HUMANITARIAN RESILIENCE JOURNAL -...
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GovernanceinPreparedness
HUMANITARIANRESILIENCEJOURNAL
ISSUE #1
Asian Disaster Preparedness Centre (ADPC) with support from Bill and Melinda GatesFoundation(BMGF)isimplementingtheprogram‘StrengtheningCapacityofGovernment,LocalHumanitarianOrganizationsandthePrivateSectoronPreparednessforResponseinAsia’in6SouthandSouth-EastAsiancountriesnamely-Nepal,Pakistan,SriLanka,Cambodia,PhilippinesandMyanmar.
The program utilizes a unique networked approach by creating the Asian PreparednessPartnership(APP)-amulti-stakeholderregionalpartnershipthroughtheprogram.APPstrivesto improve inter-organizational coordination and dialogue between Governments, LocalHumanitarianOrganizationnetworksandPrivateSectornetworks for enhancing capacitiesthrough partnerships, knowledge resources, training and networking opportunities. Theprogram’sgoalistostrengthentheemergencyresponsecapacitiesinthesecountriestobetterpreparefor,respondto,andrecoverfromdisasters.
Withthecreationofnationalpartnerships intheprogramcountriesandcommencementofplannedactivities,itwouldbeimperativetohighlightthevalueadditionofthiscollaborativeapproach in the overall humanitarian architecture of each project country. As part of thisstrategy,communicationsandoutreachcanplayacriticalrole inthedisseminationofworkundertaken to improve and strengthen coordinationmechanisms and emergency responsecapacitiesofourkeystakeholders.
TABLEOF
CONTENTS
DisasterRiskReduction(DRR)MainstreamingInGovernance:WhereNowandWhereto?
HumanitarianResilienceJournalGovernanceinPreparednessISSUE1
InstitutionalandLegalReadinesstodealwithdisastersBy:MuhammadIdreesMahsud
NeedforaStrategicvision:RoleofdonorsindisasterpreparednessinPakistan:By:IrfanMufti
AStepTowardsPreparednessRiskAssessmentandSaferLandusePlanningBy:SyedHarirShah
AreWePreparedforDisasters?RealitiesandWayForwardBy:GhazalaNaeem
RoleofHumanNetworksandtheirImplicationsforDisasterManagementPolicyandPracticeBy:UsmanQazi
By:YusraQadir
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04
DisasterManagementSystemofPakistan
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TheUnitedNationsOrganization,incollaboration
withJapan,hasbeensteeringglobaleffortsaimedat
makingtheworldsaferfromnaturalhazards.Modern
DisasterRiskManagementandgovernancestructures
owetheirexistenceandcontinuousevolutiontosuch
efforts.UNandJapanhavesofarorganizedthree
internationalconferencesi.e.�irstconferenceheldin
Yokohama,in1994,secondatHyogo,Kobein2005
whiletherecentoneheldatSendaiin2015.These
conferencesremainedinstrumentalingradually
developingdisastermanagementsystemsacrossthe
globe,includingPakistan.TheYokohamaConference
adoptedtheYokohamaStrategyforaSaferWorld:
GuidelinesforNaturalDisasterPrevention,
PreparednessandMitigationanditsPlanofAction.
TheHyogoConferenceadoptedHyogoFrameworkfor
Action2005-20015,whiletheSendaiConferencegave
theworldSendaiFrameworkonDRRforactionfrom
2015to2030withkeypriorities.Thoughvoluntary
andnon-bindingagreementstheseframeworkshave
beenguidingthememberstatesinhowtoproceed
withtheagendaforresilience.
Pakistancouldnotunfortunatelyseizethemoment,
untilitwasstruckbytheworsteverdisasterinits
historyi.e.EarthquakeofOctober8,2005.Though
thereweresomeeffortsandconsiderationof
redesigningitsoutdatedandprimarilyreliefcentric
disastermanagementstructureenvisagedin1958
throughNationalCalamitiesAct,1958inthewakeof
IndianOceanTsunamiandHyogoFrameworkfor
Actionbeingasignatorystate,however,suchefforts
remainedvictimstoredtape.Onlywhenthe
governmentrealizedthatthesystemswere
inadequatetomanagemegadisasterslikeearthquake
of2005,theproactive,robustandmoderndisaster
managementsystembasedoninternationalbest
practiceswasdesignedthroughenactmentof
NationalDisasterManagementOrdinance,2006.The
enactmentofnewlawatfederallevelwasonly
possibleduetoresolutionpassedbythreeprovincial
assembliesunderArticle144oftheConstitutionof
IslamicRepublicofPakistan,whiletheProvincial
AssemblyofSindhalsofollowedsuite.Such
Resolutionspavedthewayforenactmentoflawat
federallevelonthesubjectmatterofdevolved
responsibility.Thoughthereisawidelybelieved
misperceptionthatthe18thconstitutional
AmendmentpassedinApril2010devolveddisaster
managementsubjecttoprovinces,whilethefactof
thematteristhatitwasalreadyadevolvedsubject
before18thAmendment.Thereisnodoubtthat18th
AmendmenthadanimportantimplicationfortheDM
systemasmostofthealliedministriesandimportant
stakeholderslikeMinistryofhealth,education,
agricultureetc.weredevolved.
Astrongandrobustorganizationi.e.National
DisasterManagementAuthoritywasestablishedat
theapexofthesystemtoimplement,coordinateand
monitorimplementationofnationalpolicyandplan.
Nationaldisastermanagementcommission(NDMC)
headedbythePrimeMinisterwasestablishedasone
ofthemostrepresentativebodyatthenationallevel
forpolicyformulation.NDMCisrepresentedby
leadersofoppositioninboththehousesofthe
parliament,respectivechiefministersofallthe
provincesandregions,keyfederalministersand
armedforces.ChairmanNDMAissecretaryofthe
CommissionandNDMAisanexecutivearmofthe
Commission.Similarstructureshavebeenputin
placeatprovincialandregionallevelswithProvincial
CommissionsandPDMAs,whilethemostimportant
tierofthewholesystemthedistrictDDMAshave
beenprovidedforintheAct.Whilethesystemis
gettingstrongerandmoreeffectivedaybydaywith
NDMAandPDMAsbeingrelativelystrongerthanthe
mostimportantpillari.e.theDDMAs.Unfortunately,
soonaftertheemergenceofnewnationalDMsystem,
ithadtodealwithmegaandunprecedenteddisasters
likeYemyinCycloneof2007,ZiaratEarthquake,2008,
InstitutionalandLegalReadinesstodeal withdisasters
MuhammadIdreesMahsud
1 HumanitarianResilienceJournal
AttaAbadlandslide,2010,AirBlueCrash,Pakistan.
SuperFloods2010,Pakistan�loods,2011,�loods
2012,2013and2014,AwaranandMashkhel
Earthquakes2013etc.Italsocontributedeffectively
todisasterresponsesatglobalandregionallevels.NationalNeedsAssessmentReport2012developed
throughconsultativeprocessadoptingbottom-up
approachalsoplayedkeyroleinidentifyingareasfor
interventionsandgivingvoicestograssrootslevel
stakeholders.NationalDRRpolicybeingaliving
documenthighlightsthreepillarapproachi.e.Risk
Knowledge,preventionandmitigation,and
preparedness.BasedonthepolicydirectionsNDMA
engagedwithJapanesegovernmentthroughJICAand
developedacomprehensivetenyears'National
DisasterManagementPlanwithatotaloutlayofUS$
1billion.Ithasfourcomponentsi.e.NationalDisaster
ManagementPlan,HumanResourcesdevelopment
plan,EarlywarningsystemsandCommunitiesBased
DisasterRiskManagement(CBDRM).NDMAandits
partnersincludingPDMAs,FederalMinistries/
Division,INGOs/NGOs,UNsystemandDonorsareall
gearedtoimplementtheNDMP.Anumberof
interventionshavebeenimplementedprimarily
throughdonorsupportlikeJICA,DFID,SDC,WFP,
UNDP,FAOetc.Majorinterventionsareinpipeline
liketheWorldBanksupportedNationalDRMservices
projectatatotalcostofUS$92million,whichisin
�inalstagesofapproval.Theprojectaimstosupport
importantprioritiesandinterventionsofNDMAlike
establishmentofstateoftheartNationalEmergency
OperationsCenter,NationalDisasterResponseForce,
NationalInstituteofDisasterManagement,
consolidationoflegalandinstitutionalstructureslike
amalgamationofdifferentinstitutionsandlegal
instrumentslikeCivilDefenceAct,National
CalamitiesAct,ERRAActetc.intoaconsolidatedNDM
Act,developingRiskKnowledgelikeMHVRAsin38
districts,developingRiskFinancingStrategiesand
mechanisms,genderandchildcenteredDRM,
implementationofbuildingcodesthroughmodeling
andretro�ittingpilotinterventionsetc.TheWorldBankisalsosupportingasisterprojectto
DRMservicesprojecti.e.EarlyWarningStrengthening
ProjectatatotalcostofUS$106millionthatis
expectedtofurtherstrengthenPakistan
MeteorologicalDepartment's(PMD)forecasting
capabilities.JICAhasalsobeensupportingPMD's
capacityenhancementsthroughinstallationof
weatherradarsprimarilythroughgrant-in-aid.DFID
hasbeensupportingDRMinPakistanthrough
differentprojectsandinterventions.Anotheroneof
themostimportantmajorfundingwindowhasnow
beenmadeavailableintheformofNationalDisaster
RiskManagementFund(NDMRF)withoverUS$200
millionsupportedbytheAsianDevelopmentBank.
NDMRFhasalreadybeenestablishedassection42
companyanditsevenmorehopefulnewsthatoneof
themostcrediblenameinDRMnotonlyinPakistan
buttheworldoveri.e.General(Rtd)NadeemAhmed,
formerChairmanNDMAhasbeenappointedasits
CEO.TheFundisexpectedtobeanimportant
instrumentinfundinginvestmentsinDRMsector.The
Fundhasalreadyprioritized�inancingintervention
fromNDMPandNationalFloodProtectionPlan-IV
(NFPP-IV),anotherimportantplanprimarilyaimedat
reducing�loodriskhasalreadybeenapprovedbythe
CouncilofCommonInterest(CCI).NFPP-IVisbeing
implementedbyanimportantstakeholderand
componentofDMsysteminPakistani.e.Federal
FloodCommission(FCC),againheadedbyawell
knownDRMprofessionalandmypredecessorin
NDMA,Mr.AhmedKamal.
Whilethejourneytowardsresiliencebuildingin
Pakistanislong,tedious,dif�icultandchallenging,
InstitutionalandLegalReadinesstodealwithdisasters
Despitemountingexcellentresponsestothese
disasters,NDMAcontinueditstrajectory
towardsbuildingresiliencebyfocusingon
disasterriskreductionandmitigation.It
developedNationalDisasterRiskManagement
Framework(NDMRF)2007-2012thatguided
nationaleffortsinninepriorityareasinlinewith
HFAtillapprovalofNationalDRRpolicyand
NationalDisasterManagementPlanbythe
NDMCinFebruary,2013.
2HumanitarianResilienceJournal
however,theinstitutionalandlegalstructureputin
placeinthewakeofEarthquake,2005primarily
steeredbyNDMAhasachievedimportantmilestones.
Thereare,undoubtedly,requirementsforreformsin
thecurrentcon�igurationoftheinstitutional
structureparticularlyitsconsolidationandcapacity
building,however,itisfactthatthestructureshave
strongfoundationsandhavesuf�icient�lexibilityand
robustnesstoalignitselftorealitiesandtackle
emergingchallenges.TodayPakistanhasover7000
professionalandgovernmentservantstrainedinDRM
fromtheplatformofNIDM.
ThemostimportantagendaforNDMAisto
strengthendisastermanagementstructures.The
systemhasgreatnetworkingandstrongcoordination
bondsbothhorizontallyaswellasverticallyunlikein
thepastduringitsformativephases.Ithasimportant
linkagesdomesticallyandabroad.National
HumanitarianNetwork(NHN),agroupofNational
NGOs,PakistanHumanitarianForum(PHF)a
groupingofInternationalNGOs,recentlyestablished
PakistanResiliencePartnership(PRP)areits
importantpartnersinPakistan,whileatinternational
levelNDMAhasbeenrecognizedasaleaderinDRM
byUN.Suchleadershiprolehasbeenrecognizedby
unanimouselectionofChairmanNDMALt.General
OmarMahmoodHayatasChairof5thsessionof
UNESCAP'sDRRcommitteeinOctober,2017in
Bangkok,Thailand.Similarly,NDMAisCo-Chairof
DisasterManagementCon�idenceBuildingMeasureof
HeartofAsia,IstanbulProcessalongwith
Kazakhstan.
TodaythepeopleofPakistanhaveareasontofeel
con�identthattheNDMSystemisleadingthem
towardsresilienceandthattheyaremoresafeagainst
naturalhazardsthantheywere,forexample,adecade
ago.
InstitutionalandLegalReadinesstodealwithdisasters
LivinguptoitsleadershipresponsibilitiesNDMAorganizedaverysuccessfulinternationalConference
on“CapitalizingonPakistan'sExperienceinHandlingDisasters,CreatingSynergiesamongGlobal
Frameworks–LessonsLearntandtheWayForwardfortheRegion”andalso6thMeetingofRTGofDM-
CBMofHeartofAsia.Pakistanalsolaunched“HostNationSupportGuidelines”being�irstcountryin
region.Thisdocumentalsoservesasmodelfortheregiontoadopt.
3 HumanitarianResilienceJournal
HumanitariansectorinPakistanisfacedwith
multiplechallengesofintegration,coordination,and
effectivecommunicationsandmostimportantlya
long-termvision.AllexpertopinionsuggestsPakistan
isinperpetualhumanitariancrisesfrombothnatural
andhumaninducedreasons.Incidentsinlastseveral
yearsindicatesuchincidentshappenwithregular
intervalsbutthecapacityofhumanitarianactorsto
manageaftereffectsanddamagestohumansociety,
economiesandculturesarestillfarfromthedesired
level.
Pakistan'seconomyandplanningarchitectureis
marredwithinherentweaknessestosupportany
majordisasterpreparednesscapacity�inancingand
managingaftermathonhumanlivesandlivelihoods
letalonesupportingeconomicdamages.Experience
overthelastfewyearsprovesacaseofweak
response,short-livedplanningandlackofcohesive
andintegratedrehabilitationandpreparednessplan.
Pakistanisarelevantcaseforevaluatingdisaster
preparednessgivenitshistoryofnaturalhazards,its
uniquegeographicalposition,andthestrategic
interestsofitsneighborsandallies.Pakistan
commandssubstantialglobalattentionduetoitsrole
in�ightingterrorismalongsidemanagingmassive
naturaldisastersthatoccureveryyearcausing
considerabledestructionandlosses.
Pakistanranksthirty-sixthintheworldbygeographic
areaof796,095km2yetithasthesixth-largest
populationglobally,withover200millionpeople.The
urban-ruraldividehaspredominatedformuchofthe
country'shistory,with38.8%ofthetotalpopulation
livinginareasof�iciallyrecognizedasurban.
Muchoftheruraleconomyisstillrelianton
agriculture–accountingfor24%ofGDPandhalfof
theemployedlaborforce–andsuffersheavilyasa
resultof�loodsorothernaturaldisasters.These
constraintsarethoughttocontributetooveralllow
levelsofhumandevelopmentandsigni�icantpoverty,
withtheHumanDevelopmentIndexrankingPakistan
147outof188whileOxford'sMultidimensional
PovertyIndexnationalvalueforPakistan-calculated
bymultiplyingtheincidenceofpovertybythe
averageintensityofpovertyacrossthepoor-is0.23,
rankingthirty-sixthintheworld.4.5millionin2011,
whichis12.7%ofthepopulationlivedonlessthan
$1.25aday.Thediseaseburdenalsocontinuesto
increaseasthepopulationgrowsrapidly.Pakistanhas
endurednumerousnaturalhazardsinthelastdecade,
beginningwithamassiveearthquakein2005inthe
Kashmirregionthatkilledover75,000peopleandis
rememberedasoneoftheworstnaturaldisastersin
SouthAsia.2010sawsomeoftheworst�loodsin
Pakistan'shistory,killing1,985andaffecting20
million.In2013,�loodingkilled178peopleand
affected1.5million.367peopledieddueto
widespread�loodingin2014,whichwasthe“fourth
consecutiveyearofhigh-impactmonsoonrainsin
Pakistan.In2015,peopleinKarachi,Pakistan's
largestcity,experiencedaheatwavethatkilledover
1200people.”Theeffectofthesenaturalshocksis
exacerbatedbyvulnerabilitiesinthewaydisasters
aremanagedandpreventedaswellastheinertiaof
deepersocioculturalissuesthatareconsidered
beyondthescopeofdisastermanagementandhence
irrelevant.Asaresult,simpleeventscontinueto
causelarge-scaleshocks.Governmentresponseto
disastershasgraduallyimprovedbutstillthereis
muchtobedone.WhilePakistanfacesdisastersof
variousforms,respondentsseemedtofocuson�loods
andtheenhancedabilitytorespondtoswelling
rivers.Thereismoreuseofdataandforecastingto
dealwithimminenthazardsofthistype.However,
thereisstillnofocusonpreparednessorprevention,
especiallyforunpredictabledisasterslike
earthquakesaswellasmorerecentphenomenalike
TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision
IrfanMufti
4HumanitarianResilienceJournal
heatwaves.Theinternationalcommunitycontinues
toplayanimportantroleinbuildingcapacity,sharing
lessonsfromothercountries,andprovidingmonetary
support.Unlikemanyothercountries,the
governmentalsoreliesheavilyonthearmytosupport
civilianeffortsfordisastermanagementand
providingrelief.
Developedsocietieshavelearntalessonofinvesting
inpreparednessthatbringsfar-reachingresultsand
bene�itstohumansocieties.Itismuchlessresource-
orientedandmoreonhumandevelopment,systemup
gradation,investmentsinearlywarningsystems,
humancapacities,reliableinfrastructureandmost
importantlybuildingresilienceandleadershipin
communities.Thismantraofpreparednessisnow
beingrealizedatdifferentlevelsofpolicy,legislation,
plansandresourceallocations.
Resourceallocationisanessentialelementforany
preparednessplanbutthatonlycomeswhilehuman
planisreadyandvisionissetinmotionthroughwell
integratedactionsandsystemsofdelivery.Pakistan
hastakenaleadmuchbeforeseveralotherAsianand
SouthAsiancounterpartsfacingsimilarchallengesof
humanitariananddisastermanagement.
InstitutionalCapacityforDRR,Preparednessand
Response-Pakistan'suniquegeographyandlocation
aswellasitssocioeconomicconditionsmakeit
susceptibletonaturaldisasters.Inmanyways,
Pakistan'scapacitytodealwithdisastershas
signi�icantlyimproved.TheWestPakistanNational
Calamities(PreventionandRelief)ActandtheCivil
DefenseActwerepassedin1958.From1958tillthe
Kashmirearthquakein2005,thedisaster
managementfunctionwasnotformallyhousedinone
location;theEmergencyReliefCellintheFederal
CabinetSecretariatledcoordinationeffortsbut
districtsindependentlysourceddisasterrelief
equipmentandrespondedtodisasters.The
earthquakein2005wasthecatalystthatresultedin
thecreationoftheFederalReliefCommission(FRC)
andEarthquakeReconstructionandRehabilitation
Authority(ERRA)andinitiatedaconversationon
settingupaformaldisastermanagementauthority.
However,itwasonlyin2010,whenalargepartofthe
countrywas�looded,thatthegovernmenttookthe
nextmajorstepandpassedtheNationalDisaster
ManagementAct.Inthesameyear,thelandmark18th
AmendmenttotheConstitutionwasalsopassedthat
devolvedthedisastermanagementfunctiontodistrict
governments.Amuchneededstepintheright
directionofresilientandpreparedsocieties.
CivilSocietyHypothesis-levelsofdisaster
preparednessmaybehigherwithastrongercivil
societypresenceingeneraland,inparticular,when
therearemoredisasterorientedNGOsontheground.
Itisexpectedthatastrongcivilsocietywillbe
effectiveatholdingthegovernmentaccountableand,
asaresult,pressureitintospendingondisaster
preparedness.InPakistan,thecivilsocietyisperhaps
notstrongenoughtoplaythisroleeffectively,
especiallywhenitcomestodisaster-orientedNGOs
ontheground.AlargenumberofNGOsareactivein
thedisastermanagementspace,butmostofthem
onlyworkonprovidingrelief.Asmallnumberof
NGOsengagewithlocalcommunitiesonbuilding
capacityforresilience,buttheeffortsarenot
coordinatedandampli�ied.Infact,mostrespondents
feltthatPakistan'scivilsocietyhadnorealabilityto
developlocalcapacityortoadvocateforamajorshift
inpolicy.Thisissurprisingsincethecivilsociety,
especiallyinconjunctionwiththemedia,seemsto
haveastrongvoiceinotherissueslikehumanrights
andsocialdevelopment.Intheabsenceofstrongcivil
societyactors,therehavebeensomeattemptsby
localstoinvestinresilienceinitiativesthemselvesbut
theyhavenothadanymajorimpact.Generally,it
TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision
PakistanResiliencePartnership(PRP)isamuch-
neededinitiativeintherightdirection.Platform
thatbringsallimportantstakeholderstoone
platformofplanningahead,communicationand
integrationsystemsandcoordinationamong
stakeholders.
5 HumanitarianResilienceJournal
wouldfairtoarguethatthehypothesisthatthecivil
societycandrivedisasterpreparednessholds,atleast
inthenegative,inPakistan'scase.Civilsociety
pressureonthegovernmentisweakand,hence,
disasterpreparednesseffortsofthegovernmentare
weak.
ExternalActors/DonorsHypothesis-previous
disastersandhumanitariansituationsaw
unprecedentedsupportfrombothexternaland
internalactorsandinstitutions.Besidesmajor
contributionfromlocalphilanthropywhichwasatits
peakafter2005earthquakeinKashmirandnorthern
areassomeimpressiveleveloflocalsupportin2010
�lash�loodsalsocamefromlocalsources.
UNOCHAmanagedtwopooled-fundsmechanisms,
theCentralEmergencyResponseFund(CERF)and
EmergencyResponseFund(ERF)nowtitledas
PakistanHumanitarianPooledFunds(PHPF),which
providedvaluableassistanceforfood,water,shelter,
healthcare,nutritionandprotectionsupportto
peopleaffectedbynaturaldisastersandcomplex
emergencies.Since2007,Pakistanhasreceivedmore
thanU$168millionfromtheCERFtoaddressurgent
humanitarianneeds,whiletheERFhasdisbursed
overUS$42millionsinceitsinceptionin2010.
Withweakeconomyandpercapitaincome,the
economyofPakistanreliesonforeignaidforits
economicdevelopment,socialdevelopmentandother
activitiesrelatedtocivillife.Accordingtothe
databaseofOECD,Pakistanhasreceivedforeignaidof
$22.85Billionfromalldonorsinallsectorsinlast5
years.
ItishoweverironicthathumanitarianaidtoPakistan
hasdecreasedovertheyears.Con�lictandnatural
disastersarepartoftheconsequencesofglobal
warmingglobally,withPakistanespeciallyhard-hit.
Figuresshowthatdifferentdonorsdonatedatotalof
$638millioninhumanitarianassistancefrom2011to
2015.Duringthelast�iveyears,thehumanitarian
developmentaidhasgraduallydeclinedto6%oftotal
aidreceivedfromahighof32%in2011.Alsothese
trendshaveprofoundimplicationsforhumanitarian
action.First,whilehugenumbersofpeoplein
Pakistancontinuetoriseinpoverty,thosewho
remainareincreasinglyinfragiledistricts,exposedto
warandcrisis.
AccordingtotheUNOf�icefortheCoordinationof
HumanitarianAffairs(OCHA)'sFinancialTracking
Service(FTS),donorshavecommitted/contributed
US$68.3millionofhumanitarianassistanceto
Pakistansincethestartof2016.Ofthetotalreported
funding,US$28.2millionhasbeenchanneledthrough
theUN-coordinatedHSP,accountingfor41%ofall
funding.Therearetwooutstandinguncommitted
pledgesfromtheUnitedStates(US)andtheUnited
Kingdom(UK).ThevastmajorityoftheUS$20million
(99%)fromtheUSistosupportPakistan's2016HSP
forfoodandlivelihoodsassistanceforInternally
DisplacedPersons(IDPs)andreturneesinPakistan's
KhyberPakhtunkhwaProvince.TheUK'soutstanding
uncommittedpledgeofUS$0.9millionisalsofor
Pakistan'sHSP,supportingthecoordinationeffortsof
theUNOCHA.ECHOiscurrentlythelargestdonorin
2016,havingcommittedUS$21.9million,accounting
for32%oftotalreportedfunding.Thenextlargest
donorisJapan,reportingUS$10million,followedby
Sweden(US$7.8million),Canada(US$7.4million)
andtheUS(US$6million).Fundingfromthese�ive
donorscombinedrepresents78%oftotalreported
fundingsofarin2016.Thetenlargesthumanitarian
donorstoPakistan,2016Source:Development
InitiativesbasedonUNOCHAFTSdata.Data
downloadedon30April2016Note:ECHO:European
Commission'sHumanitarianAidandCivilProtection
department;US:UnitedStates;ERF:Emergency
ResponseFund;UK:UnitedKingdom.
Pooledfundingsaspartoftheresponsei.Central
EmergencyResponseFundSofarin2016nofunding
hasbeenallocatedtoemergenciesinPakistanfrom
theUN'sCentralEmergencyResponseFund(CERF).
In2015PakistanreceivedUS$11millionthroughthe
CERF'srapidresponsewindow,accountingfor2.34%
TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision
6HumanitarianResilienceJournal
ofallallocationsthatyear.ii.PakistanEmergency
ResponseFundAccordingtoFTS,thehumanitarian
country-basedpooledfundinPakistan–thePakistan
EmergencyResponseFund(ERF)–hasreceived
contributionsandcommitmentsfromdonorstotaling
US$7.5millionin2016,ofwhichUS$5millionis
currentlyreportedasallocated.Thehealthsectorhas
receivedthelargestvolumeofERFallocations
(US$2.4million),accountingfor47%oftheallocated
total
Ifagovernmenthasgreaterexposuretodisaster
preparednessfromtheactionsofexternalactors,then
itwillinvestmoreinpreparedness.Thedisaster
managementspaceinPakistanisquitecrowdedwith
anumberofactiveexternalactorsthatinclude
multilateraldonorsliketheWorldBankandUN,
bilateraldonorslikeUSAIDandJICA,and
internationalNGOslikeRedCrescent(RedCross).
Whilethebulkoftheireffortsarefocusedon
providingrelief,somedonorsliketheWorldBankare
activelypushingdisasterpreparednessthrough
activitiessuchasdisasterriskassessmentsand
capacitybuildingworkshopsforlocalNGOs.Yet,the
presenceofalltheseexternalactorshasnotpushed
thegovernmenttorampuptheirownpreparedness
activitiesinasigni�icantmanner.
Therelatedhypothesisthatastatewillinvestin
disasterpreparednessifitisproximatetootherstates
thataredoingthesamedoesnotholdatall.The
easternneighbor,India,hasspentconsiderablyon
buildinganumberofdamsthatprevent�loodingin
thehalfofPunjabthatbecamepartofIndiaafterthe
partitionin1947.Ontheotherhand,Pakistanhasnot
builtanymajordamsintherecentpastand,hence,is
unabletoregulatethe�lowofitsriversthatcause
major�loodingeveryyear.Pakistancanbuildastrong
casetodonorslikeWorldBank,JICA,ADBtosupport
Pakistaninthesedamswhichwillhelpthecountry
managefuturedisastersespecially�loodsinmore
effectiveway.
PolicyRecommendations-basedonthisexamination
ofdisasterriskmanagementandcapacityinPakistan,
anumberofpolicyrecommendationscanbeput
forth.First,thereisanurgentneedtorevisitdisaster
managementstructures,bothinprincipleandin
practice,andevaluatewhethertheyservetheir
intendedpurposes.Inordertoprovideeffective
disasterpreparedness,thereisneedforadrastic
improvementoflocallevelcapacityaswell
incorporationoflocallevelknowledgeinlargerplans.
Bybuildinglocalcapacityandempoweringlocal
of�icialsandcommunities,peopleshouldbebetter
preparedtowithstand�loodingandothernatural
disasters.Donorscaninvestinbuildingsuch
capacitiesinlocalpartnersandcoordinationwith
governmentauthorities.Byinvestingincapacitywe
canachievetwoimportantobjectivesofimproved
humanresourcesandbetterinstitutionalresponsein
caseofanydisasteroccurs.
Similarly,donorscansupportandinvestin
implementingobjectivesofdecentralizationof
expertiseandadministrationofemergencyresponse.
Suchasupportcanenablequicker,moreef�icientaid
anddecision-makinginallspheresofpreparedness
andresponse.Thecentralizationofpowerand
budgetingarounddisastermanagementcreates
ineffectiveandinef�icientprocesses,whichcandelay
aidandexacerbatechallengesduringdisasters.
Investinginreliableanddisaster-resistance
infrastructureincreasescapacityofanycountryto
dealwithadverseeffectsofanynaturalhazard.
Unluckilyourpooreconomichealthand�iscal
weaknessesdon'tallowthecountrytoinvestinsuch
structures.Donorscanprovidefocusedandtimely
�inancialassistanceasbudgetsupportinmitigating
theeffectsof�loodsandotherdisasterswithlower
TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision
Donorsshallalsolocalizethedecisions,planning
andresourceutilizationfunctionssothatlocal
playersincludingNGOs,humanitarianactors,
disastermanagementauthorities,systemsof
coordinationarebetterabletosupporting
resilienceandpreparednessfunctions.
7 HumanitarianResilienceJournal
perceivedrisk,includingearthquakesandheatwaves.
Likewise,theimportanceofinstitutionsthatonly
focusonprovisionofdisasterreliefandrehabilitation
needstobereduced.Revisingthearchitecturesof
developmentplansandinstitutionalmechanisms
couldhelpmakepreparednessasnationalpriorityas
opposetoresponseonlyactions.Donor'scontribution
todevelopmentprojectswithresiliencefactors
incorporatedcanbetterachievetheseobjectives.
TheroleofdonorsindisasterpreparednessinPakistan:NeedforaStrategicvision
Thegovernmentshouldpartnerwiththeprivatesectoranddonorsincreativewaystoovercomethe
challengeofpooreconomicstrength.
Thedisasterpreparednessfunctionitselfandassociatedinstitutions,especiallyinthecivilsociety,need
tobegivenmoreimportancebothinletterandspirit.
8HumanitarianResilienceJournal
Pakistanisinconstantgripofmajortoeveryday-
disastersfromoveradecade.Thecommunityatthe
locallevelisperpetuallysufferinghumancausalities;
socio-economic,ecological,environmental,and
physicallosses;andemotional,psychologicaland
behaviurchallenges.
Therearemanycausesofeveryday-disasters.Oneof
thebasiccausesis'lackofrisk-basedapproachto
landuseplanning'thatiscrucialtoeverydayhuman
activityincities,villages,andotherhuman
settlements.Ourexperienceofover20yearsworking
withdevelopment,disasterriskandclimatechange
relatedsectorsinPakistanandtheregionrevealsthat
anotherfactorthatishamperingtheeffortsof
disasterriskreductionis'lackofcomprehensiverisk
assessment'.
Itisthe�irststeptowardsachievingthetargetsof
sustainabledevelopmentgoalsandSFDRR2030.Risk
assessmentforsaferlanduseplanningatthelocal
levelforconstruction,settlementanddevelopmentof
infrastructureensuresresilienceandsustainabilityof
everydaydevelopmentintervention.Itsupportsin
understandingandmanagingmultiplerisksthat
maximizenetbene�itsfromthenaturalprocess,and
sustainablenaturalresourcemanagementand
minimizethenegativeimpactoftheoverallrisk
process.
RiskAssessmenthasbeende�inedbyUNISDR2015
as“theabilitytoassessriskusinganall-hazards
approachinatimely,technicallysound,andeasily
communicatedfashionisthefoundationtodevelopthe
necessaryunderstandingbykeystakeholderstaskedto
manageandreducedisasterriskasoutlinedinthe
SendaiFrameworkforDisasterRiskeducation”.
UNISDR(UNISDR2009)asde�inedRiskAssessment
asthe“methodologytodeterminethenatureand
extentofriskbyanalyzingthepotentialhazardsand
evaluatingexistingconditionsofvulnerabilitythat
togethercouldpotentiallyharmexposedpeople,
property,services,livelihoodandtheenvironmenton
whichtheydepend”.
Acknowledgingtheimportanceoflanduseplanning
indisasterrisk,UNISDR2009de�ineditas“the
processundertakenbypublicauthoritiestoidentify,
evaluateanddecideondifferentoptionsfortheuseof
land,includingconsiderationoflong-termeconomic,
socialandenvironmentalobjectivesandthe
implicationsfordifferentcommunitiesandinterest
groups,andthesubsequentformulationand
promulgationofplansthatdescribethepermittedor
acceptableuses”.Theimportanceoflanduseplanning
andpolicytoaddressunderlyingdisasterriskdrivers
hasalsobeenunderscoredbySendaiFrameworkfor
DisasterRiskReduction(SFDRR)2015–2030.
Landuseplanningallowscommunitiestoguidethe
location,type,density,andtimingofdevelopment
throughregulations,publicinfrastructure
investments,marketincentives,andconservationof
naturalresourcessuchthatdevelopmentissafefrom
multi-hazardrisksandinharmonywithasustainable
ruralandurbanwatercycle.Withinanacceptable
RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness SyedHarirShah
Comprehensiveriskassessmentandsaferland
useplanningarebasicandcriticalcomponentsof
anintegratedriskbaseddevelopmentapproach
tocopewitheverydaydevelopmentrisks.
Riskassessmentcombinesacharacterizationof
thehazardswiththelevelandextentofexposure
withanassessmentofdifferentials
invulnerability(anditsconverse–capacity)
providingacalculatedestimateoftheriskof
disasterintermsofimpactsandtheir
probability.
9 HumanitarianResilienceJournal
levelofmulti-disasterrisk,landusemeasuresseekto
minimizelossoflife,property,biodiversity,land
destruction,pastures,forest,watershed,�looding
causesanddamages,causesoferosion,landslides,
andcriticalinfrastructure.Landusemeasures
maximizenetbene�itsfromwaterfronteconomicand
recreationalactivitiesandecosystemservices.This
balanceofminimizationandmaximizationensures
thatcommunitiesnotonlysurvivebutalsoadaptand
growsafelydespitedisruptionsfrom�loodorother
disasters.Thisbalanceofminimizationandmaximization
approachensures:
1. SAFELOCATION:Riskassessmentandsafeland
useplanningreducesexistinghazardriskand
preventsthecreationofnewriskslinkedto
hazardouslocationinfrastructuredevelopment.Land
useplanscanguidesafedevelopmentlocationin
manyways:
Ÿ byprotectingkeyeconomicareaswithhard-
engineeredstructures;Ÿ by“retreating”fromthechronic�lood,seismic
zone,landslide/erosion,rockfall,avalanche,GLOF
areas,low-lyingcoastalareasor�loodplains,and
tsunamifromsea-levelriseŸ byprovidingpreventiveresettlementand
redevelopmentplanforsafegrowthinsafeareas;
andŸ bypreparingcriticalinfrastructuressuchas
evacuationrouteswithinandoutof�loodzones,
openspacesforreliefoperations,community
shelters,andemergencyfacilities.
2. SAFECONSTRUCTION:Riskassessmentandsafe
landuseplanningensuresboth'reductionofcurrent
risks'and'preventionofemergingnewrisks'that
stemfrombaddesignorpoorconstructionof
buildingsandotherinfrastructure,speci�icallyby
promotingsafehabitation–withwaterand
environment–approachtosustainabledevelopment.
Riskassessmentandlandusedevelopmentguidelines
andbuildingcodesplayanimportantroleinfostering
safeandresilienthabitation/settlementapproach.
They:
Ÿ control�loodsourcesbysupportingtheintegration
ofgreenandgreyinfrastructurestoincreasethe
�lood-holdingcapacityofstreets,openspaces,and
waterwaysforbetter�loodconveyanceand
drainageaswellaswatersecurityŸ ensureadoptionof�loodandseismicresilient
infrastructureandbuildingstomitigatedamage
fromanunavoidableriskof�lood,earthquake,
landslide,avalanche,rockfall,tsunamiandcoastal
�loodingŸ protecttheecosystemfrompollutionandprevent
over-extractionofnaturalresourcesduring
reconstruction.
3. SAFEACTIVITIES:RiskAssessmentandsafer
landuseplansreduceandpreventriskscreatedby
speci�iclandusesandeconomicactivities,including
the�lowofgoodsandservicesinparticular
territories.Landuseplanningguidelines:Ÿ maximizenetbene�itsandecosystemservicesof
waterfronteconomicactivitiesand�lood-prone
zonesthroughmultifunctionallanduseŸ supportactivitiesthatprotectthenatural
ecosystemfrompollutionŸ ensurefunctionalityofbusinesscontinuityplan
Performingriskassessmentinthecontextofsafeland
useatanyscale(local,individual,neighborhood,and
community,regionalandnational)requires
considerableexpertise,time,andresources.
Furthermore,disasterriskisincreasinglycomplex
andmulti-faceted(hazard,exposure,vulnerability
andcapacity),withinterdependenciesthatmaybe
overlookedandcausecascadingeffectsovertimeand
space.Additionally,onceriskassessmentsare
available,theiruptakeanduserequireseffective
communicationanddisseminationtoleveragescience
andensurethatriskinformationisuseful,usable,and
used.Thisgoaldemandsbothcutting-edgescienti�ic
RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness
10HumanitarianResilienceJournal
methodsandtechnologicaltools,integrationand
translationofscienti�ic�indingsthatarealready
available,andthefosteringofanetworkof
relationshipsacrossthescience-policy-practice
landscape.
Riskassessmentandmanagementaddressestheuse
andadvancementofscienceandtechnologytoyield
thenecessarymethodsthatinformsoundrisk
managementplans.Thesecapabilitiesprovidethe
basisforSFDRR's'priorityofaction1'on
UnderstandingRiskand'Priorityofaction2'on
StrengtheningDisasterRiskGovernance.The
complexityofriskassessmentandsafelanduse
planningischallengingbutaverybasicand
fundamentalsteptowardspreparednessand
resiliencybuilding.
Multi-hazardbasedriskassessmentandlanduse
plansgivecommunitiesanoverviewofwhichareas
needtobeprotected,evacuated,developed,or
redeveloped.Theseplansneedtobeaccompanied
withimplementationtoolsthatareacceptabletothe
communityandthatcanbeenforcedwithlocal
capacitiesandresources.Suchtoolscanbethe
regulatory,economic,�inancial,orbehavioural.
RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness
REGULATORY FINANCIAL BEHAVIORAL ECONOMIC
§ Zoningplansandordinances
§ Emergencyplans
§ Developmentcontrols(landuseanddensity)
§ Buildingcodes(elevatedstructuresandinfrastructures,seismicand�loodproo�ing,greenbuilding)
§ Strongandcommittedinstitutionswithcompetenthumanresource
§ Localizedadaptiveriskgovernanceandcompetentandtechnicalmanpower
§ Publicfunds
§ Public-privatepartnerships
§ Multirisksinsurancepoliciesandplan
§ Awarenesscampaignsatmultiplelevels
§ Mobilizationandwillingnessofcommunityandtheorganizations
§ Mandatoryriskdisclosureinrealestatetransactionsandallinfrastructure
§ Endtoendmulti-hazardearlywarningsystems
§ Capacitybuilding
§ Land-based�inancing(densitytransfer/densitybonuses)
§ Incentivesforrisk-sensitiveconstructionsandhabitation
§ Preferentialtaxation § Taxcreditsortax
exemptions § Conditionalinsurance § Conditionalpermitting
CHALLENGESŸ Theimportanceandchallengesofriskassessment
andlanduseplanningtoreducemultiplerisksaregenerallyacknowledgedbypolicyanddecisionmakersanddisasterriskmanagementpractitionersatnationalandgloballevel.
Ÿ Undertakingriskassessmentandlanduseplanningaretime-consuming,technical,andcomplexprocesses.
Ÿ `Riskassessment&landuseplanning`and`multi-sectorial&multi-agencycompetencies`areinterlinked,interconnectedandinterdependent.
Ÿ Riskassessmentandlanduseimplementationisfurtherconfrontedbythein�luenceoflandowners,feudallords,politiciansaswellascomplexitiesof
informalsettlement.Ÿ Encroachmentofriverbed,stateland,andlong-
timelitigatedanddisputedproperties.Ÿ Commonandcollectivepropertyownershipof
communityandresistanceonpreventiveresettlement.
Ÿ Lackoftechnicalandprofessionalcompetenciesofconcernedorganizationsinunderstandingandundertakingitsimplementationandmonitoring
Ÿ Thespatialplanninganditscostsversusbene�itsarenotwellunderstood,especiallywhenagreeninfrastructureapproachiscomparedtostructuralmeasures.
Ÿ Lackofcapacitytotranslatetechnicalinformationintolanduseregulations,buildingcodes,andhow
11 HumanitarianResilienceJournal
tointegrateitintolanduseplanningŸ Lackofparticipationofcommunityinrisk
assessmentandlanduseplanningbecauseplanningdepartmentstendtooperateinisolationfromotheragenciesinvolvedintransportation,housing,drainage,andwatersupply,andmostmunicipalities
Ÿ Lackofskilledstafftomanage,review,andmonitorlanduseandbuildingregulations
Ÿ Disastermodellingdataishighlytechnical,anditsapplicationforlandusemaybenotcleartoplanningprofessionalsanddecisionmakers
Ÿ Translatingprobabilistichazardmodellingintolocalactionplanswithdevelopmentsregulationsandhazardzonesneedtobereferencedtocorrespondingbuildingdesignandconstructionrequirements
Ÿ Evenwherelanduseplansexist,theyarenotsupportedbyappropriatemulti-hazardriskassessment.Theirimplementationischallengedbycontentiouslandownershipandtenurestatus,aswellasissueswithstakeholdercoordination,�inance,permittingprocesses,andpoorenforcementcapacityofweakpublicinstitutions.
Ÿ Reclaimingandresettlementindisaster-hitproperties
Ÿ Corruptionandlackofcoordination&collaborationofconcernedorganizations
Ÿ Landprocurementforpublicuseisexpensive,time-consuming,andfraughtwithdisputesbecauseofthediversityofformalandinformalstakeholdersinland
Ÿ Continuousdestructionanderosionofland,infrastructure,pasture,watershed,searising,coastaldestructions
Ÿ Accessibilitytomultiplehazardszones,remote,marginalizedandotherphysical,socialandecologicalconditionsarehamperinginundertakingriskassessmentandlanduseplanning.
Ÿ Changingdynamicsofhazards,climatechangeanddisasterscontinuingchallengeforaffectiveriskassessmentandlanduseplanning.
POTENTIALSANDRECOMMENDATIONS:
RiskBasedPlanningApproach(RBPA)isaninnovationincontemporarylanduseplanning.Thedevelopmentwithinputfrommulti-stakeholderensuresitsapplicabilityandconsistencywithstatutoryplanningrequirements.Thisapproachdemonstrateshowlocalorregionalplanningagencies
furtherinnovatebasedontheRBPA,toproviderobustanddefensibledecisionsaroundacceptable,tolerableandintolerablelevelsofriskfortheirmunicipalityortheregion.RBPAalsoprovidesdeeperunderstandingofweatherphenomenonandthegeophysical,geologicalandecologicalnaturalprocessincontextofthechangingsocio-behaviorandhumanactions.
Competencybasedmanagerialandleadershipskills,knowledgeinrisksassessmentandlanduseplanningisthe�irststeptowardsresilienceandsafercommunitybuildingthatconvertsriskintoanopportunityforcomprehensivesaferriskplanningandpreparedness.Furthermore,policiesandpracticesthatsupportandsupplementriskassessmentandlanduseplanningfordisasterriskreductionandmanagementshouldbebasedontrueunderstandingofinclusiveriskinallitsdimensionsofemergingthreats,vulnerability,capacity,andexposureofpersonsandassets,hazardcharacteristicsandtheenvironment.
RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness
ChangingdynamicsofdisastersinPakistan
provideopportunitiestotheauthoritiesto
reviewandre�lectriskassessmentandlanduse
plansandstrategiesonregularbasiswitha
multi-hazardapproachandinclusiverisk-
informeddecision-makingontheopenexchange
anddisseminationofdisaggregateddata.
12HumanitarianResilienceJournal
NationalDisasterManagementAuthority(NDMA)in
Pakistanduringashortspanof12years,sinceits
inception,hasdonetremendousprogressinpolicy
formulationanddecisionmaking,regularityand
legislativeimprovement,organizational
strengthening,capacitybuildingofstaffatalllevel.
Paradigm-shiftfrombureaucraticapproachtopublic
servicedeliveryapproachinNDMAisanexceptional
innovationinthecultureofgovernmentorganization.
NDMAisbuildingstrongercoordinationmechanism
withallthestate,civilsocietyorganizations,
diplomaticandglobalcommunity,corporatesectors
andNDMA'sownextendedarmsatprovincialand
districtlevelacrossthecountry,iswidely
acknowledged.NDMA'sroleisrecognizedasan
effectiveindustryleaderinAsiaPaci�icregion.
However,urgentactiontoeffectivelyemployrisk
assessmenttechniquesforlanduseplanning
decisionsaroundmulti-clustersclusters,aswellas
therelevantacceptabilityortolerabilitycriteriaare
yettobeformulatedinthecountryonprioritybasis.
Landuseplans,supportedbycomprehensiverisk
knowledgecanbeleveragedforthepurposeofpre-
duringandpostdisasterriskassessmentfor
prevention,mitigation,preparednessand
implementationofappropriate,andeffective
responsetodisasters.
Investinginland-useplanningrequiresamidtolong-
termcommitmentinhighriskproneareasaswellas
lowerriskproneregions.Landuseplanning,when
backedbystronginstitutions,couldbeconsideredan
instrumentfornegotiatingand“equalizing”risks
beforetheyaretransferredtomarginalized
populationsortaxpayers.
ItisexpectedthatNDMAandotherconcerned
authoritiesatthedifferentlevelinPakistanwillgear
uptopreparemulti-sectorialrisksassessmentand
landuseplanning;perhapsitisininitialstagesof
lobbyingforcommitmentormayhavemade
signi�icantstridesinriskassessment.
RiskAssessmentandSaferLandusePlanningAStepTowardsPreparedness
13 HumanitarianResilienceJournal
AreWePreparedforDisasters?RealitiesandWayForward
Disasterpreparednessofanationcanbeassessedby
reviewingtheperformanceinactualeventsand
respondingtoperceivedcatastrophes;goingthrough
acontinuedphenomenontolearnfromtherealworld
andknowingwheretostrengthentheresilience.
Beforegoingintodetails,itisimportanttonoteabout
preparednessandresilienceatnationallevel.The
termpreparednesshasbeende�inedas;'the
capacitiesandknowledgedevelopedbygovernments,
professionalresponseorganizations,communities
andindividualstoanticipateandrespondeffectively
totheimpactoflikely,imminentorcurrenthazard
eventsorconditions'[UNISDR-2008].Whereas
resilienceistheabilitytoprepareandplanfor,
absorb,recoverfrom,ormoresuccessfullyadaptto
actualorpotentialadverseevents[UNISDRDFIDDRR
InteragencyCoordinationGroup2007].
Globalframeworksondisasterriskreductionhave
beenfocusingonstrengtheningpreparednessand
resilienceofmembercountriesandnowhave
developedconsensusonmeasuringnation's
achievementthroughadoptingcommonindicators.
Forexample,SendaiFrameworkonDisasterRisk
ReductionandtheSustainableDevelopmentGoals
(2015-30)de�ineoneofthecommonindicatorsto
assessnationalresiliencebyreducingdisaster
mortalityper100,000populationofthecountrytill
2030incomparisontowhatitwasin2015.Such
commonmeasuringgearsarefacilitatingglobalagreementondeclaringstatusofanationasprepared
ifessentially[NationalAcademyofSciencesUSA]:
Historicallyitisevidentthat'noperfectendstateor
endconditionofresilienceexists'.Rather,itisan
ongoingprocessof'BuildingResilience'which
requirescontinuedplanningandassessmentbyall
stakeholders.However,nationswithwell-de�ined
preparednessgoal,clearlyassignedstakeholders'
roles&responsibilities,continuedaddressing
challengesofcapacitiesforultimateresilienceof
communitieswithabottomupapproachand
deployingtoolsformonitoringprogress,canbebetter
protectedandstrengthenedagainstdisasters.
Pakistan'sDisasterResilience-settingacorevalue
ofdisasterresilienceincaseofPakistan,needsaprior
understandingofthecountry'sdisastermanagement
pro�ileandcurrentstatusofprogressinthisregard.
Pakistanemergedasacountryontheglobein1947
andexperienced�irstseverecalamityas�loodsin
1950claimingaround3000livesandaffectedmore
than10,000villages.Thenitcontinuedtosufferfrom
�loods,drought,cyclones,earthquakesandlandslides
oneaftertheotherandsubsequentlyvarious
legislationsandpoliceshavebeendevisedand
implementedtorespondtoemergingdisasters.
Initially,intheabsenceofacomprehensivedisaster
managementnationalpolicy,theWestPakistan
NationalCalamitiesAct1958wasformulatedand
usedasalegalremedythatregulatedthe
maintenanceandrestorationoforderindisasterhit
areasandreliefagainstsuchcalamities.Afterwards,theEmergencyReliefCell(ERC)establishedin1971
undertheCabinetDivision,workedasaninstitutional
disasterreliefsupportatnationalandprovincial
levels.Allsucheffortswererevolvingarounda
reactiveapproachofdealingdisastersinonlypost
disasterscenariosuntilintheaftermathofthe2005
KashmirEarthquakeandfollowingtheglobal
commitmentsofHyogoFrameworkofAction(HFA
2005-15),theGovernmentofPakistanpromulgated
theNationalDisasterManagementOrdinance
(NDMO)in2006tointroduceacomprehensive
NationalDisasterManagementSystem,followedby
Ÿ Suf�icientvulnerabilityandriskinformationis
availabletoall;Ÿ Governmentatalllevels,communitiesandthe
privatesectorhavedevelopedandadopted
resilientstrategiesandoperationplans;Ÿ Nationaldisasterdatabaseindicatessubstantial
reductioninlossoflife,cost,socioeconomicand
environmentalimpactsofdisasters,andŸ Reducedpercapitacostofrespondingdisasters
andrapidrecoveryincomparisontopastevents.
GhazalaNaeem
14HumanitarianResilienceJournal
AreWePreparedforDisasters?RealitiesandWayForward
NationalDisasterManagementAct2010.
Fallowingtheabovementionedlegalarrangementa
threetierdisastermanagementsystematnational,
provincialanddistrictlevelandNationalDisaster
ManagemtnCommission(NDMC)wereestablished.
Nationallevelpolicyframeworkaimingadisaster
resiliencewasdevelopedin2007(NationalDisaster
RiskManagementFramework)baseduponthemacro
levelcountry'sriskassessmentafterwardsare�ined
andtargetorientedplanevolvedasNationalDisaster
ManagementPlan(NDMP)2012-22withrevised
assessmentofriskatmacro(national)levelanda
pilotexerciseatadvancelevel(i.e.SindhProvince).
Thecountryenteredintonewglobalcommitmentof
disasterriskreductionbyadoptingtheSendai
Frameworkin2015foraperiodofnext�ifteenyears,
i.e.2030.
Pakistanhasprogressedindevelopingdisaster
resiliencethroughadoptingaparadigmshiftof
reactivetoproactiveapproachatlegal,institutional
andpolicylevel.However,togaugethisprogressin
termsofglobalcommonindicators,thecountryat
leastneeds:
Pakistan'snationalcommitmentandtheglobal
obligationsonDRRaresettledtogethersince2005onwards,however,asanationalimperative;required
disasterresiliencehasbeenachallengetoachieve.
Country'sdisasterpro�ile,frequencyofeventsandthe
capacityattainedsofarisyetunmatchedtobeableof
‘beingprepared'.Consistencyinpreparednessefforts
areyettobematched.Forexample،todealwith
�loods,beingaveryfrequentcalamityinrecentpast,
preparednessmeasuresaretakeninadvance.Months
aheadofmonsoonseason,stakeholderstake
collectivemeasurestogetreadyandrespond
upcoming�loodsituationthroughyearly'Flood
ContingencyPlanning'atvariouslevelsofthe
government.Multi-stakeholdersplannerysessions
andmeetingsbeginearlyintheyeari.e.MarchtoMay
fortakingprecautionarymeasuresandestablish
'EmergencyOperationCells'withineachrelevant
agencies/department/organizationoperationon
24/7basisduringmonsoonperiod(15Juneto15
October).Onthecontrary,forseismichazard,
nationalprecautionarymeasuresprovedtobe
absolutelyinsuf�icientdespiteofcontinuedsufferings
fromheavyhumanand�inanciallossesintherecent
eventsof2005KashmirEarthquake,2013Avaran
EarthquakeandOctober2015EarthquakeinKhyber
Pakhtunkhwaprovince.Legislationandeffective
implementationofthebuildingcodes,byelawsand
landuseregulationscouldnotbeenforcedinthe
country.Theeffortsmadetostrengthenpreparedness
sofarhavebeenprovedinsuf�icientincomparisonto
thepotentialseismichazardandtheprevailing
nationwidevulnerabilities.
Learningfromthepasteventsisyetnotadoptedas
de�inedproceduresinthecountry.Althoughefforts
aremadetodevelopposteventreportofanatural
calamity,butsuchreportsareusuallynotusedto
rectifytheshortcomingsonthebasisoflearningfrom
pastevents.Forexample,organizationsinvolvedin
theearlywarningchainarenotbound,asapolicy
matter,toreviewtheirperformanceandcapacity
aftereverydisasterandimprovetheirsystemand
proceduresaccordingly.Asacasestudy،the�lood,2010inPakistancreatedunprecedentedhavocand
losses.Thereviewofearlywarningeffectiveness
duringtheFloods2010wasconductedforthe
developmentofNDMP2012-22VolumeIIforEarly
Warninginthe33identi�ieddistrictsand�indings
were:
Ÿ Fullversionofvulnerabilitiesandrisks
informationaccessibletoalllevelsofthe
government,communitiesaswellasnon-
governmentstakeholderstodevelopandadopt
disasterresilientstrategies;Ÿ Anationaldatadisasterdatabasetoknowthe
costandimpactsofpastcatastrophiceventsand
recoveryspeedaftereachdisaster.
15 HumanitarianResilienceJournal
AreWePreparedforDisasters?RealitiesandWayForward
No.ofDistricts EffectivenessofEWSduring2010Floods
2 Peoplecooperatedwithdistrictgovernmentandevacuatedtimely 9 NoEarlyWarningatallornotimeforevacuation 22 CommunitydisregardedEarlywarning Table1:Lessonlearnedfrom2010Floods,33districtssurveybyJICAstudyteam.Source:NDMP-EWS-Vol.II2012
AsaroutinepracticeofEarlyWarningSystem(EWS)
inPakistan,thedisastermanagementauthoritiesand
someotherstakeholdersinvolvemediawithin
disseminationchainandsharesameearlywarning
informationoriginallyissuedbyPakistan
MeteorologicalDepartment(PMD)orFloodForecast
Division(FFD),withoutdevelopingthemessage
furtherineasilyunderstandableformatsfor
communities.Theissuewasalsohighlightedduring
consultationwithcommunitiesheldatMardanKP
andDaadoinSindProvince,after2010Floods.Both
communitiesdisregardedthewarninginitiallyand
sufferedalot,complainingthecontentoftheEW
messagenotunderstood,“itwasinthousandsof
cusecswaterapproachingandwecouldnothave
estimationofquantitieswater,hadwebeentold
aboutkneeorwaisthighwaterlevelswecouldhave
respondedaccordingly”.
DespitethereviewprocessesconductedafterFloods
2010,thewarningmessagecontentsand
disseminationmechanismisyetunchangedinthe
country.Onthecontrary,nationswithstronger
resiliencecapacitiesalwaysaimatincorporating
lessonlearntinthedisastermanagementsystemfor
achievingadvancelevelofpreparedness.Forinstance,
inJapanasrequiredbytheDisasterCountermeasures
BasicAct,relatedagencieshavetosubmita'White
Paper'¹tothecentralgovernmentcontainingtheir
evaluationsofplansfordisasterpreventionunder
takenfordisasterinthatperiod.Surveyson
effectivenessofEWSaredoneonregularbasistotake
feedbackonenduserssatisfaction.Japan
MeteorologicalAgency(JMA)togetherwithother
agencieshavebeemsubmittingtheWhitePaperevery
yearsince1963andtilldatehasissuedmorethan50
editions.Similarly,aTechnicalInvestigationGroupon
'InheritanceofLessonfromDisasters'(TIGLD)was
establishedin2003undertheCentralDisaster
ManagementCouncil,aimingtocollect,systematically,
historicaldisasterrelatedinformationsuchas
damages,countermeasuresbythelocalandcentral
governments,andimpacts(onsociety&economy)in
ordertoconveytraditional“know-how”toyounger
residentsandmakepeopleawareofdisaster
preventionplans.Thecounciltargetsabout100
historicaldisastersandinvestigatingthoseoverten
yearsperiod[InstitutionalPartnershipinMulti-
HazardEarlyWarningSystem,ACompilationofSeven
BestPracticesandGuidingPrinciples;Maryam
Golnaraghi]
Anotherimportantfeaturetowardnation's
preparednessisthecapacitybuildingoflocal
communities.Pakistanhasmadetremendous
achievementinimplementingcapacitybuildingof
communitygroups.However,thishasalwaysbeena
one-timeprojectboundactivity,mostlyunderdonor
fundedcommunitybaseddisastermanagement
initiatives.Sustainableandcontinuedinvolvementof
suchtrainedcommunitygroupsandvolunteerscould
notbeensured.InBangladeshtheCyclone
PreparednessProgramme(CPP)usesover42,000
volunteersfordisseminationofwarningmessages
andcommunityresponse.Theyreceivetrainingon
responseplans,disasterimpactsand�irstaidevery
year,throughacomprehensivevolunteerstraining
programme.InBangladeshatunitlevelthereare
2,845teamsofvolunteerswitheachteamhaving10
maleand�ivefemalemembers,headedbyateam
leader.TheUnitteamsarefrontlinesoldiersofthe
warningsystemwiththeirmandatetodisseminate
¹TheWhitePaperonDisasterManagementinJapanisareportdesignatedbylawtobedrawnupandreportedannuallytotheordinarysessionoftheCabinetpursuanttotheDisasterCountermeasuresBasicAct,TheWhitePaperisissuedeveryyearasanoverviewoftheEWandDMSystemperformancesince1963.
16HumanitarianResilienceJournal
AreWePreparedforDisasters?RealitiesandWayForward
cyclonewarningsignalsamongvillagersandhelp
themintheirevacuation.Theteamsareequipped
withhandsirens,megaphonesandtransistorradios
toreceivemeteorologicalinformationandcyclone
warningsignalbulletinstransmittedbyRadio
Bangladesh.Volunteersareselectedbythevillagers
usingaclearlyde�inedasetofcriteria.TheCPPisa
volunteerorganizationorganizedin274Unionsof32
Upazilasandismadeupof2,845Units.Eachunit
servesoneortwovillageswithanapproximate
populationoftwotothreethousandeach.Fifteen
volunteersarerecruitedforeachUnitbythevillagers.
Theful�illmentofseveralcriteriabyapersonmakes
himorhereligibletobeavolunteer,accordingtothe
volunteerby-laws[InstitutionalPartnershipinMulti-
HazardEarlyWarningSystem,ACompilationofSeven
BestPracticesandGuidingPrinciples;Maryam
Golnaraghi].
Countrywidecomprehensivehazardpro�ilingand
vulnerabilityassessmentsalthoughinitiatedbutare
yettobecompletedasmandatedandplannedunder
NDMP2012inPakistan.WhereasnationalGISdata
baseismaintainedinJapanandinformationis
availabletoallstakeholderstillcommunitylevelfor
developingtheirrespectiveresilientstrategiesand
developmentplans.InBangladesh,hazardpro�iling
andvulnerabilityassessmentsaredonebymandated
agencies,nationaldatabaseisupdatedand
maintainedthroughNationalStatisticalBureauevery
year[InstitutionalPartnershipinMulti-HazardEarly
WarningSystem,ACompilationofSevenBest
PracticesandGuidingPrinciples;Maryam
Golnaraghi].
Focusedeffortsareneededtostrengthenedcoordinationwithinandamongorganizationsthrough
establishingrequiredprotocolandtestedthroughregularexercisesanddrillsandincorporationoflesson
learntasapartofnationalpolicyandlegislation.Establishingsynergizedandendtoendearlywarningsystemshallbeaddressedasanationalpriorityin
legislationandactionplanatalllevels.SettinguprequiredprotocolandStandardOperatingProcedures
(SOPs)wouldhelpinevaluatingperformancewithinandamongstakeholdersinvolvedindisaster
managementcycle.DisastermanagementlegislationneedstoestablishdetailedmandatedtaskssupportedbycoordinatedSOPs
forallstakeholdersinvolvedinbuildingnation'sdisasterresiliencei.e.agencies,organizationsand
departmentsresponsibleforriskassessment,monitoring&forecasting,communication&disseminationof
earlywarningsaswellaspreparedness&emergencyResponse.AnationallevelGISdatabaseofcomprehensivehazardpro�ilingandvulnerabilityassessmentsatmicrolevel
shallbedevelopedandaccessibletotheenduser.Advancingdisasterresilienceisalongtermprocessbutcanbeachievedthroughshortterm,achievableand
visiblegoalstosetandprogressmeasuredasafullandclearnationalcommitment.
WayForward
17 HumanitarianResilienceJournal
TheRoleofHumanNetworksandtheirImplicationsforDisasterManagementPolicyandPractice
Inalldemocraticsocieties,theState,thePrivate
SectorandtheCivilSocietyareexpectedtoworkin
harmonytoensurethecollectivewell-beingofthe
citizens.Thisimperativebecomesespecially
signi�icantinthefaceofadversitiesofallkinds.One
emergingformofcivilsocietyinstitutionsisthe
networksofindividualsandorganizationsaround
themesofsharedinterest.Thisarticleseeksto
initiateadiscussiononthepotentialroleofcivil
societynetworksinmanagingdisasterrisksandhow
thenationalorsub-nationalpolicyregimesaffect
theminPakistan.
Theparticipationofcitizens'socialnetworksin
disasterpreparednesshasahistoryasoldasthe
countryitself.EntitieslikethePakistanRedCrescent
SocietyandthestatesupportedCivilDefences
Volunteershadbeenactiveinprovidingrelieftothe
affectedareasduringthetimesofcrises.Thesocial
transformation-particularlyduringthe1980sand
1990s-underminedalotofthistypeofvolunteerism
whiletheprofessionalizedCivilSocietyOrganizations
(CSOs)emergedandevolved,primarilyintheareasof
socialservicesandgrassrootsleveldevelopment.In
paralleltothis,theconventionalgovernmental
disastermanagementapparatustoohadbecome
outdated.
Theyear2005canbetermedasawatershedmoment
inthehistoryofPakistanwhenanearthquake
measuring7.6ontheRichterscaledevastatedvast
areasinNorthernPakistan,killingatleast76,000
peopleandleavingalargernumberinjured,homeless
andsociallyandeconomicallyscarred.The
governmentresortedtodeployingthearmedforcesto
leadthereliefoperationandthenationaland
internationalCSOsoperatinginPakistanjoinedthe
effort.Additionally,inresponsetoahumanitarian
appealbytheGovernment,alargenumberof
internationalhumanitarianorganizationspouredin
tosupplementthelocalefforts.Thisalsohappenedto
betheyearwhentheInterAgencyStanding
Committee(IASC)oftheUNhadjustagreeduponthe
HumanitarianArchitecturepopularlyknownasthe
HumanitarianClusterSystem.Pakistanbecamethe
�irsttestcaseofrollingouttheHumanitarian
Clusters.¹
Oneresultofdirectinteractionwiththeinternational
humanitarianworkerswasthegerminationofanew
cadreoflocalprofessionalsandvolunteerswith
hands-onexperienceonmodernapproachestowards
disasters.TheGovernmentofPakistan,learningfrom
theexperienceoftheearthquake,createdthe
NationalandProvincialDisasterManagement
AuthoritieswithaviewtopromoteDisasterRisk
Reductionandcoordinatedisasterpreparednessand
response.TheCSOsalsoorganizedthemselvesasthe
PakistanHumanitarianForum(PHF)andtheNational
humanitarianNetwork(NHN),representing,
respectively,theinternationalandnational
humanitarianpartners.
Sincethen,anumberofnational,sub-nationaland
locallevelinitiativestowardsriskreduction,
preparednessandresponsetothesubsequent
disastershavetakenplaceacrossthecountry.
StatutoryArrangementsforGovernment-CSO
CooperationinDisasterGovernance-Pakistan's
disasterriskmanagementanddisastermanagement
institutionalsetupisbasedupontheNational
DisasterManagementOrdinance2007(laterAct
2010)andthesubsequentsub-nationallegislation.
Theapexnationalbodyfordisasterriskmanagement
istheNationalDisasterManagementCommission
formallyheadedbytheChiefExecutiveandhas
representationbytheprovincesandthekeynational
ministries.Theactprovidesforcivilsociety
UsmanQazi
¹
18HumanitarianResilienceJournal
TheRoleofHumanNetworksandtheirImplicationsforDisasterManagementPolicyandPractice
representationintheCommission.²Theselection
processforthecivilsocietymembershiphoweverhas
beenlefttothediscretionofthechairofthe
Commission.Similarsituationexistsattheprovincial
Commissions.
PracticalImplicationsforGovernment-civilsociety
partnership-beingenvironmentallydiverse,Pakistan
offersamostvariedhazard-scapewithhighlevelsof
vulnerabilitiestogeo-seismicriskssuchas
earthquakesandtsunamis,aswellasextreme
climaticeventssuchas�loods,droughts,landslipsand
GlacialLakeOutburstFlooding(GLOF).Also,weak
governancestructures,competingdemandsonpublic
exchequerandtheweakrevenuebasewouldnot
allowforthestatemachinerytoensureadequate
publicsectorcapacityateverylevelformanaging
disastersanddisasterrisks.
Ontheotherhand,variousCSOsupportedlocal,sub-
nationalandnationalnetworksofprofessionalsand
volunteers,withwell-trainedandexperienced
individualsandorganizationsexistinallpartsofthe
country.Thesenetworksandtheirmembersoffera
greatpotentialtostrengthentheworkoflocalized
riskreduction,andalsotoincreasepredictabilityof
thecapacityforthe“�irstresponse”.Leavingasidethe
chroniclackoftrustamongvarioussegmentsof
society,particularlybetweenthepublicandvoluntary
sector,somepositiveexperienceshaveemergedinthe
recentpastwherethesigni�icanceoftheroleof
humanitariannetworkshasbeenrecognizedbythe
stateinstitutions.SigningofMemorandaof
Understanding(MoU)andjointlyorganizedtraining
workshopsarepositivestepsinthedirectionof
closingthegap.
ProspectsfortheFuture-anumberofpolicyand
practicelevelrecommendationscanbemadeto
furtherstrengthentheroleofhumanitariannetworks
andtochannelizetheirpotentialforintegratedand
coordinatedDRMandresponse.
PolicyActions:
Ÿ Therepresentationofthecivilsocietyactorsin
theapexstatutorybodiescanbemademore
meaningfulandtransparentbylayingdowna
procedureforconsultationwiththe
humanitariannetworkssothatthepolicylevel
discussionsatthenationalandprovincial
Councilscanadequatelybene�itfromthecivil
societyexpertise,experienceandinsightŸ Thecurriculaofthepublicsectortraining
institutionsshouldincludematerialonthe
value,roleandmodeofengagementwiththe
humanitarianagenciesingeneraland
humanitariannetworksinparticularŸ Thepublicsectortraininginstitutionsshould
reachouttohumanitariannetworkstoinclude
theirmembersasbothresourcepersonsaswell
asparticipantsinspecializedandgeneric
coursesrelatedtodisastermanagementŸ Thehumanitariannetworksshouldtrytoreach
outtothelegislatorsatalllevelsandfromacross
thepoliticaldividetoapprisethemoftheirrole
PracticerelatedActions
Ÿ Thehumanitariannetworksshouldmakesure
thattherelevantauthoritiesarefullyabreastof
alltheiractivitiesandfactortheseinwhile
preparingdevelopment,contingencyand
responseplansŸ Theprofessionals'databasesmaintainedby
somehumanitariannetworksshouldbe
accessibleto-andinclude-publicsectorof�icials
withthemandateandcapacityforDRMŸ Thehumanitariannetworksshouldimplement
targetedadvocacypackagestopromotegreater
transparencyandaccountabilityamongtheir
membersandtothepublicsectorŸ Thehumanitariannetworksmustcontinueto
striveforgreaterdemocratizationoftheir
structurestoensurethattheyareviewedbythe
societyatlargeasresponsible,accountableand
trulyrepresentativeoftheirmembers
²
19 HumanitarianResilienceJournal
DisasterRiskReduction(DRR)MainstreamingInGovernanceWhereNowandWhereto?
Pakistanishighlysusceptibletoreoccurringdisasters
havingfaced311disastersover71years.¹The
populationofthecountryis21.70million(National
BureauofStatistics2017)and29.5%ofthe
populationinPakistanlivesbelowthenational
povertyline.²Naturaldisastersfrom1947to2016
haveaffectedover85millionindividualswhilehuman
displacementsince2009hasaffectedover5million
individuals.Asper2017HNO3.4millionpeopleare
inneedofassistanceinKPandFATA.Meanwhile
Sindhprovinceremainsontheradarduetoendemic
chronicandacutemalnutritioninmanyrural
communities.
YusraQadir
DisasterthreatlevelAssessmentMatrixbasedon70yearshistory
Disaster
Punjab
Sindh
Balochistan
KhyberPakhtunkhwa
AzadJammu
&Kashmir
GilgitBaltistan
FATA
FLOOD 53 32 26 34 7 5 1
EARTHQUAKES 25 3 35 30 5 13 3EXTREMETEMPERATURES 8 10 4 1 0 0 0
STORMS 6 7 2 1 0 2 0
EPIDEMICS 6 6 1 3 1 0 0
LANDSLIDES 0 0 0 6 4 3 0
CYCLONES 0 9 2 1 0 0 0
AVALANCHES 0 0 0 7 5 1 0
DROUGHTS 0 3 4 1 0 0 0DataSource:CountingDisasters1947-2016byPlanInternationalendorsedbyAnthropologyDepartmentQuaideAzamUniversityIslamabad
RecurringnaturaldisastersarecommoninPakistan
duetotheimpactsofclimatechange.Vulnerabilityis
compoundedbypoverty;poordevelopment
indicatorsanddeeprootedstructuralinequalities
basedongender,religionandsocialstatus.Pakistan
hasbravedmegadisastersthroughcrosssectoraland
multistakeholdercoordinationandcooperation.It
wouldbefairtosaythatPakistanisnomorenovicein
respondingtodisasters.Asadevelopingcountry
Pakistanischallengedtoallocaterequiredresources
toDRRandpreventivemeasures.Despitechallenges,
coordinationhasimprovedinterandintra
departmentally.Politicalawarenessandcommitment
(sometimestriggeredbytheeconomicconsequences
ofdisastersandclimatechange)havecontributedin
roleclaritybetweendepartmentsandbetween
centresandperipheralgovernancestructurestoo.
TheStatehasbeenverywelcomingfornon-state
actorstojoinhandsforcollaborationandthishas
beenwellreceivedandwellrespondedtobyallnon-
stateactors.
20HumanitarianResilienceJournal
DisasterRiskReduction(DRR)MainstreaminginGovernanceWhereNowandWhereto?
HyogoFrameworkforAction2005-2015explicitly
linkedsustainabledevelopmenttointegrationofDRR
intogovernanceprocesses:“Thereisnow
internationalacknowledgementthateffortstoreduce
disasterrisksmustbesystematicallyintegratedinto
policies,plansandprogramsforsustainable
developmentandpovertyreduction....Sustainable
development,povertyreduction,goodgovernance
anddisasterriskreductionaremutuallysupportive
objectivesandinordertomeetthechallengesahead,
acceleratedeffortsmustbemade.”
Whiletheground-breakingdevelopmentwithinDRR
inPakistanwaspushedbytheHyogoFrameworkfor
ActionbyGovernmentofPakistan'sapprovalof
NationalDisasterRiskReductionPolicyin2013,there
stillremainsalottobedone.Commitmentto
streamlinemulti-stakeholderDRRactivities,adoption
ofamoreproactiveapproach,investmentinDRRand
ensuringinclusivityofallgroupsandsupportingthe
fourpriorityareasofSendaiframeworkhave
repetitivelyresonatedfromtheState.However,they
havebeenaccompaniedbycallsforsupportin
coordination,expandingresourcebaseandcapacity
building.Whileitisunderstandablethatintegration
andmainstreamingdonothappenfastatgovernance
levelespeciallyforresource-strickencountries,itis
alsotruethattoensurecertaininertiasomepacehas
tobemaintained.
Thegovernmentshouldleadthewayinpersuading
andin�luencingcoordinationbetweennationaland
sub-nationalactorstojoinheadsandhandsto
manageandreducedisaster-relatedrisk.Increasein
publicawareness,investmentinscienti�icdata
generation,analysisanditslinktoplanning,setting
upofrobustearlywarningsystems,connecting
communitiestoearlywarningsystems,investingin
riskinsuranceandappropriateresourceallocation
remainthewaytogo.
InPakistan'sforeseeablefuturerecurrentdisasters(naturalandman-made)seeminevitable.Toensurethat
thepre-burdenedeconomyisnotstrainedwithlargescalereliefandreconstruction,itisimperativethat
PakistanadoptsaproactiveapproachforDRR.Aproactiveapproachhasbeenonthegovernanceagendafora
whilenow.Pakistan'sStatementduring5thSessionofGlobalPlatformonDisasterRiskReduction,Mexicoalso
speci�icallymentionedtheneedforandoverviewofeffortsbeingunderwaytoensuremainstreamingDRRin
governance.
Sofar,theGovernmentofPakistanistakingmeasurestoensureeffectiveimplementationoftheNationalDRR
policy.ThisincludeddraftingandapprovalofaNationalDisasterManagementPlan(NDMP)whichundertakes
scienti�icdataanalysisformacrolevelhazardandriskassessmentinlinewithSendaiFrameworkforAction
(SFDRR).ThePlanwillbeimplementedby2020andeffectiveimplementationwillrequireover2billionUS
dollars.Animplementationroadmapfortheplan'srolloutwaslaunchedin2015.Therehavealsobeen
concreteeffortstoensureadedicatedbudgetlineforDisasterManagementatnational,provincialanddistrict
levelsandactionsfordisasterriskinsuranceforvulnerablecommunitiestoreducetheirdependenceon
assistancearealsobeingpioneered.
Someprojectswhicharealmostapprovedencompass
a)Short&MediumRangeForecasting(allfour
provinces,federalcapital);b)ProjectforCapacity
BuildingofDRMInstitutionsinPakistan;c)Up-
gradationofIslamabadWeatherSurveillanceRadar;
c)UpgradationofKarachiWeatherSurveillance
Radar;d)SatellitebasedIntegratedFloodAlert
Systemfor�lash�loods;e)HumanResources
DevelopmentthroughMasterDegree&PhD
Programs.
Multipledonorsaresupportingclimatechangeand
DRRintegrationintodevelopmentworkthrough
NDMAandPDMAs.NGOsandmediaarealsoplayinga
collaborativeroletocomplementandaugmentthe
effortsandcommitmentbythegovernment.
Substantivesupportisalsobeingchanneledfor
21 HumanitarianResilienceJournal
DisasterRiskReduction(DRR)MainstreamingInGovernanceWhereNowandWhereto?
mappingandassessments.Mostdonorshave
streamlinedandpooledtheirfundingtoensure
disbursementsinDRRandmitigation,
research/innovation/learningandresponse.Donors
haveimprovedcoordinationtoensureeffective
coverageoffundinggapswhereverpossible.There
havebeenprojectspilotingandtestingjointrosters,
pivotingcombinationofindigenouspracticeand
scienti�icknowledge,investmentsinimproving
scienti�ictechnologiesandforginglinkagesbetween
scienti�icdataanalysistocommunitiesandrelevant
departments.
A�iscaldisasterriskassessmentreportsupportedby
theWorldBankGroupandGlobalFacilityforDRR
revealedthatnearly3millionpeopleareaffectedby
disastersinPakistaneachyear;theestimatedannual
economicimpactof�loodsrangesbetween$1.2
billionto$1.8billion,equivalentto0.5%to0.8%of
Pakistan'sGDP.Theanalysisalsoshowedthatamajor
�loodevent,suchastheoneexperiencedin2010,
couldcauselossesinexcessof$15billion–almost
7%ofthenationalGDP.Concreteevidence-based
studies,commitmentfromtheGovernmentand
publicprivatepartnershipshaveresultedinimproved
investment(budgetallocations)toDRR.Punjabhas
beenleadingthewaywithsubstantialbudget
allocationtoDRRwhileotherprovincesarealso
steadilyincreasingfundingforDRR.
Whatneedsmorefocuspresentlyisthatpublic
awareness,politicalwillandrequiredcapacityall
needtobeinvestedinastheyarekeytoeffective
DRR.Naturaldisastersaffectthealreadyvulnerable
communitiesaugmentingthescaleoflossand
damagemanifold.ApartfrominvestmentinDRR,itis
criticaltoensureDRR'sintegrationinalldevelopment
agendasandpushingstrongerforinclusivityofall
groupswithindevelopmentandDRR.Supportive
governanceforvulnerableandmarginalizedgroups
canenablereductioninvulnerabilitywhichinturn
improvescopingcapacityforcommunities.Improved
copingcapacitycanresultinprofoundlylowerlevels
oflossanddamage.
EnsuringthatDRRisprioritizedandadequately
invested,requireseffectiveredressalofcompeting
interestsatpoliticallevel.Cashcompensationand
grantstodisasteraffecteessometimescarries
politicalbene�itsandisoptedfortoensure
constituenciesareretained.Bettergovernanceand
understandingthelong-termimpactsofnot
integratingDRRingovernanceshouldbeconsidered
todealwiththischallenge.Thereisnoshyingaway
fromthelackoffundsrequiredforeffective
implementationofNDMP.Theresourceprovision
cannotbesupportedbygovernmentordonorsinfull.
Weshouldalsobecognizantoftheinstitutional
challengesthatremainunaddressedorarisefrom
currentarrangementslikerelianceonmilitary
insteadofcapacitatingstateinstitutionsandtesting
theircapacities.Thisreinforcestrustandacceptance
ofthePakistanArmyasithasalwaysresponded
timelyandextensivelywhenevercalledupon.Atthe
sametimethishighlightsthefailureofStatetoinvest
inbuildingciviliancapacitytopredictandadequately
respondtodisasters.Aresearchbrieffromthe
StraussCentrepointsoutthatsometimes
legislation/policyexistsbutfailuretoimplementit
surfacesasastructural/institutionalissue.'For
example,theCanalandDrainageActprohibitsany
constructionon�loodplainsbutthegovernmenthas
nocapacitytogoafterillegalsettlementsand
implementthelaw'.
PakistanispavingitswayacrosstheDRR
mainstreamingandintegrationagendahoweverpace
needstobeenhancedtoensurethatwemeetour
internationalcommitmentsandareabletobuild
capacities,aslocalizedaspossibletominimizethe
impactofdisasters.
Symbioticprivatepartnershipscanbeakeyfor
resourcegenerationtofueleffectivepolicy
implementation.Itwouldneedmulti-stakeholder
collaborationandimplementationofinnovative
approachesbutpublic-privatepartnershipsisthe
waytogotobridgethefundinggap.
22HumanitarianResilienceJournal
DisasterRiskReduction(DRR)MainstreamingInGovernanceWhereNowandWhereto?
Forcommunitiestodecipherscienti�icdataor
implementDRRsomebasicamenitiesneedtobe
ensuredandacertainawarenesslevelneedstobe
reached–thistakesusbacktoinvestmentin
social/humancapitalandintegratingDRRacross
governance.Similarly,itneedstoberecognizedthat
otherdisasterslikecyclonesandheatwavesare
increasinginfrequencyandintensity.Theyshould
therefore,begivenimportanceandpriorityalong
withearthquakesand�loods.Itisalsoimportantthat
institutionsspearheadingDRRinPakistanrevisit
theirmissionsandvisionstoincludeDRRalongwith
disastermanagementandresponsesothatDRR
becomesasinstitutionalresponsibility.Beingamongstthetop10countrieswhichareworst
affecteesofclimatechange,Pakistanneedstobrace
itselfandhithomewithintegrationofDRRwithinthe
governanceumbrellaasitwillbethecornerstonefor
buildingresilientcommunities.Withthe
commitmentsofhighlevelof�icialsinthe
InternationalConferenceonDisasterManagementon
20thJune2018,wehopethatthepoliticaland
institutionalwillstaysstrongandtranslatesinto
effectiveactionsatdesiredpace.
Themeteorologicaldepartmentandthegeographic
surveyofPakistanhavedonevaluableworkin
settingupsystemstopre-emptdisasters.However,
westillhavealongwaytogointermsofoptimal
useoftechnologyandlinkingscienti�icdata
analysistodecisionmaking.Pakistanstillscored
verylow(8thoutof11Asiancountries)inuseof
scienti�icknowledgeindecisionmakingand
investmentinscienceandtechnologyinareport
producedbyInternationalCouncilforScience(ICS)
andIntegratedResearchforDisasterRisk(IRDR)in
2017titled'Assessingcountry-levelscienceand
technologycapacitiesforimplementingtheSendai
Framework'.
1. ArticleDailyTime(21June2018)'Strategyfordisasterriskreductionvitalforensuringsafetytohumanlives'
https://dailytimes.com.pk/255836/strategy-for-disaster-risk-reduction-vital-for-ensuring-safety-to-human-lives/2. CountingDisasters1947-2016:PakistanDisasterRiskIndex(2016)TailalMasood–PlanInternational–Thisstudyhasbeen
endorsedbyQuaideAzamUniversityIslamabad.3. FiscalDisasterRiskAssessmentOptionsforConsideration-Pakistan(2015)
http://documents.worldbank.org/curated/en/829791468070733917/pdf/944740WP0P13260ter0Risk0Assessment.pdfhttps://www.preventionweb.net/�iles/17429_4disasterriskreductiongovernance1.pdf
4. ImprovingPakistan's�iscalresiliencetonaturaldisasters(2017)HarisKhan,WorldBankBlog
http://blogs.worldbank.org/endpovertyinsouthasia/improving-pakistan-s-�iscal-resilience-natural-disasters5. PakistanLaunchesFirstDisasterRiskInsuranceFramework(2017)LEADPakistanWebsite
http://www.lead.org.pk/lead/postDetail.aspx?postid=3386. PakistanNationalprogressreportontheimplementationoftheHyogoFrameworkforAction(2013-2015)
https://www.preventionweb.net/�iles/42312_PAK_NationalHFAprogress_2013-15.pdf7. Pakistan:StatementmadeattheThirdUNWorldConferenceonDisasterRiskReduction(WCDRR)
https://www.preventionweb.net/english/professional/policies/v.php?id=440428. Pakistan'sStatementduring5��SessionofGlobalPlatformonDisasterRiskReduction,Mexico(22-26May2017)
https://www.preventionweb.net/�iles/globalplatform/GPDRR-%202017%20Country%20Statement-Pakistan[1].pdf9. Report:Assessingcountry-levelscienceandtechnologycapacitiesforimplementingtheSendaiFramework(2017)–International
CouncilforScienceandIntegratedResearchonDisasterRisk https://www.icsu.org/cms/2017/05/DRR-policy-brief-1-countries.pdf10. ReviewofNationalMulti-HazardEarlyWarningSystemPlanofPakistanincontextwithSendaiFrameworkforDisasterRisk
Reduction(2018)RabiyaMukhtarhttps://www.sciencedirect.com/science/article/pii/S187770581830036511. SendaiFrameworkforDRR(2015–2030)https://www.preventionweb.net/�iles/43291_sendaiframeworkfordrren.pdf12. ThePoliticalEconomyofDisasterPreparednessandRiskReductioninPakistan(StraussCentre2017)
https://reliefweb.int/sites/reliefweb.int/�iles/resources/CEPSA_Brief-5_DisasterPreparedness_1.pdf13. UNDP–DRR,GovernanceandMainstreamingArticle
References:
23 HumanitarianResilienceJournal
DISASTERMANAGEMENTSYSTEMOFPAKISTAN
Introduction.
Sincebeforepartition,theareaofPakistanhas
seenmorethanitsfairshareofdevastating
disasters,fromearthquakes,tsunami,droughts
to�loods,landslidesandavalanches.Most
devastatingofthesedisasterstoaffectPakistan
pre-partitionwasthe1935QuettaEarthquake
whichcompletelydestroyedtheoldcityof
Quetta&killedapprox.60,000persons,
followedby1944Cyclonewhichhitcoastof
Karachi;leavinghomeless20,000personsand
the1945MakranTsunamiwhichkilledan
estimated4,000persons.Afterindependence,
Pakistanasanewnationmadeagreatdealof
progress,establishingitsCivilDefenceService
whichhadalargeandvariedmandate,
includingmanyaspectsofdisaster
management.Overtheyears,Pakistanhas
progressedgreatlyinitscapacitytomitigate
andrespondtodisastersituations.
InstitutionalFramework.
Sinceindependence,variouslegislationsand
institutionalbodieswerepromulgated/
established.Abriefrundownofthese
importantmilestonesis:-
a. TheCivilDefenceAct1952waspassedto
aidcivilpopulaceindefenceofanyformof
hostileactaswellasanycalamityor
disastersituation.ThisActhasbeen
amendedovertimeinviewofnational
requirements.b. TheCalamitiesAct1958wasmainly
focusedonorganizingemergencyresponse
(maintenanceandrestorationoforderin
areascalamitiesaffected).Thisactwas
lateramendedwhenthefourprovinces
werecreatedin1971.c. EmergencyReliefCell(ERC)wascreated
withintheCabinetDivisionin1971and
wasresponsiblefordisasterreliefat
nationallevel.Itprovidedassistancein
cashandkindtosupplementtheresources
oftheProvincialGovernmentsineventof
majordisaster.d. FederalFloodCommission(FFC)was
establishedin1977intheaftermathofthe
1973and1976Floodswhichwreaked
havocthroughoutthecountry.FFCwas
mandatedtohelpcoordinate�lood
preventionmeasuresatnationallevel.e. NationalCrisisManagementCell(NCMC)
wasestablishedinJuly1999underAnti-
TerroristActintheMinistryofInteriorto
coordinatewithProvincialCrisis
ManagementCellandtocollect
informationregardingvariousemergencies
inthecountry.f. EarthquakeReconstruction&
Rehabilitation(ERRA)Ordinance2005and
FederalReliefCommissionwaspassedto
establishanauthoritytocoordinatethe
recoveryandrehabilitationofareas
affectedbythedevastating2005Kashmir
Earthquake.Theordinancewaslater
passedasanAct.g. NationalDisasterManagementOrdinance
2007waspromulgatedresultantly,NDMA
wasestablishedin2007asaleadagencyat
federalleveltoimplement,coordinateand
monitorthewholespectrumofdisaster
managementincludingprevention,
preparedness,mitigation,response,
reconstructionandrehabilitation
programs.TheOrdinancewaslaterpassed
asanActin2010.h. OrganizationofNDMA.AspertheNDMAct
2010,theAuthorityisheadedbyChairman
whileithasthreeMembersheading
differentWings.TheChairmanalsoactsas
anex-of�icioSecretaryoftheNational
DisasterManagementCommission(NDMC)
whichischairedbyPrimeMinisterof
PakistanandNDMAservesasaSecretariat
ofNDMC.
24HumanitarianResilienceJournal
typesofdisasters,RiskInsurance,National
DisasterManagementPlan(NDMP)
includingimplementation&progressand
disasterawareness.Moreover,
CoordinationwithUNOrganisations,
Bilateral/MultilateralOrganisationsand
INGOs/NGOswithrespecttoallmatters
ingivendomainisalsocarriedoutbyDRR
Wing.(3) Operations(Ops)Wing. OpsWingdeals
withoperations/coordinationofNational
EmergencyOperationsCentre(NEOC),
relief,rescue,recoveryandrehabilitation
operationsduringalldisasters(inlandand
foreign).Italsocarriesoutcoordinationof
humanitarianassistanceandrescue,relief,
recovery,rehabilitationeffortswith
Federal/ProvincialAuthorities&
organizationsaswellasallstakeholders
includingUNOrganisations,INGOs/NGOs.
Moreover,preparationofcontingencyand
responseplansforvarioushazards.3. HistoryofMajorDisastersinPakistan.As
explainedbrie�lyintheintroduction,the
areaofPakistanhasseenmorethanitsfair
shareofsincebeforepartition&
independencein1947.Abriefoverviewof
themajordisasterstheareahasfacedis:-a. 1935QuettaEarthquake. Tookplaceon31
Mayat0233hoursatQuetta,
theearthquakehadamagnitudeof7.7and
killedapproximately60,000persons.b. 1944KarachiCyclone.On27Julyapower
cyclonemadelandfallatKarachi,causing
largescaledamagesleavingapproximately
20,000personshomeless.c. 1945MakranTsunami.Apowerful
earthquakewithmagnitudeof8.1
struckofftheMakranCoastnearPasni,the
subsequenttsunamiwithwavesashighas
15metersstruckthePakistancoastline
fromPasni,Gwadar,Ormara,Karachiand
KetiBandar.Itisestimatethetsunami
killedasmanyas4,000persons.1950PunjabFloods.Anestimated3,000
personswerekilledand900,000persons
weremadehomelesswhenRiverRavi
h. NDMA'sMandateasperNDMAct2010.
NDMA,theexecutivearmofNDMCis
assignedfollowingmainrolesand
responsibilitiesasperArticle9ofNDMAct
2010:-
(1) Actastheimplementing,coordinatingand
monitoringbodyforNationalPolicies
relatedtodisastermanagement.(2) PreparetheNationalPlantobeapproved
bytheNationalCommission.(3) Laydownguidelinesforpreparingdisaster
managementplansbydifferentMinistries
orDepartmentsandtheProvincial
Authorities.(4) Providenecessarytechnicalassistanceto
theProvincialGovernmentsandthe
ProvincialAuthoritiesforpreparingtheir
disastermanagementplansinaccordance
withtheguidelineslaiddownbythe
NationalCommission.(5) Co-ordinateresponseintheeventofany
threateningdisastersituationordisaster.(6) Laydownguidelinesfororgivedirections
totheconcernedMinistriesorProvincial
GovernmentsandtheProvincial
Authoritiesregardingmeasurestobetaken
bytheminresponsetoanythreatening
disastersituationordisaster.
(7) Foranyspeci�icpurposeorforgeneral
assistancerequisitiontheservicesofany
personandsuchpersonshallbeaco-opted
memberandexercisesuchpoweras
conferreduponhimbytheAuthorityin
writing.(8) Promotegeneraleducationandawareness
inrelationtodisastermanagement. FunctionsofVariousWings.Inorderto
carryouttheassignedtasks/functions,
NDMAisdividedintothreewingswith
followingtasks:-(1) AdministrationandFinance(A&F)Wing.
Providesalladminand�inancialsupport
fordailyNDMAOperations.(2) DisasterRiskReduction(DRR)Wing.
HandlesallmattersrelatedtoDisasterRisk
ReductionPolicies&Plansconcerningall
25 HumanitarianResilienceJournal
GujratstarteddissipatingneartheSindh-
Gujaratborder.However,itcausedmassive
rainfalland�loodinginKarachi,Thattaand
Badinkilling609personsanddisplacing
200,000persons.k. 1998–2002PakistanDrought.
ConsideredworstdroughtinPakistan's
historyaffectingmorethan2million
personsthroughoutthecountry.l. 2005KashmirEarthquake.Thesinglemost
deadlyearthquaketohitthecountry,it
causedmassivedamagesinareasofAzad
Jammu&Kashmir,NorthwestFrontier
Province(nowKhyberPakhtunkhwa)and
IslamabadCapitalTerritory.Theearthquake
approximatelykilled73,338persons,
injured128,304personsandaffected3.5
millionpersons,causingbillionsofdollars'
worthindamagesandlosses.m.2007CycloneYemyin.Atleast730people
diedasaresultof�lash�loodstriggeredby
CycloneYemyin,whichstruckcoastalareas
ofSindhandBalochistaninJuly.
Approximately350,000peoplewere
displaced,1.5millionpersonswereaffected
andmorethantwomillionlivestock
perished.n. 2010PakistanSuperFloods.Thesingle
worstinstanceof�loodingtoaffectPakistan
whichstartedon20July.The�loodsaffected
KhyberPakhtunkhwa,Punjab,Sindh,
BalochistanandAzadJammu&Kashmir,
causingapproximately1,985deaths,
injuring2,946persons,affecting
20millionpersonsandleadingtoover10
billiondollarsworthofdamages
andlosses.o. 2010AttabadLakeLandslide.Attabad
villageinDistrictHunzaofGilgitBaltistan
wasdeclaredhazardousbyNDMAin
September2009basedonastudy
undertakenbyGeologicalSurveyofPakistan
(GSP).103familieswereevacuatedpriorto
theincident.On4Januaryamassive
landslideblockedthenatural�lowofRiver
HunzaleadingtothecreationofAttabad
Lake.
�looded,burstingitsbanks,thecityof
Lahorewastheworstaffected.e. 1964IndusValleyCyclone.Apowerful
cyclonemadelandfallalongSindhcoaston
12Junecausingmassivedamages,
approximatelykilling450personsand
leavinghomelessupto400,000persons.f. 1965KarachiCyclone.On15December,the
deadliestcycloneonPakistan'srecordshit
Karachileadingtothedeathsof
approximately10,000personsandmaking
numerousothershomeless.g. 1973Floods.The�loodsbeganonAugust8
anddeathsofpeoplewerereportedfrom
SialkotandGujranwala.Manyvillagesof
LahoreandWazirabadwereinundatedon
11August.Indus�loodwatersentered
Larkanaon21August,suburbanareasof
Sadiqabadcameunderwateron2
September.Massivelossesanddamages
werereported.The�loodsaffectedmore
than4.8millionpersons.h. 1974HunzaEarthquake.On28Decembera
magnitude6.2earthquakestrucktheHunza
Valleyat1211hours.Theeffectsofthe
earthquakewerefeltthroughoutthe
northernhalfofPakistan.Theearthquake
approximatelykilled5,300persons,injured
17,000personsandaffected97,000persons.
Itsdestructiveeffectscompletelydestroyed
thetownofPattaninNorthwestFrontier
Province(nowKhyberPakhtunkhwa).i. 1992Floods.The1992�loodscamein
Septemberduetotorrential
rains.Floodwarningwasissuedon12
September.RiverJhelumwitnessed�lood
peakon14Septemberandinundatedmany
villages.High�loodsituationwaswitnessed
inriversandwater�lowhadtobediverted
bywayofbreachesinanembankmentto
savecityofMultanon15Septemberand
breacheswerealsomadeon18September
tosavePunjnadHeadworks.These�loods
killedapproximately1,400personsand
affected12millionpersons.j. 1993SindhCyclone.On16Novembera
cyclonewhichmovedintoSindhfromIndian
26HumanitarianResilienceJournal
Accord.NDMAhasdevelopednumerous
contingencyplans,policiesandguidelines,
suchastheNationalIndustrial/Technical
DisasterContingencyPlan,NationalDisaster
ResponsePlanandHostNationSupport
GuidelinesforForeignAssistanceto
PakistanDuringDisasters.Ithasplayed
pivotalroleinraising,trainingand
establishmentofUrbanSearchandRescue
TeamsinIslamabad,Mardan,Karachi,
LahoreandevenforthePakistanArmy.
NDMAthroughitsNationalInstituteof
DisasterManagementhastrainedover
10,000governmentof�icialsandprivate
individualsinvariousaspectsofdisaster
management.
5. Asweworktowardsbuildingabetterand
disasterresilientPakistan,NDMAisworking
withstakeholdersandpartnersbothin
PakistanandInternationally,inthefuture,
NDMAisworkingtoestablishitsDisaster
ManagementComplex,apurposebuilt
institutewithstateoftheartNational
EmergencyOperationsCentreandbuildings
forNationalInstituteofDisaster
Management,aswellasestablishing
Pakistan's�irstspecializedNationalDisaster
ResponseForce(NDRF),whichwillberapid
responseforcethatcanbedeployed
anywhereinthecountrywithin6hours.
p. 2011SindhFloods.Duetounprecedented
rainfallinSindhoveraperiodof4weeksin
August,approximately167km²was
inundated.The�loodsapproximatelykilled
516personsandaffected9.3million
persons.
q. 2015KhyberPakhtunkhwaEarthquake.On
26Octoberat1409hrsan8.1magnitude
earthquakestrucktheHindukush
Mountainscausinglargescalelossesand
damagesinKhyberPakhtunkhwa(KP),
Gilgit-Baltistan(GB),AzadJammu&
Kashmir(AJ&K)andFederallyAdministered
TribalAreas(FATA).Theearthquake
approximatelykilled272persons,injured
856anddestroyed96,152houses.
4. NDMA&Pakistan'sProgressonDisaster
Management.Sinceestablishment
ofNationalDisasterManagementAuthority
in2007ourdisastermanagementsystem
hasbeensteadilydevelopingthroughfacing
numerousdisastersandlearningfromthem.
Wehavespearheadedmanyunique
practicesindisastermanagement,whichare
nowconsideredglobalbestpractices.
PakistanhasdevelopeditsNationalDisaster
RiskReductionPolicyanditsNational
DisasterManagementPlanin2013.Pakistan
isacommittedtoSendaiFrameworkfor
ActiononDisasterRiskReductionandisa
signatoryoftheParisClimateChange
27 HumanitarianResilienceJournal
NationalHumanitarianNetworkPakistan(NHN)isavolunteernetwork,foundedin2010asaresultofaninteractivedialogueinNationalDisasterManagementAuthority(NDMA)toactasanindependentandvibrantvoicetoengagewithstakeholdersthroughoutPakistanforpromotionofhumanitarianvaluesbyin�luencingpoliciesandbuildingcapacitiestoensurerightbasedhumanitarianresponse.
NHNhasbeengiventhemandatebyitsmemberstorepresentthelocal/nationalNGOsontheforumsandplatformsrelatedtothewholespectrumofhumanitarianactivitiesrangingfromDisaster Preparedness & Disaster Risk Reduction (DP/DRR) to Response and Recovery &Rehabilitation.Structurally,theprimaryfunctionofNHNistotakealeadonissuesofcollectiveandsharedimportance,especiallytheissueswhereaunitedstanceisconsideredmoreeffectivethanindividualmembers’tacklingtheissueontheirown.ThiswouldimplythatNHNsteersclear of the functions and activities that arenot of a collectivenature andmight bring thesecretariatinacon�lictofinterestwiththemembers.TheNHNwouldbestremainfocusedonstrengthening the collective and shared values, stances, capacities and standards of thehumanitariancommunity.
NHN National SecretariatApartment Number 306, 3rd Floor Imperial SquareKhalid Bin Waleed Road, E-11/2, IslamabadLand Line # 051-2305260-61E-Fax: 051-8311296www.nhnpakistan.orgwww.resourcecenter.nhnpakistan.org