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GUIDEBOOK ON

COMMUNITY DISASTER PREPAREDNESS

Published in the Republic of the Philippines in 2018 by the InternationalInstitute of Rural Reconstruction (IIRR) and Give2Asia.

ISBN 1 930261 43 8

This publication is copyright-free. IIRR encourages the use, translation,adaptation and copying of materials. We require acknowledgement prior to translating and repackaging of the contents.

CorrectCorrect citation: IIRR, Give2Asia. 2018. Guidebook on Community Disaster Preparedness, Philippines.

For more information, please contact:International Institute of Rural ReconstructionKm 39 Aguinaldo Hi-waySilang, Cavite [email protected]@iirr.orgwww.iirr.org

Table of Contents

Part I: Basic Concepts on Disaster Preparedness and the Role of the CBOs ...... 1 Basic Concepts ..................................................................................................................... 2 Disaster Hazard Vulnerability Risk Capacity Disaster Risk Reduction Disaster Risk Management What is disaster preparedness? ........................................................................................ 7 Why should we prepare? Aims of Disaster Preparedness Components of disaster preparedness Developing Effective Disaster Preparedness Strategies Foundation of Safety and DRR Measures: Building Resilient Communities What are Community Based Organizations (CBOs) .................................................. 15 CBOs have a role to play in disaster preparedness How can CBOs effectively prepare for DRR? Working in partnership Methods of preparedness that CBOs could use Seing up partnerships

Part 2: Facilitating Community Risk Assessment .................................................. 22 Participatory Risk Assessment ....................................................................................... 23 What is Participatory Risk Assessment? What is the Aim of PDRA? Steps in conducting Participatory Disaster Risk Assessment What is Participatory Learning and Action Community Hazard Assessment .................................................................................... 25 What is Community Hazard Assessment? Characteristics of hazards What are the steps in conducting community hazard assessment? Community Vulnerability Assessment ........................................................................ 36 How to conduct a Community Vulnerability Assessment Suggested PLA tools for vulnerability assessment How to facilitate Community Vulnerability Assessment

List of Acronyms ........................................................................................................... ivPreface ............................................................................................................................ viAcknowledgement ..................................................................................................... viiiAbout this book ............................................................................................................ ix

Community Capacity Assessment ................................................................................. 48 What is Capacity Assessment? What is the difference between Capacities and Capabilities? Building on what people have THE CIELO ProTEC: A Framework for Community Readiness Sequencing of tools for Capacity Assessment Suggested PLA tools for Capacity Assessment Capacity Assessment Form

Part 3: Contingency Planning ..................................................................................... 55 What is a Contingency Plan ............................................................................................. 56 What is contingency planning? Aims of the Contingency Planning Contingency planning in five simple steps When and How to Plan What –if scenario ............................................................................................................... 58 Action points System installed Roles and Responsibilities

Part 4: Community Managed Early Warning System ............................................ 64 What is Early Warning System? ..................................................................................... 65 The Early Warning System and its role in Disaster Preparedness .......................... 65 Basic Components of Community Managed Early Warning System ..................... 66 Basic Elements of a Community-Based Early Warning System .............................. 69 Steps in Establishing Community-Managed Early Warning Systems ................... 71

Part 5: Drills and Simulations .................................................................................... 79 What are Community Drills and Simulations? ........................................................... 80 Types of drill ...................................................................................................................... 82 How to Conduct Community Drills and Simulation ................................................. 83 Formation of control group, evaluators and documenters Reviewing the Contingency Plan, Evacuation Plan and Early Warning System Creating the community drill design and scenario Preparatory checklist for the community drill Activities on the day or a day before the drill Evaluation: Post-drill reflections with evaluators and community members

Part 6: Community Emergency Response Team ..................................................... 98 What is a Community Emergency Response Team (CERT)? ................... 99 Who are they? What are the Roles of CERT? CERT standards and protocols Limitations of CERT personnel CERT Roles during Emergencies CERT Training Contents: Preparing for Emergency Response .............................. 102 CERT Training in the US and as Adapted in the Philippine Context

Part 7: Community Managed Damage Assessment and Needs Analysis .........104

What is Community-Managed Damage Assessment Need Analysis? ..105 Why conduct DANA? What are the advantages DANA? What is the purpose of community–managed DANA? Practicing DANA in the village context ..................................................... 107 Establishing the baseline data 87 Establishing real-time data 87 Tools/Templates for the Conduct of DANA .............................................. 108 Terminologies ................................................................................................109

CA Capacity AssessmentCBO Community-Based OrganizationCCA Climate Change AdaptationCERT Community Emergency Response TeamCMDRR Community -Managed Disaster Risk ReductionCM-EWS Community-Managed Early Warning SystemCO CO Community OrganizationCSO Civil Society OrganizationDANA Damage Assessment and Needs AnalysisDFID Department of International DevelopmentDM Disaster ManagementDR Disaster RiskDRC Disaster Resilient CommunityDRR DRR Disaster Risk ReductionDRR Disaster Risk ReductionEMR Ecosystem Management and RestorationGIS Geographical Information SystemsHFA Hyogo Framework for ActionIFRC International Federation of Red CrossIIRR International Institute of Rural ReconstructionIPCC IPCC Intergovernmental Panel on Climate ChangeISDR International Strategy for Disaster ReductionLGU Local Government UnitMEA Millennium Ecosystem AssessmentNAPA National Adaptation Plans of ActionNDRRMC National Disaster Risk Reduction Management CouncilNGO Non-Government OrganizationPPAGASA Philippine Atmospheric, Geophysical and Astronomical Services AdministrationPDRA Participatory Disaster Risk AssessmentPHIVOCS Philippine Institute of Volcanology and SeismologyPLA Participatory Learning and Action

List of Acronyms

Guidebook on community disaster preparedness iv

PMEL Participatory Monitoring Evaluation and LearningPPMEL Participatory Planning, Monitoring, Evaluation and LearningPRA Participatory Rural AppraisalUNDP United nation Development ProgramUNFCCC United Nations Convention on Climate ChangeUNISDR United Nations International Strategy for Disaster Risk ReductionUSD United States DollarVCA Vulnerability Capacity AssessmentVCC Village Coordinating CouncilVDRRMC Village Disaster Risk Reduction Commiee WASH Water, Sanitation and Hygiene

Guidebook on community disaster preparedness v

PREFACEThe Asia and the Pacific region is considered to be the one of the most at risk regions in the world to the negative impacts of climate change. The region has high exposure to more intense climate-related hazards such as typhoons originating from the Pacific Ocean and intense rainfall that brings flood. The region’s economy is highly sensitive to climate change and its extremes as most of the poor populations depend on agriculture and fisheries. Asian cities are rapidly expanding bringing more stresses to the natural resources that serthe natural resources that serve as natural buffer areas for natural hazards.

Disaster risk reduction is defined by UNISDR as a concept and practice of reducing disaster risks through systematic efforts to analyze and manage the causes of disasters, including through reduced exposure to hazards, lessened vulnerability of people and property, wise management of land and the environment, and improved preparedness for adverse events. Disaster risk reduction and preparedness have gained prominence both in governments, civil societies and donors alike. There is a growing appreciationappreciation that sustainable development and poverty eradication will not be possible unless disaster risks are integrated into development strategies.

Over the past decade, huge strides in risk assessments, risk reduction planning and government action have been achieved. The current global policy on disaster risk reduction adopted in Sendai in 2015, recognizes the value and contribution of community-managed approaches to disaster risk reduction and preparedness.

ForFor the past 10 years, the International Institute of Rural Reconstruction (IIRR) has developed and advocated the practice of community-managed disaster risk reduction (CMDRR). It has worked with various local and international organizations in designing and implementing CMDRR programs in Asia and Africa, transforming vulnerable communities to become beer prepared and stronger in their abilities to bounce back post-disasters. For IIRR, CMDRR is not just about the implementing the processprocess of risk reduction (assessments, planning, action and evaluation), it is also a conscious, deliberate and purposive effort of organizing people to work together for a shared development path protected from risks. It is

Guidebook on community disaster preparedness vi

done with utmost care to facilitate capacity development to release and strengthen the inherent powers of people in acknowledging and acting on the disaster risks.

InIn 2014, Give2Asia and the International Institute of Rural Reconstruction (IIRR) have worked together in implemented regional program called the “NGO Disaster Preparedness Program (NGODPP)”. This program seeks to organize and strengthen a network of community-based nonprofits in Asia as well as international donors focused on disaster preparedness. Give2Asia has responded to 40 natural disasters in the Asia Pacific region during the past 10 years. Give2Asia’s strategy is to support recovery by partneringpartnering with local charitable groups based in affected communities and to engage in multi-year programs to support rebuilding, economic recovery, psychosocial programs and other unmet needs. Give2Asia reports back to donors on every dollar spent.

As part of the NGODPP, this guidebook is produced to provide practical guidelines and tools to local organizations in designing and implementing community-led disaster risk reduction and preparedness programs. The contents are collected from various sources including those of IIRR to come up with a compilation of easy to understand concepts and practical tools that local organizations can follow. IIRR and Give2Asia hope that this guidebook will enable effective programming among local NGOs in Asia. Asia. We hope that readers and users alike will find it relevant and in line with the needs and realities of our on-going efforts to develop local capacities for disaster risk reduction and preparedness.

Guidebook on community disaster preparedness vii

AcknowledgementsThis publication was made possible through the support of the following:

Guidebook on community disaster preparedness viii

About this bookThe target users of this book are local community-based organizations and national non-profit organizations in Asia. It features easy to understand language and offers more practical tools and steps to help target users facilitate community-led disaster preparedness. The guidebook provides the following major contents:

• Basic concepts about disaster preparedness•• The roles and how local organizations lead and facilitate community-led preparedness• Steps to conducting participatory disaster risk assessments• Steps to using information from risk assessments to formulate preparedness plans• Practical steps to designing local early warning systems and conducting drills and simulations

TheThe guidebook ends with instructions on conducting rapid post-disaster damage and needs assessments that will inform effective and timely delivery of emergency assistance immediately after a disaster.

WWe hope that you will find the contents of this guidebook useful and practical enough to provide concrete ideas for improving disaster preparedness work. Please do not hesitate to contact us on how we can improve the guidebook. With limited resources available, this book is only available in electronic form and can be downloaded online. With your inputs and feedback, we will improve this guidebook and hopefully will be printed and translated to various Asian languages in the future.

Guidebook on community disaster preparedness ix

Basic Concepts on Disaster Preparedness and the Role of the

CBOs

The aim of this section is to strengthen the skills, knowledge, and proficiency of community based organizations (CBO)

on Disaster Preparedness.

Part 1: Basic Concepts on Disaster Preparedness and the Role of CBOs

Part 1

1


Basic Concepts

Various terminologies in disaster risk reduction (DRR) have surfaced in recent years to convey the essence of different DRR concepts. Hence, standard definitions are needed to establish common understanding of the terms and concepts. This will enable full comprehension of discussions on Community Managed Disaster Risk Reduction (CMDRR).

DisasterDisaster

A disaster is a serious disruption of the functioning of society causing widespread human, material or environmental losses, which exceed the ability of the affected communities to cope using their own resources. It occurs when the negative effects of the hazards are not well-managed.1

AA disaster is a function of the risk process. It results from the combination of hazards, conditions of vulnerability, and insufficient capacity or measures to reduce the potential negative consequences of risk.

Disaster = hazard x vulnerability

Hazard

AA hazard is a potentially damaging physical event, phenomenon, or human activity that may cause the loss of life or injury, property damage, social and economic disruption, and/or environmental degradation.2

HazardsHazards can include latent conditions that may represent future threats and can have different origins: natural (geological, hydro-meteorological and biological) or induced by human processes (environmental degradation and technological hazards). Hazards can be single, sequential or combined in their origin and effects. Each hazard is characterized by its location, intensity, frequency, and probability.

Types of hazards

I. Natural HazardsI. Natural Hazards • Volcanic eruption Earthquake • Fires (selement/forest)

1 NDRMD final version2 IIRR, Building Resilient Communities Training manual on community Manage Disaster Risk Reduction, module 2

Basic concepts on disaster preparedness and the role of the CBOs 2

• Drought • Typhoon • Hurricane • Flood

II. Human Related Actions • Violence, war, and conflict • Deterioration of basic services/obstacles to realization of human rights • Famine • Failing of industrialize societies i.e. nuclear reactor meltdown, oil spills, offshore explosions, etc • Environmental degradation: flood, drought, food insecurity, insect infestation, fish kill

III. Climate Change DriIII. Climate Change Drivers/Hazards • Sea level rise • Increasing temperature • Changing rainfall paern and intensity • Extreme climate events i.e. stronger typhoon, frequent El Nino

Vulnerability

TheThe degree to which elements at risk (area, people, physical structures or economic assets) are exposed to hazard that causes loss injury or damage

Risk

Risk is the probability of harmful consequences or expected losses (deaths, injuries, property, livelihoods, economic activity disrupted or environment damaged) resulting from interactions between natural or human-induced hazards and vulnerable conditions.

Risk = Hazard x VulnerabilityRisk = Hazard x VulnerabilityCapacity


Capacity

Refers to individual and collective strength as well as the physical, social, economic and community resources that can be enhanced, mobilized and accessed by individuals and communities to reduce disaster risk. These include prevention, mitigation, “survivability” of the individual and readiness of the community.

Disaster Risk ReductionDisaster Risk Reduction

Disaster Risk Reduction (DRR) is the conceptual framework of elements considered with the possibilities to minimize vulnerabilities throughout a society, to avoid (prevention) or to limit (mitigation and preparedness) the adverse impacts of hazards, within the broad context of sustainable development.

Disaster Risk Management

DisasterDisaster Risk Management is the systematic process of using administrative decisions, organization, operational skills and capacities to implement policies, strategies, and coping capacities of the society and communities to lessen the impacts of natural hazards and related environmental and technological disasters.3

ItIt comprises all forms of activities, including structural and non-structural measures, to avoid (prevention) or to limit (mitigation and preparedness) adverse effects of hazards. Disaster Risk Management has two principles: • Protection of life is the first priority.• The second priority is to protect the properties and critical resources.

Mitigation and Prevention These are structural and non-structural measures undertaken to limit the adverse impact of natural hazards, environmental degradation, and technological hazards.

3 IIRR, Building Resilient Communities Training manual on community Manage Disaster Risk Reduction, module 2


MITIGATION (Avoidance)

What are community traditional contingencies for this disaster?

What actions can be taken to reduce the likelihood of the event? (if any)

MITIGATION (Structural)

Strong buildings & structures, Engineering measures, application of building codes

What current programs work towards mitigating risk?

WhatWhat can be done in advance of the event to diminish its impact?

Can we advocate for change before an event?

PREVENTION

What measures have occurred to prevent this disaster from occurring?

Source: Geo information for Disaster and Risk Management Examples and Best Practices


Preparedness

These are activities and measures taken in advance to ensure effective response to the impact of hazards, including the issuance of timely and effective early warnings and the temporary evacuation of people and property from threatened locations

Response

This is the provision of assistance or intervention during or immediately after a disaster to preserve life and provide basic subsistence needs of people affected. It can be of an immediate, short-term, or protracted duration.

PREPAREDNESSWhat can be done to prepare for the disaster?

What needs to be done to prepare for the disaster?

WhatWhat medium can be used to warn communities?

Have discussions with partners occurred and are MOUs in place?


RESPONSEWhat are the needs of the communities?

What are community’s capacities to respond?

What actions need to take place to reduce the impact of the disaster?



What is DISASTER

PREPAREDNESS?

implement warning systems, evacuation, rescue and relief; formulation of a disaster implementing plan or a counter-disaster plan; warning systems; stockpiling of supplies for immediate mobilization; emergency communications; training of volunteers; community drill and simulation exercises; and public education and awareness.

Disaster preparedness involves measures taken in anticipation of a disaster to ensure that appropriate and effective actions are taken in the aftermath. Preparedness means aempting to limit the impact of a disaster by structuring the response andand effecting a quick and orderly reaction to the disaster. Examples of preparedness measures are the formation and capability building of an organization to oversee and

!

Why should we prepare?

• Disasters are increasing. Climate change is expected to result to more frequent and severe hazards.4

4 IFRC DRR global advocacy guide


5 An Overview of Disaster Management (Department of Humanitarian Affairs/United Nations Disaster Relief Office - United Nations Development Programme , 1992, 136 p.)

Disaster Preparedness Framework

Vulnerability Assessment

Information Systems

Response Mechanisms

Planning Institutional Framework

Warning Systems

Rehearsals

Resource Base

Public Education and Training


1. Vulnerability Assessment

FundamentalFundamental to all aspects of disast¬er management is information. It is a point that may appear obvious, but it is frequently overlooked. A Village Disaster Officer may know that a particular geographic region or community is at risk to the impacts of sudden or slow-onset hazards. However, in reality, until a decision is made on organized ways to compile and assess information about disaster vulnerabilities, the Village Disaster official is and will be working in a void.

DeDeveloping and compiling vulnerability assessments is one way of approaching a systematic means of establishing an essential disaster management tool. There will be more on this subject in the next chapter.

2. Planning

ThroughoutThroughout all the activities designed to promote disaster preparedness, the ultimate objective is to have plans in place that are agreed upon, are implementable, and for which commitment and resources are relatively assured. The plan itself will haplan itself will have to address other points in the Disaster Preparedness Framework.


3. Institutional framework

4. Information systems

TheThe preparedness plan must have an information system. For slow onset disasters this should consist of a formalized data collection process, an early warning system (especially for regions prone to famine), and monitoring system to update the early warning information. For sudden onset disasters a similar system must be in place for prediction, warning, and evacuation communication.

A coordinated disaster preparedness and response system is a prerequisite to any disaster preparedness plan. Each system design will depend upon the traditions and governmental structure of the country under review. However, without ensuring that there is “horizontal coordination” at central government levels among ministries and specialized government bodies and “vertical coordination” between central and local authorities, a plan will rapidly disintegrate. This requires a a structure for decision-making, inter-ministerial commiees to coordinate the plan, focal points within each ministry to be responsible for the plan implementation and communication, as well as regional and community structures to implement the plan at the local level.

NATIONAL ASSISTANCE ORGANIZATION

NATIONAL DISASTERCOMMITEE

PERMANENTSTAFF

OPERATIONSSECTION

PLANNING AND RESEARCH SECTION

REGIONAL AND LOCAL

ORGANIZATIONS


5. Resource base

TheThe requirements to meet an emergency situation will clearly depend upon the types of hazards the plan anticipates. Such requirements should be made explicit and should cover all aspects of disaster relief and recovery implementation. The range of relief requirements is extensive to put in this guidebook, but this list indicates some of the major requirements:

• shelter • medicines • food • supplementary food • communications systems • logistics systems • relief workers • clearance equipment

6. Warning Systems

ForFor most types of rapid onset disasters, a warning system can save many lives. By giving a vulnerable population adequate notice of an impending disaster, they can either escape the event or take precautions to reduce the dangers. However, you must assume that functioning communications systems, such as telephones and telexes, may not be available in times of a major disaster. Begin to plan a warning system around that assumption. Consider what type of communications equipment will be needed and sustainablesustainable if power lines and receiving stations are destroyed. Preparedness plans should include provisions for access to alternative communication systems among police, military, and government networks.

Warning is also critical for slow onset disasters and population displacements. In this case, it is called early warning and has to do with information and its distribution regarding either:

• Giving timely notice of an impending world crisis in the supply of food; or • Making ready for or preventing forced migrations of people.


7. Response mechanisms

The plan’s ultimate test is the effectiveness of response to warnings and disaster impacts. At a certain stage in the warning process, various responses will have to be mobilized. The staging of responses becomes an essential factor in designing a preparedness plan.

8. Public education and training

TheThe focus of a disaster preparedness plan should be to anticipate, to the extent possible, the types of requirements needed for action or responses to warnings and a disaster relief operation. The plan should also specify the most effective ways of ensuring that such requirements are met. Yet, the process will only be effective if those who are the ultimate beneficiaries know what to do in times of disasters and know what to expect. For this reason, an essential part of a disaster preparedness plan is the education ofof those who may be threatened by disaster. Such education takes many forms, such as:

• Public education in schools for children and young adults, emphasizing what actions should be taken in case of a disaster threat (for example, earthquake tremors;

• Special training courses, designed for an adult population either specifically or as an extra dimension of on-going programs such as Preventive Health Care or Maternal and Child Health programs;

• Extension programs, in which community and village-based extension workers are instructed to provide relevant information and trained for the tasks they should undertake during the event;

•• Public information disseminated through mass media, be it television, radio or the printed word, will never really replace the impact of direct instruction. However, if sensitively designed and presented, mass media may provide a useful supplement to the overall educational process.


9. Rehearsals (drills)

As military drills cannot fully portray the reality of bale, neither can disaster preparedness rehearsals portray the full dynamics - and potential chaos - of a disaster relief operation. However, that fact should provide no excuse for avoiding the need to rehearse the disaster preparednesspreparedness plan. Not only will rehearsals reemphasize points made in separate training programmes, but they will also test the system as a whole and, invariably, reveal gaps that otherwise might be overlooked.

India earthquake drill: New Delhi stages disaster scenes School children

practicing an earthquake safety drill. From Nature on the RampagePhoto by Paul Chesley

As military drills cannot fully portray the reality of bale, neither can disaster preparedness rehearsals portray the full dynamics - and potential chaos - of a disaster relief operation. However, that fact should provide no excuse for avoiding the need to rehearse the disaster preparedness plan. Not only will rehearsals reemphasize points made in separate training programmes, but they will also test the system as a whole and, invariably, reveal gaps that otherwise might be overlooked.

Engaging Communities for Disaster preparedness

• One of the key challenges for preparedness is to show that DRR is both effective and cost-efficient • • The art of preparation lies in persuasion not in confrontation.• Ownership of the communities • Mentoring local communities

Developing Effecve Disaster

Preparedness Strategies


For the preparation to be effective we need to:

• Know who we should ask to do what, where, when and how and these can only be determined with the community.• Determine the capacities that the community have • What extra support does the community they need?•• Like any other activity, DRR preparedness is more effective when it is planned in partnership with the community to promote more on community ownership

Foundaon of Safety and DRR

Measures: Building Resilient Communies

Building resilient communities, therefore, means ensuring the enjoyment of basic rights: from the right to life to the right to access resources. It means ensuring safety by reducing the risks that people face particularly the

vulnerable sectors of society. It means awareness and implementation of measures.

For example, the effective delivery of basic services such as immunization against diseases or access to adequate food is basic in enhancing natural resistance. Its absence results in weakened communities and inability to cope with hazards.

Recognition of the inherent dignity and the equal and inalienable rights of all members of the human family is the foundation of freedom, justice and peace in the world. This realization is the basic foundation of safety.


DisregardDisregard and contempt for human rights as a foundation of safety have resulted in homelessness, abuse, neglect, affliction of preventable diseases, unequal access to education, and ineffectual justice systems. When hazard strikes, those who least enjoy human rights are the weakest and find it hard to survive, transforming the hazard event into a disaster. Building people’s capacity to reduce their vulnerability to a hazard are the elements that comprise DRR measures.

Disaster happens when the foundation of safety is weak and DRR measures are not in place. Even if there are efforts to assert the enjoyment of human rights and enhance the foundation for safety, DRR measures are necessary to fully aain resilience against any eventuality. DRR is a framework and a tool that determines the degree of risk and describes measures to increase capacities and reduce hazard impact on the elements at risk so as to avert disaster.

A community-based organization is a group of individuals organized by and for a particular community of people based on shared interests and/or aributes. The community could be defined geographically (e.g. a neighborhood), could contain members from diverse backgrounds, and/or could be defined on the basis of something like religious beliefs or a shared condition. Members may include various stakeholders, such as the public, elected officials, advocacy groups, and business leaders.

AA community-based organization focuses on issues and concerns at the local level (e.g. neighborhood, layperson, city, county), not on a national scale. They are often organized around a particular purpose or cause and

What are Community Based Organizaons (CBOs)?


tend to be grass roots in nature, working from the ground level upward to address issues. Community-based organizations may also participate in regional coalitions with similar groups in support of an issue such as affordable housing, water quality, or connection of open space.

Community-basedCommunity-based organizations use a number of names to describe themselves, including association, alliance, and commission. Many community-based organizations will hold regular meetings for a specific period of time where they discuss the issues of common concern. Participation on community-based organizations is generally voluntary and open to any individuals with interest in the particular issue.

Community-basedCommunity-based organizations work directly with the public and are aware of their basic goals, needs, issues, and concerns. If the public has an issue that needs to be addressed, more people would tend to go to the local level for assistance than a regional, state, or national level. In addition, the public may trust representatives from a community-based organization more than someone from a transportation agency. Community-based organizations provide a common visible entity with whichwhich community members can identify and rally around community issues as a unit. They also give “outsiders” or “supporters” a venue with which to participate in community issues in an organized fashion. Because community-based groups are created by the public; they can exhibit power in numbers and have strong credibility and standing and well-developed connections within the community.

Strengths of CBOs in disaster preparedness

• Have permanent presence in the community •• Work is sustainable because the staff live in the community and are familiar with its problems and needs. They have the support of their families and can easily engage with their neighbors.


• Work in a natural context where opportunities can be explored. CBOs are flexible and adaptable due to their capability of using grassroots approaches, mobilizing community members, and reaching the rural, marginalized, and politically disenfranchised population. • Have solid networks with the private and public sectors. CBOs have unique strengths that donors and larger NGOs often lack, such as deep contextual knowledge and language skills. •• Resources of CBOs are embedded in the communities they serve. Therefore, they are well suited to assess and respond to local needs on a long-term basis and contribute to community services, development, and disaster preparation. Most CBOs arise in direct response to needs within the local community. They come into existence to mobilize local resources.

Strengths of the local government in Disaster preparedness

•• Has technical expertise not only on DRR preparation but also in DRR implementation. • Has access to proper DRR equipment and personnel are trained how to use, safe keep, and procure the necessary equipment. • Has experienced staff capable of assisting in the planning and implementation of DRR preparedness. •• Can easily authorize/designate the staff to look over for the DRR project preparation and implementation. • Has a capacity gain access to and ability to handle funding for the security and sustainability of the project.

CBOs have a role to play in disaster preparedness • CBOs, as well as the governments, should be responsible for reducing risk.•• CBOs should be careful to avoid creating hazards and making locals more vulnerable to disasters. • Successful reduction of disasters requires the involvement and commitment of both the public and private sectors. • The evolving idea of CBOs provides good basis to encourage the government in fulfilling sustainable development goals.


• When government fails to fulfil its duty to its citizens, CBOs have a legitimate right and responsibility to hold the government accountable.• Good government policies are based on experience and knowledge gained from successful and unsuccessful activities. CBOs and NGOs have a wealth of experience in project implementation and working with communities that should be shared. •• CBOs and Civil Society Organizations (CSOs) can enable the voices of poor people to be heard by those in power.

• CBOs, as well as the governments, should be responsible for reducing risk.• CBOs should be careful to avoid creating hazards and making locals more vulnerable to disasters.

• Successful reduction of disasters requires the involvement and commitment of both the public and private sectors. • The evolving idea of CBOs provides good basis to encourage the government in fulfilling sustainable development goals. • When government fails to fulfil its duty to its citizens, CBOs have a legitimate right and responsibility to hold the government accountable.•• Good government policiest are based on experience and knowledge gained from successful and unsuccessful activities. CBOs and NGOs have a wealth of experience in project implementation and working with communities that should be shared. • CBOs and Civil Society Organizations (CSOs) can enable the voices of poor people to be heard by those in power.

WhenWhen CBOs are doing disaster preparedness, the following key messages need to be presented:

• Vulnerable community members, such as the poor, elderly, and children, must be the primary concern. • Solutions that are imposed are rarely sustainable.• The people themselves know the risks they face.

CBOs have a role to play in

disaster preparedness


Step 1:

Identifying and understanding Disaster Risk of the CBO

•• Using participatory tools such as Participatory Disaster Risk Analysis (PDRA) to allow the community identify the issues that are prevalent in their communities. (For examples of PDRA tools, see Unit III.) Unit III.)• Linking vulnerability and capacity assessments or risk assessments to disaster risk reduction lead to knowledge-sharing and wider perspectives. • Using the results to persuade relevant stakeholders of the need for disaster risk reduction interventions.•• Taking community voices (captured in the assessment process) to a different level of decision-making. •• Engaging local partners and other organizations to work together using information gained from the assessment process to build persuasive preparedness messages.

• Conducting vulnerability and capacity assessments with different agencies to learn about advocacy issues together, build relationships, and share skills to improve effectiveness.

Step 2: Step 2:

Develop preparedness plans

• Determine anticipated needs • Develop protocols and roles of each CBO’s member • Set up an effective communication •• Prepositioned system needed supply

Step 3:

Practice your plan

• Conduct community activities such as community drill or simulations drill. •• Share the preparedness protocol • To other staff and member of the CBO’s

Step 4:

Evaluate and improve

•• Have regular evaluation and assessment of the preparedness plan • Revive into integrated lesson

How can CBOs effecvely prepare

for DRR?


Working in partnership

Methods of preparedness that CBOs could use

• Partnership is a relationship between two people or groups, which exists for a common purpose. The groups enter a partnership because they can achieve more together and can fulfil a purpose more efficiently.

• True partnership does not involve exploitation. Both partners have something to offer to the relationship and something to gain from it.

• Networking

ThisThis occurs at a variety of levels. At the level of CBOs, it is a maer of creating shared relationships with other members of the community. This requires diverse community members to build relationships, share resources, and work together in an organized way for social change. It involves meeting and geing to know people whom you can assist and who can potentially help you in return..•• Lobbying

It is a form of advocacy where individuals and CBOs intend to influence decisions made by government officials, community members, and other stakeholders.

• Raising awareness

AA function of CBOs that focuses on providing information about DRR preparedness, influencing stakeholders to allocate some of their resources, and creating community support and partnerships to decrease the impact of disasters in the community.


• Mobilizing

This involves CBOs convening and facilitating community members, local government units, and other stakeholders in identifying and solving disaster problems. It draws upon a full range of potential human and material resources to achieve community disaster risk preparedness.

Key Message: The commitment of CBO leaders to the change process is critical. process is critical. Without this, no amount of facilitation will help.

Different organizations have different types and depths of relationships with the local government:

• Have no contacts with the local government;• Have contacts with the local government but only in raising funds; and• Involved in other activities such as consultation in various community issues and volunteer projects.

Se ng up partnerships

can take years to be built up and become

PARTNERSHIP MEANINGFUL

REWARDING &FRUITFULPARTNERSHIP is difficult at times

but can be


Facilitang Community Risk Assessment

Part 2

22


What is PARTICIPATORY

RISK ASSESSMENT?

What is the AIM OF PDRA?

Parcipatory Risk Assessment Participatory disaster risk assessment (PDRA) is the process of identifying and assessing the characteristics of hazards, degree of vulnerabilities, and capacities

PDRA aims to thoroughly understand and be aware of hazards, vulnerabilities, capacities, and degree of risk.

of elements at risk as well as the community to survive and bounce back from a hazard event. It involves identifying the elements at risk based on their degree of exposure and analyzing the relationship among three variables: hazard, vulnerability, and capacity.

It is a reflective thought process among community members leading towards formation of communities and organizations that will plan, implement, and evaluate disaster risk reduction (DRR) and climate change adaptation (CCA) measures in the community.

Risk assessment becomes participatory if the community itself assesses and analyzes these three variables using participatory learning and action tools.

Risk assessment reminders:

• Perception of risk in the community is important to enable the community members to have common DRR and CCA measures where full community participation is required. • DRR and CCA measures must be able to build the capacities of both men and women. • DRR and CCA measures must be able to respond appropriately to the needs of the community members across age, gender, and sector.

PDRA uses the formula:

Disaster Risk = Hazard x Vulnerability Capacity

Facilitang community risk assessment 23

Steps in conducting Participatory Disaster Risk Assessment

Step 1: Understanding of current situation

Needs and gaps are identified to Needs and gaps are identified to assess what already exists, avoid duplication of efforts, and build on existing information and capacities. This is done through a systematic inventory and evaluation of existing risk assessment studies, aassessment studies, available data and information, and current institutional framework and capabilities

Step 2: Hazard assessment

To identify the nature, location, intensity and likelihood of major hazards prevailing in a community or society.

Step 3: Exposure assessment

To identify population and assets To identify population and assets at risk and delineate disaster prone areas.

Step 4: Vulnerability analysis

To determine the capacity (or lack of it) of elements at risk to withstand the given hazard scenarios.

Step 5: Step 5: Loss/impact analysis

To estimate potential losses of exposed population, property, services, livelihoods and environment, and assess their potential impacts on society.

Step 6: Step 6: Risk profiling and evaluation

To identify cost-effective risk reduction options in terms of the socio-economic concerns of a society and its capacity for risk reduction.

Step 7: Step 7: Formulation or revision of DRR To deTo develop strategies and action plans that includes seing priorities, allocating resources (financial or human) and initiating DRR programmes.


What is PARTICIPATORY LEARNING AND

ACTION ?

• Participatory learning and action (PLA) combines various approaches and methods that enable local people to share, enhance, and analyze their knowledge of life and conditions to plan and act.

What is COMMUNITY

HAZARD ASSESSMENT?

Community hazard Assessment refers to the community defining the threats and understands the nature and behavior of particular hazards. The assessment brings out information on the characteristics of hazards, specifically, the hazard force, warning signs and signals, forewarning, speed of onset, frequency, period of occurrence and duration.

• The tools used are community friendly because of the use of visual and other learning aids that encourage community involvement and engagement for learning, decision-making and action. PLA tools are used in conducting hazard, vulnerability, and capacity assessments.

• PLA is also known as participatory rural appraisal or PRA.

Community Hazard Assessment


Characteristics of hazards

1. Force is the power that is produced when something moves.2. Warning signs and signals refer to the official warning system for the hazard or may be a local system or indigenous warning system followed by the community.3.3. Forewarning is the time gap or lead time between having the first information of an oncoming hazard to actual occurrence.4. Speed of onset refers to rapid or slow arrival of a hazard.5. Frequency refers to how often does the hazard strike or occur in the community. 6. Period of occurrence is the months, seasons, or periods when a hazard is most likely to occur.7.7. Duration refers to how long it usually takes for a hazard to happen.

In characterizing the hazard, it is important to capture where those characteristics of hazard have been the same for the past 30 years. This is important to determine whether climate change has enhance the frequency and severity of hydro meteorological hazard


What are the steps in conducting community hazard assessment?

1. Identification

Assessment of disaster risk is hazard-specific although many hazards interact and, in some cases, act as trigger for another hazard. The assessment should begin with the identification of prevalent hazards in the community.

2.2. Prioritization

After the community has identified the prevalent hazards, it is necessary to identify the most important ones for further assessment. At this stage, the community develops the criteria to be used in comparing and ranking the various hazards. Based on the ranking, the most important ones are selected for further analysis.

3. Characterization

TheThe prioritized hazards are analyzed further to establish their characteristics, such as their causes, effects, warning signs and signals, force, period of occurrence, duration, and frequency.


Suggested PLA tools for hazard assessment

PRA Tools Proposes Application/s (Other)

Alternative Method/s

Problem Tree(See Figure 3)

To enable the community to identify the hazards and its effects on community life as well as the environment. Very easy to apply, this easy to apply, this tool enables community members to analyze the factors that catalyze a hazard and the forces of a hazard that will affect them.that will affect them.

Hazard Assessment

Capacity Assessment

Identifying “Cause” and “Origin” of hazards

“Direct cause” and “direct impacts” of hazard

Scoring matrix(See Tables 1 and 2)

Mapping (Hazard)(See Figure 4)

After the community has identified the common hazards in the area, it is important for its members to identify the most important ones for further ones for further assessment. The scoring matrix can be used for this purpose.

Helps community members identify the common hazards in the community. The participants can also use the map to mark areas where the hazard has been hazard has been experienced.

Hazard Assessment (Hazard Ranking) Disaster Risk Assessment

Hazard assessment Vulnerability assessment

Capacity assessment

Contingency plan

Pair wise ranking

Community members Community members compare any two hazards and agree on which of the two is more important. The number of times a hazard is deemed more important than more important than another hazard is counted. The higher the number of times a hazard is preferred over the others, the higher its importance.





Venn diagram(See Figure 5)

The purpose of this tool is to enable the community to identify different agencies or individuals that provide DRR services and services and assistance to the community as well as their influence effectiveness and relationship. A Venn diagram allows the participants to participants to identify the organizations or actors that are working in the community and to analyze their importance to the importance to the influence on the life of community. Again participants use their own criteria to determine effective and ineffective services and actors.services and actors.

Hazard Assessment

Capacity Assessment

Can be used to identify DRR actors

Story telling (See Figure 7)

The main purpose of the tool is to enable community participants to identify the behavior (characteristics) of a hazard in terms of 1. Warning signs and Warning signs and signals, 2. Fore warning 3. Speed of onset 4. Frequency 5. Period of occurrence 6. Duration.

Hazard Assessment (Hazard Characterization)





Historical Transect walk (See Figure 7)

This tools enable community participants to identify and analyze both human and non human elements at risk is used to depict how hazard is depict how hazard is affected resources in the community through the years and its negative impact on the lives of the community .Transect is also good tool for building raport with the members of the community and for studying the physical aributes of the locality direct the locality direct observation

Historical Timeline(See Tables 3 and 4)

Outlines the chronological description of significant events in the community such as major disasters; socio-economic, political and cultural political and cultural events and development; changes on landscapes; good and negative impacts of disasters; and coping capacities coping capacities and mechanisms of the community. It also establishes trends, paerns of events, hazards, and baseline of community impacts community impacts of disaster.

Hazard Assessment (Hazard Characterization)

Facilitang community risk assessment30

EFFECTS

CAUSES

Figure 3 Example of a problem tree

Table 1 Hazard Assessment Matrix


Probability

Certain

Likely Possible Unlikely

The hazard is known to occur often (at least twice a year).

The hazard may occur every one or two years.

The hazard may occur once every 5 to 10 years.

The hazard is not expected to happen, perhaps only once in 50 to 100 years.

Table 2 Hazard assessment risk rating

Level of Degree Indicator

Low risk

Medium risk

High risk

HVC: Hazard is present, vulnerability is low and capacity is high

HVC or HVC: Hazard is present, and vulnerability and capacity are both low or both high.

HVC: Hazard is present, vulnerability is high and capacity is low.

Consequences/Impact

Minor

Moderate

Major

Disastrous

Catastrophic

No deaths or injuries; negligible damage

Few injuries; some damages to the school building or other facilities & livelihood

Some injuries; few fatalities; significant damage to school buildings & other facilities and livelihood

Many injuries; some fatalities; serious and significant damage to school Many injuries; some fatalities; serious and significant damage to school buildings & other facilities & livelihood

An overwhelming number of injured people; many fatalities; almost all school buildings/ facilities destroyed& livelihood


Figure 4 Hazard map of a coastal community in the Philippines

Figure 5 Venn diagram

Community

Private Institution

NationalGovernment

Catholic Mision

Market

NGO

BUSAA

GAA


Figure 6 Story telling

Figure 7 Historical Transect Walk

BEFORE AFTER

Table 3 Historical Timeline

Event When Effect/Impact Acton done after the event

EARTHQUAKE

CONFLICT BETWEEN

GOVERNMENTSOLDIERS AND REBELS

1968

1976

1200 individuals diedBarangay hall collapsedNo electricity & water for6 months

367 civilians diedCommunities wereevacuated Agricultural farms were destroyed as result of strafing

National governmenthelped; people weregiven food ration

People evacuated tonearby villages;


Event When Effect/Impact Acton done after the event

FIRE

LANDSLIDE

1964

1999

Health center and 68houses burned

509 houses destroyed1334 lives lost Roads destroyed. Some gardens were damaged.

Temporary shelterprovided by Municipalgovernment; healthcenter re-built after 2 years

Search and rescue bythe military, Municipalgovernment sentbulldozers

LANDSLIDE 1999 10 houses destroyed 54 lives lost

Barangay councilprovided evacuation sitefor affected families;Municipal governmentreinforced concrete riprap

Table 4 Sample of Template for Historical timeline for Assessment

1944

1951

1954

1957

1960

1980

19871987

1989

First ten families sele in the community

Construction of the train road and presence of 20 railroad workers

Train station workers lived in the village. Main railroad station was donated to the community and became school.

Fire in the community destroyed two houses. The church was built with the support of community.

WWater system providing portable water to one-third of the population was constructed accounting for about 200 houses in the community. Electricity coverage was extended to half of the population.

Paved road linked to main highway.

Earthquake destroyed many houses and services.

A clinic for 30 beds was inaugurated.


Characteristics of Hazard

Elements of Characteristic of Hazard

Analytical Description of Hazard

Exposure Variables

Cause / Origin

Force

Warning signs and signals

Forewarning

Speed of onset

Frequency

Period of occurence

Duration

How will it affect me?

How will it affect my community?

Figure 8 Hazard Assessment Form

How to conduct a COMMUNITY

VULNERABILITY ASSESSMENT?

Community Vulnerability AssessmentCommunity vulnerability assessment is the process of determining the susceptibility of people, facilities and services, livelihood, assets and economic activities, natural resources and environment, resources and environment,

organizations and systems in the communtity to various hazards. It identifies who and what groups and assets in the community are most at risk.


Table 5 Sample of vulnerability matrix by location

Table 6 Sample of ranking and scoring tool for vulnerable groups

Figure 9 Resource Map


How to facilitate COMMUNITY

VULNERABILITY ASSESSMENT?

Activity 1: Brainstorming on the condition of the Vulnerability

1.1. Link this session to the previous one by explaining that hazard is one of the three variables that has to be assessed when measuring disaster risk. The second is Vulnerability while the third, Capacity, will be discussed in the next session.discussed in the next session.

2. Ask participants what they understand by the word “vulnerability” and list down their responses on a flip chart paper. Take as many responses as possible for about 10 minutes.

3. Summarize their responses and explain the following: Vulnerability is the degree of exposure of elements (people or things) at risk to the hazard. People’s lives and health are usually directly at risk from the destructidestructive effects of the hazard. Their livelihood may also be at risk because of the destruction of assets they depend on, e.g. buildings, crops, livestock or equipment.

Activity 2: Input the vulnerability

1.1. Ask the participants: Given the initial discussion on vulnerability, what are the factors that affect vulnerability? Point out the differences and similarities in their responses. Explain that Vulnerability is a complex concept and people complex concept and people often get confused and misuse the term a lot.

2. Draw a rock rolling down the slope of a hill and a person standing at the boom. Explain that because of the falling rock, the man is an element at risk. He is vulnerable because he is on the path of the rock (location), thus exposed to the falling rock exposed to the falling rock (hazard). However, if he decides to move far away (capacity) from the rock’s path (location), he will no longer be vulnerable.


Activity 3. Group work on vulnerability assessment

1.1. Ask participants to refer to suggested list of PLA tools below for data collection in vulnerability assessment. Take time for each of the groups to understand what data could be collected with each of the tools.2.2. Ask them to suggest more tools if any.

3. Distribute the Vulnerability Assessment Exercise Form and explain the various fields in the form. Allow for questions to clarify any confusion.

3. Give input on the two ways of viewing Vulnerability, referring to the A achment

4.4. Ask participants to use the output of the Hazard assessment exercise in the previous session to assess the vulnerability of the element at risk. Allot 30 minutes for the group work, after which they will report back to the plenary, using flip chart papers.plenary, using flip chart papers.

5. Let the Responsible teams facilitate the plenary reporting and discussions. The facilitator may now focus on noting the key points presented by each group.

6.6. Wrap up the activity.


Two Ways of Viewing Vulnerability

1. Vulnerability as the condition of the element at risk.

Vulnerability here is defined is “a set of prevailing or consequential conditions, which adversely affect the community’s ability to prevent, mitigate, prepare for or respond to hazard events” (Anderson and Woodrow, 1989).

TheThe International Strategy for Disaster Reduction (ISDR), which uses this definition, states that these conditions are determined by physical, social, economic and environmental factors or process, which increase the susceptibility of a community to the impact of a hazard.

The above definition can be represented by the following mathematical formulas:

Vulnerability = unsafe conditions (which could be physical, economic, social, behavioral and environmental)

Degree of Vulnerability = ideal safe conditions – (minus) existing unsafe conditions

The figure below demonstrates this assumption:


The gaps between the ideal and unsafe condition of the element at risk determine the degree of exposure to the hazard’s impact – or what is considered under this paradigm as the degree of vulnerability. This means the rich and the poor, although living in the same location, have different degrees of vulnerability because they have different socio-economic and political status.

InIn measuring disaster risk based on the above assumption, the mathematical presentation is:

Disaster Risk = Hazard x Vulnerability

Here, Capacity is subsumed by Vulnerability.

With the assumption that vulnerability is the condition of the element at risk, categorizing or grouping vulnerabilities soon came about. Andrew Maskarey grouped vulnerabilities into the following categories:

On the other hand, Anderson and Woodrow (1989) grouped them into three broad interrelated categories: physical/material, social/organizational and motivational/aitudinal. Below are some examples of vulnerabilities based on this grouping:


2. Vulnerability as the unsafe location of the element at risk

Vulnerability based on unsafe location refers to the “degree to which an area, people, physical structures or economic assets are exposed to loss, injury or damage caused by the impact of a hazard.”

This definition asserts vulnerability as equivalent to location and can be represented in this mathematical formula:

Vulnerability = the location of element at risk vis-a-vis the hazard Vulnerability = the location of element at risk vis-a-vis the hazard (considering other factors like slopes)

Degree of Vulnerability = Location of the element at risk Distance and Time


The figure below demonstrates this assumption:

The location of the element at risk (the rich and poor houses) determines the degree of exposures to hazard or the degree of vulnerability. This shows that whether rich or poor, all persons living in the same location have equal degrees of vulnerability to the impact of the hazard. Under this assumption, the socio-economic status has no bearing on the degree of vulnerability. Thus, vulnerability refers mainly to the location of element at risk and this becomes the main determinant in the degree of exposure to the hazard’s impact.the hazard’s impact.

In measuring disaster risk based on the above assumption, the mathematical representation is:

Disaster Risk = Hazard x vulnerability Capacity

Here, capacity is recognized as a separate variable and subsumed neither by hazard nor vulnerability. Capacities can be categorized under the following: Prevention, Mitigation, Survivability and Readiness.


The major strength of this view is that it allows Vulnerability to be determined by the most constant element disaster risk – the location of the element at risk in relation to the hazard. At the same time, it also gives weight to the economic, social and cultural conditions which are viewed not merely as negative factors that increase vulnerability but as elements that increase or decrease the capacity to cope with the hazard’s impact. (Note: A more detailed discussion of capacity will be provided in the next session.)session.)

It must also be stressed that vulnerability under this assumption is hazard specific. Thus, calculating the degree of vulnerability should always be made in relation to the hazard.

Meanwhile, community vulnerability assessment is defined as the process of determining the susceptibility to various hazards of the elements at risk in the community.

The differences between the two perspectives on vulnerability and their implications are summarized in the table below:


Take note that the second view allows a more systematic and quantifiable measurement of the degree of vulnerability while still taking into account the social, economic, political, geophysical and technological conditions under capacities which are considered as one unit of analysis.

CapacitiesCapacities here are analyzed as the interaction of the resources and access to these resources by the people at risk as well as the over-arching systems and structures of a society – all these decrease or increase the capacity of the people at risk to confront the degree of vulnerability and behavior of a hazard.

Sequencing of tools for Vulnerability Assessment

JustJust like in hazard assessment, the vulnerability assessment also needs to be done systematically. The steps are:

1. Identification of the elements at risk in relation to hazard. It is important to identify both human and non-human elements at risk.

2. For the human elements, identify the various categories of populations at risk and establish their levels of vulnerability.

3.3. Establish the main causes of vulnerability for different categories and identify the major causes for DRR focus.


Vulnerability Assessment Form

Note

• X, Y and Z mark the distance of the location of the element at risk from the epicenter of the hazard., during the actual assessment with the target community, it will be replace by the actual measures like meters, kilometers, acres and hectares.

•• <greater than or equal to : <greater than> less than or equal to and less than to >


Sample of Vulnerability Assessment Flood hazard in Jari Watershed, Amhara Region

Summary of the Vulnerability Assessment


Vulnerability assessment of the community shows that 2,571 (or 60%) of the people living within 500 meter from the center of the flood discharge canal are highly vulnerable to flood hazard.

Non-humanNon-human elements – including 398 hectares of farmland, 12 hectares of grazing land, 1,811 cale, 72 camels, 272 sheeps, 734 goats; and critical facilities such as a school, 12 km roads, five potable water schemes and five ponds found within the 500 meters – are all highly vulnerable to flood hazard. Nearly 25% of the people and critical facilities found between 500 and 700 meters have medium-level vulnerability compared to people living out of this range.

Community Capacity Assessment

What is CAPACITY

ASSESSMENT?• International Strategy for Disaster Reduction (ISDR) refers to capacities as a combination of all the strength and resources available within a community, society or community, society or organization that can help reduce the level of risks or the effects of a disaster.

• Similar definition of capacities are strengths and resources, which exist or are present in individuals, households and the community –enabling them to cope with, withstand, prepare for, prevent, mitigate, or quickly recover from a disaster.


Vulnerability assessment of the community shows that 2,571 (or 60%) of the people living within 500 meter from the center of the flood discharge canal are highly vulnerable to flood hazard.

Non-humanNon-human elements – including 398 hectares of farmland, 12 hectares of grazing land, 1,811 cale, 72 camels, 272 sheeps, 734 goats; and critical facilities such as a school, 12 km roads, five potable water schemes and five ponds found within the 500 meters – are all highly vulnerable to flood hazard. Nearly 25% of the people and critical facilities found between 500 and 700 meters have medium-level vulnerability compared to people living out of this range.

What is the DIFFERENCE BETWEEN

CAPACITIES AND CAPABILITIES?

• Development NGOs involved in disaster-related work have different ways of categorizing capacities. Many treat capacity as synonymous with resources. Anderson and Woodrow (1989) have three categories: social, physical and categories: social, physical and motivational.

• The Department of International Development (DFID) considers it under sustainable livelihood framework as human, social, natural, financial and physical capitals; in economic terms, it is land, labor and capital. Dr. Y. C. James Yen, founder of the International Institute of Rural Reconstruction (IIRR) called it the “3 T’s” which stands for Time, Talent and Treasures.•• Capacities in the context of disaster risk reduction are analyzed as the interaction of forces of resources and the access to these resources by the different risk groups and the overarching systems and structures in society that decrease or increase capacities to face hazards. Because the behavior of a hazard and degree of vulnerability determine the capacity needed to reduce disaster risk, capacities should be analyzed in relation to the hazard and vulnerability. vulnerability.


� During capacity assessment it is advisable to refer to the resiliency-building framework. While considering the framework it is possible to see existing and required capacities and the capacity gaps of individuals, communities, and the overall ecosystem for prevention, mitigation, survivability and community readiness. (Refer to the session on resiliency building within the CMDRR approach.)

WWithin the CMDRR approach, capacities are categorized as follows:

Building on what people have

• Each individual, community, society or nation has latent capacities and these have to be tapped in order to increase the resiliency of the


individual and the community. Efforts should aim to develop coping capacities of the individuals and the communities, and the organizations to develop resilience from any type of hazard.

•• Communities over time have been able to mobilize resources to cushion themselves against adverse effects of particular hazards. In the process of facilitating the capacity assessment, it is important for the community to reflect on their socio/resource map and be able to identify the location of particular resources that can be accessed to cope with the hazard.

THE CIELO ProTEC: A Framework for Community Readiness

AA disaster is viewed as a “social construct,” which means that it is a result of individual and community systems and structures. In the DRR formula, risk is a function of not only the hazard event but also of vulnerability and capacity. The last two variables are in the control of people and societies. Therefore, to stop or reduce the possibility of a disaster happening, people and communities have to possess the capacities for them to absorb, transform and bounce back from the hazard event.

CMDRRCMDRR looks at 4 categories of capacities: hazard prevention, mitigation, individual survivability, and community readiness. The “CIELO ProTEC System” is a framework that seeks to understand in detail the capacity related to community readiness.

THE CIELO ProTEC framework is further defined in terms of:

1. Systems and structures, which refer to the ways and means that the community copes from a hazard they are exposed to; and

2.2. Tools, equipment and accessories (TEA), which are the physical implements and materials that the community needs to cope beer with the hazard event.


Below are the important systems and structures and TEA that the community needs to analyze during the conduct of the capacity assessment:


Sequencing of tools for Capacity Assessment

i. Identify the existing capacities, the required capacities and the gap between the existingand required capacities that help the community to address the hazard before it strikes(capacities that prevent the hazard, capacities that mitigate or reduce impact of hazard)

ii.ii. Identify existing capacities, the required capacities and the gap between the existing and the required capacities that help the community address vulnerability before and after the hazard strikes (capacities that enhance individual survivability, capacities that enhance community readiness)

iii. Summarize the assessment result in the capacity assessment form.

Suggested PLA tools for Capacity Assessment

Social and Resource map Venn Diagram Experiences Stories Individual and Community Capacity matrix

Capacity Assessment Form

Note: When carrying out survivability assessment all elements at risk assessed for level of vulnerability during the vulnerability assessment should be considered here.


Note: Capacity assessment concludes with gaps from prevention, mitigation, individual survivability and community readiness. This will be the starting point for planning on how to address the gaps.


Conngency Planning

Part 3

55


What is a CONTINGENCY

PLAN?

What isCONTINGENCY PLANNING?

Conngency PlanningA contingency plan is an itinerary of action designed to help an organization respond effectively to a significant future event or situation that may or may not happen.

• Contingency planning is an activity undertaken to ensure the proper and immediate follow up steps will be taken by authoritiesand community in an emergency.

A contingency plan is sometimes referred to as "Plan B," because it can be also used as an alternative for action if expected results fail to materialize.A contingency plan is sometimes referred to as "Plan B," because it can be also used as an alternative for action if expected results fail to materialize.

AA contingency plan guides the action of a community or stakeholders in response to a hazard and is tailor-made precisely according to the needs of the community. To come up with a contingency plan, risk assessment is subjected to a “what-if scenario.”

• It is a process that anticipates potential crises and develops strategies, arrangements and procedures to address the humanitarian needs of those adversely affected by crises.

Aims of the Contingency Planning

• Contingency planning aims to prepare an organization to respond well to an emergency and to its potential humanitarian impact.

•• Developing a contingency plan involves making decisions in advance about the management of human and financial resources, coordination and communications procedures, and being aware of a range of

Conngency Planning 56

technical and logistical responses. Such planning is a management tool involving all sectors, which can help ensure timely and effective provision of humanitarian aid to those most in need when a disaster occurs.

• Time spent in contingency planning equals time saved when a disaster occurs. Effective contingency planning should lead to timely and effective disaster relief operations.

•• Contingency planning involves anticipating a specific hazard based on specific events or known risks at local, national, regional, or even global levels (e.g., earthquakes, floods or disease outbreaks), and establishing operational procedures for response based on expected resource requirements and capacity.

• The table below shows the elements in a contingency planning form:

The contingency planning process can be broken down into three simple questions:

• What is going to happen? • What are we going to do about it?• What can we do ahead of time to prepare?


Contingency planning in five simple steps

1. Prepare2. Analyze 3. Develop 4. Implement 5. Review

When and How to When and How to Plan

In an emergency, the community organization needs to be equipped with both baseline and real time data about the community or area of jurisdiction. Baseline data is usually derived from the PDRA process examples of which are: total human population (human elements classified by gender, age socio-economic special categories).

Real-timeReal-time data examples are number of casualties and deaths among human elements (listed according to gender and age), the number of non-human elements left or available, among others as the emergency evolves.

Baseline and Real-Time Data

• The baseline and real-time data enable the community organization to: o Respond effectively and punctually to the evolving situation through the effective and efficient use of Damage Assessment and Needs Analysis (DANA) o Inform superiors or other actors (e.g. journalists, NGOs) about the situation on the ground and verify the clear magnitude of the adverse effects. o The community declares a disaster and hence calls for external assistance when necessary.

What –if scenario

Scenarios are descriptions of situations that could occur. These are sets of informed assumptions about a situation that may require aention in enhancing coping capacities.


There are different kinds of case scenarios:

• Best case scenario• Middle case or most likely case scenario • Worst case scenario

TheseThese scenarios are informed by the risk analysis result which shows the various human and non-human elements and capacity gaps. The most at-risk group includes the non human element of productive assets and critical facilities, which provide detailed descriptions of the force of hazard and the likely impact on elements at risk, clearly stating the assumptions.

WorstWorst case scenarios always try to project the various characteristics of the hazards such as force of the hazard against the elements at risk versus the existing capacity to cope, duration, frequency, period of occurrence among others. This gives a clear dimension of the possible emerging gaps the contingency plan should be able to address.

Table 7 Example of community scenario building


Action points

TheseThese are the details of responses to the described scenario. The community should be more proactive rather than reactive i.e. action before and when the hazard occurs. These actions/responses should seek to immediately prevent or lessen the hazard as well as eliminate or mitigate the exposure of elements at risk to the impact of the hazard’s force. The action plans or responses should also ensure that basic life-saving and sustaining services are readily available, as well as a community mechanism for assessing the extent of the damage and needs.community mechanism for assessing the extent of the damage and needs.

System installed

This is a set of activities with resources identified, including the human resources that would execute the action plan/response. There should also be a clear time indicator for action, for example, early warning system, emergency assessment teams, evacuation systems, etc.

Roles and Responsibilities

• Identify people and their responsibilities for operating and activating system installed. • Every contingency plan is prepared based on the characteristics of the chosen hazard.

A contingency plan is hazard-specific.

• The community determines the characteristics of the hazard based on an assessment during the conduct of the PDRA.•• The basis to be used in the preparation of the contingency plan is identified by asking what if questions. • At the community level, it is not easy to select several hazards and facilitate the preparation of the action plan because the analysis and action plan are hazard-specific. •• A specific hazard requires a separate set of action plan. Considering the capacity of the community, the DRR action plan is usually made based on one selected hazard.


Basic guide on what goes to development plan and contingency plan

• From the PDRA information, disaster risk levels are determined based on the risk analysis, given the identified capacity gaps in terms of prevention, mitigation, survivability, and community readiness systems. •• It is important to be able to establish the relationship and linkages with the PDRA information.

• It will empower the team and the community members to be able to focus on appropriate recommendations to either prevent or delay a hazard from occurring. • Recommended measures might also be put in place to anticipate the hazard. •• Measures such as these are either medium- to long-term. Long-term developmental measures are needed to correct the identified capacity gaps.

Note: In the PDRA, capacity gaps are identified at the time a hazard occurs or capacities before the hazard itself happened. These capacity gaps are considered in the long-term development plan and in the contingency plans.

The table below outlines where the capacity gaps are included:

Note: Not all capacity gaps identified during the hazard event can be included in the contingency plans. Rather, these are to be considered in the development plan. For example, if the absence of an early warning system was identified as a capacity gap in the PDRA, the capacity gap should be included in the development plan since there should be an early warning system before the hazard event.


Table 8 Example of a contingency planning table with a what if scenario

Contingency plan coordination and partnership

• Effective disaster preparedness process requires a broad partnership between communities, government agencies, civil society organizations, UN agencies, and the private sector. At-risk communities should play a central role in the plan development, implementation, monitoring, evaluation, and learning. •• Development of contingency plans should be part and parcel of the disaster risk reduction process.• The plan could be developed at different levels using the boom-up approach. In communities where community managed disaster risk reduction process is facilitated, the information generated during risk analysis should be used to help the communities develop their contingency plan.•• The importance of having the plan at this level is to ensure that community coping capacities are not undermined by strategized external support. • The community contingency plan should specify at which point external assistance will be needed and how the community would


request it. Communities have their own thresholds in cases of livelihood performance. These thresholds would therefore provide a guide on when the communities and their partners can activate developed contingency plans pegged on early warning information.•• The contingency plans generated by the community and the government should have a close relationship. People should be aware that the community contingency plans shall be used as basis for administrative level contingency plans. Disaster risk reduction established structures can facilitate this role to ensure success of a community managed disaster risk reduction process.•• Developed contingency plan should stipulate roles and specify the institutions or individuals that are responsible for implementation. This will guide and develop working frameworks for effective interventions. • Community organizations must lead in ensuring the implementation of the contingency measures to save lives and reduce damage and losses.•• Community development partners provide the necessary external support to complement identified community capacity gaps. • Community development partners such as the government and NGOs can support the community in addressing needs as stipulated in the community’s contingency plan. Close collaboration will strengthen coordination of planned interventions and thus achieve the goal of the community’s contingency plan.


Community Managed Early Warning System

Part 4

64

What is Early Warning System?25

TheThe word “early warning” refers to the information provided to people and communities exposed to an impending danger. This information is useful in taking actions that will save them and their properties when the actual danger comes. Time and quality of information are important elements of a good early warning. The earlier the information is given, the more time for people and communities to act in advance; the beer the information, the more effective people’s and community’s actions will be.

In the UN-ISDR terminology, the early warning system is the set of capacities needed to generate and disseminate timely and meaningful warning information to enable individuals, communities, and organizations threatened by hazards to take necessary preparedness measures and act appropriately in sufficient time to reduce the possibility of harms or losses.

EarlyEarly warning systems are important for community readiness during hazard events. Loss of lives and damages to properties are prevented with a good and functioning early warning system. This is an important component of the community’s contingency plan. It is designed to give forewarning of the likelihood of calamity occurrence in order to save lives and property.

ItIt ensures that the end users of the received appropriate and early warning information take effective actions in saving lives and properties.

25 IIRR, Building Resilient Communities Training manual on community Manage Disaster Risk Reduction, module 226 Regional Platform for Disaster Risk Reduction in the Americas, Cartagena, Colombia

The Early Warning System and its role in Disaster Preparedness26

Community managed early warning system 65

Important principles in establishing a Community Managed Early Warning System

• Based on participatory disaster risk assessment; • Balanced use of indigenous and scientific knowledge for warning signals; • Control and management made by the community; • Maximized internal response capacity of the community; and•• Use of traditional and community-accepted communication channels.

TheThe early warning system provides information for individuals and communities to save themselves and their properties during a hazard event. Early warning signals that are part of the community’s contingency plan should be activated to save more lives and reduce damage. Community Managed Early Warning System (CM-EWS) is an important component of disaster risk reduction. It is part of the community readiness capacity and is embedded in the community’s Contingency Plan.Plan.

1. Knowledge of the risks and hazards

TheThe design and contents of the EWS should be based on a sound and accurate assessment of the community risks and hazards. Important characteristics of the hazard that serve as the basis for an EWS include the causes of the hazard, warning signs (scientific and provided by agencies), forewarning, duration, frequency, period of occurrence, and force. These data should already be available during the conduct of the participatory disaster risk assessment (PDRA). Other than hazard characteristics, an effectieffective EWS must also be based on a thorough risk assessment whereby the people and properties at risk are identified, their numbers known, and their location pinpointed. The EWS must target the most at-risk members of the community.

Basic Components of Community Managed Early Warning System 27

27 NDRMD final version Dec 2011


Based on this information, the EWS system will now identify thresholds, indicators, or stages of the hazard and craft different levels of warning information that will be relayed to the most at-risk members of the community. For example, in a flood early warning system, the level of water in the river might be the basis for creating thresholds or stages. It can also be the amount of rain measured in a rain gauge. If the hazard is drought, the basis for staging or thresholds can be the number of months without rain or the number of animals dying.without rain or the number of animals dying.

2. Monitoring and warning procedures

This component of the EWS includes procedures of regularly monitoring the development of hazards. The community must be assign a person who will regularly monitor and oversee the equipment that measures the progress of a hazard, such as flood water level markings, rain gauges, etc. The warning procedures include what the warning levels are and the appropriate indicators for each level.

ForFor example, a common warning procedure in floods is the three-warning levels “Ready, Get Set and Go.” ‘Ready’ is the level one warning, which calls people to be vigilant for a possible flood. ‘Get Set’ is the level two warning, which calls people to ready their evacuation kits because a flood will happen within two to three hours. ‘Go’ is the final warning, which calls people to evacuate as floodwaters are coming in less than two hours. These warning procedures must be constantly updated based on obserobservations of the hazard and forecasting. For example, in a flood hazard, it is observed that an increase of one foot in water level upstream causes knee-deep flood downstream in a span of two hours. This means that people downstream will have two hours to prepare once the water level upstream has increased by a foot.

3. Dissemination and communication

This component of the EWS is the method of giving the warning to people who are most at-risk to the hazard. The tools and mechanisms for dissemination and communication must be understood well by the target audience. The process of consultation and ownership of such tools and mechanisms must rest with the community. Some examples of dissemination and communication approaches in CM-EWS are the use of community public broadcast system, community bells, and use of flags and whistles.and whistles.


4. Response capacity

ThisThis refers to the actions taken after the different warnings have been disseminated and communicated to the most at risk people. These actions are in the individual, household, and community level. The EWS must be clear on what the individual person, the entire household, and the community leaders will do whenever the warning is given to them. To increase readiness, community members and leaders, especially the most at-risk, must be well-informed and educated about these actions or responses to the responses to the warning given.


1. Prediction

a. Predicting a hazard has enormous potentials to reduce the disastrous consequences. b. Short advance warning gives time to protect lives and properties. c. Long period warning provides an opportunity to relocate and reinforce properties.

2. Forecast

a. Collection of real-time data. b. Assessment of weather conditions and volcanic activities such as: lava flow, volcanic quakes, CO2, emission, etc. c. Preparation and issuance of warning bulletins. d. Dissemination of warnings or information.

3. Detection a. The use of scientific observation tools like radar, rain gauge, seismograph, sulfur dioxide emission tool . b. Indigenous observation like observing the river condition (for floods). c. Observing animal behavior (for impending earthquake, typhoon,

Basic Elements of a Community-Based Early Warning System 28

28 NDRMD final version Dec 2011


4. Decision

a. Through a Village Coordinating Council (VCC) meeting. b. Decision on when to declare that the community will be on-stand-by, preparation, or evacuation mode. c. When to declare a State of Calamity. d. Task units and volunteers to mobilize. e. Policies to apply. f. Activate the Disaster Operation Center for a 24-hour operation.

5. Communication

a. Relay of information from the warning agencies to the response teams and community recipients. b. Public information for disaster avoidance. • Bulletins • Weather updates • Public Advisories


1. Participatory Disaster Risk Assessment

The first step in CM-EWS is the conduct of the PDRA. PDRA has been discussed in the previous modules and all the information and analysis of the risk will be considered in the design of the EWS. To review, the PDRA is composed of three assessments and each of this will provide the key components of the EWS.

2. Hazard Characterization

HazardHazard characterization is a crucial basis for the EWS. Hazard characteristics such as causes of the hazard, warning signs, forewarning, speed of onset, frequency, and period of occurrence are the data that the community will use to design the monitoring and warning procedures. For instance, if the flood is caused by too much rain in the upstream areas then a water level monitor in the main upstream rivers might be the monitoring mechanism to be employed. Another example is if the warningwarning is about three hours after an increase in the water levels upstream then the time element will be considered in deciding what actions should be done within three hours.

Steps in Establishing Community-Managed Early Warning

Systems


3. Vulnerability Assessment

In vulnerability assessment, the number and location of the most at-risk people and properties in the communities will be provided to the CM-EWS. This information is useful in deciding the most effective and efficient communication channels to reach the most at-risk.


4. Capacity Assessment

The capacity assessment gives information about the internal response capacity of at-risk individuals and community in general. The CM-EWS will build upon these existing response capacities as well as inform the DRR plans of capacities still needed to be created or enhanced.


5. Identifying Existing Observation and Monitoring Systems for the Hazard

InIn this step, the community is guided in identifying existing observation or monitoring systems of the hazard if it exists at all. Most governments have existing observation and monitoring systems if the hazard is a significant event in the country. For example, most storms, typhoons and other weather disturbances have existing warning systems both in the country and sometimes regionally. Volcanic eruptions and tsunamis are also closely monitored by governments. The rationale for this step is to maximizemaximize linkages with existing initiatives on early warning so that the CM-EWS will be more institutionalized and sustainable. But in case there are no existing observations and monitoring systems in force in the country, the community can skip this step and proceed to the next step.


6. Creating/Enhancing Observation and Monitoring Systems

ThisThis step is directed at establishing a system that will regularly gather information about the hazard. This is an important system as this will be the basis for the warning procedures and responses of the targeted people to be warned. This system can be created or be an enhancement of the existing system. Important elements of this system are the early warning system equipment.

7. Building agreements on warning procedures and responses

OnceOnce the hazard observation and monitoring system is established, the next step is for the community to agree on how the observations of the hazards will be interpreted as warning information. The community should also agree on the expected actions of the individual and communi-ty on the warning information. An example of agreements is the “ready, get set and go” three-step warning procedures.

Source: IIRR materials for DRR activities in Cavite


8. Establishing mechanisms for disseminating and communicating warning

TheThe mechanism for disseminating and communicating the warning is all about how to effectively and efficiently send the warning to the targeted people and location in the community. The approach must be acceptable and clear to the community members. Some of the communication tools that have worked in many communities are the use of community billboards, flags, sirens, bells, and the like.


9. Simulation and Regular updating and enhancement of the CM-EWS

InIn this step, all the agreed upon warning procedures, responses, and communication mechanisms are subjected to a test through simulation. Simulation can first be done as an announced practice meaning the community members are informed that simulation exercises will be conducted and they are expected to participate. The subsequent simulation exercises should be unannounced so that community members will be on their toes all the time. After every simulation exercise, the communitycommunity should evaluate the systems and improve it to address issues that have been identified.


Illustraon of Steps in Establishin Community-Manaed Early Warnin Systems


Drills and Simulaons

Part 5

79

What are community drills and simulaons?

• Community simulations and drills are useful tools that will facilitate in evaluating, testing, and updating of the CP and the EWS.

• Simulations and drills are two distinct tools. A simulation is more of an exercise for decision-making based on a given information or scenario. In a simulation exercise, the participants are given a task or a role that is, as much as possible, the same role he/she will play in an actual hazard situation.

•• The scenario and information given to the participants are representations of the actual hazard event experienced in the past.

• A contingency plan (CP) could not be assumed effective if it has not been tested. A community drill is performed to test the CP, or certain parts of it. Short of an actual hazard event, only through a community drill can the CP be assessed for effectiveness.

•• Simulations show the coordination and analysis skills of the key people taking charge of the various systems and procedures stipulated in the CP.

• Regular conduct of simulation exercises can help increase the confidence of community leaders as well as stimulate critical thinking and situational analysis before decision-making.

Who will conduct community drills and simulations?

SimulationSimulation exercises are best used by the community organization that will take the lead in implementing and activating the CP.

Drills and simulaons 80

Why is there a need to conduct a community drill?

• To familiarize and enable the Village Disaster Risk Reduction Management Commiee (VDRRMCs) and the entire community to practice their specific roles during emergencies using the (CP) as their guide;

•• To measure the effectiveness of the various parts of the CP, and in the process identify problems that may be encountered and the possible steps to resolve them; and

• To improve parts of the CP to make it effective by adjusting it to actual conditions and the capacity of the community.

What are tested?

•• Early warning system (EWS) – the system should be specific to hazard, target group, and location. In community drills, the EWS is tested for its appropriateness, timeliness, and effectiveness. The drill will test if the EWS approximates the actual conditions, is easily understood by the community members, and carried out as planned by the community.

• CP and evacuation plan (EP) – to determine if the plans can be followed easily and if the processes are simple, doable, and efficient.

•• Capacity of the VDRRMC – evaluate community members’ efficiency to analyze, decide, and respond to the emergency situation and how familiar they are with their duties and responsibilities.

•• Community preparedness – this is indicated by the community members’ familiarity with the steps they have to undertake prior, during, and after an emergency; participation in the community drill; and ability to respond and comply with orders and instructions made by the VDRRRMC. The participation of the entire community also shows the level of their appreciation and ownership of the CP.


For communities often beset by disasters, a community drill is an effective way to train community members on how they can take appropriate and organized actions to prepare for and respond to disasters. Situations during emergencies are simulated to make the community members and leaders see the possible problems that may occur and be prepared for such.

ByBy improving the ability of the community to take fast and appropriate actions in an organized manner, lives will be saved and assets and livelihoods will be protected. In an area vulnerable to floods, each minute counts as floodwaters rise. A slight delay in appropriate response could result to a large casualty and high cost of damage to properties and livelihood.

AA drill can be conducted yearly to improve the CP and to familiarize the community on what to do during emergencies. This helps to instill disaster preparedness in their consciousness.

Types of drillA drill can be done according to the type of hazard e.g. earthquake drill, fire drill, flood drill, and others. A community may also decide to conduct drill for more than one hazard if need be. It can also be classified as evacuation or table top drill. In an evacuation drill, participants act out or show actual response to a scenario in real time. A table top drill does not require participants to act out their response. Instead, they will recite what they will do under a particular situation.


There are three basic elements of a simulation exercise:

• The participants.

TheseThese are the people who will receive the scenarios and make decisions. In CP simulations, they are the community organizations or leaders tasked to perform systems and procedures of the plan. In EWS simulations, they are thethe people assigned in the observation station and assigned at the communication and dissemination system.

• The observers.

These are the people who will not participate in the simulation but will keenly observe the participants, especially on how they handle the information and make decisions. The observers should take down notes while the simulationsimulation is going on. The use of a video camera, if available, can be used for playback to let show the participants how they performed their simulated discussions and decision-making.

• The scenario.

ThisThis is conceived before the actual simulation. The scenario is a set of assumptions and information given to the participants. The scenario must be related to the hazard CP is built on and must be targeted to a specificspecific decision-making area. Community drills, on the other hand, are practical and physical exercises that allow community members to perform actions required during the occurrence of a hazard. Drills are actual mobilizationmobilization of people, response teams, and resources like equipment. These actions are those stipulated in the CP and CM-EWS. Drills are useful for evaluating and enhancing the skills of people in mobilization, thethe tools that will be used during the hazard, and the overall understanding of the community on what actions to take during the hazard. A common example is the fire drill where the community simulates the fire fighters’fighters’ response to a fire and people simulate evacuating properties and other people out of danger. Another example would be earthquake drills.

How to Conduct Community Drills and Simulaon


A community drill also has the same components as the simulation exercises (participants, observers, and scenario). A community drill can be an announced one, where the community is informed about the schedule and scenario.

ItIt can also be unannounced, where the community is not informed about it or is informed only at the middle or end of the exercise. Unannounced drills are useful in testing and evaluating early warning systems. The purpose of unannounced drills is to test the targeted participants’ state of preparedness to act.

AAt end of each simulation and drill, the experience must be assessed to identify the strengths and gaps of the participants. Recommendations for improvements should be identified and implemented the soonest possible so that in the next scheduled simulations and drills there will be improvements.

Formation of control group, evaluators and documenters

In preparation for the community drill, the control group and evaluators must first be formed. The control group provides direction to the community drill. It is tasked to:

• Lead the planning activity and develop the drill design including scenarios. • Work with the VDRRMC and selected community members for public awareness activities on the CP and drill. • Organize the observers and documenters. • Announce the start of the drill and present the scenarios to drill participants. • Monitor the progress of the drill and issue reminders based on the design and scenario. • Facilitate the evaluation process.

The control group may be composed of three to five people with adequate experience and knowledge on facilitating a drill. This may include community facilitators, village and municipal officials, teachers, and others. It will be best if someone from the community is part of the team


to encourage self-reliance. The village chief may also be a member if he/she wants to see how fellow VDRRMC members and village officials will respond to the scenarios. Apart from sufficient experience, the membersmembers of the control group should have: • completed the series of trainings on DRR; • time and interest in conducting drills; • capacity to lead the activity; and • knowledge about the contingency plan.

Aside from the control group, evaluators must also be identified and chosen.

Evaluators are tasked to witness and monitor the drill process. They will give their observations on the weaknesses and strengths of the exercise and their recommendations on how future drills can be improved. Their obserobservations and recommendations will help improve the CP. By participating in the drill, evaluators also learn from the exercise.

Documenters focus on the process of the exercise and come up with wrien notes, video footage, and photos of the activity. They can also provide insights and recommendations on the drill.

Reviewing the Contingency Plan, Evacuation Plan and Early Warning System

TheThe Village Disaster Risk Reduction Management Commiee calls for a meeting where members review the contents of the CP, EP, and EWS and refresh all participants about the important parts of the CP. The control group also participates in this meeting. It will be an opportunity to clarify the goals of the community drill. A review of the community’s plan to address a disaster situation is a must, and emphasis is given on EWS and EP.

InIn reviewing the EP, note the commiee responsible for particular actions during an emergency and actual evacuation. Review the responsibilities of each commiee and discuss how they can effectively implement these.


Creating the community drill design and scenario

The drill design developed by the control group gives details the rationale (background and objectives), mechanics, participants (control group, evaluators, VDRRMC and community members), and drill scenario. An important part of the design is the drill scenario, which will serve as the “script” of the situations that will be simulated in the community.

TheThe worst-case scenario developed during the contingency planning will be the basis of the drill scenario. The script must include the exact time when the warning signal will be issued to indicate the need to evacuate. The script must also simulate common episodes that happen during emergencies, such as people unwilling to evacuate, some residents geing injured, the elderly being helped out, or pregnant women with small children in tow. This will not be discussed with the BDRRMC and the community.community. The control group will secretly plan this with selected residents who will act out these “roles.”

Preparatory checklist for the community drill

• Develop the drill design and scenario;• Conduct information, education, and campaign activities with the community to raise public awareness and understanding;•• Disseminate copies of the contingency plan to VDRRMC and community members, disseminate copies of the evacuation plan (evacuation routes, assigned evacuation centres) and information about the early warning system;• Explain to the community the evacuation plan, assigned Evacuation Center early warning system and guidelines;•• Explain to the community the details of the drill - when it will be held, why it is important, who will be the participants, etc.;• Explain to the community the preparedness measures they have to do;• A period of at least two weeks is needed to inform all community members and those who will be directly involved in the conduct of the drill;•• Information Education and Communication (IEC) activities will involve holding village or community meetings, house visits, puing up posters, distribution of flyers, and printing of t-shirts that carry the details of the drill. These are done as build-up activities;


• Prepare and update the master list of community members and the total count of drill participants;• Coordinate with proper authorities or the Evacuation Center Management Coordinator (ECMC) to prepare the evacuation centres;• Identify the evacuation routes and conduct actual dry runs to estimate how long it will take to reach the evacuation sites;•• Coordinate with local government units in the area, Disaster Officer, Health Officer, Police or Military Authorities, Fire Department in the area, schools, NGOs, volunteer groups, etc. to secure support;• Prepare equipment needed to issue warnings like handheld megaphones and bells. The warning signal/system to be used must be the same system agreed upon by the community and stated in their CP;• Prepare communication equipment for easier coordination;•• Prepare the transportation needed to evacuate the residents such as trucks or boats;• Identify and form the team of evaluators and documenters and prepare the guidelines for these teams;• Meet and orient the team of evaluators and documenters about the design, scenario, and evaluation tool;• Prepare supplies such as food for the participants and first aid kits; and •• Other important things that may be identified by the VDRRMC, control group, and community.

Activities on the day or day before the drill

Prior the start of the drill, the Village Disaster Risk Reduction Commiee quickly discusses the flow of the drill, review the early warning system (including warning signals) and evacuation plan, and quickly review its duties and responsibilities.

TheThe control group conducts orientation for the evaluators, documenters, and media persons (if there are any) about the drill design and evaluation tool.


Reminders

The timing of the drill is important in relation to other community activities. Set the drill according to the availability of the community members. It is recommended to conduct the activity on a Saturday or Sunday so that residents who are out working during weekdays can also join.

Procedure and flow:

1. Make sure that all participants, evaluators, and security support are at their respective posts before the drill starts.

2. Make sure that the first aid team and standby ambulance are ready should someone need their services during the drill.

3.3. Once all the requirements for the drill have been checked, start the drill by sending the warning signal and following the prepared script. Once the warning is given, let the Village Disaster Risk Reduction Commiee members perform their roles and observe the entire duration of the drill. The control group remains at their posts so that they are easily located by people seeking help or clarification.

4.4. Every step and action done by the BDRRMC and the whole community from their homes to evacuation centers must be monitored. At the evacuation site, they will also observe the process of registration, room assignments, and distribution of relief bags.

5.5. Once participants are accommodated in their room assignments, the relief and evacuation commiee will facilitate the distribution of packed food to each household. The distribution will be based on the master list. This simulates actual distribution of food or other assistance to evacuees in a real emergency situation.

6. The participants wait for the signal ending the drill. Help the participants go back to their community.

7.7. The control group, evaluators, and members of the BDRRMC convene for the post-drill reflections, assessment, and evaluation.


It is best to conduct the drill prior to the expected time or season that the hazards usually occur to give the community enough time to prepare and allow the children and the elderly to participate.

Make the drill scenarios as simple as possible when conducting a community drill for the first time. The drill aims to familiarize the Village Disaster Risk Reduction Commiee and community members with the importance and the process of doing a community drill.

CommunityCommunity drills should be held annually to improve the disaster preparedness and response of the Village Disaster Risk Reduction Commiee and the whole community.

Succeeding drills can be designed to be more complex. For the for the Municipal Level , they can start with one community participating in a drill and later on do simultaneous drills with several communities.

InvitingInviting evaluators and observers from other high-risk communities will encourage people in living there to make their own contingency plans. Participation of the Municipal Disaster Risk Reduction Council members will also help improve the coordination between Village Level and Municipal Level particularly during emergencies.

Evaluation: Post-drill reflections with evaluators and community members

Once the drill has ended, the VDRRMC, control group, evaluators, documenter, and select community representatives meet to assess and evaluate the drill based on the evaluation tool.

TheThe meeting aims to review and assess the exercise and draw lessons from it. The lessons will be the basis for improving the contingency plan of the community, ensuring that it matches the capacities and actual community conditions.

The facilitator ensures the smooth flow of the assessment and the sharing of feedback and inputs.


How to evaluate the actual drill

• First stage: DrillDrill participants will be asked to give feedback and identify lessons learned from conducting and participating in a drill. They will be encouraged to give recommendations on how they can prepare beer for emergencies.emergencies. This can be done while participants are in their rooms inside the designated evacuation sites.

• Second stage ThisThis is done by the control group, VDRRMC, evaluators, and documenter(s). The drill plan or design is reviewed to determine which parts were followed during the drill and which were not. The participants alsoalso discuss which parts of the design are applicable and those that need improvement.

Guide to evaluation

Using the evaluation tool, the following questions may be used as a guide for the group assessment and evaluation:

• What were the problems encountered? How were they resolved? What else could have been done to solve the problems identified?

The evaluators share their insights. They identify the strengths and competencies that can be used to set up the standards and weaknesses and gaps that need to improve. They also share recommendations and corrective measures for enhancement and improvement of community capacities.

TheThe Village Disaster Risk Reduction Commiee and community members also share their insights and learning. The facilitator summarizes the positive and negative observations, focusing on recommendations on how to improve the conduct of community drill and make the contingency plan beer.

The documentation of the process of the drill should be completed including the results of the assessment and the photographs.


• How did the VDRRMC perform its duties? Which task groups functioned well? Why? Which task groups did not function well? Why? What other aspects in VDRRMC functions can be further improved?

• What was the level of participation from the whole community? Were they enthusiastic?

• What percent of the population participated? Was the information dissemination sufficient?

•• What are the lessons learned from this experience?

• What improvements can be done in the conduct of the drill?

Based on the results of the evaluation, discuss which parts of the contingency plan must be changed or updated. After the updating, the village council will approve the improved plan.

AsAs a last step, conduct meetings with the whole community to inform them of the results of the drill, including the lessons learned and the basis of the changes in the contingency plan.

Reminders

OneOne of the important aspects to be reviewed in the conduct of a drill is the capacity of a community to access resources needed to effectively undertake the drill. One thing always noted is the use of privately owned vehicles and equipment for free in the drill. It is also important to utilize other resources and capacities, which will enable a whole community to mobilize during disasters and to help other members of the community in times of need.


Every year, there are changes in a community. These include environmental changes or the state of its ecosystems, the frequency of strong typhoons, the denudation of forests, the worsening standard of living, shortage in rice supply, the price increase of oil and consumer goods, among others. All these may affect the level of preparedness of a community during times of disaster.

AA contingency plan that is improved yearly through the conduct of a community drill ensures the preparedness and ability of a community to be prompt. It can perform early emergency measures against an impending disaster. Effective and timely help and prompt organizing means the protection of life, property, and livelihood in the community.


EVALUATION TOOL (Sample Template)

Community Drills on Disaster Preparedness in 3 Villae in Rosario, Cavite, Philippines

Part 1: Technical Details of Community Drill


Part 2: Evaluation Form


TECHNICAL DETAILS OF THE ANNOUNCED CONTINGENCY PLAN DRILL(Sample Template Tool)


Community Emergency Response Team

Part 6

98

What is a Community Emergency Response Team (CERT)?

What are the Roles of CERT?

• CERT is formed by members of a neighborhood or workplace colleagues who want to be beer prepared for the hazards that threaten their respective communities or workplace.

• Emergency response teams can also be established in schools and can be called SERT or School Emergency Response Teams. In some communities, church or any religious organizations or affiliations form their own emergency response teams for their major events or activities.

According to statistics in the US, 95% of all the rescues done during disasters According to statistics in the US, 95% of all the rescues done during disasters are performed by spontaneous rescuers. Thus, the concept of neighbors helping neighbors or survivors helping each other plays a crucial role in increasing the

survivability of individuals or communities.

• The primary role of CERT includes identification of potential hazards in their homes and/or in their communities; reduce potential hazards where possible; develop their personal, at home or at the community disaster supply kits; and, educate family members or their neighbors on disaster preparedness.

Who are

they?

• Any institution, community, or school can organize their community-based emergency responders.• A group of six emergency responders can be called CERT.

Community emergency response team 99

• Some of their responsibilities include the locating and shuing down of utilities that may cause potential secondary hazards, extinguishing small fires, treating minor injuries, conducting light or basic search and rescue, and helping relieve survivors’ stress.

•• When deployed appropriately, CERTs can complement and enhance the first-response capability in neighborhoods and workplaces by ensuring their own safety as well as the safety of their families; working outwards to the neighborhoods and/or to the offices and beyond until the first responders arrive. CERTs can then assist the first-response personnel as directed. CERTs are considered “Good Samaritans”.

Find out if your country has any existing law protecting volunteers and Find out if your country has any existing law protecting volunteers and providing them authority beyond serving when helping others.

CERT standards

and protocols

The best sources of help in an emergency or disaster situations are the paid or volunteer professional responders. However, if they are not available to address immediate life-saving needs or to protect properties, then CERT members can help. CERTs are not intended to replace a community’s response capability. Rather,Rather, CERTs serve as an important supplement. CERT personnel must keep their safety as their first priority. CERT volunteers must know their capabilities and the limitations of their training and equipment and work within those limitations.


Limitaons of CERT personnel

CERT roles durin emerenciesWhen a disaster or overwhelming event occurs and responders are not immediately available, CERTs can assist by:

• Conducting an initial size-up in their homes or workplaces. • Reducing immediate dangers by turning off utilities, suppressing small fires, evacuating the area, and helping others. • Treating people in the immediate area. • Working with CERT members and volunteers to establish a command post, staging area, and medical triage and treatment areas. • Collecting damage information and developing a plan of operation based on life-saving priorities and available resources. • Applying their training to situations where CERT members can make a difference. • Establishing and maintaining communication with responders. • CERT personnel will have a crucial role from preparation, implementation, and evaluation of disaster preparedness activities.

The above mentioned responsibilities are crucial in the implementation of contingency plans.

As the community’s or institution’s first-responders, CERT members should keep in their mind their primary roles and responsibilities. Keeping their adrenaline high may constitute in puing themselves to harm that may lead to injury or death of a CERT member. The following are the list of the DONT’S of a CERT member:

• Suppress large fires; • Enter structures that they consider heavily damaged and dangerous (e.g leaning or moving foundation); • Perform clean-up of hazardous materials or respond to incidents involving radiological, chemical, or biological agents; • Perform medical, fire, or search and rescue operations beyond their level of training; and • Activate or deploy unless called for based on their procedures.


CERT training modules are the prime and basic foundation of being a community-based first responder. It does not entail technical terminologies used in higher education but utilize simple or popular form and contextualized key terminologies that can be easily understood. Using the basic curriculum, trained CERT personnel can prepare for a disaster or overwhelming event through the following:

• Identifying and mitigating potential hazards in the home and workplace; • Initiating plans to prepare themselves and their loved ones for the hazards that they face; • Learning skills to help themselves, loved ones, and neighbours or fellow employees until professional response resources arrive; • Working cooperatively as a team within their neighbourhoods or workplaces; • Maintaining a relationship with the agency that sponsors the CERT program; • Participating in continuing education and training; • Volunteering for projects to enhance the public safety of their communities; and, • Understanding their capabilities and limitations when deployed.

InIn the Philippines, if a CERT member wants to be a certified first responder in his institution or community, he or she may undergo trainings such as: a 5-day Standard First Aid and Basic Life Support – Cardio Pulmonary Resuscitation (BLS-CPR) for healthcare providers or the 2-day First Aid Training and BLS-CPR training for industrial employees by the Philippine Red Cross (PRC).

CERT Training Contents: Preparing for Emergency Response


CERT Training in the US and as Adapted in the Philippine Context

CERT training in the US consists of eight modules and is conducted for approximately 20 hours.

• Hands on and lecture-based facilitation are key methods of their training and learning system. • However, the contextualized CERT training developed by IIRR consists of the same modules. • However, instead of the 20 hour training, IIRR adapted the training design is such a way that it can be conducted in two (2) days only or approximately 16 hours. • Some of the topics that were excluded from the US CERT training program: - Topics on hazard materials from Fire Suppression and terrorism. - However, the disaster psychology module was enhanced with the inputs from the handbook developed by IIRR on Psychosocial Support Program.

Target audience • Any motivated individuals interested in preparing to help their community, active community members currently participating in disaster preparedness or relief programs, administrators, managers, or faculty responsible for group of individuals can participate and be trained on CERT. • The average number of community members of participants per training is between 15 to 20 only.

Legal Basis

ThereThere is no legal mandate on the establishment of CERT specifically but in the Philippines, based on the Republic Act 10121 or the Philippine Disaster Risk Reduction and Management Act of 2010, under Section 13, the Philippine government agencies, CSOs, private sectors and LGUs may mobilize individuals or organized volunteers to augment their respective personnel complement and logistical requirements in the delivery of disaster risk reduction and management activities.


Community Managed Damage Assessment

and Needs Analysis

Part 7

104

What is Community-Managed Damage Assessment Need Analysis?

• This assessment will give a perspective of baseline and real-time data. • It is thus important that the PDRA information and other necessary secondary data are updated to enable the communities and their partners to develop a context analysis and general vulnerability update.

•• The collected PDRA information provides a baseline on the hazard’s magnitude to the affected human and non-human elements

• The practice of Damage Assessment and Needs Analysis (DANA) may be qualified by the relevance and objectivity of the information gathered both in pre- (during the PDRA process) and post-disaster situations.

Why conduct DANA?

• Effective action, timely response, and decision-making may be hampered due to lack of accurate information and feedback from disaster-stricken areas. •• Critical information includes the extent of physical harm to the population, damage to properties and lifelines, as well as actual requirements of the victims and responders.

Advantages of DANA • Community ownership of this information empowers people to lead the review of mitigation measures and provides reflection and learning for planning and effective response. Effective and more focused targeting interinterventions will be identified and prioritized in the process.

• Due to insufficient information from the field, huge amounts of relief goods are usually poured into calamity-stricken areas. This creates a mentality among local communities of total incapacitation when calamity strikes,strikes, especially when it is readily declared by the national government as a disaster area.

Community managed damage assessment and needs analysis 105

What is the purpose of community–managed DANA?

A community-managed DANA is a gauge when requesting external assistance. Rather than having people from the outside determine the damage and needs, the community itself provides the information on what has happened and what needs to be done. This process contributes to community empowerment and prevents undermining their capability to respond to hazardous events.

Community-managedCommunity-managed DANA will enable community members to map out relief and rehabilitation efforts that are focused, timely, and responsive.

Community-managed DANA is intended to be practiced in the village context with the following objectives:

1. To determine the village information needs by establishing a baseline data; 2. To help the villagers define their own criteria and indicators of coping capability and the communal level of response; 3. To enable the community to identify and give aention to their most at-risk groups; 4. To create a community standard on the definition of terminologies used in disaster situations; 5. To simplify and refine reporting templates/formats as well as reporting protocols for adaptability at the village level; and 6. To enable the villagers to create an internal disaster response commiee as part of their capability and disaster preparedness.


Praccin DANA in the villae contextConducting a Community-managed DANA is primarily defining the information needs of a given community. As part of community readiness, data needed before hazard events must be considered. In essence, community-managed DANA serves as the primary information system for CMDRR.

TheseThese data will determine if there is a need for external help. But contrary to the usual practice where outsiders determine the needs of a stricken community, this time, the members of the community themselves outline and analyze the damage and needs objectively

AsAs a community-managed activity, a simple planning, implementation, monitoring, and evaluation tool must be facilitated at the community level. To achieve this, the community-managed DANA has to be institutionalized.

Establishing the baseline data

•• Establishment of the baseline data is done through the process of Participatory Rural Appraisal wherein data is acquired through information-gathering tools the community uses.

• During risk assessment, information is directly provided by the community through a series of activities like a transect walk, seasonal calendar, transect map, hazard mapping, wealth ranking, hazard story telling among other tools.

•• The data are then collated and presented back to the community for verification. The output is verified, with additional information or corroboration directly provided by the community.


Establishing real-time data • Real-time data may be collated using simplified reporting formats and the information supplied by the identified disaster risk reduction commiee.

•• These real-time data are gathered through a process, starting with a flash report. Immediate relief operations are then provided by the Village DRR Commiees.

• The data contain six elements needed namely:

- Location - Situation - Response - Gaps - Decision - Time

Tools/templates for the conduct of DANA

• Report templates and formats, as well as reporting protocols and procedures, have to be developed and standardized starting from the community level.

• External input will guide the village DRR commiee to define the information they will need.

• This will then be their guide in developing the reporting templates and formats.


Technical terms tend to be confusing and hard to understand, thus posing a problem to the villagers. Certain terms do not adequately measure the damage or injury. For example, the term “affected” is usually used in reports but does not quantify the extent of the effect. The use of such terms sometimes generates superfluous and needless response. It is therefore imperative that terms are quantified, not just by providing statistical data but also by giving clear definitions.

ListedListed below are commonly used terms that have a wide range of interpretation. This list is among the primary things that should be discussed with the community during the pre–disaster DANA to establish the baseline data and policies for institutionalization.

1. Injured 2. Affected 3. Flooded 4. Burned 5. Collapsed 6. Victims 7. Life- threatening condition 8. Lack of (i.e. clean water, food, medicines, etc.) 9. Malnourished 10. Damaged 11. Sick

These terminologies, when misinterpreted due to the non-uniformity of definitions, could be a source of confusion and may add panic to a hazard event situation. It is important that clear understanding of these terminologies starts at the community level, with clear agreements within community members on what each terminology means in their own context.

Terminoloies


Province of CaviteMunicipality of RosarioVillage ________________

DAMAGE ASSESSMENT AND NEEDS ANALYSIS (DANA) REPORTDate

As of: (time)Prepared by: __________________Prepared by: __________________

1. Account of the Hazard

2. Effects and Damages • What are the hazardous forces affecting the community? • Describe the effects of hazard on the community? Eg. "Due to strong winds, roofs are buried in homes in the affected barangay cluster." “The severe rays have also caused water ramps to reach the waist. " • In which part of the community is the most hit by hazard? • Number of affected people – How many women and men – How many re injured or killed due to hazard – How many houses were damaged – How many are damaged, rented, or pedicabs etc (these are people's livelihoods) – How many evacuates? Those who did not evacuate and stayed in their homes

DAMAGE ASSESSMENT AND NEEDS ANALYSIS (DANA) REPORT(SAMPLE TEMPLATE )


3. Capacity Assessment and State of Disaster

Based on the skill set above, WHAT IS THE DECISION OF VDRRMC? Is the community in the "State of Disaster" or not?

4. Needs Assessment

• What are the community's needs for disaster recovery? • Write here all information from Evacuation Team, CERT and WASH and Food Relief. • Details detail the needs.


5. Coordination Mechanisms

• What has been done and will be done by VDRRMC? • Who assisted the barangay if any?

CONTACT DETAILS:Name AddressContact numberContact number

Prepared by:Signed by Village Secretary

Approved by: Signed by Village Chairperson as VDRRMC Chairperson


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