Islamic Republic of Afghanistan, Post Disaster Need Assessment (PDNA) Training Manual

Transcription

1 Islamic Republic of Afghanistan, Ministry of Rural Rehabilitation and Development (MRRD) Ministry of Rural Rehabilitation & Development Post Disaster Need Assessment (PDNA) Training Manual Social Protection Directorate (SPD) Ministry of Rural Rehabilitation and Development (MRRD)

2 Director s Word Disasters impact various dimensions of human life, both at short and long term basis. It is a catastrophic situation and causes a huge loss of human life, living conditions, social relationships, economic gains, goods and services, assets and environment. In the past, experiences of humanitarian response have shown that the most of the time response is determined more by logistical capacities and other institutional factors of delivery agencies, rather than the real need of the affected communities. Damage assessment, after any disaster, is a step of critical importance. A comprehensive and effective damage assessment is most important in planning the response to address the need of the affected people and can avoid any further humanitarian crisis. Social Protection Directorate (SPD) is working for early recovery and disaster mitigation in coordination with the programmes of MRRD. Post Disaster Need Assessment (PDNA) is the pre-requisite to develop the early recovery from any disaster and working on the long term disaster mitigation. Post Disaster Need Assessment is the government led process. It needs to be conducted under the leadership of lead government department. MRRD is having the responsibility of Vice-Chair in Afghanistan National Disaster Management Committee and it has to play a key role in strengthening the process of disaster management system in the country. This training manual has been developed and designed in the preview of above stated logics. Government Civil Servant is an important part of the all government led development processes and programme. All the members of the civil servant may be the part of PDNA in different stage of PDNA along with the member of UN agencies, the World Bank and European commission. Therefore, it is important for all the civil servant to acquire the basic knowledge on PDNA to facilitate and guide the process of PDNA for effective early recovery framework. This training manual has the content to provide the basic knowledge and skill for understanding the framework of PDNA, how to conduct the PDNA, how to develop the mechanism for PDNA along with the drafting of TORs, sector reports as well as one integrated reports for any disaster. Naseer Ahmad Popal Director, Social Protection Directorate (SPD) Ministry of Rural Rehabilitation and Development (MRRD)

3 Contents 1. Post Disaster Need Assessment (PDNA) 1.1 Conceptual Framework 1.2 Principles, which guides the PDNA Processes 1.3 PDNA processes 1.4 Element in Management of PDNA PDNA Mission Planning 1.5 Scope, focus, objectives, limitations and deliverables of PDNA Scope Focus Objectives Deliverables Limitation 2. Steps in PDNA 2.1 Assessing the situation On site visual impact analysis Interview with Disaster Victims Sampling Relying on secondary Data 2.2 Analysing and synthesizing the collected information 2.3 Prepare PDNA Report Format of PDNA Report

4 1. Post Disaster Need Assessment (PDNA) 1.1 Conceptual Framework PDNA has evolved from the Damage and Loss Assessment (DALA) methodology. DALA was developed by Economic Commission for Latin America and Caribbean in early 1970s. It is built on the DALA methodology on the premise that recovery from the disasters requires a more concentrated and broad approach. DALA Methodology focused on the valuation of physical damages and economic losses. It focuses on the analysis of disaster impact to be conducted in different sectors by sector experts. Sector wise analysis is integrated at one place to ascertain the cumulative impact of a disaster. It largely focused on the infrastructure losses, roads, communication, power and public building. After a natural disaster occurs, the first phase in the post disaster recovery is to deliver humanitarian assistance to affected people. Once this phase is completed, and direct and immediate impacts of natural disasters are addressed, and then turn to an economic recovery and construction programme. Economic recovery aims to ensure the economic activities and reconstruction focus on the replacing destroyed physical asset and start the reconstruction. Assessments are critical for effective reconstruction and recovery planning. An assessment should document the extent, nature and implication of damage that occurred as a result of disaster, outline the investments that are required to repair or replace damaged or lost assets, restore access to services and determine the significance of economic losses. Assessment need to articulate how to return vital assets and services to functional status based on the needs and priorities of affected population. Assessment should lead to a recovery framework for recovering from disaster and improving pre-disaster conditions in order to advance long-term goals and reduce the risks of future disasters. Assessment provides the overview of damage, losses and need at time of assessment. It provides decision-makers with important information on which to base programming decision, as well as with baseline for monitoring the result of response and recovery, allowing for in-course corrections. PDNA pulls together information on damage, losses and related needs, based on the recovery priorities of the affected population- in to a single consolidated assessment report as a basis for designing a comprehensive reconstruction and recovery framework which guides the design and implementation of early and long term recovery programme. The PDNA is not a replacement for other tools, processes and obligations that participating or partner organization may use. Indeed it should be P a g e 1

5 complementary to existing tools processes and mechanisms, some of which have been developed and tested over many years. PDNA output may be used for multiple purposes in relation to recovery and reconstruction efforts in a particular context. 1.2 Principles, which guides the PDNA process The PDNA is government- led and highly participatory in nature, reflecting the realities that the challenges of recovery and reconstruction persist long after short term humanitarian engagement. It could be met through the government efforts only. The PDNA is an inter-agency coordination mechanism, set up to facilitate a comprehensive, coordinated and effective approach to damage, loss and need assessment and recovery and reconstruction planning so that support to disaster affected government and population is managed with minimal disruption to already stressed and domestic system of aid coordination and management. The PDNA is a single process with multi milestones consisting of different element and outputs undertaken and determined in weeks, months and years following disaster. PDNA is a special type of recovery and reconstruction assessment, the coming together of the different recovery perspectives, with the respective roles of UN, the EU, the World Bank and their development partners supporting government led assessment process. The PDNA provides indicative budget figures, serves as a rationale for project formulation, provides and evidence base for weighing for sectoral and cross sectoral priorities and finally, with proper monitoring and performance bench marks, provides a tool for identifying needs and gaps in order to focus to the resources. 1.3 The PDNA Process: PDNA process starts with the establishment of modalities among concerned agencies. It includes as commitment to one agreed output, constitution of PDNA management team, benchmarking of PDNA applications, framework constitution, assurance that assessment does not impede delivery of immediate relief and early recovery, organization s roles and responsibilities, composition of assessment team, resource requirements, assessment logistics and office based and field roles. It is organized on a timeline sequencing the activities related to the development and launch of PDNA. P a g e 2

6 Managing a PDNA requires close interaction between the national government and the respective country representatives from UN, European Commission, World Bank and other partners they may be supporting the PDNA. In disaster prone countries such interaction and planning for PDNA should ideally be initiated as a part of joint contingency planning for disaster event, in order that all the necessary agreements and arrangements for PDNA are in place before a disaster occurs and in order to avoid the tyranny of rush that often follows the onset of any particular major disaster. 1.4 Elements in management of PDNA PDNA Planning Mission Decision to conduct PDNA: The immediate focus following the onset of a disaster will be on a life saving interventions, on conducting search & rescue operation and providing relief materials and re-establishing essential services to affected population. Assessment will be relief oriented in order to establish and understanding of the impact and effect of the disaster and to guide the relief activities, as well as resource mobilization for such activities. It has the following elements. Partner consultation: Conversation regarding the need to conduct the PDNA will likely begin simultaneously at Head Quarter and Field level. The discussion will revolve around question of clarification of disaster effects, recovery response to date, scope and timing of PDNA and expected cost and benefits of PDNA. Partner will rely on situation reports, other reports from field and conversation with humanitarian partners. Team composition: The team composition will vary from situation to situation but at a minimum will include the representation from designated line ministries of government, United Nations agencies, the World Bank and European commission. The determination of necessary substantive expertise will be dependent on the most affected sector in disaster. Stakeholders Engagement: It is important at the onset of the PDNA process to identify and map the important stakeholders. P a g e 3

7 Analysis of Existing information: Government bodies, Humanitarian organizations and media will have generated a range of information regarding the incidence by the time PDNA planning mission is launched. All the available information should be collected, reviewed and analysed for gap and weakness. Establishment of the PDNA management structure: The size, composition and management structure of a PDNA will depends upon the circumstances. In general it is desirable to keep the team size and management structure as lean as possible. In large disasters, however, a full team can be of experts, with multiple experts assigned to cover the damage loss HRNA impacts and recovery need aspects of each sectors. High level management Team: The high level management team overseas and provides strategic guidance for the PDNA takes key decisions, and ensure that the necessary resources are mate available for its completion. PDNA Coordination Team: It manages the day to day planning and implementation of the assessment as well as development of necessary framework. Technical Support Cell: The coordination team is supported by a technical support cell. The support cell provides technical expertise and resources, eg. In the area of information and communication technology, information management, mapping, logistics and interpretation/translation. Report Secretariat: PDNA coordination team will establish a report secretariat to oversees and support the drafting and production of sector assessment report/recovery framework. Sector Team: Sector teams are responsible for collecting and integrating data on damages, losses, HRNA impact and recovery and reconstruction need from national and local sources. They are responsible for analyzing the data and writing the sector assessment report including the proposed priority response option uses to elaborate toe recovery framework P a g e 4

8 Identification of a location for the PDNA management structure: The structure location is an important task for PDNA planning mission. The location for the management structure will provide the centre of gravity for management of PDNA, bringing all the components together in an effective manner. Good working environment is essential. Agreement on PDNA scope and objectives By the end of the planning mission the partner will need to have established the scope and objective of the PDNA. Drafting a TOR for PDNA Assuming a decision is made to conduct a PDNA, the planning mission will draft the TOR for the PDNA. This will include decisions on the sectors to be included, the need for additional personnel from outside country, the timing both of initial and completion of PDNA, which relevant government ministries are involved, what technical resources the assessment will require, the brief of relevant contacts/logistics for the field visits and the agreement on the pre PDNA structure of recovery framework. Agreement on recovery sector The sector choice will need to be done during the PDNA planning mission in order to ensure that PNDA mission is composed of appropriate experts. Ensure the assessment methods, instruments and sampling: While methods and instruments are within the preview of the technical agencies that have developed their own methodologies, the planning mission can take some initial discussion and plan about the sampling, key informants geographical locations and households for the carrying the PDNA in the field. Identification of resource Requirement: A significant output of the planning mission will be the decision made on the resource requirements for PDNA. These include 1. Human resource, 2. Technical & logistics resource and 3. Financial resources. The planning mission should not leave the country until the PDNA ToR is agreed, the staffing structure of teams established, the venue identified and secured and a budget resource for the entire PDNA process. P a g e 5

9 Therefore the output of the planning mission is following TOR for the PDNA A draft recovery framework Advisory on expected timing of the revision of the flash-appeal vis-àvis PDNA PDNA budget and resource mobilization strategy Criteria by which priority sectors were identified Pre-PDNA checklist PDNA management strategy Outline of detailed process of coordination arrangement. Staffing plan, adopted TOR and reporting lines Logistics plan for PDNA List of the key contacts Guidelines for conducting PDNA Conducting the PDNA Timing: The timeline for conducting of PDNA needs to be carefully gauged on the one hand, the overall response to disaster with relief oriented assessments producing the PDNA and need to link the outcome of the PDNA to the national resource mobilization strategies, the revision of humanitarian flash appeal, donor pledging conferences and or development of recovery and reconstruction strategies initiatives and programme. 1.5 Scope, focus, objectives and Limitation of PDNA Scope of PDNA Analyses how disasters have affected social networks, coping capacities and governance system of affected locations Provides information on how the households and communities cope with the losses and access necessary assistance for recovery. Based on all the information, present broad framework, which includes estimates of recovery needs in both physical and financial terms. Suggests a preliminary outlines of recovery strategy Brings together information in to a single consolidated reports and includes information on- The physical impact of disaster Economic values of damages and losses. P a g e 6

10 The human impact as experienced by the affected population and Resulting early and long term recovery needs and priorities Focus Focuses on the Macro Economic Impact Calculation of indirect economic losses to productivity resulting from the damages. Assessment of impact on Macro-Economy Establishment of the cost to replace damaged structure on the basis of scheduled rate of the area. Largely estimates the cost of reconstruction. Human Recovery Need Assessment (HRNA) Focus on losses at household and community level. Sector covered through HRNA includes, livelihoods, Education, Community infrastructures, Gender and Governance etc. The data on recovery needs is collected through a representative sample of the affected population Qualitative and Quantitative surveys are accompanied with focus group discussions. Focus on restoration of important function and sources More conducive to planning early recovery intervention Development of Early Recovery Framework Prioritization of Needs: Early and long term recovery Restoration of Infrastructure Reconstruction, repair and strengthening of shelter Restoration of Social Services (Health, education etc) Restoration of Governance systems Livelihood recovery Revival of market social institutions and social networks Disaster Risk Reduction Recovery and Implementation Objectives of PDNA The key objective of the PDNA is to assist the natural and local government. Followings are the key objectives of PDNA Determine the socio-economic impact and response needs from the disaster including valuation of damage and losses and human recovery P a g e 7

11 needs through an integrated approach to sectoral assessment that mainstreams cross-cutting issues for a comprehensive picture of disaster effects and response requirement. Identify the cost of damages and losses on physical structures, disruption of essential public services, and alteration of community process. Identify human necessary needs per sector and establish the costing of response options in the early, medium and long term to inform the development of the recovery framework. Review and adapt recovery strategies and efforts to reduce disaster risk and build back better after the current disaster. Establish a coordinating mechanism that includes, at a minimum, the international donors, United Nations Systems, the World Bank, European Commission and the International Financial Institution in support of government let recovery planning Deliverables PDNA process will lead to the production of the following deliverables One consolidated government- owned set of sector reports (One per sector) representing the dual perspective of valuation of damage and loss assessment and human recovery needs while ensuring adequate focus in paid to cross cutting themes in recovery. Revised recovery framework, presenting the early, medium and long term recovery needs in order to priority, cost, timeline and the actors most likely to be involved in such recovery activities. Lesson relevant to the assessment process, in general, and in particular, the use, generation of assessment tools and outputs. The lesson will provide critical input to the ongoing global effort to continuously involving in PDNA process Limitation of PDNA Country adaptation of PDNA Training sector experts in PDNA P a g e 8

12 Inter- Agency Coordination Completion of PDNA within well defined timeframe Implementation of PDNA findings and recommendations 2 Steps for PDNA 2.1 Assessing the situation On site visual impact analysis PNDA team should visit the decided locations for collection of data as per the need of the sector. Data collection is based on the site observation and gathering information in pictorial form of the real situation. Therefore, it is important that team should collect the information to the most affected cases so that analysis could be clearer and sharper for shaping the recovery framework Interview to the disaster victims While making the field visit, it is necessary to conduct the interview of the victim in organised manner. It could be a focused group discussion at community level, individual interviews, sharing of questionnaires for data collection. PDNA team should develop the set of required set of questions in close and open ended form so that information could be gathered on organised manner. Use of video for interview recording could be appropriate for the data collection through the interview. There could be use of PRA techniques during the interview for more comprehensive data. It should consider the complete perspective of the community members. Therefore, find the key responders as elderly, direct victims, women, children, school teacher and head of village for comprehensive view of the data Sampling: Proper sampling of the data is required in order to judicious representation of the community. Use of sampling techniques would be appropriate as per the situational demand Relying on secondary data: Secondary data is one of the most important sources of data. It could be acquired from situational reports of government institutions, Media reports, socio-economic reports of the government. It is also important to acquire the reports on each sector from the available reports of government. Media reports could also be P a g e 9

13 used for the analysis of the information. PDNA team should look for the more available sources of secondary data for comprehensive analysis. 2.2 Analysing and synthesizing the collected information Gathered information and data is segregated in different sectors and it is analysed and for generating the reports for early and long term recovery framework. It set the trends of designing the intervention plan based of the priority analysed after the analysis of the report. 2.3 Prepare PDNA Report format of PDNA report Lots depend upon the reports prepared by the coordination team for PDNA. It is most important and challenging task to summarize the important findings in the form of reports so that appropriated recovery initiatives could be initiated on time for early and speedy recovery of the disaster affected people. PDNA is reported in the following manner. There could be more appropriated formats and reporting design would be available as per the disasters or the country policies and guidelines. It could be drafted under the following headings Executive Summary Acronyms and Abbreviations Introduction Objective, scope, Methodology and challenges Section 1: Context of disasters: PDNA team writes about the types of disasters, date and time of occurrence, geographical coverage and locations. It is basically define the entire context of disaster in few pages. Section: 2: Damage and Losses: This section of the reports writes about the cumulative losses due to disaster in general. It would describe about the loss of live, infrastructures, properties and other losses of social and economic importance. Section: 3 Sector Assessment: it would be writing the sector wise assessment. It would be writing about the sectors like, housing, Infrastructures (Public and Private), religious and cultural heritage, Education, Health, Socio-Psycho, water & sanitation, loss of livelihood and aggregated losses. It is a sector wise assessment. There would be the brief losses in each sector so that it would be P a g e 10

14 helpful in drafting the sector wise intervention plan for early and long term recovery. Section 4: Early Recovery: It would describe the early as well as long term recovery in the area of immediate shelter, dismantle the broken structures, Water, Sanitation and Hygiene promotion, interim arrangements for government and public offices, Promotion of Religious and cultural heritage buildings, education, Health and Nutrition, Psycho- Socio Care, Agriculture and Livelihood, Community Mobilization and overall recovery cost. Section 5: Reconstruction: It will write about the reconstruction of the required and infrastructures in the area of housing, government and public buildings, Religious and cultural heritage building, Educational Building, Health Facilities, Water and Sanitation Infrastructures and livelihood infrastructure and aggregated cost of reconstruction. Section 6: Preparedness and Disaster Risk Reduction: PDNA report will also be writing about the disaster preparedness and Disaster Risk Reduction as a long term recovery strategy for reducing the vulnerabilities and reducing the risk of disasters. It would document about the Emergency preparedness, Risk Assessment, Promotion of safe housing, Improving resilience to critical public and government infrastructures, school safety programme, water, sanitation and hygiene promotion and protecting the natural resources for reducing the risk of disasters. P a g e 11