) Early warning and preparedness at different Climate Change (ENAMMC), where DRR is the top scales strategic objective. The MPD has been the key ac- ii) Coastal protection against 100-year return tor in designing frameworks which allow DRR to events be integrated into planning and development. It iii) Preparing cities successfully managed to integrate disaster man- iv) Building resilience with the private sector agement into the national budgeting system v) Water: doing more with less and has been systematically addressing DRR and vi) Food: meeting demands climate change in different national develop- vii) Preparing people (human development) ment plans it produces or recommends. This is viii) Dealing with extremes (focus on oceans) discussed further in section 5 as one of the good ix) Development of a clear DRR strategy under DRR practices in Mozambique. The following sec- climate change. tion presents some large scale DRR and climate change actions. Annex 2 of this report is a sum- Different actions have been taking place in line mary table of additional DRR and climate change with the DRR Master Plan or the climate change actions based on interviews. study outlined above to reduce vulnerability and increase capacity. For example, in the drought prone arid and semi-arid areas, INGC, in partner- 3.2 DRR programmes and ship with other governmental and non-govern- projects mental organizations, has been promoting new technologies. This has been conducted through a) The Pilot Programme for Climate centres for dissemination of technologies for arid Change (PPCR) is one of three programmes un- and semi-arid regions (CERUMs), discussed fur- der the Strategic Climate Fund (SCF) of the Climate ther in section 5, as one of the good DRR prac- Investment Fund. The Programme involves 20 tices in Mozambique. In flood prone areas, INGC countries including Mozambique. Its overall ob- and partners have been, among other actors, re- jective is to pilot projects that demonstrate ways settling people from the highly flood risk areas to of integrating climate risk and resilience into new areas. They have also been strengthening the core development planning, while complement- early warning system. They use the CLGRC to help ing other ongoing development activities in the warning and search and rescue operations. countries concerned. Mozambique’s Strategic Program for Climate Resilience (SPCR) gives pri- Besides INGC, two other governmental institu- ority to investments to be financed by the PPCR, tions have been playing a critical role in DRR with a budget of about $102 million. The funding, in Mozambique. These are the Ministry of the approved in June 2011, is being used to integrate Coordination of Environmental Affairs (MICOA) climate resilience into mainstream development

16 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique investment in agriculture, natural resources man- Mozambique. It sought primarily to mainstream agement (including water), coastal infrastructure environment and climate-change policies, and development, roads, and private sector invest- to enhance the adaptive capacity of communi- ment. In total, 8 projects have been approved: ties in the Limpopo region (with emphasis on Chicualacuala District). The programme had two Project 1: Introducing climate resilience into components with the following results: the design and management of Mozambique’s unpaved roads Component 1: Environment and Climate Change Project 2: Coastal cities and climate change Mainstreaming Project 3: Climate resilient water-enabled growth, Component 2: Adaptation to Climate Change transforming hydro-meteorological services The project’s main achievements included in- Project 4: Sustainable land and water resources creased resilience in drought prone areas through management the diversification of sources of livelihood; intro- Project 5: Enhancing climate resilience: agricul- duction of drought tolerant crops; introduction of tural production and food security water harvesting and better water management Project 6: Developing climate resilience in the ag- techniques; better natural resources manage- ricultural and peri-urban water sectors ment practices; introduction of DRR in local plan- through provision of credit lines from ning and, capacity-building of DRR at national and Mozambican banks local levels and adaptation to climate change. Project 7: Developing community climate resilience through private sector engage- c) The Africa Adaptation Programme: ment in forest management, sustain- this Programme was launched in 2008 by UNDP able timber harvesting and/or tourism in partnership with the United Nations Industrial Project 8: Complementary project: climate Development Organization, the United Nations change policy lending: development Children’s Fund and the World Food Programme policy operations (DPO)/programme (WFP) and with $92.1 million support from the management and technical assistance Japanese Government. The Africa Adaptation Programme was established under the Japan-UNDP Programme achievements: PPCR funding has only Joint Framework for Building Partnership to Address recently started (from 2012) to be channelled to Climate Change in Africa. The Framework was found- Mozambique. Initial funds have been used for ed at the Fourth Tokyo International Conference on studies and to define detailed specific actions African Development in May 2008. The Programme around each of the projects. Hence, it is still too was implemented in 20 African countries and fo- early to present achievements in terms of DRR. cuses on strengthening five capacities that the Programme considers to be crucial to designing and b) Environment mainstreaming and implementing a resilient development agenda: adaptation to climate change: funded by the Spanish MDG Achievement Fund (about $7 mil- • Enhance data and information management lion), this Programme was led by the FAO with • Strengthen institutions and leadership contributions from other United Nations agen- • Enhance analysis and implementation of cies under the United Nations Joint Programme. DRR and climate change actions Implemented from 2008-2011, it focused geo- • Enhance knowledge management graphically on the Limpopo region of south • Innovative finance

17 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Project achievements included the furnishing of e) Strengthening local risk management INGC offices with key IT equipment and training and mainstreaming DRR in Mozambique: on data collection and analysis of DRR; co-funding budgeted at $2, 75 million, this Programme was of studies by INGC on DRR and climate change; designed by UNDP Mozambique for the 2008- training government planners on how to inte- 2009 period. This was UNDP Mozambique’s contri- grate climate change and DRR into district plan- bution to the joint programme for Strengthening ning and subsequent integration of DRR activities Disaster Risk Reduction and Emergency into plans; training of staff from meteorological Preparedness in Mozambique, which the United services to enhance early warning systems; train- Nations country team approved under the “de- ing of key staff from INGC, MICOA and MPD on livering as one” United Nations Development climate change, DRR and planning. This helped Assistance Framework (UNDAF) for Mozambique these institutions to better perform their DRR in 2007-2009. duties. Key achievements included the setting up, train- d) Livelihood Protection and Promotion ing and furnishing of local committees for disas- Programme: funded by the Dutch, Canadian and ter risk reduction; the furnishing of selected INGC US Governments, this Programme targeted the offices (with some office equipment and means most vulnerable people in 20 districts of seven of transport); training of staff from INGC and from southern and central provinces. The Programme the Government on DRR; awareness raising and was led by WFP and implemented in partnership training on integration of DRR into local plans; with INGC, the Ministry of Agriculture, the Ministry evacuation drills; and a draft law on disaster sub- for Women and Social Affairs and the Ministry of mitted to the Council of Ministers. Health from 2008 to 2011. With a requested budget of about $110 million, of which less than half f) Floodplain management in the was secured, the Programme addressed the im- Zambezi valley: the Enhancing Sustainable pact of natural, social and health risks through the Livelihoods Resilience project was budgeted at integration of food assistance in four areas: GBP 1.25 million and implemented by Save the Children during the 2009-2011 period. It focused i) Disaster preparedness and response; on 4 districts (Caia, Mopeia, Morrumbala and ii) Livelihood protection and promotion; Tambara) along the Zambezi valley. The project iii) Social assistance; and aimed at minimizing exposure to risk and enhanc- iv) Health and nutrition. ing resilience of livelihoods to recurrent weather hazards along the Zambezi valley. The Programme’s main achievement is inclusion of the most vulnerable people in the mainstream The project’s main achievements included liveli- labour market by providing them with cash for hood diversification; establishment and furnishing work. This helped them, amongst others, to pur- of local committees for disaster risk reduction; es- chase additional and diversified food, to buy in- tablishment of irrigated agriculture in some com- puts for agricultural production. It also helped munities; provision of seeds and agricultural imple- them to adopt new seeds/crops and farming ments to vulnerable households through a vouch- practices, which led to better agricultural yields, er system; and establishment of a local small-scale which in turn led to better nutrition and market rotational credit and savings system to strengthen integration. business capabilities and market integration.

18 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique g). Adaptation in the coastal zones (2012- 2015): budgeted at about $1million, MICOA and UNDP are implementing this project in partnership with key line ministers (i.e., Agriculture and INGC) with two main objectives: i) To strengthen institutions to develop and improve climate change policies, strategies and plans, environmental management, and disaster risk reduction; and ii) To strengthen integrated information systems for decision-making on disaster risk reduction, climate change and environmental management. The project covers three coastal cities in Mozambique.

19 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

4. Mainstreaming and implementation of DRR within national plans and strategies

4.1 Overview of key “constructing and reconstructing risks”, which per- mainstreaming frameworks petuate the conditions for unsustainable human development. As a result, achievement of poverty Mainstreaming DRR into national plans and strat- alleviation, good governance, and other related egies is the core objective of the Africa Region goals becomes more difficult. Disaster Risk Reduction Strategy and its programme of action (see page 11-12 of this re- Different tools have so far been used to main- port). This is also the core objective of the Hyogo stream DRR into the development process. For Framework of Action (HFA 2005-2015), developed example, UNDP has been promoting the Madrid along the lines of the Africa Region Disaster Risk Framework (Mainstreaming Adaptation and Reduction Strategy. Disaster Reduction into Development) over the past five years. The International Federation of Red “Mainstreaming” DRR into development means Cross and Red Crescent Societies and Provention “to consider and address risks emanating from have also been providing guidance for the inte- natural hazards in medium-term strategic frame- gration of DRR into development planning since works and institutional structures, in country and 2007. This report considers the UNDP framework, sectoral strategies and policies and in the design which firstly assesses a country’s or region’s hazard of individual projects in hazard-prone countries” risks and then evaluates them. The risks that soci- (Provention, 2007). ety cannot withstand have to be prioritized and incorporated into national development plans/ The lack of disaster risk considerations in the devel- strategies and additional regulatory frames. Figure opment processes, including rehabilitation efforts 10 summarizes the UNDP approach used in the following major disasters, leads to investments in assessment.

Figure 10: NDP mainstreaming framework National Development Identify Hazard Risks plans/strategies

Evaluate Risks Policies

Accept Risk? Regulations

Budget Yes No Sector plans Identify ways to prevent or manage Monitor and review risks (DRR/adaptation options) Programmes Incorporate DRR/CCA into: DRR/CCA Incorporate Prioritise DRR/adaptation options Projects Source: UNDP, 2013

20 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Figure 11: Provention mainstreaming framework

Poverty reduction and other national development planning tools National planning development

Gov. DRR policies, strategies & Hazard information initiatives

Development organization Stakeholder analysis covering DRR DRR policies Country strategy issues

Other development organization Previous DRR lessons learned

DRR strategies & initiatives Country Programming

Social and economic analysis Integration of DRR concerns incorporating DRR concerns Project identi cation, within the overall project cycle design & appraisal Construction design and site selection incorporating DRR Logical framework analysis principles incorporating DRR concerns Project appraisal Project

Monitoring of disaster Building code enforcement & risks monitoring of construction Implementation standards Review & possible adjustment of project goals & activities in the Continuing stakeholder event of a disaster consultation on DRR Implementation

Impact of disaster on project Analysis of bene ts & achievements performance & operating environment of DRR components Evaluation Analysis of long-term project Impact of the project on sustainability in the face of

vulnerability to natural hazards Evaluation disaster risk

Source: Provention, 2007.

The Provention approach addresses mainstream- claim. In Mozambique, DRR is considered a cross- ing in five areas: cutting issue. Hence, all ministries are supposed to take DRR into consideration in their planning. i) National development planning; INGC helps other institutions in this endeavour ii) Country programming; and proposes programmes for DRR, such as the iii) Project appraisal; ones outlined in the National Action Plan for iv) Project implementation; and Poverty Reduction (see section below). In the sec- v) Project evaluation (see figure 11). tions that follow, we outline key DRR mainstreaming that took place in Mozambique, while Annex 3 provides an extensive overview of policies and 4.2 Mainstreaming of DRR in strategies related to DRR in Mozambique. different frameworks 4.2.1 Incorporation of DRR in Mozambique is one of the few African countries the Government’s five-year that have recorded progress in mainstreaming programme DRR into national plans and strategies across The Government’s five-year programme is the sectors and from the national to the local2 level. umbrella under which subsequent programmes Interviews with different ministries and at national and strategies at national, provincial or district and district level (in Guijá district) substantiate this levels are grouped. It also guides sectoral strategies and is the reference document for donors

2 Interviews with INGC, MICOA and MPD. and NGOs that provide support to development

21 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique in Mozambique. Dealing with the impacts of 4.2.3 Integration of DRR in the disaster on national development, the five-year ENAMMC programme (PQG 2010-2014) outlines, on pages The National Strategy for Climate Change 102-104, key outputs expected bythe end of the Adaptation and Mitigation (Estratégia Nacional de programme. The programme authorizes INGC to Adaptação e Mitigação `as Mudanças Climáticas– develop strategic actions to achieve the outputs. ENAMMC 2013-2025), approved in November The programme is mainly expected to reduce the 2012, is developed around three pillars. These are: number of people affected and killed, and eco- (i) adaptation and reduction of climate risks, (ii) nomic losses from disasters. mitigation and low carbon development and, (iii) cross-cutting issues. DRR is considered an integral 4.2.2 Integration of DRR in the part of the first pillar. This pillar has 13 strategic Poverty Reduction Action Plan actions, which together are expected to lead to The Poverty Reduction Action Plan (PARP) is a adaptation and DRR (MICOA, 2012): policy document that specifically targets poverty reduction in Mozambique. The 2011-2014 PARP i) Strengthen early warning systems; has the overall objective of reducing the level of ii) Improve national preparedness and response poverty from 54.7per cent in 2008/2009 to 42per to climate risks (i.e., floods, droughts and cent by 2014. The Plan is implemented through cyclones); programmes, and the Government has defined iii) Increase national capacity for managing wa- 88 programmes, to be implemented through dif- ter resources; ferent ministries. The PARP (its 88 programmes) iv) Increase national capacity for water harvest- absorbs about 82per cent of the annual budget. ing, storage and distribution; Realizing that poverty could be reduced only if v) Increase agriculture and livestock resilience; DRR is an integral part of the annual planning cy- vi) Increase fishery resilience; cles, two of the 88 programmes have specifically vii) Increase food security and nutrition; been designed for DRR (namely the drought man- viii) Increase the adaptive capacity of the most agement programme, and the flood, cyclone and vulnerable groups; earthquake management programme). Some of ix) Strengthen health services to deal with cli- the actions referred to in the document are to: mate change and disaster risks; x) Protect biodiversity; • Map disaster risks across the country in xi) Protect and expand forest areas; order to define specific actions; xii) Promote resilient settlement; • Promote strategies to reduce de-forest- xiii) Promote resilient coastal and tourist areas. ation, wild fires, environmental degradation and, increase forestation; 4.2.4 Integration of DRR in ministries • Promote livelihood diversification in dis- and other institutions aster prone areas; Key ministries have focal points that advise these • Promote efficient water use in agriculture institutions on DRR issues. The focal points are all and other sectors, especially in drought part of the CTGC. According to INGC (2012), institu- prone areas; tions such as the Ministries of Agriculture, Health, • Create, train and equip local committees for Social Protection, Public Infrastructure, Energy, disaster risk reduction in disaster prone areas; Environmental Affairs, and Public Administration • Operationalize natural resources manage- and meteorological, water and sanitation ser- ment committees. vices have all embedded DRR objectives in their

22 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique development strategies. All provinces, munici- • Strengthen democratic governance sys- palities and districts have embedded DRR objec- tems and processes to guarantee equity, tives in their development plans. 855 communi- the rule of law and respect of human ties countrywide have local DRR committees. The rights at all levels; Government approved a proposed law on DRR in • Encourage people to participate in shap- December 2012 that is pending the Parliament’s ing and monitoring a transparent and eq- approval. uitable national development agenda; • Government and civil society to provide 4.2.5 Integration of DRR in UNDAF decentralized coordinated, equitable and The United Nations Assistance Development integrated services. Framework for Mozambique (UNDAF 2012-2015) has been developed with the overall objective to The eight outcomes of UNDAF 2012-2015 in the reduce poverty and disparities in order to improve economic, social and governance areas are being the wellbeing of the most vulnerable people in implemented through the coordinated delivery Mozambique. It aims at ensuring that the most of 49 outputs, which all involve two or more of disadvantaged families, groups and communi- the 14 United Nations agencies in Mozambique. ties progressively realize their rights to develop- The total estimated financial resources required ment, protection, governance and participation. for implementing the 2012-2015 UNDAF action UNDAF was designed around the economic, so- plan is $722 million. Some 35 per cent of the $249 cial and governance areas, and defined eight key million budget comprises regular resources. The outcomes: remaining $473 million will have to be mobilized. Of the three UNDAF focus areas, the social aspect • Vulnerable groups (with a particular focus takes up more than half of the UNDAF action plan on women): to ensure production and budget. The economic area is the second largest, productivity in the primary sectors such and takes up 31 per cent of the overall budget, as agriculture in order to increase food while governance takes up 13 per cent(UN, security; 2012:30). • Access of vulnerable groups to decent employment and opportunities for im- DRR is specifically embedded under the third proved livelihoods; outcome, i.e., “Sustainable and effective manage- • Sustainable and effective management of natural resources and disaster risk re- ment of natural resources and disaster duction that benefits everyone in Mozambique, risk reduction that benefits everyone particularly the most vulnerable”. This outcome in Mozambique, particularly the most is budgeted at $105,353,500. The United Nations vulnerable; has been supporting this programme at national • Strengthen the capacities of public insti- level in terms of the policy framework on the use tutions to provide quality and essential of natural resources, operationalization of inte- social services (in water, sanitation and grated regulations on disaster risk reduction and built environment; social protection; edu- adaptation to climate change, and implementa- cation; health and nutrition and HIV/AIDS) tion of information management systems for early for vulnerable groups; warning. Building on the multi-disciplinary set-up • Empower right holders to ask for access of its agencies, the United Nations has also been to and use equitably delivered social promoting an integrated approach to informa- services; tion management systems to address emergen-

23 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique cy as well as short- and long-term information by each sector’s own monitoring system and by needs, and respond to the growing demand for the Ministry of Planning and Development at pro- in-depth analysis of structural and emerging fac- vincial level through the Provincial Directorate of tors of climate change. At decentralized levels, Planning and Finance-DPPF). At national level, the United Nations agencies invest in proactive risk re- Ministries of Agriculture, Health, Infrastructure, duction measures, fostering prevention, risk miti- Education, and Tourism, among others, are sup- gation and early recovery efforts. In line with the posed to integrate DRR in their plans and actions. National Master Plan for Disaster Management, the This is monitored and evaluated by each sector’s United Nations supports capacity development of own monitoring system and by the Ministry of the national and provincial Disaster Management Planning and Development at national level. INGC Office (INGC), and the disaster management com- at different levels provides technical support to mittees in risk analysis and mapping, early warning the sectors in order to help them integrate DRR for disaster preparedness and emergency man- in their actions. agement of national disaster management structures. Priority is given to those communities that The Ministry of Planning and Development (MPD) are most exposed to the risk of natural disasters aggregates and provides a cross-sectoral over- and the impact of climate change (United Nations, view of plans and achievements. For impact as- 2012:15). sessment, the MPD uses sectoral information, its own monitoring system and data from external sources, such as INGC and independent studies 4.3 DRR implementation by university and research centres. strategy and stakeholders Stakeholders such as the United Nations system In Mozambique planning, implementation, moni- and NGOs play a crucial role in mobilizing re- toring and evaluation of government strategies is sources and strengthening government capacity sectoral and cross-sectoral. On the basis of nation- to implement DRR actions. As shown in the differ- al plans and strategies such as the PQG and PARP, ent DRR programmes and projects presented in each sector/ministry has to make sure that DRR is section 3.2 and the UNDAF framework, strength- integrated in its actions at all levels, from national ening national DRR capacity is a key and com- to district and community levels. Local commit- mon cross-cutting goal. Every United Nations or tees for disaster reduction (CLGRC) and local lead- NGO project and programme addressing DRR ership are required to participate in and monitor should be aligned with the national policies and DRR actions taking place at community level. strategies, and work jointly with government institutions mandated to address the issues under At the district level, government services such as consideration. agriculture, health, infrastructures are supposed to integrate DRR in their actions. This is monitored The Government and donors supporting the by each sector’s own monitoring system, district Government’s budget have agreed on and set administration (administratação do districto) and up a Performance Assessment Framework (PAF) district consultative councils (conselhos consul- to assess the extent to which their funding is im- tivos distritais). At provincial level, provincial di- pacting on poverty reduction and on national de- rectorates of agriculture, health, infrastructures, velopment. The PAF established 35 performance education, tourism, among others, are supposed indicators and one of them (indicator 6) is on ad- to integrate DRR in their actions. This is monitored aptation to climate change and DRR.

24 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

5. Good practices and lessons learned

DRR mainstreaming and implementation allowed vii) Effectiveness and successfulness of prac- us to identify the following good practices. We tice in DRR practice and enhancement of chose them because they match one or more of resilience; the criteria for good practices presented in the viii) Action/practice replicability, where applica- methodology section. The criteria include: ble; and ix) Sustainability of proposed/adopted measure/ i) Stakeholder ownership of practices/ practice. measures/actions; ii) Adequate backing by a sound statistical and The table below summarizes the good practices information basis; identified. It provides: iii) Stakeholder participation and involvement including in non-traditional DRR interest groups; i) a short description; iv) Effective institutional DRR arrangements; ii) tools used; v) Consideration of the social, economic and iii) key achievements and; environmental dimension; iv) key challenges. Additional details are provid- vi) Capacity to move from policy/strategy and ed on selected good practices. plans to tangible action on the ground;

5.1 Overview of good practices

Good Practice Practice Overview Tools Used Key Achievements Key Challenges DRR DRR is governed CCGC meets ordinarily twice a The structure enabled CCGC depends on the governance through a DRR year and extraordinarily when the mainstreaming of approval of the Council of structure council (CCGC) under necessary to discuss and decide DRR across different Ministers to implement its the Prime Minister on DRR plans and reports ministries and, deliberations. CCGC has no with representatives to some extent, a say in the final decision on of all ministers collective ownership DRR of the decisions made DRR Master The master plan The plan was produced through Based on the master The Master Plan focused too Plan provides the country’s broad consultation based plan, INGC was able much on natural hazards and DRR strategic on workshops, focus group to set up emergency rural areas. It also lacked interventions for discussions, individual meetings operative centres a clear link with climate the period 2006- and high-level inter-ministerial (CENOEs), technology change, environmental 2016. The plan was presentations and discussions centres (CERUMs) and protection and gender aligned with the HFA by INGC to foster resettlement issues. Documentation of 2005-2015 whenever required. what different stakeholders All this reduced the (besides the Government) are number of people doing in DRR along or beside affected by disasters the Master Plan is limited, which in turn limits cross- learning and improvement of practices

25 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Good Practice Practice Overview Tools Used Key Achievements Key Challenges Integration of DRR and CCA are Each minister has a DRR and There has been Focal points and members of DRR and CCA being integrated into CCA focal point, which advises increased awareness the district technical team are in planning and district planning and the minister on DRR and CCA of DRR and CCA overburdened with different budgeting budgeting systems in issues. INGC and MICOA provide in districts and in cross-cutting issues and the eight key sectors technical back up to the focal ministries. In addition, their own terms of reference. of agriculture, point. A technical team is DRR is starting to There is a high staff turnover health, water, social responsible for planning at be seen as relevant and, limited knowledge of protection, roads, district level. INGC trains on for the sector’s DRR and CCA by the focal the environment, DRR and planning performance points and other staff within meteorology and the ministries. Resources and energy M&E frameworks to assess the extent to which DRR and CCA projects are being implemented are also limited DRR interlinked In November 2012, In order to merge DRR and CCA, DRR was recognized DRR is handled by different with CCA the Government the Government established the as an integral part of ministries and institutions approved the GIIMC (inter-institutional group adaptation to climate (INGC/MAE and MICOA): national strategy on for climate change), a structure change coordination and cooperation adaptation to and that includes actors working on between the two need to be mitigation of climate DRR and on CCA strengthened change, which merges CCA and DRR Contingency Every year, the 3-6 month weather information The contingency Information flow at different planning Government at is collected at regional level planning helped the levels and coordination national, provincial (at the SARCOF), downscaled Government to reduce between different actors and district levels, at the national level and then the number of people remains a critical issue through INGC, broadcasted to different national affected and to make Additionally, funding for prepares and approve institutions working on DRR. On resources available contingency planning is still a contingency plan, the basis of this information, for coordinated too limited which outlines INGC develops best, mid and interventions prior to expected hazards worse (BMW) case scenarios disaster events (in the rainy and budgets human and season), resources financial resources required available, response before and during the critical and coordination period. The plan is updated with mechanisms time Community- At community level, INGC approaches risk Communities that The main challenges are based DRR the Government has communities through have CBDRR tended that committee members (CBDRR) been establishing community meetings. Locals to experience less do not have the motivation local disaster select 15-18 people to disaster impacts to continuously engage risk reduction form a local DRR volunteers compared to those in DRR mainstreaming in committees to help committee (CLGRC) and to lead that had none. And their communities on a build local DRR DRR implementation in their the Government has voluntary basis. There is capacity, especially communities. The selected highly praised the a high turnover partly due to allow better people go through a short DRR CBDRR to migration and a lack of disaster response, training and, whenever funds incentives and information assuming that local are available, the committee flow between the national communities are the receives a preparedness kit level and communities. The first aid providers in comprising a radio, a bicycle, committees’ duties are response to disaster rods, and warning flags, concentrated on disaster amongst others response rather than on DRR Centres of CERUMs are The Government selects Local communities Settlement patterns technology technology centres some drought prone districts, have adopted new (dispersed households) in drought established in arid builds infrastructure (hubs) technologies such and migration in drought prone areas and semi-arid and allocates staff to develop as water harvesting prone areas have made (CERUMs) districts that provide demonstration practices, e.g., and drought tolerant interventions very challenging local communities through demonstration plots for crops. This has helped with internationally new practices. The Government reduce food insecurity and nationally also provides technologies to and increase water tested and applied lead farmers and local leaders availability technologies for to use in their own communities drought prone areas or on their own farms

26 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Good Practice Practice Overview Tools Used Key Achievements Key Challenges Annual drills Every year, the INGC, in partnership with local Communities Preparation, commitment Government selects communities, the CLGRC, fire become more aware and coordination amongst one disaster risk area fighters, the police, military of hazards and different players involved and conducts a drill forces, the Red Cross, and other existing response in drills has always been a as a way of creating humanitarian organizations, mechanisms. The challenge awareness and prepares and undertakes drills. drills have also testing the national The partners define one hazard created a culture response capacity and prepare a screenplay on of preparedness in response to an emergency disaster prone areas related to the hazard Resettlement In highly flood The Government has provided The number of people Other vulnerabilities other programme prone areas, the new settlement areas, built affected by flooding than physical ones need to be Government has basic infrastructure such and in need of rescue tackled as well. For example, been undertaking as hospitals and schools on aid has reduced lowlands are generally fertile resettlement the new sites, and provided and moving people from programmes by construction materials for those these areas means that they removing people from willing to resettle in new areas have to learn new skills these areas to reduce for alternative livelihoods. their exposure and Alternative livelihood sources vulnerability. This has are still limited and generally, been particularly the most of the households build case in the Zambezi their homes between upper and Limpopo basins, and lower lands where death due to flooding is recurrent Source: Own construction.

5.2 Additional information on these limitations, the Plan has been reformulated, selected good practices and an updated version (November 2013) is now waiting for government approval. 5.2.1 Good practice 2: approval of the DRR Master Plan 5.2.2 Good practice 3: DRR in planning The DRR Master Plan, approved in 2006, pro- and budgeting systems vided the strategic vision and outline for DRR in The DRR Master Plan became operational because Mozambique. The Plan provided a clear vision and it was embedded into the national planning and monitoring and evaluation frameworks to the var- budgeting systems. As such, DRR actions could be ious DDR actors. This also showed the world the funded and executed across the country. This also country’s commitment to addressing disaster risks demonstrated Mozambique’s commitment to more coherently, leaving behind ad hoc DRR prac- DRR to the international community. This practice tices. This practice was chosen mainly because it was chosen mainly because it allows government provided an effective institutional arrangement actors to enhance the resilience and sustainability for DRR actions in Mozambique. of DRR actions.

Key lessons learned from the Master Plan Key lessons learned from the integration The key lesson learned from the Plan was that it One of the key lessons learned is that integration was too limited. It did not address climate change can be effective only if people, across different or man-induced disasters such as wild fires, tech- ministries and planning levels (national, provin- nological accidents and social unrest. Due to cial and district) have a ‘reasonable’ understanding

27 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique of DRR and see it not as something that belongs 5.2.4 Good practice 5: contingency to INGC but as something that touches upon plans as preparedness tools their everyday duties. Unfortunately, according On the basis of the national disaster policy ap- to many of the people interviewed, there is still proved in 1999 (section 3.1.3), the Mozambican limited understanding of DRR and people equate Government started developing contingency it to INGC and do not see it as their business. As planning, through INGC. In contingency planning, such, although integration is written in the ap- the Government, on the basis of scientific knowl- proved documents, real implementation by many edge gathered by national, regional and interna- ministries is still a challenge. Hence, for many of tional meteorological and climate centres, such the people interviewed, there is a real need to disas the SARCOF (Southern Africa Region Climate seminate and advocate for DRR both at the gov- Outlook Forum), develops its disaster response ernment and societal levels. plan. The information is used to determine the regions and estimate the number of people likely to 5.2.3 Good practice 4: DRR interlinked be affected by main hazards (i.e., floods, droughts with CCA and cyclones). The Government uses the informa- The national strategy for adaptation to and tion to produce three scenarios. The first scenario mitigation of climate change outlined in sec- simulates a disaster on a low magnitude and with tion 4.2.3 brings together DRR and CCA. This is a low impacts. The amount of resources required great achievement because international discus- to respond are also downscaled. For example, sions on how to link CCA to DRR have been tak- scenario I of the 2012/2013 contingency plan es- ing place. By bringing these two fields together, timated that about 307,000 people affected by a the strategy has shown the need to address cli- disaster would be assisted by a total amount of mate change and DRR as two interlinked issues. MTN 60-123 million (about $2-4 million). Scenario Effective implementation of the strategy will lead II simulates a disaster on a moderate magnitude to adaptation to climate change in Mozambique, affecting relatively more people than scenario I which means the communities concerned can and requiring relatively more resources. Scenario reduce disasters. III (the worst case scenario) simulates the highest magnitude and impacts. For example, the Key lessons learned from interlinking DRR and CCA 2012/2013 contingency plan simulated a scenario The strategy is still in its inception phase. The (III) in which a total of 987,000 people would be af- Government, in partnership with the United fected by a disaster and would require assistance Nations system, the World Bank and NGOs, is set- of MTN 101-374 million (about $3.5-12 million). ting the strategy’s M&E system and coordination and funding mechanisms. Nonetheless, the link Besides this exercise, the plan outlines the actions between the two is already raising issues of man- to be carried out before, during and after the event date and coordination. INGC is mandated to over- of a disaster, and assigns responsibilities to differ- see DRR while the CCA is under MICOA. According ent actors (e.g., government ministries, NGOs and to the interviewees, there are different centres of the United Nations system) at national, provincial, leadership, capacities, visions, perceptions and district and local levels. The Government secures planning mechanisms with regard to DRR and the and provides on average MTN 120 million (about CCA, and cooperation and coordination between $4 million) for plan implementation annually. them is not yet clear. Every year before November (before the rainy sea-

28 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique son starts), the Government holds a contingency Key lessons learned from contingency planning planning meeting with all relevant stakeholders Political commitment: this was mentioned during on DRR in Mozambique to discuss the plan and the interviews as a key factor for effective contin- secure the involvement of stakeholders in imple- gency planning. The Mozambican Government menting the plan. has shown this commitment by providing annual financial resources and political support. People For a smooth and coordinated emergency re- suggested that the Government should continue sponse, the Government created, in 2007, na- this political commitment and support. tional and regional emergency operative centres (CENOE). They are based in Maputo (headquar- Commitment and coordinated actions of all ac- ters), with three regional offices in Vilanculos (in tors: a smooth implementation of contingency the south), Caia (in the centre) and Nacala (in the plans was said to depend on the commitment north). The CENOE are, in essence, a structure and coordinated actions of all actors (beyond the where representatives of different governmen- Government). This was regarded as a challenge to tal and non-governmental institutions converge be addressed. Although people participate in the and, under the Government’s leadership, directly design of the contingency plans, implementation participate in disaster response. Additionally, the of the plan suffers from limited commitment and Government in 2007, created a unit for search and some actors’ attempt to establish their own action rescue for rapid onset disasters such as floods. plans. The unit immediately swings into action once the Government declares a red alert. Among the key Quality of information and information flow with challenges that interviewed actors mentioned regard to preparedness: preparedness depends with regard to contingency planning and emer- on sound information and clear and effective lines gency response are: obtaining financial support; of information flow. Although the quality of infor- coordination difficulties; and lack of quality data mation on the climate has improved, the margin to help make decisions before, during and after of error is still large and the flow of information disasters. In Guijá for instance, preparedness plans from the sources to the end users still needs to be are hardly allocated funds, although many hu- strengthened. Many people in disaster risk areas manitarian organizations immediately became still receive very limited information. involved in the aftermath of the 2013 floods. Limited funding of contingency plans: implemen- Contingency planning was chosen as a good tation of contingency plans requires financial re- practice mainly for the following reasons: sources that the Mozambican Government is not able to fully provide on its own. Additional fund- i) The Government owns the practice; ing is very limited, although disaster response re- ii) Stakeholders participate and are involved in ceives much more attention and funding. the process; iii) It has an institutional arrangement; and Limited preparedness beyond rural areas and nat- iv) Moves from policy to tangible actions. ural hazards: over the past years, the country has Ultimately, contingency planning was cho- become a new el dorado with different multina- sen because it has been very influential in tionals prospecting for and exploiting minerals. As reducing disaster risks, such as the overall a result, rapid urbanization is bringing along new number of people that disasters affect and disaster risks, which require additional efforts in kill. land use planning, construction codes, develop-

29 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique ment of DDR monitoring and establishment of the Government and its partners help create local new DDR behaviours in urban areas. Up to now, disaster risk management committees (Comités DRR and contingency planning has been mostly Locais de Gestão de Risco de Calamidades directed to rural areas and natural hazards, while – CLGRC). urban areas and technological risks remained sidelined in the contingency planning. The committees comprise 15-18 local people, each with clear roles and responsibilities before, Cultural barriers and the “wait and see” approach: during and after a disaster. The committees sound contingency planning is intended to help peo- an early warning, identify evacuation routes and ple make sound decisions in the face of disaster safe places for accommodation, help in search risks. Nonetheless, many people in Mozambique and rescue operations and are actively involved in have difficulties following recommendations aid mobilization, distribution and early recovery. from the contingency plans because of sociocul- Under INGC’s leadership they, from time to time, tural barriers, such as group pressure, land own- run drilling exercises and promote livelihood ac- ership, power relations, which altogether instil in tivities after emergencies. Whenever possible, the them the reactive and dangerous “wait and see” Government and its partners provide emergency attitude. preparedness kits comprising key emergency tools such as robs, machetes, a radio, a mega- 5.2.5 Good practice 6: Community phone and lifesaving jackets. By 2012, there were based disaster risk reduction 855 CLGRC across the country (see figure 12). One of the practices that has helped the Government to reduce the death toll and asset The role of the CLGRC was underlined in group losses is the implementation of community based discussions and interviews with key informants in disaster risk reduction (CBDRR). CBDRR firstly Guijá. It was highlighted that long before external maps highly disaster prone areas before sensitiz- aid reached them, the local people, through the ing and organizing communities in these areas to CLGRC, provided most of the required search, res- reduce the disaster risks that they face. To do so, cue and assistance.

Figure 12: Local disaster management committees

13448 Total 855 534 CABO DELGADO 31 722 NIASSA 45 2359 NAMPULA 137 2043 ZAMBEZIA 128 1307 TETE 88 2005 SOFALA 114 456 MANICA 30 INHAMBANE 1812 118 GAZA 1551 110 MAPUTO 659 54 0 2000 4000 6000 8000 10000 12000 14000 16000

Total Members Total CLGRC Source: Author construction based on INGC database 2012.

30 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

CBDRR was chosen as good practice for the fol- • Motivation and dropping out of commit- lowing reasons: tee members: the local committees are setup on a voluntary basis and are sup- i) The Government and local people own the posed to receive their main support from practice; the communities they live in and serve. ii) Stakeholders participate and are involved in This has not been easy, and committee the process (sections 3.2 and 4.2.5); members look to INGC for material and iii) It has an institutional arrangement; financial incentives for their work. Some iv) It moves from policy to tangible actions; committee members said in group discus- v) It has adequate backing by sound statistics; sions that the lack of material and financial vi) It is replicable; and incentives are amongst the key reasons for vii) Sustainable. Ultimately, contingency planning dropping out of the committee. There are was chosen because it has been very influen- difficulties to find people to replace those tial in reducing disaster risks, such as the overall who leave. number of people that disasters affect and kill. • Emergency preparedness kit management: Key lessons learned from CBDRR some of the local committees have re- ceived preparedness kits. Managing the kit • Too focused on disaster response: local contents has not been easy. In some com- committees for disaster response have munities, people borrowed kit contents but been an influential mechanism for disas- never returned them, while in other com- ter response. However, their actions be- munities, the contents where hardly used yond disaster response are very limited. and rotted. Poor storage conditions have, in People and disaster committee members some cases, led to quick degradation of kit themselves have argued that the work of contents. local committees “finishes” after the rainy season (October-March). Hence there is a 5.2.6 Good practice 7: CERUMs need to design and implement, using lo- In 2007, the Government through, Decree cal committees, disaster prevention and 52/2007 of 27 November, created the National mitigation actions, which precede and re- Directorate for the Development of Arid and duce the need for disaster response. Semi-arid areas (DÁRIDAS) to deal specifically with drought. DARIDAS is one of INGC’s • CBDRR is mainly for flood response:CBDRR directorates, tasked with leading and coordi- was initially promoted as a response to the nating actions in about 28 arid and semi-arid 2000 and 2001 floods. The setup, roles and districts (out of Mozambique’s 128 districts). emergency preparedness kit have all been In order to develop the arid and semi-arid ar- developed around flood response, and it eas, the Government established Multiple Use has been quite challenging to set similar Resource Centres (Centros de Recursos de Uso structures beyond flood areas. Because Múltiplo – CERUMs) in highly drought prone CBDRR is relevant for local DRR, it is impor- districts, where people can learn and receive tant to provide a framework for communi- government assistance for drought manage- ties outside flood risk areas. ment such as:

31 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique i) Water harvesting and management iv) They can move from policy to tangible ac- techniques; tions. CERUMs have helped to disseminate ii) Water conservation in agriculture and agro- new technologies in drought prone ar- forestry practices; eas, leading to the reduced food insecurity iii) Processing and harvesting techniques for ag- and market integration. In districts such as ricultural and non-agricultural products; Mabote, Chicualacuala and Massangena, iv) Drought resistant crops and varieties; where people rarely sell food, they started v) Research in natural resources and their multi- doing so after CERUMs were set up. This is ple and sustainable uses; because people now have access to new vi) Research on climate change; drought resistant crops and varieties that vii) Livelihood diversification; help to boost local production. viii) Pasture and husbandry management. Key lessons learned from CERUMs From 2007 to 2010, DARIDAS, through CERUMs established in four highly drought prone districts Interinstitutional and interregional coordination: in the south, provided water to more than 100,000 drought management requires concerted actions people, established 92 water harvesting systems, from INGC, meteorological services, countries trained 51 trainers of trainers (ToTs) in water con- or regions upstream and downstream, research servation in agriculture, established 40 hectares centres, the water sector, agriculture, among of demonstration plots in water conservation in others. CERUMs were set up to help this coordi- agriculture, established 99 improved granaries/ nation. However, many people saw CERUMs as storage demonstration units, and trained about INGC property and limited their interaction with 500 farmers in agro-processing (INGC, 2011: 34). this platform. For example, many people in Guijá Population dispersion and limited financial re- complained that they see different organizations sources to expand actions within districts and to working on drought areas but without a clear scale up to other districts are some of the key chal- and articulated agenda. Key actors interviewed in lenges interviewees mentioned with regard to Maputo also underlined the issue. provision of assistance to people. Climate change tends to exacerbate prevailing conditions with Settlement patterns in drought prone areas: in- rain falling less and less, and migration increas- terviews suggest that drought prone areas have ing. Migration of people trained by DARIDAs and a low population density and that settlement is other actors set back disaster risk reduction efforts scattered. This tends to increase the cost of ac- in these areas. tions and impede efficiency.

CERUMs were chosen as good practice for the fol- Limited replicability: interviews suggest that lowing reasons: each drought prone area has its own strengths and weaknesses. There cannot be a “one size fits i) The Government and local people own the all” approach. Any new action in a drought prone practice; area requires an assessment of the situation. An ii) Stakeholders participate and are involved in approach that has been tested and worked in a the process (sections 3.2, and 4.2.5); given drought prone area cannot be automati- iii) It has an institutional arrangement; and cally applied to another drought prone area.

32 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

6. Conclusions and recommendations

6.1 Conclusions As a result of the various actions, Mozambique is now one of the international reference countries as Mozambique is a disaster prone country. Disasters regards DRR and is likely to reach, by 2015, most of are, however, an emergent property of hazards the HFA expected outcomes. The country has put and vulnerability conditions. The country lies in place clear structures as a response to droughts, along the coast of the Indian Ocean and down- flood, cyclones and earthquakes, and is politically stream main subregional basins of rivers such as and financially committed. Mozambique has also the Zambezi and the Limpopo. The country’s geo- approved a national vision and strategy on adap- graphical location, combined with the limited re- tation to and mitigation of climate change (2013- silience of the majority of its population – due to 2025), which has a clear focus on DRR. prevalent poverty –create perfect conditions for disaster occurrence. Mozambique has a long his- The national and international community praise tory of man-induced or natural disasters, resulting the Government’s overall response to disaster to from colonization policies and practices, civil war, the extent that some authors such as Foley, 2007, floods, droughts, cyclones, and earthquakes. have proposed that Mozambique’s disaster management system become a model for developing Against this background, the country has been disaster response strategies in other countries. strengthening its capacity to deal with disasters. Several DRR and adaptation to climate change actions have been implemented. DRR is an integral 6.2 Recommendations part of the national planning and funding system. Every year, the Government provides funding for Despite its achievements, DRR mainstreaming DRR actions. Integration of DRR into district plan- and scaling up in Mozambique still need to con- ning and establishment of regional CENOEs have sider further commitments, with particular atten- decentralized DRR, and brought DRR closer to dis- tion to: aster prone areas. Addressing urban and social risks: the DRR INGC is the main actor in DRR in Mozambique. It pro- framework and actions in Mozambique focus on poses and coordinates policy frameworks and DRR natural hazards and on rural areas. Nonetheless, action. To this end, INGC has been expanding the- industrialization and economic and population matically and geographically. It has shifted its focus growth are leading to rapid (unsafe) urbanization. from reactive response to integrate disaster preven- This brings about new disaster risks, which require tion, disaster preparedness, disaster response, early efforts in land use planning, construction codes, recovery, reconstruction and resettlement. Other DRR development monitoring and establishment actors, such as MICOA, MPD and the United Nations of DRR codes in urban areas. There is an urgent system have all been very influential in strengthen- need to address DRR in urban areas in order to ing national capacity and in mainstreaming DRR prevent future disasters. The DRR Master Plan is into policies and programmes in Mozambique. limited in this aspect.

33 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Strengthening environmental protection in than 50 per cent of its water resources, which new investments: environmental protection come from upstream countries such as South is one of the core issues that most DRR policies Africa, Zambia and Zimbabwe. Hence, regional and strategies, and programmes and projects dis- coordination is crucial to DRR in Mozambique. cussed in this report address. As investments in the exploration of natural resources are expanding Enhancing knowledge of DRR, including on very rapidly, there is an urgent need to strengthen gender issues: one of the key lessons learned is the environmental protection mechanism to sus- that limited understanding of DRR across many tain the gains DRR has made. The environment is sectors hampers DRR mainstreaming. Hence, a key DRR element in eco-DRR. A robust environ- there is a need to disseminate and advocate for ment helps reduce disasters while degraded eco- DRR at government and societal levels. In addi- systems are half the recipe for disasters. The DRR tion, as disasters affect women, men and different Master Plan is limited in this area. social groups differently, there is a need to reflect upon gendered DRR and focus on the most vul- Provision of additional resources to imple- nerable groups. ment or monitor strategies and regulations: as discussed in this report, Mozambique has pro- Strengthening DRR documentation and induced considerable DRR frameworks. The issue is formation management and sharing: one of to have adequate funding and human resources the key lessons learned is poor information man- to implement the framework. As mentioned in agement and sharing (see lesson from CERUMs). good practice 4, partners and donors are more Several institutions in Mozambique are involved in sensitized to respond to disasters rather than to DRR and adaptation to climate change. However, prevent them. This reasoning needs to shift and mapping/documentation of who does what and ECA could play a key role in promoting it. where is extremely limited. A group of NGOs, led by Save the Children, tried to set up a platform Interinstitutional and interregional coordi- on DRR and climate change but it has not gained nation: nearly all the good practices and lessons enough momentum to become a learning plat- learned have brought up the issue of coordination. form. Meetings are ad hoc and there is no clear DRR has been defined as a cross-cutting issue. The working strategy. INGC and UNDP, through the management of rights and responsibilities across Grip project, conducted a pilot mapping exercise different institutions has been pointed out as an in 2011 to identify key actions and actors in DRR in outstanding challenge. Actors have different ob- Mozambique. Unfortunately, the exercised lacked jectives, planning and budgeting systems, which continuity and a clear definition of tasks. Finally, make it difficult to bring everybody on board. This one major limitation in terms of information man- was particularly highlighted with regard to the agement relates to the limited documentation of merging of DRR and CCA. A further challenge is local DRR practices. the coordination of DRR measures across national regions and countries. The relationship and co- Reform of CBDRR: it has been very influential in ordination between neighbouring countries, for reducing disaster losses from floods. However, the example, in water and resources management, is relevance of CBDRR beyond floodplains has been still a key challenge, and Mozambique has been very limited. There is also a need to review and ‘a victim’ of this. Recurrent floods occur partly, address the incentives for the people involved in because Mozambique has no control over more CBDRR, kit contents and management of CBDRR.

34 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

References

Arndt, C, S. Jones and F. Tarp (2006) Aid and INGC (2009) Synthesis report. INGC Climate Development: The Mozambican Case. Discussion Change Report: Study on the Impacts of Climate Papers 6-13, Department of Economics, University Change on Disaster Risk in Mozambique: van of Copenhagen. Logchem, B. and Brito, R. (eds), INGC.

AU and ISDR (2010) Programme of Action for the INGC (2006) Plano Director para Prevenção e implementation of the African Regional Strategy Mitigação das calamidades naturais. Maputo. for Disaster Risk Reduction. Agreed at the 2nd African Regional Platform on DRR. Nairobi, INGC, UEM and Fewsnet (2011) Atlas for Disaster Kenya. Preparedness and response in the Zambezi basin. Maputo. AU and NEPAD (2004) African Regional Strategy for Disaster Risk Reduction. Addis Ababa, Ethiopia. IPCC (2012) Glossary of terms. In: Managing the Risks of Extreme Events and Disasters to Advance Coelho, J. (2001) State, Community and Natural Climate Change Adaptation[Field, C.B., V. Barros, Calamities in Rural Mozambique. Centro dos T.F. Stocker, D. Qin, D.J. Dokken, K.L. Ebi, M.D. Estudos Africanos, Maputo. Mastrandrea, K.J. Mach, G.-K. Plattner, S.K. Allen, M. Tignor, and P.M. Midgley (eds.)]. A Special Report of DFID (2005) Disaster Risk Reduction: a develop- Working Groups I and II of the Intergovernmental ment concern. DFID publications. London, UK. Panel on Climate Change (IPCC). Cambridge University Press, Cambridge, UK, and New York, Fewsnet and INGC (2007) Mapeamento de riscos NY, USA, pp. 555-564. de desastresem Mocambique. Maputo. IPCC (2001) Third Assessment on Climate Change. Foley, C. (2007) Mozambique: A case study in the Cambridge University Press, Cambridge. role of the affected state in humanitarian action. HPG working paper, September 2007. Maplecroft (2010) Natural Disasters Economic Losses Index, 2010. New York, US IFRC-RCS (2005) World Disaster Report 2005: Focus on early warning, early action, Geneva, MPD (2010) Pobreza e Bem Estarem Moçambique. Switzerland. Terceira Avaliação Nacional, Maputo.

INGC (2013) Relatorio de emergência 2012-2013. MPF, IFPRI and UP (2004) Pobreza e Bem Estarem Maputo, Moçambique. Moçambique. Segunda Avaliação Nacional. Maputo. INGC (2012) Relatorio Nacional de Progresso da Implementação da Plataforma de Acção de Newitt, M. (1995) A History of Mozambique. Hurst Hyogo (HFA), Moçambique, 2009-2011. Maputo. and Company, London

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Provention (2007) Tools for Mainstreaming Disaster UNDP (2013a) Mainstreaming Disaster Risk Risk Reduction: Guidance Notes for Development Reduction Into Development in UNDP. Organizations. Geneva, Switzerland. Presentation by Angelika Planitz. The Brookings Institute. Renzio, P. and J. Hanlon (2007) Contested Sovereignty in Mozambique: the Dilemmas of UNDP and GoM (2008) Report on The Millennium Aid Dependency. Global Economic Governance Development Goals, Maputo. Programme, paper 2007/25. World Bank (2010) Mozambique: Economics of UN (2012) The United Nations Development Adaptation to Climate Change, Washington, Assistance Framework for Mozambique 2012- D.C. 2015. Washington, D.C. World Bank (2005). MEMORANDUM - The Role of UNDP (2013) Human Development Report 2013. Water in the Mozambique Economy Identifying The rise of the South: Human progress in a diverse Vulnerability and Constraints to Growth, world. Washington, D.C. Washington, D.C.

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Annexes

Annex 1: People interviewed

# NAME INSTITUTION LOCATION 1 Anselmina Liphola/Luís Buchir MICOA MAPUTO 2 Paiva Munguambe MINAG MAPUTO 3 Agostinho Vilanculos DNA MAPUTO 4 Atanásio Manhique INAM MAPUTO 5 Andrew Mattick FAO MAPUTO 6 Saide Anlaue SAVE THE CHILDREN MAPUTO 7 Rui Mirira SNV MAPUTO 8 Zinersio Sitoe KULIMA MAPUTO 9 Yolanda Mulhuni GDMR MAPUTO 10 Maria Helena Sibia CMA MAPUTO 11 Lina da Silva ABIODES MAPUTO 12 Sheilla Rafi LIVANINGO MAPUTO 13 Argentina Manhique ADMINISTRATION GUIJJA 14 Bartolomeu Cuinica SDPI GUIJJA 15 Antonio Assede SSMAS GUIJJA 16 Henrique Mandlaze CHEFE DO POSTO GUIJJA 17 Bernardo Muiambo CHEFE DO POSTO GUIJJA 18 Elias Chaguala SDAE GUIJJA 19 Angelina Augusto SDEJD GUIJJA 20 Adelino Matusse CHEFE DA LOCALIDADE GUIJJA 21 Simao Homo CHEFE DA LOCALIDADE GUIJJA 22 Salomao Ngovene PRIEST GUIJJA 23 Agostinho Chambule WORLD VISION GUIJJA

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Annex 2: Expanded list of DRR and adaptation to climate change actions

Project Donor Location Implementer Responding to climate change and UNDP/DANIDA/French National INGC disaster risk in Mozambique Development Agency (AFD) Coping with drought and climate change UNDP/GEF Guijá district MICOA Strengthening disaster risk reduction and UN National All UN agencies (delivering as emergency preparedness one) Environment mainstreaming and Spain/UN Limpopo basin All UN agencies (delivering as adaptation to climate change one) Emergency water supply and climate Japan Maputo and Gaza MICOA,INGC, DNA change Promotion and protection of livelihoods Netherlands/Canada/US National WFP,INGC, MINAG in the context of climate change Floodplain management in the Zambezi DFID/UK Caia, Mopeia, Morrumbala, Save the Children valley Tambara South-South REDD Norway National International Institute for Environment and Development with various institutions Electrification to reduce biomass EU Sofala, Manica, ME (Fundo Nacional de Energia) consumption Cabo-Delgado Electrification to reduce biomass EU Sofala, Manica, Climate Innovation Centre (CIC) consumption Cabo-Delgado Biomass energy conservation German/Norway/Austria Manica, Sofala, Maputo GIZ Building capacity for CDM projects Norway National MICOA, UEM Environment sector programme support DANIDA National MICOA, INGC (ESPS)-CC component ESPS-CC component EU National MICOA, INGC Climate change and development Finland Gaza International Union for Conservation of Nature Regional climate change programme for DFID/UK Regional Various southern Africa* CC Dare* DANIDA Regional INAM, International Union for Conservation of Nature, UEM, MICOA Cities and climate change* Norway International UNHABITAT and municipalities African Climate Change Resilience DFID Regional Save the Children (ACCRA)* Institutional support to African climate AfDB Regional African Center of Meteorological institutions* Application for Development Adaptation Learning Programme for DFID/DANIDA/Finland Regional CARE Africa (ALP)* Strengthening disaster risk management GIZ National ARGE, INGC Impact of climate change on disaster risk UNDP/GIZ/DANIDA National INGC and adaptation Forestry plantation and carbon World Bank/Finland Zambezia province PRODEZA,INDUFUR sequestration Capacity-building on clean development Finland/Spain/Sweden Regional UNDP, UNEP,MICOA,ME, MINAG mechanisms* Disaster Risk Reduction-I IFRC/Danish Refugee Inhambane, Zambezia Mozambican Red Cross Council (DRC)) Disaster Reduction and Development World Vision Gaza, Zambezia, Nampula World Vision, Tulano University

38 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Annex 3: Policies and strategies relevant for DRR

Document Main Aspects Links To DRR National Constitution The national Constitution is the mother law. Article The Constitution does not necessarily touch (re-approved in 2004) 117 of the Constitution stipulates that the State should on DRR. However, it tackles environment promote initiatives that aim at guaranteeing ecological management, which is indirectly linked to equilibrium, conservation and preservation of the DRR environment, in order to improve the living conditions of citizens Environmental law While the Constitution establishes the relevance of the This law recommends prohibiting or limiting (approved in 1997) environment, the environmental law sets out the legal actions that could accelerate disaster risks basis for environmental action. It determines what or their impacts. For instance, Article 9 should and should not be done in order to protect the prohibits polluting activities and actions national environment that accelerate erosion, desertification, deforestation and all kinds of environment degradation Agenda 2025 (approved Agenda 2025 outlines the future scenarios for Page 146 of the Agenda identifies DRR in 2003) Mozambique’s development. It outlines 4 development as a core issue to be considered in scenarios and calls on Governments to foster the “bee” the achievement of national economic (abelha) scenario, which is based on peace, social development stability, vibrant democracy, competitiveness and technological innovation. The scenarios are based on variables of human capital, social capital, economic development and governance PARP 2011‑2014 The PARP outlines the Government’s main actions over In order to achieve objective (i), the Plan (approved in 2011) 5 years, with the aim of reducing poverty. The PARP dedicatespriority3 to improving natural intends to reduce the national poverty level from the resources management. The Plan outlines current 54.7 per cent to 42 per cent in 2014. It identifies DRR and climate change measures(page 5 key objectives for action to promote (i) agriculture and 22) production and productivity of fisheries; (ii) employment opportunities; (iii) human and social development; (iv) good governance; and (v) good macroeconomic and financial management PES 2013 (proposed in PES (Plano Económico e Social) is the annual The PES 2013 has a specific DRR 2012) government planning document. It determines the programme that outlines action to be sectors and regions for government expenditure. It undertaken in the event of droughts (slow operationalizes the PQG and PARP on a yearly basis onset disasters); floods, cyclones and earthquakes (rapid onset), resettlement and capacity-building (pages 160-162) Forestry and fauna law This law sets out the mechanisms for the sustainable By providing guidelines for the sustainable (approved in 1999) use of the country’s forestry and fauna. It provides use of flora and fauna, this law indirectly guidelines for the proper use and management of touches on DRR forestry and fauna to improve its value and conservation NAPA (approved in 2007) NAPA (National Adaptation Plan) outlines government The NAPA’s areas of interventions lead to priorities of adaptation to climate change. The DRR Government has decided to focus on 4 major areas of intervention for adaptation, i.e., (i) early warning systems; (ii) protection of coastal areas (iii) the agricultural sector; and (iv) water resources management First National The First National Communication (FNC) was produced The FNC was the Government’s initial Communication (submitted under the United Nations Framework Convention step to implementing the Rio and Kyoto in 2003) on Climate change. It aims to bring to the attention Protocols that the country ratified of the Conference of Parties (COP)(i) the national inventory on greenhouse gases; (ii) the steps that the Government has taken to share what the country has so far implemented; and (iii) other information, such as vulnerability, adaptation measures, which are relevant under the Convention. The FNC was key in designing the NAPA

39 Assessment report on mainstreaming and implementing disaster risk reduction in Mozambique

Document Main Aspects Links To DRR Environmental Strategy for This Strategy calls for a holistic and common vision If all sectors were aware of the impacts of Sustainable Development of environment management. It claims that the their activities on the environment and are of Mozambique (approved environment is not a responsibility of a particular concerned with DRR issues, then it could in 2007) organization or individuals, hence the MICOA takes help to reduce disaster risks the lead, but it needs other actors to make sustainable development possible PEDSA (approved in 2011) The PEDSA, which the Ministry of Agriculture runs, The PEDSA very clearly addresses DRR and covers the 2011-2020 period. It outlines major actions climate change issues. It also outlines areas that the Government expects will boost agrarian for DRR and adaptation to and mitigation of production and hence secure food security. The climate change in the agrarian sector document also takes DRR and climate change issues into consideration. The section on land, soil, water and forestry (pages 24-26, 45 and 48) clearly refer to aspects of DRR and climate change Disaster Management The National Disaster Management Policy is under The Policy addresses ways and means of Policy (approved in 1999) review. It shifts focus from reactive risk management reducing disaster risks in the country to a more proactive attitude. This also Policy led to the creation of INGC, which has been using the motto: “Mais vale prevenirqueremediar” (prevention is better than cure)

Master Plan for Prevention The Master Plan was developed for a period of 10 The Master Plan addresses DRR but not in and Mitigation of years and focused on three major dimensions: (i) water the broader context of climate change. It Natural Disasters management to prevent floods and droughts;(ii) food hardly mentions it. This is a major reason (approved in 2006) security, especially in hazard prone areas; and (iii) for revising the Plan emergency management: how to save lives and restore dignity. After 5 years of implementation, the document is under revision Territorial planning law The law sets out guidelines and tools for planning The law provides a legal basis for DRR (approved in 2007) settlements and different land uses. It also refers to land based on good settlement patterns degradation and ecological protection Water Policy and Water The Policy and its Strategy stress sustainable provision These instruments embed both, DRR and Resources Management of quality and sufficient water to different users. It also climate change. Their frontline institution is Strategy (approved in refers to the need to manage water in order to prevent the National Directorate of Water (DNA) 2007) droughts and floods. It recommends the need to reduce water-related vulnerability by developing structural and non-structural infrastructure, such as early warning, dams, dikes, reservoirs and irrigation schemes Energy Strategy (approved The Strategy focuses on increasing the number The Strategy does not focus specifically in 2000) of people accessing energy sources, as well as on DRR and climate change. By promoting diversification of sources of energy. The Strategy also renewable energies, however, it touches on refers to clean and renewable sources of energy sources DRR and mitigation of climate change that aim at protecting the environment Policy and Strategy for This national Policy stresses the need to establish and An expanded and well-functioning Meteorology Development expand the meteorological network in Mozambique, meteorological network is important for (approved in 1996 and so that the country and its people can better prevent DRR 2006) disasters and take advantage of favourable conditions. In 2006, the government approved a national strategy to develop meteorological services. The Strategy cites DRR and climate change as major reasons for strengthening meteorological services National Strategy on This Strategy outlines DRR, and adaptation to and The ENAMMC has 3 key pillars (i) Climate Change (ENAMMC mitigation of climate change actions adaptation and management of climate 2013-2025) (approved in risks; (ii) mitigation and low carbon 2012) development; and (iii) cross-cutting issues. DRR is the core issue in pillar (i) Source: Own construction.

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