NATIONAL DISASTER MANAGEMENT AUTHORITY (NDMA) THE ISLAMIC REPUBLIC OF PAKISTAN THE PROJECT FOR NATIONAL DISASTER MANAGEMENT PLAN IN THE ISLAMIC REPUBLIC OF PAKISTAN FINAL REPORT MAIN REPORT MARCH 2013 JAPAN INTERNATIONAL COOPERATION AGENCY ORIENTAL CONSULTANTS CO., LTD. CTI ENGINEERING INTERNATIONAL PT OYO INTERNATIONAL CORPORATION JR 13-001 NATIONAL DISASTER MANAGEMENT AUTHORITY (NDMA) THE ISLAMIC REPUBLIC OF PAKISTAN THE PROJECT FOR NATIONAL DISASTER MANAGEMENT PLAN IN THE ISLAMIC REPUBLIC OF PAKISTAN FINAL REPORT MAIN REPORT MARCH 2013 JAPAN INTERNATIONAL COOPERATION AGENCY ORIENTAL CONSULTANTS CO., LTD. CTI ENGINEERING INTERNATIONAL OYO INTERNATIONAL CORPORATION The following foreign exchange rate is applied in the study: US$ 1.00 = PKR 88.4 Preface In response to a request from the Government of Pakistan, the Government of Japan decided to conduct “Project for National Disaster Management Plan” and entrusted to the study to the Japan International Cooperation Agency (JICA). JICA selected and dispatched a study team headed by Mr. KOBAYASHI Ichiro Oriental Consultants Co., Ltd. and consists of CTI Engineering International Co., Ltd. and OYO International Corporation between April 2010 and August 2012. The team conducted field surveys at the study area, held discussions with the officials concerned of the Government of Pakistan and implemented seminars, workshops, and so on. Upon returning to Japan, the team conducted further studies and prepared this final report. I hope that this report will contribute to the promotion of this project and to the enhancement of friendly relationship between our two countries. Finally, I wish to express my sincere appreciation to the officials concerned of the Government of Pakistan for their close cooperation extended to the study. March 2013 NISHIKATA Takatoshi Chief Representative JICA Pakistan Office The composition of this Report is as follows. 1. Main Report 2. Executive Summary 3. National Disaster Management Plan 4. Human Resource Development Plan On Disaster Management 5. National Multi-hazard Early Warning System Plan 6. Instructor’s Guideline On Community Based Disaster Risk Management Main Report natural calamity by developing the capacity of Main Report disaster management administrative agencies in Pakistan, through the formulation of plans and 1. Background and Necessity of the Study means/mode of supporting the implementation. Pakistan is one of the most disaster prone and 3. Target Area vulnerable countries in the world, and has suffered Although the target area of the above-mentioned from numbers of disasters in the past. In recent Plans shall be the whole of Pakistan, the JICA years, it has experienced several catastrophic Study team shall survey in only Province of Punjab disasters such as the Earthquake in October 2005, and Sindh for the security reason. The area where Flood in June 2010 and Flood in September 2011. the Japanese experts cannot enter shall be surveyed Heavy damages brought about by the earthquake by local consultants employed by JICA Study has led Pakistan to initiate national efforts in team. developing the structure for Disaster Management focusing on prevention, mitigation and integration 4. Implementing Agency of Pakistan of responses, by conducting a radical review of the Following are the implementing agencies on traditional disaster management system and disaster management in Pakistan: policies on post-disaster and autonomous responses. Main counterpart agencies National Disaster Management Authority Systematizing the whole Disaster Risk Management is essential for the formulation and (NDMA) promotion of comprehensive and well-planned Pakistan Meteorological Department (PMD) disaster management administration for the future. Federal Flood Commission (FFC) This study was conceived to illustrate the method Relevant Ministries on how to develop a disaster-resilient society for Prime Minister's Secretariat the long term by systematically implementing a Ministry of Water and Power (MWP) comprehensive disaster management Provincial Disaster Management Authority administration realizing that "self help, mutual (PDMA) help and public help" are the principle of disaster District Disaster Management Authority management in Pakistan. (DDMA) Considering that the occurrence of natural disasters 5. Study on existing conditions of disaster differs by country and by region, lessons gained risk management in Pakistan from previous disasters should be explored and applied to disaster-resilient regions and The drafts of the plans for disaster risk communities. In light of the foregoing, the disaster management at the national level were prepared to management administration should be developed initiate the arrangement of existing statutory based on experiences gained from the occurrence organizational framework and the state of activity of recurring disasters. affairs. Identifying the occurrence of areas prone to 2. Objective of the Study and Target Area hazards and risk of danger, organizing the The objective of the Study is to support the chronology of disaster incidences and conducting formulation of basic plans for disaster risk of hazard assessment were essential for the management at the national level. The goal is to be formulation of the draft plans. able to prepare mitigating measures against 1) Legal framework for disaster management possible damage arising from the occurrence of The loss of life and property and the challenges S-1 The Project for National Disaster Management Plan in the Islamic Republic of Pakistan that were faced in the aftermath of the October do not have physical institutions, and officials are 2005 earthquake affecting Azad Jammu and combined with other posts, which makes it difficult Kashmir and the NWFP Province (currently KP) to handle other tasks, especially on pre-disaster exhibited the need for establishing appropriate measures. policy and institutional arrangements to reduce 3) Responsibilities of Relevant Organizations losses from disasters in the future. The earthquake and Stakeholders tested the resilience and capacity of Pakistan and its people to overcome catastrophes. In disaster management, there are multiple organizations and stakeholders concerned, and Based on the aforementioned concerns, the there is a need to clarify roles and responsibilities Government of Pakistan has established policy and of each organization and stakeholder in order to institutional mechanisms at the national, provincial achieve the maximum results from the efforts and district levels. The National Disaster implemented. By utilizing the following Management Ordinance (NDMO), which aimed at documents, a list of relevant organizations and providing for the establishment of a National stakeholders was created and is shown in Chapter 2. Disaster Management System for Pakistan was The documents to be utilized are: National Disaster promulgated on 3 October 2006; and came into Management Act 2010, National Disaster Risk force on 17 August 2007. After the assent of the Management Framework, National Disaster President on 8 December, 2010, the NDMO Response Plan, and List of Ministries concerning became the “National Disaster Management Act, “Mainstreaming DRR into Development.” 2010” (hereinafter referred to as “The Act, 2010”) on 11 December, 2010. The components of NDMO 4) Government Policy on Disaster and The Act are the same except that the Management expression of “Nazim of the District” was changed The National Disaster Risk Management to the “Head of the Local Council at the District Framework (NDRMF), which was prepared with Level” indicated in Clause 18. Promulgation of the active participation of multiple stakeholders, ex-Ordinance and the Act become the great turning serves as a vision document for leading the way point of Pakistan in Disaster Management, and in towards a safer Pakistan in cooperation with UNDP. order to implement the contents, a variety of The Framework provides guidelines to coordinate relevant organizations have started to move build the activities of numerous stakeholders. a safer country against variety of disasters. It also sets out priorities for mobilization of 2) Institutional Framework for Disaster resources from donors and development partners Management of Pakistan to implement strategic activities during After the promulgation of the Act, 2010, based on the next five years. Nine priority areas are pointed its contents, disaster management authorities in out in NDRMF and those are in the process of each level of government have been established or implementation. The nine priority areas are as are under the process of establishment. These follows: 1) Institutional and legal arrangements of Disaster Management Authorities are the main DRM, 2) Hazard and vulnerability assessment, 3) responsible institutions to plan, coordinate and Training, education and awareness, 4) Disaster risk implement disaster management efforts. management planning, 5) Community and local level programming, 6) Multi-hazard early warning In the Federal and Provincial levels, Disaster system, 7) Mainstreaming disaster risk reduction Management Authorities with physical institutions into development, 8) Emergency response system, had established, however, those below district and 9) Capacity development for post-disaster level, including District Disaster Management recovery. Authorities (DDMAs) and Local Authorities (LAs) S-2 Main Report 5) Hazard and Risk Assessment overlaid for the analysis of the risk with the use of GIS