PREPARED BY: GREGOR JÄNIN, MIRSA TITKA, DUKATE DODAJ, FATJONA XHAFERI ASSOCIATION OF LOCAL AUTONOMY (ALAA) ADELINA FARRICI, ALISA LIMAJ

JUNE 2020 ACKNOWLEDGEMENTS The team would like to thank all representatives from municipalities and all other different institutions who contributed through a dynamic participative process and information sharing. Special thanks to the key partner “Bashki të Forta” a project of the Swiss Agency for Development and Cooperation (SDC), implemented by Helvetas.

DISCLAIMER This publication was produced with the financial support of the SDC/Helvetas/BtF. Its contents are the sole responsibility of the authors and don’t necessarily reflect the views of the donor.

ALBANIA ABBREVIATIONS

ASLSG Agency for Support for Local Self-Government ALAA Association of Local Autonomy AAM Association of Albanian Municipalities AP Action Plan AU Administrative Unit BtF Bashki të Forta (a SDC funded project implemented by Helvetas) CG Central Governance CP Civil Protection CPC Civil Protection Commission CS Community Structure CGs Community Groups CoM Council of Ministers CSO/NGO Civil Society Organizations DCM Decision of Council of Ministers DRR Disaster Risk Reduction GLP General Local Plan LG Local Governance LGU Local Government Unit LPES Local Plan for Emergency Situation MoI Ministry of Interior MC Municipal Council NCPA National Civil Protection Agency NCCSDLG National Crosscutting Strategy for Decentralization and Local Governance 2015-2020 TAR Territorial Administrative Reform WG Working Group

3 4 TABLE OF CONTENT

I.Introduction 7 II. Methodology 8 III. Main Findings of the Assessment 9 IV. Natural Disasters in Albania 13 V. Legal and Policy Framework 16 VI.The role of Institutions in Emergencies 20 VII. Synthesis Assessment by Sections 25 7.1. Risk Assessment and Services 25 7.2. Structures for Civil Protection at local level 39 7.3. Good governance for civil protection 40 7.4. Financing of civil protection function at local level 42 7.5. Human Resources for civil protection 46 VIII. Recommendations by different stakeholders 48 Annexes Annex 1: Tables of Data Annex 2: Officials and other actors met or contacted (focus group discussions and field visits) Annex 3: Questionnaire (online survey)

5 6 I. Introduction

The legal framework for “Local Self-Govern- The Association for Local Autonomy (ALAA) with ment” no. 139/2015 and the Law No. 45/2019 contribution of Association of Albanian Mu- “On Civil Protection” sets out requirements and nicipalities (AAM), and with the support of the obligations for central institutions and munic- Strong Municipalities (BtF), a project funded by ipalities regarding risk identification, planning the Swiss Agency for Development and Cooper- of mitigated measures and preventive invest- ation (SDC) and implemented by Helvetas, has ments, as well as drafting and updating the plan conducted a study survey on existing LGUs’ insti- of civil emergencies at the local and national lev- tutional capacity, their readiness to implement el. Also, municipalities are required by the law1 effectively their own function on civil protection to increase awareness of the local citizens and and the new law on civil protection (45/2019). provide public information in the situation of a The study survey has been implemented during natural disaster or other emergency situation. the time period, February – June 2020.

The experiences of the last decades in manag- The study synthesis report provides details re- ing civil emergency situations and the economic garding the level of preparation of municipal- and social impact due to losses and damages of ities for risks identification as required by the public and private properties, as a result of nat- law2, structures set up in LGUs for the function ural disasters mostly to earthquakes, fires and of civil protection, sources of funding, preven- floods, have identified shortcomings in the sys- tive investments (if any), and human resources tem of civil protection, lack of sufficient human, and other technical means, challenges ahead to professional and technical capacities to prevent municipalities and other issues, such as coordi- situations and minimize damage in case of di- nation among municipalities and prefect in case sasters. of emergency situation and needs identification.

1 Law 119/2014 “On the Right to Information” 2 Law no.45/2019 “On Civil Protection”

7 II. Methodology

The study was based on a mail questionnaire The questionnaire has combined quantitative (online) to all municipalities and one question- and qualitative data and it was divided into 6 naire for focus group discussion. The question- sections. As provided in annex 1, the question- naires were prepared by the project’s experts naire was divided in some judgement criteri- including an international expert in the emer- on (sections): Introduction Section, Section A gency field. The online questionnaire was sent asked for general data, Section B asked ques- to all municipalities in April 2020. In addition to tions concerning disaster risk identification, the online questionnaire, interviews at the in- local risk assessment and disaster risk reduc- dividual level and discussions in focus groups tion strategy at local level and civil emergency with Mayors, Deputy Mayors and specialists of plans at local level. The scope of this section civil protection structures in the municipality, was in learning if municipalities are familiar were organized and lead by the ALAA in the pe- with the risk identification and how to develop riod April-May 2020. In the five group meetings, a risk identification strategy at local level and representatives of the Association of Albanian planning of risk mitigation measures. Section Municipalities and coordinators of BtF project C was focused on the structure set up within and other project stakeholders were invited to the municipality, if the Civil Protection Com- participate to. In total are performed: mission is established and other issues on coordination of actions among municipalities ●● Three regional visits in March 2020 in and central institutions at local level. Section the Municipality of Cerrik, Municipality D on good governance inquired about the role of Berat and Municipality of Devoll3 and tasks of Municipal Council in emergency ●● Four focus group discussions with par- situations. Section E inquired about financial ticipation of 16 municipalities. sources that are available to the LG’s function ●● One focus group discussion with the on civil protection and preventive investment prefects. carried out by municipalities and other related ●● Ten (10) Person to person interviews issues. Section F inquired about previous ex- with municipality’s mayors and other periences faced by the municipality in emer- senior public officials. gency situations and their nature (category of natural disaster) and database on local dam- ●● Questionnaire on-line sent to 61 mu- ages. Section G focused on human resources nicipalities; the response rate has been and identification of main training needs. about 87%.

3 1st Regional meeting arranged in the Municipality of Cerrik with participation of the Municipality of Cerrik, Tirane, Kamez, Vore, Kavaje, Rrogozhine, Durres, Shijak, Kruje Elbasan, Belshi, Peqin and Lezhe. 2nd regional meeting in the municipality of Berat with participation of Municipalities of Ura Vajgurore, Kucove, Skrapar, Polican ,Gjirokater, Libohove, Tepelene, Memaliaj and Dropull; 3rd meeting took place in Municipality of Devoll with participation of the municipalities of Devoll, Korce, Maliq, Pustec, Kolonje, Pogradec, Gramsh, Perrenjas, Librazhd, Permet and Kelcyra.

8 III. Main findings of the Assessment

About 53% of municipalities have start- ment of the legal framework, clear assignment ed the process of data collection and of the competences, tasks and relations of identifying risks throughout their terri- central and local government institutions for tory, and 62% of municipalities have a level of the prevention of natural disasters and man- knowhow about the risk assessment method- aging of emergency situations are some crit- ology. Based on the new law “On Civil Protec- ical issues highlighted during the interviews tion” no. 45/2019, risk assessment should be with local government representatives. performed at the central level, at the county The most important factors that would enable level and at the municipal level, and updated the effective implementation of the Law on every three years’ time. The process of design- Civil Protection is carrying out preventive in- ing a risk assessment enables both public au- vestment (39%), financial resources allocated thorities and businesses, NGOs, and the gen- to civil Protection function (35%), drafting of eral public to reach a common understanding full legal framework for civil protection (adop- of the risks faced as a community and help tion of bylaws –35%), setting up the effective fostering an inclusive debate about the rela- and qualified structures (31%). tive priority of possible prevention and mitiga- tion measures4. Local emergency plan determine mea- sures and activities to prevent and cope with Municipalities are facing problems and chal- disasters based on risk identification and cat- lenges for identifying risks and drafting local egorization, territorial coverage (all AUs), allo- emergency plan. The main challenging factors cation of the resources and funds, and other assessed by the respondents have been the elements. Also, the local emergency plan takes lack of the methodology on risk assessment into account the priority treatment of children, and guidelines (28%), insufficient financial the elderly, people with disabilities, vulnerable resources for setting up an appropriate struc- communities and women and setting up and ture for civil protection (30%). About 66% of training of voluntary groups. These plans are the municipalities didn’t have knowledge relat- expected to be developed and approved at ed to EU directives for disaster risk manage- the central level, at the county level (qark level) ment and risk assessment. and at local level. About 38% of municipalities have an updat- Legal framework for civil protection ed local emergency plan (drafted in the years is expected to be fully enhanced with bylaws 2017-2018), 38% of municipalities are in the which are useful legal instruments facilitat- drafting process of the local emergency plan, ing the effective implementation of the law while 25% of municipalities do not have yet 45/2019 “On Civil Protection” by the municipal- such a local plan but they operate on moni- ities and the state institutions. Full enhance- toring of case by case situation. Municipalities

4 Law 45/2019, art.12 on Harmonization of urban development plans with reduction strategies of disaster risk

9 are looking forward to having guidelines by Failure to anticipate carrying out of invest- NCPA on the risk assessment, guidelines and ments to preventing natural disasters in some templates for the emergency plan. The munic- high risks areas have a high cost to LGUs in ipalities have set up groups and contact points case of the natural disaster. Municipalities for civil emergency in each administrative unit have raised the issue of better coordination with involvement of the village’s head. About between central government institutions and 75% of the municipalities have carried out municipalities related to the maintenance consultations with the fire protection struc- work and carrying out investment in water in- ture, municipal police and health emergency frastructure system. structure during the drafting process of local emergency plan. Fire protection and rescue function was transferred to LGUs in January 2016. Although The representatives of local government and the total number of employees and means the prefects interviewed have also addressed for this services has been increased in recent the issue of effective management of emer- years to around 1,100 professional firefight- gency situations in order to improve the speed ers, and 30 new fire trucks (equipment) have of operations and minimizing the cost of dam- been purchased, the service do not offer the ages, having a minimum reserve available to best standards. The municipalities that have the municipality with critical necessary mate- extended territories and large space with for- rials for the initial accommodation of affected ests but have relatively small population are local people, and facilitated procedures on fi- facing difficulties in dealing with fires in sum- nancial assistance from CG. mer season. Despite improvements in recent years in The LGUs’ representatives have been of the management and administration of the judgement that the criteria for human re- irrigation and drainage network since the source allocation (number of firefighters per 5 year 2016 , the municipalities still have identified 1500-2000 local residents) should be revised risks caused by rivers’ flooding and dams and considering other important criteria, such as other art works. The main factors causing the municipality’s territories and the space floods in the municipalities’ territory include covered with forests. Despite improvement in lack of the protective infrastructure of primary managing the fire protection and rescue ser- and secondary rivers in case of heavy rainfall, vice in the last 4 years, still shortcomings do informal constructions in river beds, swollen exist in terms of staff qualification, shortage in lakes, malfunction of reservoir discharges and equipment and other materials. drainage networks and in the most extreme case, the rupture of a reservoir dam, and informal Setting up minimum standards for the num- private buildings. To some municipalities, the ber of employees for fire protection and res- network of irrigation and drainage administered cue according to the number of population by municipalities and art works have not been but other important criteria (i.e. municipality considered a problematic issue but for some territory, forest surface) could affect the reduc- other municipalities, the preventive investments tion of risks related with fires. The review of and maintenance works in water infrastructure recruitment criteria for employees of the fire is considered critical for prevention of disasters protection services and procedures is needed 6 and river floods in their territory. according to the law .

5 Upon transferring of the function from central government to local government 6 Law 152/2015 “On Service for Fire Protection and Rescue”

10 Good governance: The Municipality and with social services for identification of the Municipal Council performs all the task for vulnerable communities and families, reas- civil protection function based on Law on Local sessment of their living conditions for entering Self-Government7, Law 45/2019 “On civil Pro- to social assistance scheme, transferring them tection”, law 152/2015 on “Fire protection and in safe places (shelters), and other instruments. rescue”, DCM no.965/2015 “For institutional Only 49% of the municipalities have set up the cooperation of management structures in cas- community structure. The main role and tasks of es of civil emergencies and crisis. the community structure is defined in the local emergency plan, and mostly in providing assis- The transparency on Municipal Council’s de- tance to the most affected and vulnerable comu- cisions, measures and actions for controlling nities, elder people, persons with disabilities and and remedying the emergency situations, women, and facilitate coordination of actions procurement of materials, first aid kits, and with voluntary groups and special forces. financial assistance / donations has been en- sured following the legal provisions of the law 119/2024 “On the Rights to information”, the Financiar resources Law 45/2019 “On civil Protection”. The infor- About 62% of the municipalities have alocat- mation is released under the responsibility of ed fund for civil protection as required by the the ‘Coordinator for the right to information’ law at the level of 4% from the annual budget who works closely with the Commission for (N=53), while other municipalities have allo- Civil Protection at local level. cated only 1.7% of their annual budget to this Municipalities use other instruments on re- function and are waiting to have 2.3% of the cording, archiving and ensuring the transpar- required fund transferred from central gov- ency in case of an emergency situation by using ernment as a conditional transfer. Only 68% of (i) ad-hoc commissions set up in the municipal the municipalities have carried out preventive council, publication of data (transparency pro- investment; the investment fund of the mu- gramme), (ii) inventory on damages caused in nicipalities has been used on preventive and a disastar situation, list of the affected fami- rehabilitation investments against the flood of lies, private and public properties, financial the rivers (28% of the fund), and maintenance compesation, declarations of distribution of of the irrigation and drainage system and art materials and food package: (iii) contracts with works (38% of the fund). third parties for procuring materials of the first needs, photographs. Regular information (re- porting) to the Prefect office is provided too. Human resource allocation About 75% of the municipalities have About 89% of the municipalities have set up set up a database on the impact cost of the structure for civil protection comprised by damages due to natural disasters. municipal police, fire and rescue service and civil protection unit. The Civil Protection Com- mission at local level is set up by 83% of the The coverage of vulnerable groups and municipalities. The human resource allocation the most affected families by the municipali- for civil protection at local level is variable. ty services is envisaged through the setting Municipalities do not have a common up of patronage groups and cooperation with model for civil protection function/service. the voluntary field service groups, cooperation The Civil Protection structure in municipal-

7 Law 139/2015 on Local Self-Government

11 ity do not exist as a separate unit under the ology for quick intervention in case of natural Mayor but in many municipalities is part of the disaster, training for management and rescue directorate that includes other functions such intervention in an earthquakes situation and as the management of agriculture function. on the use of technical equipment. Table 4 in annex 1 provides detailed data on Adoption of a unified model of the structure human resources allocated to the civil protec- for civil protection for the municipalities, the tion function at local level. review of the job descriptions of the CP struc- On average, 3.7 staff were trained from the ture and development of the standard proce- civil protection structure in 2019. Further ca- dures / and command chain are critical issues pacity building for CP employees at local that should be prioritized by CG institutions in level is required on different area, such as in cooperation with the Ministry of Defense, Min- the legal framework, the European method- istry of Interior and NCPA.

12 I V. Natural disasters in Albania

Albania is a disaster-prone country. The four at 03:54, registered a devastating earthquake, main hazards affecting the country are earth- with a magnitude of 6.3 on the Richter scale at quakes, floods, forest fires and landslides. a depth of 38 km, hit the country. The epicenter The International Disaster Database (EM-DAT) was 22 km from Durres and 30 km from Tirana, shows that, during 1979-2019 period, floods where most of the major historically recorded accounted for the major share of disaster earthquakes have occurred, in the convergent events (38%), followed by earthquakes (15%). boundary between the Eurasian Plate and the According to the annual World Risk Report, Adriatic Plate. The 26th November earthquake which calculates the Disaster Risk Index for has been described by national authorities as 180 countries based on exposure, suscepti- the strongest to hit Albania in 30 years. bility, vulnerability and coping and adaptive As a result of the disaster, a total of 202,291 capacities, Albania ranks first in Europe, and people were affected in the country, 47,263 di- 61st the world. Albania lies in a seismically-ac- rectly, and 155,029 indirectly. The earthquake tive zone, and tremors are common. Serious caused 51 fatalities and at least 913 people earthquakes are less frequent but do occur. injured.. Moreover, up to 17,000 people were Increasing and changing risk in Albania is due displaced due to the loss of their homes. Over- to a combination of socio-economic and envi- all, first responders rescued 48 people from ronmental processes, as well as due to the in- collapsed houses. The earthquake affected stitutional and political context. Increased vul- 11 municipalities: Shijak, Durres, Kruja in the nerability follows increased physical exposure Durres region, Tirana, Kamza, Kavaja, Vora and of people and assets in terms for example, of Rrogozhina in the Tirana region and Kurbin, mass migration from rural to urban areas re- Mirdita and Lezha in the Lezha region. sulting in high population density in unsafe zones (e.g. Durres city located in a high seismic The assessment reveals that the total effect of risk area). Higher levels of exposure are a result the disaster in the 11 municipalities amounts of a myriad of factors including inadequate ter- to 985.1 million EUR (121.21 billion ALL), of ritorial and land use planning, a lack of integra- which 843.9 million EUR (103.84 billion ALL) tion of disaster risk criteria into development represents the value of destroyed physical as- planning generally and at all levels, and a lack of sets and 141.2 million EUR (17.37 billion ALL) compliance with safety norms and standards. refer to losses. Most of the damages are re- corded in the Housing sector (78.5%), followed On 26th November 2019 the Albanian Institute by the Productive sector (8.4%) and the Educa- of Geoscience, Water Energy and Environment tion (7.5%) sector8.

8 Albania Post-Disasters Needs Assessment, Tirana, February 2020 The International Disaster Database (EM-DAT) EM-DAT: The Emergency Events Database – Universié Catholique de Louvain (UCL) - CRED, D. Guha-Sapir - www.emdat.be, Brussels, Belgium World Risk Report 2019, available at: https://reliefweb.int/sites/reliefweb.int/files/resources/WorldRiskReport2019_Online_english.pdf

13 Damages and losses in different sectors: Civil Protection and Disaster Risk Reduction: 57 buildings from the Ministry of Defence Education: Damages were reported to 321 educa- were damaged, one firefighting station had to tional institutions in the 11 affected municipalities, be demolished, two buildings of the Albanian Health: 36 health facilities (8% of total in 11 Geological Survey were partially damaged, Municipalities) were partially or fully dam- eight monitoring stations from the Institute of aged, where 22 are primary health care facil- Geosciences, Energy, Water and Environment ities. There were damages to three regional (IGEWE) were slightly damaged, six build- hospitals, nine university hospitals (units), two ings from the General Directorate of State municipal hospitals, ten health centers, and 12 Reserves were slightly damaged as well, and health posts. seven additional buildings were damaged beyond repair. Housing: A total of 11,490 housing units were categorized as fully destroyed or demolished Also in 2019, Albania faced other natural disas- and need to be rebuilt. An additional 83,745 ters like snowfall, and forest fires. In January of housing units were either partially or lightly 2019, unusual climatic conditions, with heavy damaged, needing repair and refitting. rainfall and snowfall in the whole country, iso- lating and presenting a problematic situation Productive: The total effects estimated for the for residents of some of the administrative sector are 150.48 million EUR. The Tourism units. The situation was more problematic in sub-sector sustained the most damage and the qark of Dibër, Kukës, Shkodër, Korçë, Gji- losses with 90.24 million EUR (11.1 billion ALL), rokastër, Lezhë, Mirditë and less in the regions the majority of which is due to losses from an of Vlora, Tirana and Elbasan. expected decline in foreign visitors between 2020 and 2022. During the months of July, August and Sep- tember 2019, due to very high temperatures The Business & Employment sub-sector is the and human negligence, there had been fires second most affected with 53 million EUR (6.5 involving forests, pastures, orchards, live- billion ALL) in damage and losses, most of it on stock, etc. The most affected regions by the account of the damage sustained by 714 busi- fires were Shkodra, Elbasan, Vlora, Dibra, nesses in manufacturing and trade. Fieri, Gjirokastra, Tirana. In those areas, in In the Cultural Heritage sub-sector, two na- addition to fires in forests and pastures, tional museums and three local museums there were also fires in the national parks 9 were classified as insecure and are still closed (protected areas). In total, 356 fire cases to the public, while an additional 23 monu- registered, mainly in pastures, shrubs, forests, ments and sites were classified as high risk olive groves, orchards, vineyards, apartments, and another 30 monuments as medium risk. vehicles, etc. The pandemic situation COVID-19 has caused Damages in the Agriculture sub-sector were 2580 positive cases in Albania and 6510 deaths. minor and relate to agricultural inputs and The most affected areas were Tirana, Durres, equipment. There was also damage to em- Shkodra, Kruhe, Fier, Vlora, Lezhe, Korca, El- bankments and water drainage stations in basan, Gjirokastra, Berat and Diber. The Gov- Durres and Lezha, as well as to the Institute ernment of Albania reacted to the state of for Food Safety and Veterinary building. pandemic that affected many countries by

9 Source: National Civil Protection Agency Daily Report 10 Source: Ministry of Health and Social Protection, 1 July 2020

14 taking a series of austerity measures that put the country in total quarantine for about 2 months. During the period March 15 - April 30, 2020, the indicator of severity for Albania was 84.26 out of 100. The COVID-19 situation will cause negative socio-economic consequenc- es leading to a decline of GDP (estimated to around -5%), and associated with rising unem- ployment and job losses11.

11 Source Banka Boterore, 2020

15 V. Legal, Policy and Institutional Framework

Legal framework Country Disaster Risk Reduction 12 The events in the last years, showed that there System (DRR) is an urgent need to strengthen disaster pre- paredness and risk management capabilities, a. Central civil protection institutions adopt adequate response systems and proce- and structures dures, and improve institutional capacity for The Assembly adopts the National Civil Pro- DRR management coordination and interac- tection Annual (NCPA) budget as part of the tion between public levels of government as budget of the ministry responsible for civil pro- well as with private and civil society actors. tection, exercising parliamentary controls over Albania has made progress in on disaster matters related to civil protection, ratifying in- risk reduction issues and civil protection. On ternational agreements on civil protection. 18.07.2019, the Albanian Parliament adopted The Council of Ministers (CoMs) approve and the Law 45/2019 “On civil protection”, which is ensure the implementation of policies for di- approximated with several directives and deci- saster risk reduction and civil protection in the sions of the European Union. Law No 45/2019 Republic of Albania. The Council of Ministers of 18.07.2019 “On civil protection”, foresees adopts the National Strategy on Disaster Risk Re- that Albania will adopt the National Strategy duction, National Civil Emergency Plan and cen- for Disaster Risk Reduction (DRR) and local tral level risk assessment document. Also, CoMs strategies for Disaster Risk Reduction; Risk as- informs the Assembly of the Republic of Albania sessment shall be carried out at the central, on the situation at hand, the present risks and regional and local level, and civil emergency the measures taken to manage the situation. plans shall be developed at the central, region- al and local level. The Minister responsible for the civil pro- tection (Ministry of Defence) defines the stra- According to the law 45/2019, the General Di- tegic directions and objectives of the National rectorate of Civil Emergencies has been trans- Civil Protection Agency; develops and oversees formed into the National Civil Protection Agen- the implementation of disaster risk reduction cy. The new Law on Civil Protection will create and civil protection policies; informs the Coun- the conditions for the future membership at cil of Ministers on disaster risk reduction and the Union Civil Protection Mechanism. civil protection and oversees the National Civil Protection Agency budget management.

12 DRR system based on the new Law” On civil protection”

16 The National Civil Protection Agency – tion at the county (qark) level, based on De- NCPA (constituent body of the Ministry of cision of Council of Ministers (DCM) No. 965, Defence) and responsible for disaster risk dated 2.12.2015 “On the inter-institutional co- reduction and civil protection, throughout operation of the management structures in the territory of the Republic of Albania. The cases of civil emergencies and crises”. tasks of the National Civil Protection Agency Municipalities (NCPA) include: (i) implementing the Council of Ministers policy in the field of disaster risk Municipalities are responsible for disaster risk reduction and civil protection, (ii) implement- reduction and civil protection in their territory. ing the strategic directions and objectives set According to DCM no. 965, dated 2.12.2015, by the ministry responsible for civil protec- the municipalities will have to set up struc- tion, (iii) coordinating efforts for the National tures for civil protection at the level of direc- Strategy for Disaster Risk Reduction, the Na- torate for large municipalities, and at the level tional Civil Emergency Plan, and Disaster Risk of sector for other municipalities. Assessment development at the central level, Municipalities are responsible for ensuring (iv) cooperating with international bodies and civil protection, at the local level, and the ad- counterpart international organizations in the ministration of the relevant structures, in the framework of civil protection and disaster risk manner prescribed by law; Guaranteeing the reduction, (v) planning funds for disaster pre- service of firefighters, at the local level, and vention and rehabilitation measures in dam- the administration of the relevant structures, aged infrastructure, as well as other activities as required by the law13; Ensuring the smooth in the field of civil protection, (vi) promoting running of community relations, preventing forms, methodologies, rational means for col- and mediating conflict resolution in the com- lecting, recording, processing and disseminat- munity; Prevention of administrative offenses, ing disaster information, (vii) developing the strengthening, inspection and monitoring of training program for central and local civil pro- the implementation of regulations and acts of tection structures, (viii) conducting inspections local self-government units within their local on the implementation of the provisions of the jurisdiction and in accordance with legal pro- law on civil protection (45/2019) by state insti- visions. tutions and structures, local government and private entities. Other tasks that need to be directed by the Municipal Council (MC) related to civil protec- Line Ministries and central institutions tion function include among others carrying shall be responsible for reducing the risk of out the risk assessment in their territory, de- disasters and for civil protection, within the veloping and updating a disaster risk reduc- scope of state responsibility and of their com- tion strategy, drafting, approving and updat- petences. ing the local civil emergency plan, organizing training activities in the domain of civil pro- b. Local civil protection institutions tection, ensuring the operation of the moni- and structures toring, early warning, alert and alarm system in their territory, developing a disaster losses The Prefect of the County database for the territory of the municipality, The prefect of the county shall have a primary investing in disaster prevention, protection role in disaster risk reduction and civil protec- and rehabilitation, carrying out assessment

13 Law 152/2015 “On the Service for the Protection from fire and rescue”

17 of damages caused by disasters, cooperat- livestock feed, activating public and private ing with neighbouring municipalities for the entities capacities within their administrative execution of tasks related to disaster risk re- territory, to cope with and mitigate disasters, duction and civil protection, maintaining fire and maintaining the infrastructure for irriga- protection systems, uninterrupted access tion, drainage, flood protection and reservoir to rural roads, shelters, as well as collecting dams under their administration. and managing food stocks for people, and

Flow Chart 1

Legislative and Regulatory Framework for Civil Protection

The Constitution of the Republic of Albania is the legal starting point for the organization of civil emergencies. Articles 170 and 174 of the Constitution address the natural disaster (civil emer- gency) issues. Other important laws and DCM:

18 o Law No 45/2019 of 18.07.2019 “On civil pro- development and the aspirations for Europe- tection”, an Integration of the country. In this document are defined the challenges and strategic objec- Law No 152/2015 of 21.12.2015 “On the o tives related to disaster risk reduction and civil Service for Fire Protection and Rescue”, protection management. o Decision of Council of Ministers No 835 of 3.12.2004 “On the approval of the National Strategic objectives related to disaster risk re- Plan for Civil Emergencies”, duction and civil protection management are: o Decision of Council of Ministers no. 747, (I) Strengthening disaster risk reduction and dated 20.11.2019 “For the organization and civil protection management through: up- functioning of the National Civil Protection dating and strengthening legislation and Agency”, related rules, in line with EU standards. Decision of Council of Ministers No 965 of o (II) Strengthening the capacity of emergency 02.12.2015 “On interagency cooperation of preparedness agencies and responding to management structures, in civil emergency disasters throughout Albania; cases and crises”, (III) Gathering and organizing information on o Decisions of Council of Ministers and oth- er sub-legal acts, which do not contradict risks and strengthening the early warning the newly approved Law No 45/2019 of system; a disaster insurance market re- 18.07.2019 “On civil protection”, until the view. approval of the sub-legal acts of the Law No In accordance with the strategic objectives set 45/2019. out in the NSDI, Albania has made great efforts Albania is member of the Disaster Prepared- to reduce the risk of disasters and strengthen ness and Prevention Initiative of the South the civil protection system. Efforts include the Easter Europe, and has signed the Memoran- development of capacity building, legal re- dum of Understanding between 10 regional form, the new law on civil protection approx- countries. (2013). Also, the Republic of Albania imating several directives and decisions of the adheres in the Agreement among the Govern- European, strengthening the planning process ments of the Participating States of the Black for responding to disasters especially at the Sea Economic Cooperation (BSEC) on collabo- prefectural level, increasing public awareness ration in Emergency Assistance and Emergency of disasters, improving disaster management, Response to natural and manmade Disasters14 organizing trainings and exercises infrastruc- , and the agreement on the civil emergencies ture investments etc. Despite the progress, field signed by government of Albania, Austria, many challenges are ahead related with im- Greece, Croatia, Montenegro and with some plementation of the new on civil protection other countries. (45/2019) at the central and local level.

Policy Objectives at Central and Local Level

The National Strategy for Development and Integration (NSDI) 2015-2020 is a strategic document providing the vision, priorities, ob- jectives and means for social and economic

14 Law no. 10372, dated 10.2.2011

19 VI. The role of the Institutions in Emergency Situation

In the case of a natural or other disaster, the ca- turing is also visible by the establishment of two pacity of the affected local self-government unit independent laws for Fire Safety (152/2015) and is initially used. If the capacity of the affected local for Civil protection (45/2019) and the creation self-government unit is insufficient to cope with of a National Agency for Civil Protection under the situation created by the disaster, additional the Ministry of Defense – in parallel, it is set up capacities are required from the neighboring lo- the General Directorate for Fire and Rescue Ser- cal self-government units. If the capacity of the vice, under the Ministry of Interior. This leaving local self-government unit affected by the disas- now the Civil Protection, and the Public Safety ter and those of the neighbors are insufficient to Agencies which are Police, Medical and Fire De- cope with the situation created by the disaster, partments on a horizontal same status level of the engagement of other state capacities is re- authority. This structure has also to be imple- quired, including the State Police and the Armed mented within the LGUs. It is now also important Forces, according to the provisions of this law15 to clear define the roles and responsibilities of and other legal and sub-legal acts in force. The these organizations in the emergency response. prefect of the County (Qark) addresses the Min- Therefore a short basics have to be presented to ister of Defense for the engagement of the units the Municipalities: of the Armed Forces and seeks support for cop- ing with civilian tasks and in particular in dealing What is Public Safety:

with situations of civil emergencies and crises16 • First intervention Forces . He/ she set up the task force with the participa- • 24/7 operational on duty (standby at Sta- tion of the territorial branches, LGUs and other tion or on street) institutions operating at the county level. • Primary Emergency Medical, Fire Fighter In parallel to the strengthening of the Local and Police Forces Government and the administration reform, • Directly alarmed and dispatched after re- the structure for the protection of the citizens ceiving an emergency call by the citizen from natural and man-made risks has also been • Uses equipment and resources out of ev- placed on a new hierarchy. According to the law ery day duty and must be prepared for 45/2019 on “Civil Protection”, municipal police mass casualty. and fire protection and rescue service are op- erational forces as part of the Civil Protection • Responsible to setup and operate on-site structure set up in the municipality. This restruc- command and intervention measures

15 Law No.45/2019 “On Civil Protection” 16 Law 107/2016 “On the Prefect of the County”, article 15

20 • Responsible to cope with the situation till larger event, while small municipalities will reach a Civil Emergency will be declared their capacity limit very early. This shows that • Usually it operates on their own for the the definition of what is a crisis, depends upon first one to twelve hours from the location where it happens. If in the initial phase, it’s shown that the public And what’s the role of Civil Protection: safety has reached its limit, the info to the Civil protection must be set. In cooperation between • Assess and Mitigate risks and danger Local incident commander, the Mayor and the from natural and man-made disasters command and control center must then define • Assures preparedness scenarios includ- that for the Civil Protection there is need for ing recovery or long-term support. further resources. This activation will be first a • Get active on-site only after request and mutual aid support to enhance the public safety order by Government Institutions, if it is forces and if a crisis situation is declared as part visible that the incident is exceeding the of the civil protection mechanism and under the capacity of the Public Safety Organiza- command of the civil protection authority. tions. On the topic of authority at the incident respec- • Not 24/7 on duty for intervention, but tive leadership for the situation, the definition of must be called in to station from regular exclusive and shared functions of the LGUs gives work a clear result. Responsible is the mayor which • Follow up on initially placed actions by the usually delegates this function. Since the only in- Public Safety Organizations, therefore tervention service, as exclusive service, is the Fire • CP need the Public Safety Agencies for and Rescue Service, the Mayor can only delegate on-site intervention and only enlarge it to the Chief of Fire and Rescue. The local Fire capacity by national/international forc- Chief respective the Fire commander in charge es (e.g. military, private companies, EU will always be and stay in the position of the Mechanism) overall Incident commander, in a safety event till he hands over the function from his own. Police, • Come in after one to twelve hours when Medical and others are subordinate forces. Also, operation is already on going if other services form other LGUs arrive at the incident, who can be higher rank officers, they This split brings us also to the phases and level have to report to the local commander. of intervention. When an incident is happening In the case the local command on site comes to the first assessment is done by the call-take at the decision that the situation can’t be handled the emergency call service. So based on type, by public safety forces, the decision to request size and the location of the incident a set of mea- a “civil emergency situation” will be proposed sures must be executed at the command center. initially to the mayor which will then form this The information received by citizens might be request officially to the prefect. The Prefect acts supported by data from early warning systems as the local representative of the central gov- and sensors. Now as this classification is done ernment and will then in cooperation with the a list of certain amounts of resources (vehicles, National Agency for Civil protection “declare the personnel, equipment) needed to cope with this state of natural disaster”. In very large cases this situation is defined. Based on the location it will declaration can also be done by the central gov- show if there are sufficient local forces avail- ernment and national security council if it is clear able or responders from other areas must be visible that this will exceed the public safety ca- alarmed, example Tirana Municipality will most pacity (i.e. recent earthquake and large floods). likely have the right number of vehicles even in a

21 Flow Chart 2

Note: The red dotted lines show a connection intervention forces, i.e. number of fire trucks on the legislative level, but no executive or- and ambulances, trained personnel and spe- der level exists, i.e. the General Directorate of cial equipment. The minimal needs assessment Fire Protection and Rescue is responsible to will show on most cases that the permanent develop and enhance the legal base and pro- employed personnel will not be sufficient to vide support to local Fire Stations, but it has reduce the danger. The LGUs should prepare a no executive order in the case of intervention, corps of volunteers to be trained and ready for since local fire Chief have dependence by the intervention if needed. This must not be only Mayor; the Prefect has no role at all for Fire “pure volunteers” off the street, but in the first Service or Medical service provision; his actual line personnel of the LGUs in administrative or function is to wait for the request by the Mayor other system roles (street cleaning, garbage, to declare a crisis situation and activate other maintenance, and other issues) since they are Civil Protection forces (at national level) mobi- under the clear authority of the mayor and can lized by the Civil Protection Commission. be trained as part of their job. All above men- tioned measures will help in future events to It is in the responsibility of the LGUs to be able fasten up the response, leading to a clearer to protect its citizens and goods up to a defined organizational structure and to a reduction of level on their own. Therefore, risk assessment loss of life and goods. In the next phases these plans are needed, which will then show if some measures and horizonal and vertical responses of the risks can be reduced or avoided and must be implemented in the LGUs. associated with a clear list of needed minimal

22 General description of the Fire Rescue the City as exclusive function, and the mayor is System in EU countries delegating the authority to the local Fire Chief – similar as in Albania. The fire service is inter- A short description is provided about two vening on call by the citizens and assessing the models of the structures in the EU: situation and requesting if needed the decla- ration of a civil emergency at the prefecture Germany: via the Mayor’s office. Before that step neigh- boring fire services are trying to cope with the The Federal Government of Germany has a situations based on mutual aid agreements. well-defined service of civil protection and Fire All fire Services are organized under a unified Safety. The fire service is exclusive function of state fire association giving clear structures the Cities and being financed and maintained and execution orders for all areas of duty. In by them. There is a mix between career based parallel there is same as in Germany a Feder- and volunteers, which even has a mix of both al Civil protection Association (Zivilschutzver- within one department. The fire service is re- band), with the big difference that they do not sponding to a request of the citizens and man- have their own intervention units. Main role of ages the first line of action till a crisis situation the Civil protection association is to support is declared by the authority. In parallel to the the LGUs in the Prevention and Mitigation of fire service there is a federal agency funded the Risks, the Public Warning and Education of by the central government. This Technisches Citizens for the preparedness. Hilfswerk (THW, Federal Agency for Technical Relief) has its own equipment from Fire Trucks, In Austria the relieve forces for Civil protection tents, mobile kitchen, to heavy machinery and come from within the fire service. To manage emergency communication. Even the equip- that tasks the State Fire Associations having ment is provided by the central government, the duty to invest the funds from the disaster the staff is to a majority local volunteers and response budget to those fire stations which the equipment is also distributed within the are either likely to be affected or which have regions. The THW is an civil emergency inter- a strong capacity to response in help to oth- vention unit which is working according to the ers. This equipment must be maintained and legislation defined by the Bundesamt für Bev- staff provided by the LGU where it is based – ölkerungsschutz und Katastrophenhilfe (BBK) but they also allowed to use it for regular fire (Federal Office for Civil Protection and Disaster events. In the case of an crisis a mix of the Assistance). THW is only going into interven- equipment out of the civil protection budget tion after an order by an institution, which can together with predefined units of the cities be the Mayor requesting at the prefect. form Catastrophe Units per prefecture are re- sponding supporting usually other prefectures This structure creates next to the costs of having – since those structures are only needed once a separate machinery park only for civil emer- it is shown that the local forces will reach their gency cases the problem that a lot of the volun- end of capacity. Important is that sending out teers are at THW and Fire service, weakening the those Catastrophe Unit to different prefec- structures in intervention. A structure like this tures must not reduce or harm the interven- can only maintained in a strong economy having tion capacity in the own area. Therefore the a duplication on the intervention forces. setup of those units is predefined between the Civil protection, the state and the fire services. Austria: There are still independent Disaster and Fire Also Austria is a federal State, with strong local Laws but clearly defining the structure. In case governmental units. Fire Service is again under the fire Services together with the Catastrophe

23 Units are still reaching the end of their capac- is also the economic cheaper way. Since there ity, clear structures on the sending of armed is already a very strong support from Austria forces as part of the disaster teams and the in that area, if should be further discussed use of private equipment is defined. The use of with the Municipalities how the requested ca- private equipment as part of the intervention pacity building process can be developed and is clearly regulated in all stages, even enabling the local capacity enhanced with the coordi- the local fire service to order the activation. nation role of the NACP, donor funded project and the Associations of LGUs. The Austrian Model is very similar with the Al- banian legislation and target to be met. And it

24 VII. Natural disasters in Albania 7.1 Risk assessment and Service

7.1.1 Risk assessment The process of producing a risk assessment enables both public authorities and business- By definition, civil protection is the set of mea- es, NGOs, external expertise and the general sures taken to anticipate, prevent, facilitate, public to reach a common understanding of prepare, respond and recover from natural the risks faced as a community and help fos- and other disasters, in order to protect peo- tering an inclusive debate about the relative ple’s lives, living things, property, cultural her- priority of possible prevention and mitigation itage and environment, while ‘risk’ is the com- measures. bination of the possibility of an event and its negative consequences17. Municipalities are Municipalities should inform public and local entitled to develop risk assessment document communities and increase awareness to de- which is adopted by Municipal Council18. Also, velop and fully integrate a risk prevention cul- a strategy for disaster risk reduction at local ture into local sectoral policies; all interested level is necessary to be developed by munic- stakeholders should participate in consulta- ipality; this strategic document which should tion process. be harmonized with National Strategy for Di- Risk maps should generate a level of trans- saster Risk Reduction. parency which can help engage all interested Risk assessment identifies the type, character- actors in society, and contribute to ensuring istic and risk of disasters, the level of exposure that policy decisions are prioritized in ways to and vulnerability, the factors that cause or in- address the most severe risks with the most crease the level of risk, and the possible conse- appropriate prevention measures. European quences for people’s lives, living things, prop- Commission (EC)20 has adopted “The risk as- erty, cultural heritage and the environment. sessment and mapping guidelines for disaster Risk assessment is performed at the central management”. Urban development planning level, at the county level (qark) and at the local and development plans at the central and lo- level, not less than once every three years. Risk cal levels should be done in accordance with assessment document should be in compli- disaster risk assessment documents and di- ance with EC guidelines for risk assessment19. saster risk reduction strategies21.

17 Law 45/2019 “On Civil Protection”, art.3 18 Law 45/2019, art.9 19 COM(2009)82 v. final of 23.2.2009 20 EC, SEC (2010) 1626 final 21 Law 45/2019, art.12 on Harmonization of urban development plans with reduction strategies of disaster risk

25 Graph 1 Risk identification process initiated by the municipalities

Source: Survey on civil protection at local level, 2020

About 53% of municipalities have started the process of collecting data and iden- tifying risks throughout their territory. The most common risk/hazards identified by the municipalities have been related to: ●● Floods, river floods, risk of floods getting out of bed of primary rivers ●● Snow blockage of rural and mountain roads, ●● Landslides ●● Reservoir dams ●● Risk of forest fires and pastures; Risk of fire in dwellings from chimneys ●● Risk of viral epidemic, and pandemic situation ●● Earthquake ●● Technological investment (industrial) ●● Bacteriological hazards ●● Marine pollution ●● Terrorist acts Graph 2 Know-how of risk assessment methodology

Source: Survey on civil protection at local level, 2020

About 62% of municipalities have a level of know-how about the risk assessment. The law No. 45/2019 ‘on Civil Protection’ is expected to be associated with some bylaws, one of which will be for risk identification methodology. 28% of the mu- nicipalities have stated that they face difficulties in risk identification and risk as- sessment and guidelines and expertise to municipality is needed to them. Some other municipality confirmed that risk assessment has been carried out during the review of the local emergency plan carried out at the beginning of the year.

26 Difficulties faced by municipalities for drafting the risk assessment Graph 3: document

Source: Survey on civil protection at local level, 2020

About 83% of the municipalities have replied that they do not see overlapping of civil protection competences between central governance institutions and local governance, but further discussions with focus groups with representatives of local government and the prefects raised the issues of the need for having clear- er legal provisions of the prefect’s role and municipality in managing a situation of natural disaster. About 28% of the municipalities have admitted that there is need for clearer legal competences on the civil protection function.

Overlapping of competences between CG and LG on civil protection Graph 4

Source: Survey on civil protection at local level, 2020

On the issue of legal competences for civil protection between CG and LG, municipalities have addressed: (i) financial compensation issue between the Prefect institutions and the municipality in case of disaster and emergency situation is not suffi- ciently clear, (ii) the reporting and information flow and channel on the case of emergency situation between the municipality, and other actors and institutions should be clearly defined, (iii) availability of financial sources for carrying out preventive investments at local level, (iv) the procedures for getting approval of the municipality’s documents for civil protection by the National Civil Protection Agency , (iv) no clear division of responsibilities and tasks for independent ex- ercising of the function for fire protection and rescue (MZSH), interventions at operational level, municipal police. Although only 17% of the municipalities that have fulfilled the questionnaire are

27 of opinion that there is some degree of overlapping on civil protection area be- tween CG and LG institutions. Some recommendations are provided by other municipalities, too: ●● Full Enhancement of legal framework on civil protection (drafting of bylaws of Law 45/2019 “on Civil Protection”); the competencies of CG and local in- stitutions should be fully developed on civil protection and management of emergency situations. ●● Legal guidelines on financial compensation and procedures to be followed in case of disasters and emergency situations22. ●● Review of tasks and competencies for the municipality structures of Civil Emer- gency and Urban Planning concerning General Territorial Plan at local level. ●● Water infrastructure (the main / primary network) which is under responsibility of CG / Bordet e Kullimit should carefully coordinated with the relevant municipali- ties– in case of disaster and emergency situation, the destruction of those water infrastructure could cause damage and floods for the municipalities. ●● Operating structures for civil protection need to have more elaborated and specific tasks (standard of procedures adopted, elaborated job descriptions). ●● Unified organic model (structure template) for municipalities related with the civil protection function should be developed by CG institutions.

7.1.2 Civil Emergency Plan The plan for civil emergencies determine measures and activities to prevent and cope with disasters, such as the capacity, commitment and action organized in emergencies to protect people’s lives, living things, property, cultural heritage and the environment. This plan takes into account the priority treatment of chil- dren, the elderly, people with disabilities, vulnerable communities and women. Plan for civil emergencies are approved at the central level, at the county level and at the local level and are reviewed not less than once every three years23.

Graph 5 Plan of civil emergency at local level

38%

Source: Survey on civil protection at local level, 2020

22 Government of Albania is working on drafting a DCM on financial compensation of fami- lies and persons affected in case of natural disaster. 23 Law 45/2019, article 14

28 The local plan for civil emergencies should integrate all administrative units of the municipality based on risks assessment. When asked about the local plan for civil emergencies, the municipalities has confirmed the followings: (i) the plan for civil emergencies includes administrative units (AU); specific task related to each AU (ii) the local plan is reviewed every year and communicated to all constituent AU; (iii) the plan consider scenarios that in case of natural disaster, and when the situation is not effectively managed by the Municipality’s forces (headquarter), then help and assistance is required from other AU, neighbor municipality and other forces.

All tasks and competencies have been planned in accordance with law no. 45/2019 on civil protection. There have been set up groups and contact points for civil emergencies in each administrative unit as well as the involvement of village’s head. Civil Protection Commission is set up which is related to other groups for civil emergency set up in administrative units (contacts points are set up). Some municipalities are still working for drafting a new local plan for civil emergency, and some other municipalities (25%) do not have an emergency plan, but they operate based on the case monitoring. They are expecting to have documents at national level and bylaws adopted.

Box 1: Good practices in cooperation with neighboring municipalities for civil emergencies

Municipality of Fier: the local plan for civil emergency is harmonized with neighbor- ing municipalities.

Municipality of Finiq: LP for civil emergency takes includes provision of coopera- tion with the Municipality of Saranda, Konispol, Delvina and Dropull, and also with the border municipalities of Greece; the EC local plan consider exchanging of mean and human forces as appropriate.

Municipality of Vau tw Dejes: Civil Protection Plan has been coordinated with oth- er neighboring municipality which have similar risks and disaster experiences.

Municipality of Kolonja: Civil emergency plan has signed agreement with other municipalities of the Korca County for having support with human resources and logistic and means (equipment).

Municipality of Libohove: coordination with neighboring municipalities in the field of civil protection, fire protection, mutual assistance and exchanging information between municipalities.

Municipality of Vlora: CE plan has identified the human and technical resources of the neighboring municipalities that can be used in case of need for various emer- gencies.

Municipality of Kruje, Elbasan, Korce: Local plan for CE takes in consideration emer- gency response measures and means of other neighboring municipalities of the coun- ty (Qark) for firefighting and rescue in inhabited areas and forests and pastures.

29 Graph 6 Consultations at local level during the drafting of the plan for civil emergency

Source: Survey on civil protection at local level, 2020

Some municipalities have not started yet the drafting process, and some others are in the initial process of drafting the local emergency plan, while other municipali- ties have arranged consultations with citizens on various sensitive issues, such as: public information and citizens’ awareness since initial phase “early notification’, need for additional funds for coping with civil emergencies issues, setting up of mix group of special forces and voluntary, and carrying out immediate measures of interference to minimize and cope with disaster that these groups should take in case of disaster until the arrival of experts and other specialized forces.

Problems and challenges:

●● The issues of defining clearly the interactions of operations and tasks entitled to municipality structures for civil protection according to law no. 45/2019; strengthening cooperation between structures. ●● Establishment of operational center in the Municipality and better equipment and material supplies needed in case of emergencies; new uniforms and aids for the fire protection and rescue services, and trainings. ●● Issues of quality and effective management of emergency situations according to the category of disaster in order to improve the speed of operations and minimizing the cost of damages. ●● The minimum reserve that the municipality should have for various materials, food reserves, clothing for the initial accommodation of affected local people in case of earthquakes, fires or floods. ●● Poor roads in some rural and mountain areas, and opening of the roads in uninhabited areas in case of fire; coordination of precautionary measures throughout the territorial extent of the municipality; protection of forests and pastures from fires in the summer season. ●● Providing financial assistance from CG in a relatively short time; long proce- dures and delays until the financial assistance is made effective. ●● Failure to anticipate investments to prevent natural disasters in those areas that are identified as high risk. ●● The need for preventive investments for those areas which are assessed with high risks. ●● Testing of evacuation plans in endangered areas in case of disaster.

30 ●● Public safety on the roads through improved lighting, and public safety in schools through the installation of cameras in schools, kindergartens and nurseries. ●● Creating infrastructure, such as pool for the municipalities with high risk of fires.

The most important factors that would enable the effective implementation of the Law on Civil Protection have been assessed such as: carrying out preven- tive investment as very important (39%), financial resources allocated to this function (35% very important), drafting of full legal framework for civil pro- tection (adoption of bylaws – very important 35%), setting up of effective and qualified structures (31%).

Factors enabling the effective implementation of Law on Civil Protection Graph 7

Source: Survey on civil protection at local level, 2020

Problems and challenges: ●● Preliminary strategic document for risk assessment has been developed by the majority part of municipalities, but expert support is required for im- proving the quality of these important documents against guidelines. Risk assessment document is expected to be developed at national and regional (county level) in advance of the local level. ●● The categories of risks identified by municipalities are grouped (i) roadblocks in winter and landslides, (ii) earthquakes, (iiii) fires, (iv) epidemic situations (pandemics). Recent experiences (events) in natural disaster and pandemic situation have helped municipalities to better planning of measures to rem- edy damages and react effectively.

31 7.1.3 Water infrastructure (the network of irrigation and drainage) and art works has not been considered problematic issue for some municipalities but for some other municipalities the investment and maintenance works in water infrastructure is considered necessary and crucial for prevention of disaster and river floods.

Box 2: Assessment of the existing situation on water infrastructure for prevention of natural disaster Municipality of Kucove: the network of water and drainage system is being maintained but more but more needs to be done to avoid flooding.

Municipality of Himare, Konispol: No significant risk of flooding is assessed by the munic- ipal services, but some part of the network is depreciated and need renovation

Municipality of Tepelene: The reservoir dams are in good condition and the dischargers are functional. In case of damage, only one of them can endanger the houses, while 4 other can only cause floods in agricultural or forest land.

Municipality of Finiq: There have not been realized investments in water art works related to the main rivers of “Big Bistrica river, Small Bistrica river, Kalasë, Pavla e Madhe for the regional Water Board.

Municipality of Mirdita: the reservoirs have not been monitored due to the staff shortages.

Municipality of Permet, Vlore, Fier: More investments are needed in dam maintenance while drainage network system is functional.

Municipality of Mat: no investment have been realized in some reservoir dams which can pose a high risk to the local residents living around as well as the flooding that may cause landslides and dwellings.

Municipality of Kolonje, Prrenja, Gramsh, Diber, Kruje, Kamez: Investment is needed in the water infrastructure.

Municipality of Cerrik: No issue of concerns related to water and drainage network, while issues are addressed about the Stërmen reservoir which is filled with alluvium since 1990 (potential for causing flooding in the winter), and Cërrik Reservoir.

Municipality of Shijak: If investment in the water infrastructure (in dams and reservoirs) have been carried out, the risks and damages due to flooding would have been prevented.

Municipality of Lezhe: Investment is needed in dams for Mat and Drin rivers, and in reser- voir of Kallmet and Troshan.

Municipality of Lushnje: Regular maintaining of reservoirs and dams for the Lake Thane, Kasharaj, Pajallis, as well as the drainage and irrigation system has been priority for the municipality.

Municipality of Belsh: The municipality has developed a local plan to maintain the water infrastructure, but more financial support is needed.

Municipality of Rrogozhine: The water infrastructure is problematic and has caused floods in the territory of the municipality.

Municipality of Shkoder: the water infrastructure is not cause of flooding, but it has impact in reducing the negative impact in natural disaster. The proper and effective management (human factor) is the most important element for facing emergency situation.

32 European Union flood directive24

Level of the awareness on EU directives for disaster and risk assessment Graph 8

Source: Survey on civil protection at local level, 2020

The irrigation and drainage network management function for the second and tertiary channels has been transferred from Central governance to municipal- ities since January 2016. The human sources, technical means and fund was transferred from the Regional Directories of Irrigation and Drainage boards25 to 61 municipalities. In 2018, some investment were realized in pumping stations and buying of 61 excavators for LGUs. A study on the performance of the new func- tions transferred to LG in 2016 showed better performance in management of this function. While in 2-15, only 11% of the drainage network and 10% of the irrigation system is maintained and cleaned. Data has shown improvement in 2018: 31% of the drainage network and 36% of irrigation system maintained and cleaned from the municipality services26. Despite improvements in recent years, municipalities still have identified risks related to water infrastructure.

Problems and challenges:

●● Main factors causing floods in the municipalities’ territory include lack of the protective infrastructure of primary and secondary rivers in case of heavy rain- fall. ●● Informal constructions in river beds, swollen lakes. ●● Malfunction of reservoir discharges and drainage networks and in the most ex- treme case, the rupture of a reservoir dam. ●● Deforestation and forests and pastures burning. ●● Lack of preventive investments from the Regional Irrigation and Drainage Board of Korça Count in Devoll river27; luck of protective embankment on the left side of the river; issue of concern is area in the point of union of the collector Ban- je-Shkumbin; ‘Naun Panxhi’ channel needs some maintenance works in some parts due to non-functioning of dischargers, and other issues that need main- tenance and investments.

24 Directive 2007/60/EC 25 Four boards based on river basins: Lezha, Korça, Durres and Fier 26 Source: Report on the performance of new local government functions (2018, author O. Shapo) 27 Source: Municipality of Korca

33 ●● Floods in the territory of Bulqiza municipality from ‘Zalli i Bulqizes’, and the wa- ter of the Black Drini in Gjorica; there is risk in case of demolition of the protec- tive embankment of the river Black Drini for the area of Shupenze administra- tive unit, Okshatine village, and where no investment has been made to protect them. ●● Lack of proper monitoring and exploitation of HEC that are built in the territory of the municipality. ●● Reservoir dam explosions. ●● Lack of proper maintenance of irrigation and drainage networks (primary and secondary channels); Non-cleaning of the main drainage channel in the area of Dunavec River which is under the responsibility of the region board for irriga- tion and drainage. ●● Informal constructions which have damaged the canals of irrigation and drain- age network. ●● Opening of Banja Lake; Increasing water inflows of Seman river; lack of mainte- nance and removal of sludge (water precipitation) from the river bed. ●● Climate change. ●● Landslides.

7.1.4 Fire protection services The Law28 on “Fire protection and rescue” regulates the service and put certain standards. The function was transferred to LGUs in January 2016. Forty-four (44) Fire Protection and Rescues services (FPRS) are transferred to the municipali- ties. Although the total number of employees and means for this services has been increased in recent years in around 1100 professional firefighters in 2020 and 30 new fire trucks were procured, the service do not offer the beststan- dards. While the law on the service defines that 1 firefighter should be employed for 1500-2000 inhabitants, the municipalities that have extended territories and large space with forests but not large populations face difficulties in dealing with fires in the summer season. In response to the question about the effectiveness, structures and shortcom- ings of fire protection and rescue services, the municipalities are of the opinion that this services has performed better after decentralization of the function, but shortcoming are assessed in terms of staff qualification, shortage in equipment and other materials. In some regions (qarks), municipalities have signed agree- ments to help and assist each other in case of fire situation including human and technical means29.

28 Law no.152/2015 29 Source: FC discussion with municipalities held on 12 May 2020 with participation of the Municipality of Korca, Municipality Kamez, Municipality Mat and Municipality Ura Vajgurore: The fire protection service has not been treated as a priority by the central government. The transfer of this function from central government to local government has not been

34 Problems and challenges:

●● Station of Fire Protection and Rescue (SFPR) have underqualified staff, and un- experienced. ●● Recruitment process for fire protection staff by municipality services is not al- ways compliant with criteria of employment defined in law. Stronger criteria for the staff should be developed within legal provisions. ●● There is no dedicated and certified center for training delivery for fire protec- tion staff. ●● Level of employment should be according to the legal requirements per popu- lation (1 staff per 1500-200 inhabitants). ●● Not all the stations ( SFPR) are equipped with the appropriate material base and some of the existing means are amortized and old and without the neces- sary documents. For example, only 1 out of 7 FPRC of Elbasan County is proper equipped, six other rescue stations have shortage in material and equipment30. ●● There is need to support the establishment of voluntary structures for civil pro- tection, fire rescue and in general volunteer training in both fields. ●● Lack of water reservoir in some municipalities where the risk of fire is high.

On issue of the effectiveness of fire protection services, 94% of the municipal- ities have responded that this service should be LG competences, 2% of them judge that the fire service should be prefecture’s competence and 4% have been responded to “I don’t know”. In response to the question if there is lack of coher- ence for the administration and provision of the fire protection services referred to law 152/2015 on “Fire protection and rescue, law 139/2015 “On Local Self-Gov- ernment”, law No. 45/2019 “On Civil Protection”, most municipalities confirm that there is no lack of coherence, but some elements of the service and the legal provision should be revised to improve the quality and effectiveness; standards of procedures (SoPs) and command chain should be designed and properly im- plemented. Other issues being addressed

●● Employees of FPRC should fulfill strong recruitment criteria and municipality must follow carefully recruitment process for the staff in this service. The em- ployee of this service benefit from “the military status”. ●● Lack of one central structure for training provision to staff of the fire protection services at local level.

accompanied by sufficient funds and proper logistic means infrastructure (outdated funds). Another problem is related to the new teams in the municipality which are inexperienced and do not receive the proper training. Therefore, it is important that civil protection in- creases its effectiveness by relying on reliable logistics and proper trainings to the staff. 30 Source: from the online group discussion with the Prefect of Elbasan County

35 Box 3: Specific issues of concern on the service for fire protection and rescue

Municipality of Tirane: There is need for modern tools and equipment, and also new centers/stations (MZSH) given the large territory of the municipality.

Municipality of Elbasan: Staff should benefit from continuous trainings to become effective in the long run. Another priority for the service should be the improvement of the management given the large surface of the administrative territory of the mu- nicipality of Elbasan (873 km2).

Municipality of Fier, Konispol, Permet, Vau i Dejes, Divjake, Devoll, Librazhd, Libohove, Gramsh, Diber, Rrogozhine, Ura Vajgurore, Maliq: The service must be supplemented by new means and equipment to become effective.

Municipality of Himare: Increase professional capacities of the fire protection service’ staff.

Municipality of Tepelene: There is shortage of escalator, fire trucks and support equip- ment; existing equipment are old and depreciated.

Municipality of Mirdite: HR allocation for the structure of MZSH should be defined based on the surface and relief of the territory in addition to the existing criteria.

Municipality of Mat: The service suffer from non-professional appointments, lack of trainings and equipment, such as fire truck, fire pumps, personnel special clothing, other necessary materials, and incentives to firefighting staff.

Municipality of Malesi e Madhe: The Service does function well but supplementary equipment is needed.

Municipality of Cerrik: Lack of physical and theoretical training.

Municipality of Korce, Sarande, Pustec, Kavaje: More personnel, training and equip- ment is needed.

Municipality of Kurbin: Need to increase the number of fire trucks with extensions, as well as new equipment for employees.

Municipality of Fushe-Arrez: HR allocation for the services is compliant with the law’s requirements, but needs to be further increased in human resource and equipment to be efficient in any emergency situation given the type of the municipality’s territory.

Municipality of Vlore, Pogradec, Bulqize, Lushnje: More staff, trainings and equipment is needed for the service.

Municipality of Prrenjas: New station for fire protection and rescue and equipment are needed.

Municipality of Belsh: Lack of water hydrants in areas where the risk of fire is higher.

Municipality of Klos: The service is well equipped but the roads infrastructure is not complaint with the standards and impose risks for the service.

Municipality of Tropoje: The municipality does not have a special (dedicated) fire sta- tion, which is highly requested to be set up, staffed and equipped for rural areas.

Municipality of Shkoder: The service has performed better after its decentralization, but it’s not yet completed with human resources and has lack of equipment / techni- cal means, which are non-compliant with the standards as required by the law.

36 7.1.5 Emergency Health Service Municipalities have been asked if they are of judgement that a small medical team should be part of the municipality’s civil protection structure, as this team would provide immediate health aid to affected people (issue of effectiveness and health security). About 53% of the municipalities judge that a small medical team should be part of civil protection structure within the municipality, while 23% consider that it would be more appropriate if it is part of Fire Protection and Rescue Service.

Graph 9

Source: Survey on civil protection at local level, 2020

Problems and challenges: The emergency health services is assessed mostly as functional and with quali- fied staff, but some issues of concern have been addressed: ●● Need to ensure good coverage of the territory of the service for remote areas and mountain areas. ●● Better medical equipment, medicine kits and new ambulance for emergency service for some municipalities. ●● Specialized doctors for the health service at local level.

Box 4: Problems with Health Service

Municipality of Fier, Kavaje, Belsh: Professional staff employed but the service must be supported with the necessary tools and equipment.

Municipality of Durres, Elbasan, Fier, Vlore, Pogradec, Libohove, Kucove: the emergency health service is functional and satisfying.

Municipality of Himare: Lack of capacity of heath service

Municipality of Konispol: The Health Centers in the Municipality of Konispol do not have the capacity to cope with the emergencies and the cases have been trans- ferred to the Saranda Regional Hospital. The Municipality of Konispol has provid- ed financial sources for procuring an ambulance which has been donated to the Konispol Health Center.

Municipality of Tepelene: This service needs new equipment. There is a shortage

37 of vehicles for difficult terrain.

Municipality of Mirdita: In areas with high risk in the winter season, specialized medical staff should be employed.

Municipality of Permet: Supply of equipment and medical kits for health services in the rural areas of the municipality.

Municipality of Mat: Medical staff in case of disasters need to be much more trained.

Municipality of Divjake: The service is good, but more equipment is needed.

Municipality of Cerrik: There is need for medical equipment and a modern ambu- lance for providing good quality service in the case of an emergency situation.

Municipality of Devoll: More qualified medical staff is needed.

Municipality of Pustec: Lack of an ambulance and pharmacy in the municipality.

Municipality of Kurbin: As a result of the damage to the hospital from the earth- quake of November 2019, is has been adopted another building; the medical staff are facing difficulties to effectively deal with all emergencies.

Municipality of Fushe-Arrez: Lack of a laboratory for testing and a specialized medical staff; the population of the municipality of Fushe-Arrez should take ser- vices from Puka or Shkodra Municipality.

Municipality of Bulqize: The medical emergency service has lack of specialized medical staff given accidents that are frequent due to the mining activities and in remote and mountainous area in winter season.

Municipality of Librazhd: Emergency health service covers the need of the munic- ipalities of Librazhd and Prrenjas and quality of this service has been improving, but there is need for another ambulance given the mountainous terrain.

Municipality of Shijak: The Emergency health service is part of the Civil Emergency Headquarters in emergency situation.

Municipality of Kamez: The Emergency health service should be set up nearby each administrative unit of the municipality to become more efficient for the local citizens.

Municipality of Gjirokaster: There is need for improvement related to medical staff and equipment.

Municipality of Tropoje: The emergency health service must be located in the city and equipped with the necessary medical staff and material base and equipment; three departments are crucial to be part of this service: surgery, maternity and pe- diatric department. Ambulances in the administrative units (AUs) are out of order, there is luck of medical staff, the basic medical infrastructure is not functional.

Municipality of Vore and Patos: Health service needs an ambulance.

Municipality of Maliq: The service needs a medical staff.

Municipality of Shkoder: N/A

38 7.2. Structures for Civil Protection at Local and Regional Level

About 89% of the municipalities have set up the structure for civil protection, as part of the municipality’s organigramme (N=53). The structure for civil protection include: (i) municipal police, (ii) fire and rescue sector, (iii) civil protection31. Mu- nicipal police and fire and rescues are operational forces at local level. Civil Protection Commission (CPC) at local level is set up by 83% of the munic- ipalities. CPC does function as an integral part of the composite structure for civil protection at county level (qark). This local commission usually have regular meetings every 3 months with defined tasks and priorities. Also, working groups in administrative units of the municipality are set up with the aim to cover the en- tire territory in coordination with civil protection forces of the municipality head- quarter. The functioning of the Municipal Council in case of emergency is defined in the internal regulation of MC. The three most critical issues addressed by municipalities related to functioning of task force (TF), which is leaded by the prefect at county level, is insufficient funding for the tasks assigned to municipality (30%), lack of qualified local experts for civil protection in local administration (30%), and lack of bylaws of the Law 45/2019 (26%).

Issues in functioning of the task force at Regional (Qark) level Graph 10

Source: Survey on civil protection at local level, 2020

Large municipalities have quite often a structure (at directorate level) which is composed by the Directorate of Civil Emergencies, Directorate of Fire Protection and Rescue and the Directorate of Drainage Board32, but there is lack of territo- rial coverage, especially in rural areas, and it’s identified need for the structure review.

31 Source: Mat Municipality 32 Source: Vlore Municipality

39 Table 1: Mapping of structures for civil protection at local level (incl. local government and central government)

Structures that take immediate actions and provide first aid service for CP Municipality Directorate Fire Protection Voluntary (sector) for civil and Rescue groups protection in the Center (FPRC) Municipality Municipal Police Directorate of Structure for Public Support Services Economic Property Assistance and Enterprise Social Service Primary Health Emergency Health Health centers Hospital sector (CG) service Municipality Agriculture sector Directorate for Irrigation and drainage Bordet e Agriculture sector Kullimit (CG) Task forces (inc. Prefect (CG) territorial branches)

7.3 Good governance Municipal Council (MC) performs all the task assigned by the Law on Local Self-Gov- ernment33 and the Law 45/2019 “On civil Protection”, law 152/2015 on “Fire protec- tion and rescue” and other relevant laws for management of situation and carrying out operational measures to put the situation under control. MC is entitled to adopt Risk Assessment plans for the municipality and updating local emergency plan at least once in three years’ time. The Commission for Civil Protection has a leading role in cases of occurrence of the emergency situation, should ensure the effective man- agement for having a minimum damage in human life and cost of damages.

Other tasks carried out by MC in case of emergency situation include: ●● Decision-making for the emergency situation, coordination role, planning of im- mediate actions and reporting. MC is assisted by the specialists of civil protection. ●● Urgently approve changes in the local budget, and contracts with third parties and entities for materials and crucial supplies. ●● Set up local group for identification of any cases of affected citizen, family, pub- lic and private property, compile data (inventory of damage); prepare the list of damaged families and the fund for compensation of these families ●● Financial compensations for affected people and vulnerable communities and other entities. ●● Approve the rent payment for evacuated families which are affected from the situation of the disaster.

33 Law 139/2015 on Local Self-Government

40 Municipal Council’s tasks defined for emergency situation as Graph 11 part of internal regulations

Source: Survey on civil protection at local level, 2020

The transparency on Municipal Council’s decisions, measures and actions for controlling and remedying the emergency situations, on procurement of mate- rials, first aid kits, financial assistance, grants and other donations is ensured following the legal provisions of the law 119/2024 “On the Rights to information”, and compliant with Law 45/2019 “On civil Protection”. The information is released under the responsibility of the ‘Coordinator for the right to information’ who is expected to work closely with the Commission for Civil Protection at local level using the official website of the Municipality and Transparency Program, local media, social networks, cooperation with NGOs.

Municipalities has noted other instruments on recording, archiving and ensuring the transparency on an emergency situation by using (i) ad-hoc commissions set up in the municipal council, publication of data (transparency programme), (ii) archiving of the necessary documentation: inventory on damages caused in a disastar situation, list of the affected families, private and public properties, fi- nancial compesation, declarations of distribution of materials and food package: (iii) contracts with third parties for procuring materials of the first needs, photos.

Regular information (reporting) to the Prefect Institution of the County (Qark) is provided in compliance to the Law 107/2016 “ On Prefect of the County”.

Social sensitivity and the coverage of the most affected communities In our survey we asked about how do the municipality cover the needs of vul- nerable and affected communities including women and mother single with chil- dren. In their responses, municipalities have highlighted: (i) setting up patronage groups and cooperation with voluntary field service groups, (ii) identification of the vulnerable communities and families by the social service at AUs, (iii) reas- sessment of their conditions for entering to social assistance scheme, (iv) trans- ferring them in safe places (shelters), (v) use of emergency fond, other donation, donations, financial assistance and food package. Other instruments in use are:

●● Information and database of the Municipality (Social assistance) to identify the vulnerable communities, elder people, women in needs. ●● Drafting an action plan of measures with priorities for addressing the needs of

41 these vulnerable communities to the appropriate institutions for getting support and receing services. ●● Coordination of actions for getting support from other actors, such as local busi- nesses and organisations of civil societyoperating in the municipality.

Graph 12 Community Structure set up at local level0

Source: Survey on civil protection at local level, 2020

The community structure provide support to expert of civil protection. These community structures are set up by a decision of Municipality Council and cover specific area of municipality territory. The most common approach is setting up these structures for every AU. Only 49% of the municipalities have set up the community structure. The main role and tasks of the community structure is defined in the local emergency plan, and has supportive nature (implementing role) in providing assistance to the most affected and vulnerable comunities, elder people, persons with disabilities and women. They facilitate coordination os actions with voluntary groups and special forces.

7.4 Financing of the Civil Protection Function at local level

By the law34, the municipality must allocate at least 4% of its annual budget fund for emergency situation as conditional transfer. The scope of this financial al- location is to reduce the risk of disasters and ensure adequate civil protection, as well as effective exercising of tasks in compliance with the law (45/2019). The financial source is made available to the municipalities though the conditional funds of the state budget. Related to this issue, only 62% of the municipalities (N=53) have allocated fund for CP as required by the law by their own annual budget, some municipalities have allocated 1.7% of their annual budget and are looking to have 2.3% from CG as a conditional transfer. There is lack of clarity to financial resources and formula for civil protection addressed by some municipalities.

34 Law 45/2019 on civil protection, Law 68/2017 “On Local Finances”

42 Financing of civil protection function at local level Graph 13

Source: Survey on civil protection at local level, 2020

About 68% of the municipalities have carried out preventive investments for re- ducing risks in case of disaster and minimizing cost of damages (N=53).

Allocation of municipality fund for civil emergency function, 2018-2020 Graph 14

27 29 26

8 7 9

Source: Survey on civil protection at local level, 2020

Based on the data provided by the municipalities, the graph below shows large variance in local budget for preventive investments during the last three years, which reflect the size of municipality and preventive investment or work on reha- bilitation.

Preventive investment, 2018-2020 Graph 15

43 Source: Survey on civil protection at local level, 2020

Municipalities have carried out preventive investment mostly on rehabilitation of the irrigation and drainage infrastructure and rehabilitation work on water infrastructure (66%).

Graph 16 Local preventive investments by category of risk

Source: Survey on civil protection at local level, 2020

On fire protection function, based on the data available results that about 50% of the municipalities have carried out investment on new equipment and training.

Graph 17 Local invesment for fire protection in equipment and training, 2018-2020

23 30

23 30

24 29

Source: Survey on civil protection at local level, 2020

44 To the question, if the municipality has a database for local private entities and civil society organizations (CSOs), which can be mobilized and provide support to communities and the affected population in a situation of civil emergency, 47% of the municipalities have confirmed to Yes, 25% - in progress of setting up such database, 19% - No, while 9% - I don’t know (N=53).

Past experience with emergency situations About 94% of the municipalities have had previuos experiences with natural disas- ters which mostly have been of category floods (31%), fire (27%), earthquake (20%). The experience of November 2019 earthquake in Albania revealed lack of staff skills in quick intervention and rescue services and lack of proper logistics means.

Previous experiences in natural disasters Graph 18

Source: Survey on civil protection at local level, 2020

Only 75% of the municipalities have set up a database on impact cost of damag- es due to natural disasters.

Experiences of natural disaster by category Graph 19

Source: Survey on civil protection at local level, 2020

34% of the municipalities have a database on quality of the public and private buildings and houses, in their territory, against the adopted construction’s stan- dards to cope with earthquakes that could bring destructions and loss of lives, while 23% are in process of its development.

45 Graph 20 Database for the construction standards of buildings and houses in territory of municipality

Source: Survey on civil protection at local level, 2020

7.5 Human Resources for Civil Protection at local level Concerning the structure for civil protection as part of the municipality’s organ- igramme, about 91% of municipalities have set up the structure. Employment level in this structure is variable. Table 4 in annex 1 provided detailed data on hu- man resource allocation. Municipalities do not have a common model of the civil protection structure, which is not set up as a separate unit under the Mayor but quite often is part of the directorate including other function such the agriculture management.

Graph 21 Human resources of local structures for civil protection function

Source: Survey on civil protection at local level, 2020

The combined structure for civil protection with participation of central gover- nance institutions and municipalities are set set in 36% of the municipalities. This structure are functional as part of the Civil Emergency Commission of the Prefecture. Some other municipalities have made mentioned “Shtabi’ for civil emergency, civil emergency structure in each administrative unit with participa- tion of experts for civil emergency, Municipal Council’s member, and local subor- dinate public service entities.

46 Training programs, 2018-2019 Graph 22

Source: Survey on civil protection at local level, 2020

Topics of interes for further capacity building for local employees for civil protec- tion include: ●● On legal framework for CP (law 45/2019 on civil protection); Procedures for fol- lowing up cases according to law 45/2019. ●● On public information ●● European methodology for quick intervention in case of natural disaster, best practices, in organisation of the operation system for CE. ●● Training for management and rescue intervention in an earthquakes situation inc. multi-storey buildings. ●● Key knowledge for quick intervention in case of an emergency situation during floods, earthquakes, land erosion, pandemic situation, fires. ●● The way of cooperation, command system, intervention at the operational level, increasing effectiveness of all actions in the usage of technical and special equip- ment dedicated during a natural disaster. ●● Use of new technologies (equipment). ●● Evacuating people and living things in an emergency situation (fire). ●● The early warning system. ●● Risk assessment (tools, methodology). ●● Standards of procedures, protocols ●● Developing job desciption for positions of the structure for CP at local level.

47 VIII. Summary of the main recommendations by different stakeholders

This section summarise the main recommen- 3. Setting up a very clear command system dations provided by the representatives of for initiating and management and opera- the local government, the study contributors tions of an emergency situation at local and and other involved institutions and actors. The county level based on the best European main findings, and challenges are provided models in this area. along the report for each section of the study report, and are not provided in this section to Risk assessment and emergency plan avoid duplication. 4. Development of local emergency plans, Legal Framework based on the national plan that will include possible scenarios, risks and well-defined Enhancement of the legal framework for o real human and logistical capacities, and civil protection (drafting of all necessary evacuation centers. sub-legal acts of the Law no.45/2019 “On Civil Protection”. There have been planned 5. Need for expertize and coordination by exter- to be drafted and adopted some bylaws35. nal experts and central government for draft- 1. Clear division of competencies among CG in- ing the risk assessment document at local level. stitutions and LGUs based on sub-legal acts. 6. Municipalities need to have guidelines for 2. The legal framework for CP, should require the classification of important objects (with carrying out of the compulsory insurance historic and cultural value) according to dif- of private dwellings and properties without ferent categorization and risks identified at creating burden to the state and local gov- local level. ernment to cover issues with damages in private property. 7. Support with expertise for the establish-

35 The duties, composition and functioning of the technical advisory committee for civil protection The organization and the functioning of the Civil Protection Committee. The procedure and the deadlines for issuing risk certification. The criteria and procedures for the declaration of the state of natural disaster. The treatment of volunteers for their engagement in civil protection activities or disaster prevention and disaster relief operations. The damage compensation amount, the procedures, the timeframe, the state structures responsible for assessing damages, as well as the assets and entities that are to be compensated.

48 ment and capacity building of the system tinous training on CP issues. Trainings for on a voluntary basis, and the alarm system. all operational structures according to the same module and protocol of procedures. Structures, CP system and human resources 16. Installing of Hydrants and designated ar- 8. Setting up of a unified, efficient and quali- eas/points for water pumping for the Fire fied structure for civil protection function. Protection Rescue center. This structure should set up at directorate level / or sector level depending on the size 17. Create volunteer base as part of prepared- of the municipality. The structure should ness for the emergency situation. have direct dependence from the Mayor. 18. Development of the infrastructure at local 9. The civil protection forces are set up in mu- level in case of an emergency situation (i.e. nicipality center; a small structure and min- civil emergency rooms, with well equipped imum logistics should be available to some and staff) at the local and county level. administrative units for ensuring effective territoral coverage. 19. Investments for the drainage system must be harmonized with the investment real- 10. Setting up of the minimum standards for the ized at the national network of channels number of employees for civil protection at for increasing impact and reducing damag- the local and central level; awaiving of the cri- es in case of emergecny sitiation (i.e. flood). teria of the population for human resource allocation to civil protection structure at local Financing level could affect reducing of the risks. 20. Funds for Civil Emergencies must be avail- 11. Establishment of an alarming system in able according to the law 45/2019 on civil case of a natural disaster and emergency protection; budget increase from the gov- situation at local level. ernment is needed to this LG function.

12. Well defined reporting system is necessary 21. Criteria for allocating 4% of the fund from for reducing time and other resources. the conditional transfer should be re- NACP should be the main instituction for viewed to take into account the specifics of monitoring the reporting system by LGUs. the municipality (the allocation of the fund should not be made available only on the 13. Development of the criteria for employ- basis of the population criteria; it should ment of persons in civil protection struc- make reference to other important crite- tures at local level that would allow en- ria/issue). gagement of the best qualified and fitted people for this function; need to determine 22. In case that the fond of 4% of annual local the age of staff in law. budget is not used during the year, it should not be canceled but it should be relocated 14. Capacity building for the municipalities to the next consecutive year (added to the staff to cope with a disaster situation. Train- civil protection function). This would enable ing should be arranged in cooperation with the improvement of the material base (lo- National Agency for Civil Protection. gistic) and carrying preventive investments based on the risk assessment document36. 15. Establishment of a training system for con-

36 Suggested during the focus group discussion with the prefects on civil protection at local level

49 23. Preventive investment based on risk as- 27. Improving coordination and cooperation sessment should be prioritized and should between municipalities for effective imple- be co-financed from CG and LG. mentation of civil protection function at lo- cal level and operational level. 24. Co-financining of investments from CG and LGU for improving logistical support and 28. Preparing and signing cooperation agree- equipment for civil protection function at ment between LGUs for exchanching of local level. forces and equipment and material base in case of emergency situation. 25. The prefect’s institution has no allocated fund for emergency situation. It is recom- 29. Inclusion in schools’ textbooks of knowl- mended that a small fund be allocated edge on the behavior and protection of (made available to this institution) for deal- children in situations of natural disasters. ing with an emergency situation. 30. Raising awareness of civil population on Other civil protection issues. 26. Enhancement of the cooperation between 31. Development a policy paper for CG and do- the prefect institution and LGUs based on nors regarding the establishment of the CP clear division of competences and roles. system based on good practices and chal- Municipality must take full responsibility lenges encountered in Albania. for managing small scale emergency situ- ation without asking direct support by the 32. Organization of the event in exchanging prefect institution. good practices in managing natural disas- ters situations by the municipalities.

50 ANNEX I. Tables of Data Local preventive investments and rehabilitation work, 2018-2020 (in ALL) Table 1

Municipalities Fund 2018 Fund 2019 Fund 2020 Fier 24 568 900 26 890 000 32 250 000 Tiranë 0 15 000 000 30 000 000 Konispol 0 0 0 Pukë 400 000 400 000 500 000 Vau i Dejës 0 0 0 Mat 70 000 000 8 000 000 11 000 000 Divjakë 10 10 10 Kolonjë 3 100 000 3 100 000 3 500 000 Memaliaj 20 000 000 20 000 000 42 000 000 Cërrik 15 000 000 15 000 000 10 000 000 Devoll 0 0 0 Pustec 3 610 444 4 907 000 2 009 000 Kurbin 7 500 000 7 700 000 8 000 000 Fushë-Arrëz 4 000 000 0 0 Pogradec 20 000 000 1 000 000 15 000 000 Librazhd 10 551 553 4 388 684 2 805 478 Libohovë 28 801 655 201 468 0 Vlorë 15 000 000 15 000 000 15 000 000 Prrenjas 23 501 951 4 010 299 472 276 Kavajë 0 0 0 Gramsh 900 000 950 000 959 500 Krujë 8 20 20 Lushnje 9 882 000 12 114 000 827 000 Peqin 5 155 824 Belsh 200 000 400 000 820 000 Elbasan 20 384 000 123 980 874 000 Has 7 450 000 1 555 465 3 500 000 Korçë 20 000 000 20 000 000 16 000 000 Gjirokastër 6 700 632 3 449 207 0 Klos 0 0 385 000 Tropojë 3 200 000 6 700 000 8 500 000 Vorë 30 0 0 Sarandë 950 150 60 Maliq 0 8 215 741 1 887 259 Mallakaster 0 3 100 000 0 Shkodër 60 000 000 102 000 000 145 000 000

51 Table 2 Local fund for equipment and training for the staff for fire protection and rescue

Fondi i investimit në Lek në pajisje, trajnime për funksionin e mbrojtjes nga zjarri dhe shpëtimi (in ALL) 1. Përcakto Fondi (në Lek) në Fondi (në Lek) në Fondi (në Lek) në Bashkinë vitin 2018 vitin 2019 vitin 2020 Kuçovë 0 0 883 000 Fier 560 000 650 000 2 150 000 Himarë 0 800 000 1 800 000 Tiranë 0 0 0 Konispol 0 0 0 Tepelenë 0 0 0 Finiq 12 617 060 14 206 351 12 393 403 Mirditë 2 050 000 2 050 000 2 050 000 Pukë 500 000 500 000 500 000 Përmet 0 0 500 000 Vau i Dejës 0 0 0 Mat 700 000 1 100 000 2 824 000 Divjakë 17 17 17 Kolonjë 1 840 619 1 939 619 1 840 619 Memaliaj 20 000 000 20 000 000 42 000 000 Malësi e Madhe 720 0 0 Cërrik 0 0 0 Devoll 0 0 0 Pustec 1 512 000 2 7 Kurbin 620 000 9 720 000 450 000 Fushë-Arrëz 4 000 000 0 0 Pogradec 20 000 13 000 14 000 Bulqizë 0 0 0 Librazhd 489 400 218 450 0 Libohovë 0 3 768 000 0 Vlorë 0 0 0 Shijak 2 2 2 Prrenjas 1 980 000 0 0 Durrës 0 0 8 500 000 Kavajë 0 0 0 Gramsh 3 000 000 3 000 000 3 000 000 Lezhë 0 0 0 Dibër 2 347 000 2 347 000 2 418 592 Krujë 8 2 20 Lushnje 0 0 100 000 Peqin 0 0 0 Belsh 0 0 0

52 Kamëz 6 000 000 5 000 000 11 000 000 Rrogozhinë 0 0 0 Elbasan 20 384 000 123 980 874 000 Has 350 000 1 100 000 400 000 Ura Vajgurore 4 918 560 660 000 400 000 Korçë 0 0 0 Gjirokastër 0 0 0 Klos 322 913 990 600 0 Tropojë 700 000 1 900 000 2 905 000 Vorë 0 12 342 Sarandë 40 10 50 Patos 475 000 115 000 108 000 Maliq 0 0 0 Kukës 1 500 000 2 000 000 2 700 000 Mallakaster 0 10 566 000 0 Shkodër 23 23 23

Previous experience in natural disasters Table 3

Ka patur Bashkia eksperienca të Nëse Po, zgjidhni çfarë Bashkia mëparshme me situate keni kaluar: përballjen e situatave të emergjencës? Kuçovë Po Përmbytje Fier Po Përmbytje Himarë Po Përmbytje Tiranë Po Të tjera Konispol Po Zjarr (pyje) Tepelenë Po Zjarr (pyje) Finiq Jo - Mirditë Po Tërmet Pukë Po Zjarr (pyje) Përmet Po Zjarr (pyje) Vau i Dejës Po Përmbytje Mat Po Tërmet Divjakë Po Përmbytje Kolonjë Po Tërmet Memaliaj Po Zjarr (pyje) Malësi e Madhe Po Zjarr (pyje) Cërrik Po Zjarr (zona urbane) Devoll Jo Të tjera Pustec Po Zjarr (pyje) Kurbin Po Përmbytje

53 Fushë-Arrëz Po Të tjera Pogradec Po Përmbytje Bulqizë Po Tërmet Librazhd Po Rrëshqitje të tokës Libohovë Po Të tjera Vlorë Po Përmbytje Shijak Po Rrëshqitje të tokës Prrenjas Po Zjarr (pyje) Durrës Po Përmbytje Kavajë Po Përmbytje Gramsh Po Tërmet Lezhë Po Zjarr (pyje) Dibër Po Zjarr (pyje) Krujë Po Përmbytje Lushnje Po Të tjera Peqin Jo Tërmet Belsh Po Tërmet Kamëz Po Tërmet Rrogozhinë Po Të tjera Elbasan Po Tërmet Has Po Zjarr (pyje) Ura Vajgurore Po Përmbytje Korçë Po Zjarr (zona urbane) Gjirokastër Po Rrëshqitje të tokës Klos Po Tërmet Tropojë Po Zjarr (pyje) Vorë Po Përmbytje Sarandë Po Përmbytje Patos Po Përmbytje Maliq Po Zjarr (pyje) Kukës Po Rrëshqitje të tokës Mallakaster Po Të tjera Shkodër Po Të tjera

Table 4

Does the Municipality No of staff in fire No of staff in CP Municipality have a civil protection and structures protection rescue structure? Kuçovë Po 3 15 Fier Po 6 30 Himarë Jo n/a n/a

54 Tiranë Po 7 145 Konispol Po 1 14 Tepelenë Po 2 12 Finiq Po 5 14 Mirditë Po 2 16 Pukë Po 3 14 Përmet Po 1 14 Vau i Dejës Po 3 14 Mat Po 2 14 Divjakë Po 7 Kolonjë Po 3 14 Memaliaj Po 1 14 Malësi e Madhe Po 4 12 Cërrik Po 1 14 Devoll Po 3 14 Pustec Jo n/a 9 Kurbin Po 2 14 Fushë-Arrëz Po 2 14 Pogradec Po 3 5 Bulqizë Po 3 15 Librazhd Po 2 13 Libohovë Jo n/a n/a Vlorë Po 3 38 Shijak Po 4 10 Prrenjas Po 1 14 Durrës Po 7 48 Kavajë Po 3 17 Gramsh Po 3 14 Lezhë Po 5 Dibër Po 4 21 Krujë Po 5 10 Lushnje Po 3 12 Peqin Po 6 14 Belsh Po 1 14 Kamëz Po 3 15 Rrogozhinë Po 15 14 Elbasan Po 31 39 Has Po 5 16 Ura Vajgurore Po 1 14 Korçë Po 1 31 Gjirokastër Po 1 31 Klos Po 2 11 Tropojë Po 1 1 Vorë Po 3 19

55 Sarandë Po 1 17 Patos Jo Maliq Po 3 14 Kukës Jo n/a n/a Mallakaster Po 3 14 Shkodër Po 3 23

Table 5 Training programs

Training programs, No of staff trained, Municipality 2018-2019 2018-2019 Tiranë 11 5 Konispol 4 Finiq 4 1 Mirditë 3 6 Pukë 1 1 Përmet 1 1 Vau i Dejës 10 5 Divjakë 13 13 Kolonjë 1 1 Memaliaj 7 1 Cërrik 0 1 Devoll 0 0 Pustec 0 Kurbin 2 2 Fushë-Arrëz 3 3 Bulqizë 3 1 Librazhd 2 2 Libohovë 4 4 Vlorë 3 8 Kavajë 0 0 Gramsh 7 3 Krujë 3 7 Lushnje 5 1 Belsh 3 14 Kamëz 2 2 Rrogozhinë 9 14 Elbasan 1 3 Has 2 2 Gjirokastër 2 1 Klos 3 1 Tropojë 4 2 Vorë 1 1 Sarandë 4 1

56 Patos n/a n/a Maliq 0 0 Mallakaster 3 1 Shkodër 3 25

Training needs for civil protection Table 6

Training needs for Management of Municipality legal framework (no of emergency situation persons) Kuçovë 3 3 Fier 4 4 Himarë 13 18 Konispol 0 1 Tepelenë 4 14 Finiq 5 5 Mirditë 3 2 Pukë 2 1 Vau i Dejës 2 3 Mat 2 3 Kolonjë 14 3 Memaliaj 1 1 Malësi e Madhe 4 6 Cërrik 3 39 Devoll 5 5 Kurbin 5 5 Fushë-Arrëz 3 5 Pogradec 3 4 Bulqizë 3 3 Prrenjas 3 10 Kavajë 4 5 Gramsh 2 3 Lezhë 5 5 Dibër 4 4 Lushnje 3 3 Peqin 2 3 Belsh 1 1 Rrogozhinë 15 1 Has 5 5 Ura Vajgurore 20 7 Korçë 3 4 Gjirokastër 1 50 Klos 2 2

57 Tropojë 2 2 Vorë 3 22 Sarandë 1 1 Patos 2 2 Maliq 3 10 Kukës 3 2 Mallakaster 3 3 Shkodër 2 20 Kamëz 3-8 30

58 ANNEX II. Officials and other actors met or contacted (focus group discussions and field visits)

Date 03/03/2020 Municipality of Cerrik

Name/Surname Municipality Email Regana Fezullau Cerrik [email protected] Ilma Ago Cerrik [email protected] Nderim Dyli Cerrik [email protected] Syl Ismaili Tirane [email protected] Alvi Saliasa Tirane [email protected] Elvis Bushi Tirane [email protected] Marsela Zavolani Cerrik [email protected] Klajdi Pepa Belsh [email protected] Mariglen Bali Belsh [email protected] Arta Xhika Cerrik [email protected] Erjola Calja Cerrik [email protected] Gersi Cabiri AMVV [email protected] Stiljan Llavdamiti AMVV [email protected] Florjan Merlika Kruje Petrit Thona Kruje [email protected] Taulant Simonaj Elbasan Ervin Saraci Elbasan [email protected] Shpresa Domi Shijak [email protected] Liridon Bala Shijak Mirsida Shahini Shijak [email protected] Valbona Mustafa Kavaje [email protected] Lorenc Tosku Peqin [email protected] Prel Gjonpalaj Kamez [email protected] Fatjon... Kamez Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected]

59 Date 04/03/2020 Municipality of Berat

Name/Surname Municipality Email Ervin Demo Berat Hatixhe Konomi Berat xhekumbjeshova2gmail.com Pelivan Sinanaj Berat [email protected] Dashamir Bendaj Berat [email protected] Piro Xheblati Berat [email protected] Nertil Nebiaj Gjirokaster [email protected] Fahri Brahimi Gjirokaster [email protected] Ilia Kuro Libohove [email protected] Gazmend Culla Libohove [email protected] Etleva Dhima Berat [email protected] Engjell Veliaj Polican [email protected] Fatma Keli Berat Sybi Shehu Kucove Olgert Zoga Kucove [email protected] Dhimitraq Papa Corovode [email protected] Myfti Senko Ura Vajgurore [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected]

Date 05/03/2020 Municipality of Devoll

Name/Surname Municipality Email Brikena Ali Kolonje [email protected] Albert Loci Maliq [email protected] Mimoza Gora Kolonje [email protected] Thanas Tona Korce [email protected] Gjergji Bardhi Korce [email protected] Eva Ismailaj Gramsh [email protected] Xhezir Gramsh Zenel Bojko Devoll [email protected] Alba Pustec Leonidh Muco Pustec [email protected] Florand Hasani Permet [email protected] Hymet Karriqi Prrenjas [email protected] Alban Cekrazi Prrenjas [email protected] Arben Lasko Bilisht [email protected] Besmira Niko Pogradec [email protected] Ilda Vesko Pogradec [email protected] Eduard Duro Devol [email protected] Remzi Kutrolli Devoll [email protected]

60 Sokol Hoxha Devoll [email protected] Bledar Haxhi DEvoll [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected]

1st focus group with municipalities, date 04/05/2020, ZOOM platform

Name/Surname Municipality/Institution Email Anisa Ruseti Tirane [email protected] Erind Bejko Tirane [email protected] Valbona Mustafa Kavaje [email protected] Shpresa Domi Shijak [email protected] Iris Tahiraj Kurbin [email protected] Bledar Gjidiaj Kurbin [email protected] Gregor Janin Ekspert [email protected] Fatjona Xhaferri Ekspert [email protected] Mirsa Titka Ekspert [email protected] Gjergji Hamiti Ekspert [email protected] Valbona Karakaci BtF [email protected] Eneida Marku BtF [email protected] Rikard Lika BtF [email protected] Hekuran Koka BtF [email protected] Agron haxhimali AAM [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected] Alketa Daja SHAV [email protected]

2nd focus group with municipalities, date 07/05/2020, ZOOM platform

Name/Surname Municipality/Institution Email Erion Isai Kolonje [email protected] Lirda Joti Kolonje [email protected] Mimoza Pesha Kolonje [email protected] Mark Babani Vau Dejes [email protected] Valjeta Nikaj Vau Dejes [email protected] Flori Mucaj Fier [email protected], Flamur Mato Fier [email protected] Arben Gjuraj Shkoder [email protected] Erkam Borici Shkoder Gregor Janin Ekspert [email protected] Dukate Dodaj Ekspert [email protected] Mirsa Titka Ekspert [email protected] Gjergji Hamiti Ekspert [email protected]

61 Agron haxhimali AAM [email protected] Bukurosh Onuzi BtF [email protected] Elvin Hoxha BtF [email protected] Muhamet Alicka BtF [email protected] Etjona Hoxha BtF [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected] Alketa Daja SHAV [email protected]

3rd focus group with municipalities, date 12/05/2020, ZOOM platform

Name/Surname Municipality/Institution Email Thanas Tona Korce [email protected] Myfit Senko Ura Vajgurore [email protected] Flutura Biba Mat Nezir Sinani Mat [email protected] Hasan Bara Kamez Fatjon Kamez Agron haxhimali AAM [email protected] Gregor Janin Ekspert [email protected] Fatjona Xhaferri Ekspert [email protected] Mirsa Titka Ekspert [email protected] Gjergji Hamiti Ekspert [email protected] Vilma Petro BtF [email protected] Erdis Hyka BtF [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected]

4th focus group with municipalities, date 14/05/2020, ZOOM platform

Name/Surname Municipality/Institution Email Jeton Puka Vlore [email protected] Adrian Vreshtazi Vlore Anisa Petani Patos [email protected] Agim Lisi Patos Mimoza Shtembari Patos Andri Kota Librazhd [email protected] jorida.muho@bashkiagjirokaster. Jorida Muho Gjirokaster gov.al Fadri Agron Haxhimali AAM [email protected] Gregor Janin Ekspert [email protected] Dukate Dodaj Ekspert [email protected]

62 Mirsa Titka Ekspert [email protected] Gjergji Hamiti Ekspert [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected]

Focus group with prefects, date 21/05/2020, ZOOM platform

Name/Surname Prefecture/Institution Email Roland Nasto Prefect of Durres [email protected] Maksim Malaj Prefect of Elbasan [email protected] Dhori Spirollari Prefect of Korce [email protected] Nexhmedin Shehu Prefect of Diber [email protected] Valbona Zylyftari Prefect of Berat [email protected] Director of E.C/Lezhe Ndrek Mhillaj Prefecture [email protected] Bekim Murati AMVV [email protected] Agron haxhimali AAM [email protected] Gregor Janin Ekspert [email protected] Dukate Dodaj Ekspert [email protected] Mirsa Titka Ekspert [email protected] Gjergji Hamiti Ekspert [email protected] Adelina Farrici SHAV [email protected] Alisa Limaj SHAV [email protected]

63 64 This report was supported financially by Bashki te Forta, a project of The Swiss Agency for Development and Cooperaon (SDC)

ALBANIA