LEARNING FROM DISASTER RECOVERY -GUIDANCE FOR DECISION MAKERS- 災 害 からの 復 興 に 学 ぶ -よりよい 復 興 のための 指 針 -

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1 Executive Summary 要 約 (January 2007 Edition) LEARNING FROM DISASTER RECOVERY -GUIDANCE FOR DECISION MAKERS- 災 害 からの 復 興 に 学 ぶ -よりよい 復 興 のための 指 針 - International Recovery Platform (IRP) 国 際 復 興 支 援 プラットフォーム(IRP) January 年 1 月

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3 Contents Part I. Learning From Disaster Recovery Chapter 1. Introduction -3- Chapter 2. Learning and Applying Lessons -4- Chapter 3. Creating Resilient Recovery -5- Chapter 4. Reducing Risks in Recovery -7- Chapter 5. Organizing Recovery -8- Part II. Managing Disaster Recovery Chapter 6. Securing Resources for Recovery -10- Chapter 7. Assessing Damage, Needs and Capacities -11- Chapter 8. Developing Reconstruction Strategies -13- Chapter 9. Recognizing the Continuum from Emergency to Long-Term Recovery -14- Chapter 10. Understanding Gender Factors -16- Chapter 11. Managing Information for Recovery -17- Chapter 12. Resolving Dilemmas in Recovery -19- Chapter 13. Summary -20- 目 次 第 1 部 災 害 からの 復 興 に 学 ぶ 第 1 章 序 文 ( 3 ) 第 2 章 教 訓 の 学 習 と 活 用 ( 4 ) 第 3 章 しなやかな 復 興 の 創 出 ( 5 ) 第 4 章 復 興 過 程 におけるリスクの 軽 減 ( 7 ) 第 5 章 復 興 の 組 織 ( 9 ) 第 2 部 災 害 復 興 の 管 理 第 6 章 復 興 のための 資 源 の 確 保 ( 10 ) 第 7 章 被 害 ニーズ 能 力 の 評 価 ( 11 ) 第 8 章 復 興 再 建 戦 略 を 策 定 する ( 13 ) 第 9 章 緊 急 対 応 から 長 期 的 な 復 興 への 移 行 を 認 識 する ( 14 ) 第 10 章 ジェンダー 要 因 を 理 解 する ( 16 ) 第 11 章 復 興 のための 情 報 を 管 理 する ( 17 ) 第 12 章 復 興 におけるジレンマを 解 決 する ( 19 ) 第 13 章 まとめ ( 20 )

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5 Executive Summary Plate 1. Tsunami devastation in Sri Lanka Within this image the scale and complexity of disaster recovery is revealed: Psycho-social recovery of a cluster of bewildered survivors Economic recovery of fishermen, having lost their jobs, boats and nets Physical recovery of dwellings and infrastructure Environmental recovery of the coastal eco-system Administrative recovery of destroyed government offices, records and lost officials 1

6 This book claims to be a groundbreaking project, constructed on an evidence-based examination of international experience to determine the nature of successful disaster recovery. This study is the first to be published by a consortium of UN Agencies, based on a systematic analysis of disaster recovery experiences. It is also the first book aiming to provide practical advice for disaster recovery managers. The book was written during ongoing recovery operations following three epic-scale disaster events: the Indian Ocean Tsunami of December 2004, Hurricane Katrina of August 2005 and the India/Pakistan earthquake in October 2005 and these, and other operations have yielded vital data for the book concerning the recovery process. This is the first major product of the International Recovery Platform (IRP), which was launched during the World Conference of Disaster Reduction (WCDR) in The IRP has been designed to promote collective learning, and is supported by a consortium of UNDP, UN/ISDR, UN/OCHA, ILO, ADRC, WB, IFRC, the Government of Japan, Switzerland and Italy. The project fills a major gap in international knowledge through the careful analysis of recovery operations following a diverse range of natural disasters that have occurred during the past twenty years. The intention is to learn vital lessons by understanding what constitutes an effective recovery operation and what can impede the process. Thus, evidence has been assembled from the analysis of approximately seventy accounts of recovery. This has been augmented through the addition of first-hand experiences gained from visits made by the author and a research field team drawn from the International Recovery Platform to review recovery lessons from flooding, earthquake, and tsunami impact in Mozambique, Sri Lanka, Indonesia, and Bangladesh. The results, summarised here seek to provide practical help to key decision makers directing recovery actions who might otherwise find themselves re-inventing wheels. The broader and more substantive aim of the project is to assist decision makers in their efforts to create more resilient societies through well-designed recovery operations. This complex and all-embracing task is fundamental to the whole disaster recovery process. It includes strengthening the ability of societies to resist the impact of natural hazards, to bounce back rapidly following impact and to adapt and change during the recovery process in such a way as to build back better. It is anticipated that the study will result in significant progress in the following areas: Improved global recovery management following major disasters. Better value for the money invested in recovery through the adoption of an evidence based approach focusing on what works and what is likely to fail. Improvements in the assessment of damage, needs, and capacities. Better integration of psycho-social, economic, physical, environmental, and administrative recovery into holistic policies and programmes. Advice on ways to incorporate risk reduction into recovery. Guidance to officials managing recovery programmes on how to cope with multiple strategic and tactical dilemmas. The development of a framework for future reporting on disaster recovery. The study has been structured under various key themes that form the overall framework of disaster recovery. It is in two parts, Part 1. Learning from Disaster Recovery forms the text of the present volume. This contains a strategic overview of recovery while Part 2, Managing Disaster Recovery, will complete the work with a detailed consideration of specific issues. However, anticipating the full version, this executive summary covers the content of both Parts 1 and 2. 2

7 PART 1. LEARNING FROM DISASTER RECOVERY These chapter summaries include some of the diagrams or models that accompany the text. Such diagrams, which seek to simulate reality, give an immediate and memorable presentation of ideas that are subsequently unpacked in the chapters that follow. Readers may find it helpful to their understanding of the issues to have these visual images already in their minds as they explore the more detailed work. There are four salient themes: Learning, Resilience, Safety, and Organisation. These four themes provide a broad introduction to the essentials of learning from disaster recovery. This summary provides a vade mecum or pocket guide for all disaster recovery managers, with its easily remembered diagrams. Chapter 1. Introduction A detailed introduction sets the stage for the book, by explaining why and how it was written, for whom it has been written and a description of its structure. The majority of the burden for long-term recovery from any disaster is carried by the local population and their government. It follows that they are the main audience for any emerging lessons. Recovery managers may find their sudden experience of a disaster and its management a totally unexpected challenge at a time when they are themselves in a state of shock. At such a time they need to have the principles of disaster impact as well as the dynamics of recovery clearly in mind. Other groups that this book seeks to inform include the staff working for the wider international community of assisting bodies: relevant UN Agencies, international banks, such as the Asian Development Bank, and national and international NGOs. Staff working for these organisations may also make use of such lessons since they are heavily involved in the relief phase and the trend is for them to have greater involvement in long-term recovery programmes. In theory, the leading international agencies are much more familiar with the nature of disasters and good practice in responding to them than national authorities, for whom disasters are thankfully a rare intrusion. In practice, high staff turnover in many organisations presents the consequent risk even of international agencies regularly reinventing wheels, because the individual official faced with the practical problems has no prior personal experience of such a situation. In addition, the study is likely to be of interest to the donor community, including such bodies as governments, UN agencies, the European Union, etc. It is also hoped that the book will provide support to researchers, faculty, and students in higher education and staff training courses for officials at all levels. 3

8 Chapter 2. Learning and Applying Lessons Since the broad theme of this book is about learning from recovery, this chapter considers the way we learn, how information can lead to knowledge that can in turn be applied, especially in the context of recovery from natural disasters. A strategic goal of the book is to foster the creation of a learning-culture in order to build from past disaster and disaster recovery experiences, and apply the lessons. (See diagram at the end of the executive summary) This chapter contains a discussion on the process of institutional and personal learning from past experiences. The experiential learning cycle, a familiar model developed originally by David Kolb and widely used in education and training, is described with the aid of the visual model shown in Figure A, and consideration is given to how the cyclical progressive learning stages apply to disaster recovery. These stages are: experience, description, analysis, generalisation, and action plans. Thus, there is an important sequence to note in learning from disaster recovery experiences. Information gained from experience has to be observed, collected and organised in order to stimulate the growth of knowledge. This can happen at an individual or collective level as an entire community learn lessons from the information they have acquired together. Without experience information can not be obtained and without this data, knowledge can not be developed and without accurate knowledge effective recovery actions will never be effective. Experience: The active learning experience of Disaster Recovery Action Plans: Planning and preparing for future disaster recovery Description: Reflecting on this experience and sharing it with others Analysis: Interpretation, collecting data and making sense of the experience, finding relationships Generalisation: Applying the experience, developing recovery policies and guiding principles Fig. A The Experiential Learning Cycle 4

9 Priorities for Action in relation to Learning ESTABLISH WAYS TO PROMOTE LEARNING TO BUILD FROM PAST EVENTS Document evidence Analyse the evidence Disseminate Key Issues Educate and Train Create learning organizations (See diagram (Fig. N) at the end of the executive summary) Summary While there are important individual factors in each disaster that strikes a particular society and therefore individual solutions for their recovery, there are patterns that frequently recur and it is useful for recovery officials to be aware of them. It may be necessary to discard the experiences of others as being irrelevant to their own situation. But there are examples cited in this book of lessons that can be applied from one situation to another. Chapter 3. Creating Resilient Recovery This must be the primary objective: to build and maintain a resilient community or environment that will be able to cope with the impact of future hazard forces and other organisational stresses. Resilience is regarded as a particularly appropriate dynamic framework for sustainable recovery, with its emphasis on absorbing shocks, bouncing back after disaster impact, and adapting during the recovery process to accommodate essential changes. A strategic goal of the book is to create disaster recovery that is a collective enterprise of multiple groupsmobilising the entire society to play their part in building back better (see diagram (Fig. N) at the end of the executive summary) Figure B is a model of a resilient structure, it portrays: Natural hazards and organisational pressures to resist, The nature of a resilient structure: resist/ bounce back and adapt, Foundation blocks: resourcefulness/ rapid actions/ redundancy, and robustness. Working with the existing capital in any given society in a pre-disaster situation, international agents and local government can introduce the foundation blocks which will allow for resilience and the possibility of recovery if disaster strikes. Capital consists of the natural environment, such as water, land, and forests. Institutional capital is to be found in the existence of management systems in public or private organisations. There is also financial capital in the availability of savings or credit to the community, and physical capital in the buildings, machinery, transport systems, water and sanitation services. Most importantly, there is human and social capital in the knowledge, skills, health, and physical abilities of the population, as well as the networks of relationships and trust that they have built up. Examples of adequate capital, or resilience, are cited as well as inadequate capital, or vulnerability. 5

10 Where disaster strikes before such resilience has been recognised or developed there is even more urgency in the need to build it into the recovery process. Understanding this will give workers in the field and their management teams a foundation from which to work. Examples of resilient communities are cited in this chapter. One example has noted the following patterns showing how societies cope during the reconstruction phase of a disaster by: o drawing on the support of their community; o being adaptable, able to accept essential changes o being flexible and patient; o mitigating future risks (of both psychological as well as risks with material value) o regarding physical recovery work as bereavement therapy and a possible income source; o regarding the entire reconstruction experience as a learning process Fig. B Resilient Communities within Resilient Settlements Priorities for Action in relation to Resilience BUILD RESILIENCE THROUGH EFFECTIVE RECOVERY STRATEGIES Build effective assessment and monitoring capacity Relate the various phases from relief to full recovery into a seamless flow of activities Balance conflicting demands resolve recovery dilemmas (See diagram (Fig. N) at the end of the executive summary) Summary The primary aim of recovery management is to use the opportunity to build or strengthen resilience in all levels and directions: to society, to its citizens, its assets, its buildings, its critical facilities, its livelihoods, its government administration, and its natural environment. 6

11 Chapter 4. Reducing Risks in Recovery There is a general recognition that disaster recovery offers unique opportunities to introduce or strengthen safety measures. But what are the constraints on these attempts? While it is normally an aim of reconstruction to reduce risks to avoid a repetition of the disaster, there is always a risk of inadvertently rebuilding vulnerability within a given society. Examples are given of this process. A strategic goal of the book is the systematic incorporation of risk reduction approaches into recovery programmes (Applying the Hyogo Framework for Action (HFA) (See diagram (Fig. N) at the end of the executive summary) Risks must be reduced in the recovery process to avoid repeating the disaster. The recovery provides the physical opportunity as well as a collective mindset to introduce changes in structural and non-structural risk reduction elements, and these need to be co-ordinated in an integrated manner. The obstacles to the introduction of safety measures are significant: the additional cost, the need to train designers and constructors in new ways of building, the need to educate the public concerning their own behaviour, the development of enhanced safety legislation, such as building bye-laws and land-use planning controls, and the extra time that all these processes require. Risk reduction also needs to be mainstreamed into the central flow of government policies and planning, and disaster recovery may provide the catalyst for such changes. This chapter expands on the resilience theme with an overview of the ways structural and non-structural measures can be built into recovery as a vital element to ensure that the rebuilt institutions and structures are secure. Figure C illustrates a chain of safety. It contains a wide range of risk reduction elements. These deserve to be firmly imprinted on the mind of the whole community and its leaders. It is particularly important for those promoting a given link to become aware of their inter-dependence on other aspects in a safety strategy. Therefore, this diagram shows how each safety measure interlinks with others, so that the whole chain gains from the strength of each individual link. The chain is set as a circle as a reminder of the strength of a ring beam as used in buildings to resist seismic forces. Fig. C. The Chain of Safety Model 7

12 In building Risk Reduction into Recovery, the core issues are: The integration of disaster risk reduction into sustainable policies and the planning of recovery Development and strengthening of institutions, legal mechanisms and capacities to build resilience to hazards throughout the recovery process. The systematic incorporation of risk reduction approaches into the implementation of emergency preparedness, response and recovery programmes Building risk reduction into the reconstruction of new buildings and infrastructure. Priorities for Action in relation to Risk Reduction REDUCE RISKS THROUGH THE RECOVERY PROCESS Revisions to risk assessment to aid recovery Review legal framework Strengthen or initiate safe building practices Special attention to safe critical facilities (See diagram (Fig. N) at the end of the executive summary) Summary Despite the obstacles risks must be reduced in the recovery process to avoid a repeat of the disaster. The recovery provides the physical opportunity as well as a collective mindset to introduce changes in structural and non-structural risk reduction elements, and these need to be co-ordinated in an integrated manner. Risk reduction also needs to be mainstreamed into the central flow of government policies and planning. Disaster recovery may provide the catalyst for such changes. Chapter 5. Organising Recovery A practical examination of the constraints and challenges facing recovery managers is presented. There follows a critical examination of the various organisational models that have been adopted in past recovery operations. A strategic goal of the book is the development and strengthening of disaster recovery organisations, institutions and mechanisms. (See diagram (Fig. N) at the end of the executive summary) Questions are raised in this chapter concerning good practice in the administration of recovery. For example, whether recovery management should be handled by a special task force or be left to normal line ministries? Another key issue concerns the links or the discontinuities between the short-term management of the disaster response and longer-term recovery. The complex political dynamics of recovery will be noted. The discussion brings in some lessons concerning recovery management in various contexts, such as India and Colombia. Figure D represents an effective model for the organisation of recovery. It places disaster recovery management within the prime minister s or cabinet office. This office is then linked to Disaster Recovery Cells in all the relevant line ministries. 8

13 Office of the Prime Minister or Cabinet Office Disaster Recovery Organisation National Disaster Coordination Office Foreign Office Ministry of Interior Ministry of Health Ministry of Housing and Urban Development Ministry of Education Ministry of Finance Fig. D. Organisational Structure of a Disaster Recovery Organisation Summary Effective recovery requires a single point of overall responsibility in government. The complexity of the recovery task normally requires a dedicated new organisation rather than place the organisation of recovery under existing line departments. This may be best achieved by having a dedicated organisation at the apex of political power and decision making. The organisation also needs: o a clear mandate supported by appropriate legislation, o adequate financial, human and material resources, o direct links to all line ministries, o knowledge of the dynamics of the disaster recovery process, o mechanisms that permit continual two way consultation with surviving communities, o an effective Disaster Recovery Management Information System (DRMIS) Establish effective organisations with the required capacity Understand ways to gain access to grants or loans Create strategic plans for recovery/reconstruction (See diagram (Fig. N) at the end of the executive summary) 9

14 PART 2. MANAGING DISASTER RECOVERY Chapter 6. Securing Resources for Recovery An exploration of ways in which finance, goods, and labour can be obtained and managed so that they do not damage fragile local resources. The chapter examines how to create a recovery that satisfies demand rather than supply priorities and how patterns of support should be based on responses to the assessments of damage, needs, and capacities. The flow of resources can determine whether disaster survivors are left to stand by as idle spectators watching imported labour and materials being used to rebuild their future, or whether they can play a primary role. Most major disasters create the need for a massive influx of human, material, and financial resources and these may far exceed national capacities to manage or distribute such volumes of assistance. There is an additional risk that by importing external resources, the opportunity to use local labour and materials and thus support local economic recovery can be missed. International finance, whether in the form of grants or loans, can greatly assist in facilitating rapid recovery. This chapter considers issues that surround macro-finance as it is donated or lent by the large international financial institutions or key donors. How are such funds secured following major disasters, what conditions apply and what has been the experience of national and international officials as they seek support for recovery? Experience suggests certain key principles that can indicate how such resources may be managed effectively: Transparency is needed to minimise the risks of corruption. Integrity is essential and this has to start from the top and be maintained at all levels. The Code of Conduct and the Sphere Standards can provide useful benchmarks in recovery management. The model illustrated by Figure E seeks to demonstrate the patterns of multiple accountability that surround a recovery manager. They are accountable upward, with connections to groups such as the government, financial institutions and donor organisations and connected in a downward direction to civil society and the beneficiaries of assistance in the surviving population. If these multiple strands of upward and downward accountability are firmly in place there is a greater chance that recovery projects will be successful SOCIETY-National and International Accountability to Government Accountability to Donor Organisations Accountability to Donor Organisations DISASTER RECOVERY MANAGERS Accountability to National Civil Society SOCIETY Accountability to Surviving Population Fig. E. Diagrammatic Representation - Multiple Patterns of Accountability 10

15 Summary Recovery managers need to understand the way large international financial institutions operate in order to gain access to such resources. Certain principles apply, such as the need for transparency, accountability in negotiations for support. It is also vital for the entire recovery operation to be demand rather than supply driven to ensure that the surviving community secures the assistance it needs, rather than satisfy the needs of the donors. Chapter 7. Assessing Damage, Needs and Capacities Some of the first people to arrive at a disaster site are teams of assessors who are charged with developing an accurate statement of losses and needs under extreme time pressure. Many issues are raised concerning the approach of these assessors. Why do they normally only look at the double negative of damage and needs without a parallel assessment of capacities? Why do a number of agencies assess the same situation, going perhaps literally over the same ground with the same communities? Why is assessment data not generally shared? What is the link between pre-disaster risk assessment data that may have been collected for that very area now devastated and post-disaster damage and needs assessment? What role can survivors play in the assessment of their own needs? This vital subject reviews some of the successes and failures of assessment in Sri Lanka and Ache following the tsunami impact. Post-disaster assessment is most effective when it has the use not only of pre-disaster hazard maps and of vulnerability and capacity assessments previously made, but can also use the same assessors, where they are available. The particular urgency in undertaking damage and needs assessment because of the threat of secondary disasters requires urgent protective action. Examples of secondary disasters include the risks of fire or aftershocks following earthquakes, the risks of continued volcanic activity over months or even years following a major volcanic eruption, and the threat of secondary landslides following severe rainfall or earthquakes. Initial assessments require regular updating as a well established monitoring process as damage, needs and capacities change rapidly throughout the recovery process. Figure F is a template in the form of a matrix cross-linking physical, social and attitudinal questions with needs and capacities. 11

16 Disaster Recovery and Development are processes through which Vulnerabilities are reduced and Capacities increased Physical/ Material What productive resources, skills and hazards exist? (pre-disaster assessment) What losses have been sustained, What skills and assets remain intact? (post-disaster assessment) Social/ Organisational What are the relations and organisation among people? (pre-disaster assessment) What impact did the disaster have on local institutions? What organisations are currently functioning? What leadership exists? (post-disaster assessment) Motivational/ Attitudinal How does the community view its ability to create change? (pre-disaster assessment) What coping mechanisms were adopted during and after the disaster? What approach is being taken towards the recovery? Vulnerabilities (pre-disaster assessment) Needs (post-disaster assessment) Capacities (pre-disaster and post-disaster assessment) o o Conservative-rebuild as before, or Reformist- rebuild with improved safety (post-disaster assessment) Fig. F. Assessment Matrix to identify and record Capacities and Vulnerabilities or Needs (adapted from Anderson and Woodrow, (1998), p.12) Summary Accurate impact assessment, conducted as soon as possible after a disaster provides the foundation blocks of effective short-term and long-term recovery. The process combines positive analysis of local capacities with a review of needs and damage. Assessment continues as a monitoring system of the recovery process. 12

17 Chapter 8. Developing Reconstruction Strategies One of the most complex tasks facing recovery managers is to devise appropriate ways to reconstruct buildings and infrastructure. This chapter considers some of the problems and opportunities associated with physical recovery. The text considers what links emergency shelter to the creation of permanent dwellings how many stages are needed to move from one to the other? A proposal is outlined and illustrated in Figure G to cut out the costly interim Stage 2 building temporary dwellings through two linked strategies, by (a) extending the role of immediate post-disaster shelter and (b) accelerating the construction of permanent reconstruction. DWELLINGS DO NOT SURVIVE HAZARD IMPACT Stage 1 POST-DISASTER SHELTER Stage 2 TEMPORARY DWELLINGS Stage 3 DWELLINGS RECONSTRUCTED Fig. G After loss of dwellings survivors occupy Stage 1 temporary shelters, then move into permanent reconstructed Stage 3 dwellings, thus omitting Stage 2 Temporary Dwellings (Fast-Track Reconstruction) Summary Building houses and restoring shattered infrastructure is the dominant problem and the main demand on finance in most disaster recovery operations. Therefore, it is essential to devise ways to reduce the financial burden and maximise the involvement of the surviving communities in managing their own recovery. One way to save precious resources is to extend the life of initial shelter in its varied forms and accelerate the building of permanent dwellings. 13

18 Chapter 9. Recognising the Continuum from Emergency to Long- Term Recovery In recent years the concept of Linking Relief, Rehabilitation and Development (LRRD) has been introduced into the disaster response community. The dynamics in this progression remain a complex challenge. Various issues are considered in this chapter, such as the clash of cultures between the relief and development communities with their different values and traditions, since both groups are present and interacting in the same recovery situation. Can these divergent cultures be fully integrated in a seamless manner? In disaster recovery, apart from the initial life-threatening phase, the only model available may be that of development or LRRD, with support for capacity development in all sectors and at all levels. Yet the continuation of a paternalistic welfare approach into long-term recovery, regarding disaster survivors as passive victims awaiting assistance, is totally misplaced and whether followed by government or NGOs can only yield a deadly long-term legacy of dependency, the opposite of resilience. There are a number of strands in disaster management. These change in the time span from the predisaster phase, during a disaster and its aftermath as needs change and resources expand and contract. The time line depicted in the model displayed in Figure H indicates how some of those changes have major consequences for recovery management. The Disaster Time-Line Prevention and Mitigation Strand Prevention and Mitigation Strand Preparedness Strand Relief and Response StrandRecovery, Rehabilitation and Reconstruction Strand Time Fig. H. Disaster Time Line indicating changing priorities during the phases or elements of a disaster 14

19 A key question relates to what effect early decisions, taken in the immediate aftermath of a disaster, have on long term-recovery? Is recovery best regarded as a single process, or as a sequence of connected or even disconnected phases? Examples are provided that indicate the negative consequences of early decisions taken without regard to their long-term impact. Figure I links three definable phases of recovery with unit costs. This indicates the overlaps between the successive recovery processes with a rough approximation of their costs Recovery Management Reconstruction Management Emergency Management Unit Cost RELIEF REHABILITATION RECONSTRUCTION POST-DISASTER DEVELOPMENT Disaster I month 2 months 10 years Time Fig. I. Phases of recovery in the aftermath of a disaster (adapted from Alexander, 2002, Fig. 7.1, p. 270) Summary There are many different communities working in disaster recovery, who come from different organisations, backgrounds and cultures. Traditionally, disaster recovery is split into different phases: relief, rehabilitation, and reconstruction. However, recovery gains immeasurably from being regarded as a fully integrated process and all parties can gain from the concept of Linking Relief, Rehabilitation and Development (LRRD) Thus, initial decisions made in the heat of a post-disaster activity may well have long-term consequences. The implications are for emergency staff, who should become aware of their role and interdependence within the overall recovery system, and vice versa for reconstruction and development staff, who need a better understanding of the relief process. 15

20 Chapter 10. Understanding Gender Factors Women have specific needs following disasters. One example is the loss of home-based livelihoods when houses are destroyed. Home-based work allows women to continue in their role as carers for children and other dependent family members. This chapter considers the support needed for women throughout every phase of disaster recovery. It also notes the specific aspects of women s role that need attention in recovery planning. The serious implications of the absence of women in decision making at all levels of recovery management is discussed. * house as work-place * responsibilities for care of children and elderly family members * women as decision makers in recovery process Fig. J. Key gender factors in relation to reconstruction of dwellings Summary In view of the special needs of women in disaster recovery policies and practices need to be formulated to ensure that gender relations receive the support they need throughout every phase of disaster recovery. This priority has particularly obvious significance in ensuring that women play key roles in the management of recovery. 16

21 Chapter 11. Managing Information for Recovery A Disaster Recovery Management Information System (DRMIS) has to be maintained throughout the entire recovery process. What is the role of information, who should collect it, how should this be undertaken, and how can information be used to develop knowledge and effective learning? Figure K considers the various characteristics of good information management. EFFICIENCY Coordinating Assessing Mapping Planning Operations Monitoring Evaluating GOOD INFORMATION MANAGEMENT EMPOWERMENT Equitable Information flows Maintaining choice Informed decision making EFFECTIVENESS Evidence-based work Organisational and individual learning Safe, rapid and high quality recovery CREATIVITY Unplanned links New combinations of information Fresh insight Fig. K. The Desired Outcomes of a DRMIS (Adapted from Fig 3.1 in Powell, M. Information Management Oxford: Oxfam, 2003)) To illustrate the complexity of a fully operational comprehensive information system adequately would require more than a two-dimensional diagram can accomplish, but Figure L goes some way towards indicating the primary elements and data flows in a comprehensive and effective information system. 17

22 Access to Media Access to WWW Access to International Networks DISASTER RECOVERY MANAGEMENT INFORMATION SYSTEM Post-Disaster Assessment Damage, Needs Capacities Data concerning Recovery/ Reconstuction Management Public Information About Disaster Recovery Information to schools, work-places, homes Fig. L. A typical Disaster Recovery Management Information System (DRMIS) supporting the recovery process Summary Unless an effective Disaster Recovery Management Information System (DRMIS) is established and maintained throughout the recovery process it will be virtually impossible to maintain progress. The system needs to be well integrated into the recovery management organisation to facilitate the smooth flow of information between all the players active in recovery management. 18

23 Chapter 12. Resolving Dilemmas in Recovery The recovery process is full of complex social, physical, and political dilemmas. They include reform versus restoring the status quo, speed versus safety, quality versus volume, decentralised participation in decision making versus centralised decision making, and normal planning processes versus extraordinary measures taken under the extreme pressure of a post-disaster situation. Figure M indicates the balance needed in just one of these dilemmas: speed versus many competing factors. Then there is a classic dilemma to consider that concerns the opportunities for utopian idealism versus pragmatic realism in post-disaster planning. How can such dilemmas be resolved when there are opposing viewpoints that both represent highly legitimate concerns? A planning approach is described in this chapter called action planning. This has been widely used during the past twenty years to accelerate the implementation of planning decisions, in some cases while the planning process is still taking place. This process may be an effective tool in resolving dilemmas. SAFETY OF RECONSTRUCTION QUALITY OF RECONSTRUCTION CAREFUL PLANNING PARTICIPATION WITH AFFECTED COMMUNITIES SPEED OF RECONSTRUCTION Fig. M. The dilemma in seeking to balance speed against conflicting demands Summary Recovery leaders and managers have to resolve many complex dilemmas. Such dilemmas maybe fostered by the relentless pressure for rapid recovery from all quarters set against important demands for prudent planning, detailed consultation, reviews of safety requirements, etc. In facing most dilemmas, neither pressure can be ignored. They need to be balanced and integrated into a unified policy. In most cases such dilemmas may be resolved through the use of parallel initiatives using action-planning approaches. 19

24 Chapter 13. Summary A set of conclusions as well as recommendations drawn from the various themes of the book are brought together in the final chapter. The book attempts to give practical advice to key decision makers in government to think, prepare, plan, and decide to enable their society, stricken by the trauma of disaster, to build back better. Expected Outcome This is to discover ways to create a resilient recovery from disasters in all sectors: social, economic, physical, environmental, and administrative. This knowledge is to enable rapid recovery to occur, with major improvements from pre-disaster norms in all sectors. Specific outcomes are anticipated in defining areas to introduce risk reduction measures against future hazards and the ability to bounce back rapidly from future disasters. (See diagram (Fig. N) at the end of the executive summary) The recommendations drawn from each chapter are as follows: Chapter 1. Introduction Recognising that the main burden of recovery operations falls on local officials it follows that the advice contained in this book is primarily intended to address the needs of national recovery managers. Chapter 2. Learning and Applying Lessons Past experience has much to teach recovery managers concerning effective strategies and tactics, therefore lessons need to be understood, documented, stored and communicated to those needing guidance. Chapter 3. Creating Resilient Recovery Recovery managers need to pursue the overriding aim of creating resilience through their actions. This is needed in all sectors to resist hazard forces, to bounce back rapidly from future events and to incorporate essential changes into the recovery process. Chapter 4. Reducing Risks in Recovery Disaster recovery provides a favourable climate to introduce improvements in safety standards. These will include structural as well as non-structural risk reduction elements. They need to be co-ordinated in an integrated manner and mainstreamed into the central flow of government policies and planning. Chapter 5. Organising Recovery Seek to build a recovery organisation with a single point of overall responsibility in government, close to the apex of political power and decision making. The complexity of the recovery task normally requires a dedicated new organisation rather than to place the organisation of recovery under existing line departments. 20

25 Chapter 6. Securing Resources for Recovery Recovery managers need to understand the way large international financial institutions operate in order to gain access to such resources. Effective resource management requires transparency and accountability Recovery operations need to be demand rather than supply driven in order to satisfy the needs of the surviving population. Chapter 7. Assessing Damage, Needs and Capacities The basis of effective recovery planning and implementation comes from the accurate assessment of damage, needs and capacities. Assessment has to continue as a monitoring system to support the recovery process. Chapter 8. Developing Reconstruction Strategies Since building houses and restoring infrastructure is the dominant problem in disaster recovery devise ways to reduce the financial burden by maximising the involvement of the surviving communities. Wherever possible seek to avoid a three stage process: emergency shelter to temporary housing to permanent reconstruction by cutting out the need for temporary housing by extending emergency sheltering and through rapid reconstruction. Chapter 9. Recognising the Continuum from Emergency to Long-Term Recovery Regard recovery as a continual process of integrated phases and activities, applying the concept of Linking Relief, Rehabilitation and Development (LRRD) Recognise that initial decisions made in the heat of a post-disaster activity may well have long-term consequences. Therefore, make emergency staff more aware of their interdependence within the overall recovery system, and vice-versa seek ways to enable reconstruction and development staff to gain a better understanding of the relief process. Chapter 10. Understanding Gender Factors In view of the special needs of women in disaster recovery ensure that gender relations receive the support they need throughout every phase of disaster recovery. This priority has particularly obvious significance in ensuring that women play key roles in the management of recovery. Chapter 11. Managing Information for Recovery Establish a Disaster Recovery Management Information System (DRMIS) and maintain it to ensure recovery progress. The system needs to be well integrated into the recovery management organisation to facilitate the smooth flow of information between all the players active in recovery management. Chapter 12. Resolving Dilemmas in Recovery Recovery managers face many complex dilemmas, such as speed versus safety, that may appear to be irreconcilable positions. But both demands may be needed to ensure recovery and be balanced and integrated into a unified policy. In most cases such dilemmas may be resolved through the use of parallel initiatives using actionplanning approaches. 21

26 Supporting evidence At the end of each chapter the references will be listed. At the end of the book with Parts I and 2, the range of supporting evidence will be summarised. This will include interviews with decision makers and case study material. Two bibliographies are presented. The first is an annotated list of the key literature on disaster recovery. The second is a thematic bibliography listing key topics. There is also a list of useful websites current at the date of publication. 22

27 Target Audience: Recovery Managers in Government, NGO, Private Sector and International Organizations Summary of Book Learning from Disaster Recovery Expected outcome, Strategic Goals, Priorities for Action and Target Audience Expected Outcome of Book To discover ways to create a resilient recovery from disaster in all key sectors: social, economic, physical, environmental and administrative. This knowledge is to enable rapid recovery to occur, with major improvements from pre-disaster norms in all sectors. Specific outcomes are anticipated in defining areas to introduce risk reduction measures against future hazards and the ability to bounce back rapidly from future impacts. (See Chapters 1, 2 and 3) Format: Core Issues for each topic Model to describe topic Key principle for each topic Policy outcomes Measurement of effectiveness Key References Strategic Goals Goal 1. LEARNING To foster the creation of a learning culture in order to build from past disaster and disaster recovery experiences and apply the lessons Goal 2. RESILIENCE To create resilient disaster recovery that is a collective enterprise of multiple groups mobilizing the entire society to play their part in building back better Goal 3. ORGANIZATION Development and strengthening of Disaster Recovery Organizations, Institutions and Mechanisms Goal 4. REDUCE RISKS The systematic incorporation of risk reduction approaches into recovery programmes [Applying the Hyogo Framework for Action (HFA) ] (see chapter 2) (see chapter 3) (see chapter 5) (see chapter 4) 23 ESTABLISH W AYS TO PROMOTE LEARNING TO BUILD FROM PAST EVENTS Document evidence Analyse the evidence Disseminate Key Issues Educate and Train Create learning organisations (see chapter 2) BUILD RESILIENCE THROUGH EFFECTIVE RECOVERY STRATEGIES Build effective assessment and monitoring capacity (see chaps. 7 &11) Relate the various phases from relief to full recovery into a seamless flow of activities (see chapter 9) Balance conflicting demands resolve recovery dilemmas (see chapter 12) Priorities for Action CREATE EFFECTIVE RECOVERY ORGANIZATIONS Establish effective organizations with the required capacity (see chapter 5) Understand ways to gain access to grants or loans (chapter 6) Create strategic plans for recovery/reconstruction (see chapter 8) REDUCE RISKS THROUGH THE RECOVERY Revisions to risk assessment to aid recovery Review legal framework Strengthen or initiate safe building practices Special attention to safe critical facilities (see chapter 4) Cross Cutting Issues Information Management (see chapter 11) Addressing Gender Factors (see chapter 10) Capacity Building (see chapters 3,6 8 &10) Fig. N. Diagram of the scope of the book

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29 International Recovery Platform (IRP) 国 際 復 興 支 援 プラットフォーム(IRP) supported by The Asian Reduction Centre (ADRC), International Strategy for Disaster Reduction (ISDR) United Nations Development Program (UNDP) 協 力 :アジア 防 災 センター(ADRC) 国 際 防 災 戦 略 事 務 局 (UN/ISDR) 国 連 開 発 計 画 (UNDP) Chief Editor : Ian Davis Visiting Professor, Cranfield, Coventry and Kyoto Universities 主 筆 :イアン デイビス クランフィールド 大 学 コベントリー 大 学 京 都 大 学 客 員 教 授

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