NATIONAL CONTINGENCY PLAN MALAWI

Transcription

1 Government of Malawi NATIONAL CONTINGENCY PLAN MALAWI NOVEMBER 2012 i

2 ACKNOWLEDGEMENTS The Department of Disaster Management Affairs would like to extend its sincere gratitude to the various ministries departments, UN Agencies and NGOs that participated in the review of the 2011/2012 National Contingency Plan to come up with the 2012/2013 National Contingency Plan. Special thanks to the cluster lead ministries and departments and co-lead agencies for their insightful leadership of the clusters. The UN Agencies and NGOs participated fully in the process and provided advice in the areas of their expertise. The time requirements from you all were enormous. The Department counts on all the government departments and ministries, UN Agencies, the Malawi Red Cross Society and Non Governmental Organisations for their continued support in operationalising this contingency plan when need arises. Finally, the Department would like to appreciate the assistance of the World Food Program and UNICEF that provided funds for the review and consolidation of the 2012/13 National Contingency Plan. ii

3 ACRONYMS AIDS ART CBCC CBO CCODE CERF CHAM CLTS CMT CPCs DC DCO DEM DFID DHO DNHA DoCC&MS DoDMA DoS EMT FAO FBO FFA GBV GoM GTPA HCT HfH HH HIV HTC IDPs IEC IFRC ITN LC MCH MDF MoAFS MoDPC MoEST MoGCCD MoH MoIAPS MoLH&UD MoTPW MPS MRCS NAC NDPRC NEC NFI Acquired Immune Deficiency Syndrome Anti Retroviral Therapy Community-Based Childcare Centre Community Based Organisation Centre for Community Organisation and Development Central Emergency Relief Fund Christian Health Association of Malawi Community Led Total Sanitation (an approach) Country Management Team Civil Protection Committees District Commissioner District Commissioner s Office District Education Managers Department for International Development (UK) District Health Office Department of Nutrition HIV and AIDS Department of Climate Change and Meteorological Services Department of Disaster Management Affairs Department of Surveys Emergency Management Team Food and Agriculture Organisation Faith-Based Organisation Food for Assets Gender Based Violence Government of Malawi Grain Traders and Processors Association Humanitarian Country Team Habitat for Humanity Household Human Immunodeficiency Virus HIV Testing and Counselling Internally Displaced Persons Information, Education and Communication International Federation of Red Cross/Red Crescent Insecticide Treated Nets Local Council Maternal and Child Health Malawi Defence Force Ministry of Agriculture and Food Security Ministry of Development Planning and Cooperation Ministry of Education, Science and Technology Ministry of Gender, Children and Community Development Ministry of Health Ministry of Internal Affairs and Public Security Ministry of Lands, Housing and Urban Development Ministry of Transport and Public Works Malawi Police Service Malawi Red Cross Society National Aids Commission National Disaster Preparedness and Relief Committee National Epidemic Committee Non-Food Item iii

4 NGO NRU OCHA OPC ORS OTP OVC PEP PLWHA RA SFP SGBV SP Sphere SRH TA TWG UN HABITAT UN UNCT UNDAF UNDMTWG UNDP UNFPA UNHCR UNICEF UNRCO USAID VSU WASH WES WFP WHO Non-Governmental Organisation Nutrition Rehabilitation Unit Office for the Coordination of Humanitarian Affairs Office of the President and Cabinet Oral Re-hydration Salt Outpatient therapeutic Program Orphans and other Vulnerable Children Post Exposure Prophylaxis People Living with HIV and Aids Rapid Assessment Supplementary Feeding Programme Sexual and Gender Based Violence Sulfadox and Pyrimeth (anti-malarial drug) Humanitarian Charter and Minimum Standards in Disaster Response Sexual and Reproductive Health Traditional Authority Technical Working Group United Nations Human Settlements Programme United Nations United Nations Country Team United Nations Development Assistance Framework UN Disaster Management Technical Working Group United Nations Development Programme United Nations Population Fund United Nations High Commissioner for Refugees United Nations Children s Fund United Nations Resident Coordinator s Office United States Aid for International Development Victim Support Unit Water, Sanitation and Hygiene Water and Environmental Sanitation World Food Programme World Health Organisation iv

5 TABLE OF CONTENTS ACKNOWLEDGEMENTS... II ACRONYMS... III EXECUTIVE SUMMARY... VII INTRODUCTION... 1 OBJECTIVES... 2 CONTINGENCY PLAN LAYOUT... 2 SECTION ONE HAZARDS, SCENARIOS AND RISK ANALYSIS NATIONAL DISASTER RESPONSE CAPACITY ANALYSIS SECTION TWO ASSESSMENT MODALITIES ASSESSMENT OBJECTIVES ACTIVATION OF ASSESSMENT MISSION ROLES AND RESPONSIBILITIES ASSESSMENT TOOLS AND TIMELINE FOR EMERGENCY RESPONSE ASSESSMENT MODALITIES FOR DRY SPELLS CO-ORDINATION ROLES AND RESPONSIBILITIES CO-ORDINATION ARRANGEMENTS PRINCIPLES AND STRATEGIES ACTIVATION OF PLAN SECTION THREE CLUSTER PREPAREDNESS, RESPONSE AND EARLY RECOVERY PLANS CO-ORDINATION, COMMUNICATION AND ASSESSMENT AGRICULTURE AND FOOD SECURITY AGRICULTURE FOOD SECURITY HEALTH, HIV /AIDS AND NUTRITION HEALTH, HIV AND AIDS NUTRITION EMERGENCY SHELTER AND CAMP MANAGEMENT v

6 3.5 WATER AND SANITATION PROTECTION EDUCATION TRANSPORT, LOGISTICS AND COMMUNICATION ANNEXES ANNEX 1: HEALTH AND NUTRITION STOCKS ANNEX 2: REPRODUCTIVE HEALTH STOCKS ANNEX 3: WATER AND SANITATION REQUIREMENTS &STOCKS ANNEX 4: EMERGENCY SHELTER AND CAMP MANAGEMENT STOCKS ANNEX 5: BASIC EDUCATION REQUIREMENTS AND STOCKS ANNEX 6: NFIS AND AGRICULTURE INPUTS REQUIREMENTS & STOCKS ANNEX 7: FOOD REQUIREMENTS AND STOCKS ANNEX 8: GUIDELINES FOR FOOD DISTRIBUTION ANNEX 9: TIMELINE FOR EMERGENCY RESPONSE ANNEX 10: REPORT FOR CENTRALLY-DEPLOYED RAPID ASSESSMENTS TEAMS ANNEX 11: DISTRICT LEVEL ASSESSMENT REPORT FORMS ANNEX 12: CONTACT LISTS vi

7 EXECUTIVE SUMMARY In fulfilling its primary role of protecting the lives of its citizens during disasters, government developed a National Contingency Plan (NCP) that is updated annually to reflect the changing weather patterns as forecast by the Department of Climate Change and Meteorological Services (DoCC&MS). Contingency planning allows government and its partners to plan for disasters with the aim of minimizing damage to property and loss of life. This is becoming especially important given the impact of climate change. In its planning, government followed the global changes in humanitarian coordination and adopted the cluster system. In the 2012/13 NCP, there are 8 operational clusters, on: Coordination, Communication and Assessments; Water and Sanitation; Emergency Shelter and Camp Management; Transport, Logistics and Communications; Protection; Health, HIV&AIDS and Nutrition; Agriculture & Food Security; and Education. The plan emphasises protection as a crosscutting issue. The plan also recognises the fact that while all people in disaster prone districts are vulnerable to these hazards, there are some that are more vulnerable such as the elderly, the chronically ill, injured persons and those with disabilities, People Living With HIV and AIDS [PLWHA] and women and children at risk. These groups are considered most vulnerable and all efforts will be taken to ensure their protection and access to basic services. All hazards in the contingency plan, with the exception of earthquakes, have 3 scenarios. These are the best case scenario, the most likely scenario and the worst case scenario. In the case of earthquakes, the most likely scenario envisages that 5,000 to 10,000 households may be affected. For floods and dry spells, the most likely scenario envisages between 15,000-35,000 and 200,000 households affected, respectively. Under strong winds, between 2,000 and 5,000 households may be affected in the best case and most likely scenario. As regards disease outbreaks, the Health Cluster anticipates that in the most likely scenario, this will affect about 5,000 to 10,000 individuals. In the worst case scenario for all hazards, the figures of affected populations are projected at over 35,000 households (floods), over 200,000 households (dry spells); over 5,000 households (strong winds); over 10,000 households (earthquakes), and over 10,000 people needing treatment as a result of disease outbreaks. If any of these worst case scenarios are realised, international assistance may be sought to help with the response and recovery efforts. Assessments will be conducted at the district council level, a national assessment mission will only be mobilized when thresholds described in the assessment modalities has been reached; to identify and describe the situation in the affected areas and to quantify the extent of damage to people, their livelihoods and to the infrastructure. This information will allow activation of a coordinated and effective response to the situation and the initial planning of early recovery measures. For drought, the Malawi Vulnerability and Assessment Committee (MVAC) remains the main assessment modality. The MVAC is mandated to assess food security and livelihood vulnerability for timely and accurate early warning information. As the ultimate coordinator of all actors involved in an emergency response, the Government of Malawi (GoM) through the Department of Disaster Management Affairs (DoDMA) is responsible for coordinating the implementation of disaster prevention, mitigation, preparedness, response and recovery activities. Emergency response is led by the DoDMA, assisted by the relevant line ministries. District Commissioners are mandated to coordinate any emergency-related activities in their districts through the Civil Protection Committees (CPCs). At the end of the rainy season, DoDMA will conduct a post-mortem with all stakeholders to assess the overall effectiveness of the plan, and the preparedness and response activities executed. This feedback will serve as input to future contingency planning preparations, response and early recovery. vii

8 In responding to disasters, the availability and prepositioning of stocks facilitates a quick response. In this year s contingency plan, while certain commodities are available others are not leading to a resource gap. The gaps are for the most likely scenarios. viii

9 INTRODUCTION Climate variability and climate change impacts are now, more than ever, becoming evident. While the complete range of changes has not been adequately modelled to accurately anticipate their impacts, there is a noticeable increase in disasters that can be linked to climate change. In Malawi, these disasters have included floods, dry spells and disease outbreaks. The consequences of these, including impacts of natural disasters like earthquakes, can be huge. Lives of men, women and children have been lost. Infrastructure including roads, bridges, public buildings and houses has been damaged. On the micro level, this has resulted in a more fragile and less resilient family unit, while on the macro level; there is the cost of diverting development resources to respond to these emergencies. Government has the primary responsibility to protect life and property of its citizens. One of the ways of ensuring this is through the contingency planning process. The National Contingency Plan (NCP) enables government and its partners to anticipate and prepare for disasters. Disaster preparedness ensures that loss of life and property is minimized. Like the past two NCPs, the 2012/13 NCP is a multi-hazard plan. However, this plan is broader in scope than past plans and addresses not only floods and dry spells but also earthquakes, strong winds and disease outbreaks. The National Contingency Planning process has the ability of bringing many humanitarian players together and acts as a framework for raising resources for disaster response. Local humanitarian organisations use the National Contingency Plan to justify setting aside emergency funds so they can fulfil the roles that have been assigned to them in the plan. A multi-hazard contingency plan ensures that a wider range of response issues can be covered. It acts as a link between local disaster risk reduction measures and international disaster risk reduction efforts through international organisations such as the IFRC (through Malawi Red Cross Society), UN agencies (like WFP, UNICEF and UNFPA) and NGOs, amongst others. The Government of Malawi s National Contingency Planning process has involved close collaboration between the Government and the UN inter-agency alliance, along with NGOs and other relevant stakeholders, i.e., those involved in responding to humanitarian needs triggered by an emergency, to ensure the protection of basic human rights and the provision of essential services. In line with the Hyogo Framework for Action, emergency preparedness and response builds on existing activities and partnerships developed through various country programmes of co-operation (Government, UN agencies and NGOs) meant to build the resilience of communities to disasters. Examples in this regard include two consortia, one led by Christian Aid and the other by Concern Universal, that aim at building the resilience of communities in disaster prone districts including the districts of Chikhwawa, Mulanje, Thyolo, Mwanza, Nsanje, Machinga, Kasungu, Karonga, Salima, Dedza, and Balaka. Additional programmes will be established on an as-needed basis to support humanitarian action and recovery and rehabilitation efforts. This National Contingency Plan also builds on district contingency plans. DoDMA will ensure disaster-prone District Councils are informed about the national plan and are prepared to respond accordingly. In response to changes that have taken place at the global level, government has adopted the Cluster System in preparing and responding to disasters. In the current contingency planning period, there are eight clusters, on: Coordination, Communication and Assessment; Health, HIV & AIDS and Nutrition; Water and Sanitation; Transport, Logistics and Telecommunications; Agriculture and Food Security; Education; Emergency Shelter and Camp management; and the Protection cluster. These clusters work under the guidance of the Cluster on Coordination, Communication and Assessment. Considering that government has the primary responsibility for preparedness, response and rehabilitation, each cluster is led by a government ministry or department. Each cluster is also supported by a UN agency or the Malawi Red Cross Society servicing as a co-lead. These clusters have mainstreamed monitoring and reporting into their activities to pave way for humanitarian performance monitoring. The purpose of this is to enable government to be informed of 1

10 progress, existing capacity and resource gaps with respect to the response, as well as to generate information for resource mobilisation. It also enables clusters and cluster leads on the local as well as global level to fulfil their accountability responsibilities. Of these clusters, protection is a cross cutting cluster. It has relevance for all clusters. It means providing assistance in an impartial manner based on need only while recognising the ever important principle of do no harm. It is also a commitment to reach the most vulnerable. Other clusters like the Transport, Logistics and Telecommunications cluster serve other clusters. The Cluster on Coordination, Communication and Assessment is crucial in this respect by ensuring that the activities of all clusters are coordinated (to make the best use of the resources of service clusters like the Transport, Logistics and Telecommunications cluster) and that protection and monitoring and evaluation is mainstreamed in all clusters. For the purposes of this contingency plan, vulnerable populations are generally those populations whose lives and livelihoods are at risk as a result of the hazards envisaged in this plan. Within this category, the plan recognises people with special needs like the elderly, people with disabilities, chronically ill, PLWHA, injured persons and pregnant and lactating women and children as particularly vulnerable and needing special protection measures. All clusters will ensure that the needs of the most vulnerable are met. The National Contingency Plan was drafted by Government ministries and departments, UN agencies, MRCS, and NGOs led by the DoDMA. The 2012/2013 national contingency planning process received support from the World Food Programme and UNICEF. OBJECTIVES The overall objective of the 2012/2013 NCP is to help ensure that Government, development partners and civil society mount a timely, consistent and coordinated response during the season to minimise potential humanitarian consequences and ensure the early recovery of affected communities. CONTINGENCY PLAN LAYOUT In this contingency plan, five hazards have been covered namely: floods, dry spells, earthquakes, strong winds and disease outbreaks. The first section details risks, scenarios, planning assumptions and consequences for each of the hazards. The second section summarises the assessment and coordination modalities; and it specifies the roles and responsibilities to be assumed during assessment. The third section lays out the activities to be undertaken by different clusters of stakeholders during preparedness, emergency response and early recovery. The section on activities is followed by a series of appendices including emergency stock tables, contact details and assessment forms. 2

11 SECTION ONE 3

12 1.0. HAZARDS, SCENARIOS AND RISK ANALYSIS All hazards in the contingency plan, with the exception of earthquakes, have 3 scenarios. These are the scenario 1 as the best case scenario; scenario 2 as the most likely scenario and scenario 3 as the worst case scenario. In the case of earthquakes, the most likely scenario envisages that 5,000 to 10,000 households may be affected. For floods and dry spells, the most likely scenario envisages between 15,000-35,000 and 200,000 households affected, respectively. Under strong winds, between 2,000 and 5,000 households may be affected in the most likely scenario. As regards disease outbreaks, the Health Cluster anticipates that in the most likely scenario, this will affect 5,000-10,000 individuals. In the worst case scenario for all hazards, the figures of affected populations are projected at over 35,000 households (floods), over 200,000 households (dry spells); over 5,000 households (strong winds); over 10,000 households (earthquakes), and over 10,000 people needing treatment as a result of disease outbreaks. If any of these worst case scenarios are realised, the government might request assistance from international actors on the response and recovery efforts. While figures of affected differ in the worst case scenario, for example households affected in a major earthquake versus over households affected in a severe drought, it is the impact envisaged for earthquakes (i.e. severe infrastructural damage, injuries and loss of lives) that puts these scenarios at the same level. The following tables present the five hazards envisaged in this plan. These tables provide details on the geographical areas; provide a risk analysis for each of the hazards as well as sources of information for early warning. 4

13 A. FLOODS Scenario Description Planning Assumptions 1 Minimal localised flooding, the result of heavy but short durations of rainfall Best case scenario Damage to infrastructure and consequences to human life (casualties, extraordinary outbreak of diseases, traumas, separations, etc.) and livestock will be limited. Each occurrence will allow for early recovery. Total population at national level affected will not exceed a cumulative figure of 15,000 households. Districts most likely to be affected include: Chikwawa, Nsanje, Salima, Karonga, Dedza, Mangochi, Machinga, Phalombe, Nkhotakota,Ntcheu and Zomba. Early recovery is probable through provision of humanitarian assistance to replenish immediate losses at household level. Affected households will require only temporary assistance from 1 to 3 months. Search and rescue services may be required Response interventions will be managed by Government. 2 Significant flooding will occur as a result of heavy rainfall but over a longer period of time. Most likely scenario. Flooding may impact 15,000 to 35,000 households. Damage can be severe resulting in destruction of crops and houses. Search and rescue services will be required Air and water transport will be required International support may be called upon to assist in providing humanitarian assistance to replenish immediate losses at household level, and to assist with early recovery. 3 Extensive Flooding Worst case scenario Result of long-lasting rainfall (over several weeks), causing rapidly rising rivers and lakes Large areas of land will be affected across districts. Flooding will cause damage to crops, infrastructure (roads, public buildings, private dwellings), temporary disruption to access of basic services (health and education). Over 35,000 households (Over 192,000 people) will be affected, at least 50% will be temporarily displaced. Recovery is expected to take relatively long period. Outbreaks of disease (measles, cholera, malaria) can be expected because of damage to water and sanitation facilities. 5

14 Search and rescue services will be required Air and water transport will be required International support will be called upon to assist in providing humanitarian assistance to replenish immediate losses at household level, and to assist with early recovery and reconstruction Factors Degree of Risk Comments RISK ANALYSIS Probability Almost Certain Flooding in Malawi is becoming an annual event and is likely to occur in all the regions. According to 2012/13 seasonal rainfall forecast issued by the Department of Climate Change and Meteorological Services, the whole will experience normal to above normal rainfall throughout the whole season, which suggests an increased chance of floods in low lying areas. Consequences Moderate to Major Damage from flooding is likely in flood-prone areas to some extent. In the previous analogue years Malawi experienced floods in all the given years, with different impacts. The damage varied from moderate to major damage. Overall Risk Likely Triggers Timeframe Moderate Adequate levels of preparedness should be in place by Government and all stakeholders to ensure effective response regardless of the scenario realized. Heavy rainfall, particularly in catchments of flooding rivers leading to water accumulating faster than soil absorption rate, or faster than rivers capacity to carry it away, could lead to flooding. November 2012 to April B. DRY SPELLS Scenario Description Planning Assumptions 1 Localised dry spells affecting a small Best case scenario number of households Up to 50,000 households are affected Little impact on the crops in the field Government will need some implementation capacity from NGOs working in the affected districts Support required for a maximum of 3 months Recovery activities include activities that will make it possible for the households to graduate after 3 months (i.e. irrigation) Likely districts to experience prolonged dry spells include Nsanje, Chikhwawa, Phalombe, Machinga, Mangochi, Balaka, Mwanza, Neno, Blantyre and Ntcheu 6

15 Scenario Description Planning Assumptions Response interventions will be managed by Government. 2 Prolonged dry spells in certain parts of the country Most likely scenario Prolonged localized dry spells during the crucial maize growing Up to 200,000 households are in need of food Government Strategic Grain Reserves are sufficient to cater for the population in need. The DoDMA requires considerable implementation capacity from the NGOs working in the affected districts Support for the households is required for 3 months Recovery activities include exit strategies within 3 months as above. 3 Extensive Dry spells Worst case scenario Dry spells experienced over a large part of the country Above 200,000 households require food assistance Support for the households is required for more than 3 months (up to 8 to 10 months) Government Strategic Grain Reserves will not be sufficient to cater for the population in need considering that more reserves have already been used in the response to the 2011/2012 food shortage. Food resources might be sourced from outside the country. There will be need for extensive recovery strategy. RISK ANALYSIS Factors Degree of Risk Comments Probability Likely The Department of Climate Change and Meteorological Services has predicted a 25% chance of below normal rainfall over the whole country. The Met department has also warned that there is a development of weak El Niño that will persist until March Usually El Niño years are characterized of dry spells in our region. Consequences The consequences of food insecurity caused by dryspells can be major, exacerbated by the impact of Major factors like HIV and AIDS, poverty, the current economic meltdown and the rise in food prices globally. A considerable number of children, pregnant and lactating women will be at risk of malnutrition. Overall Risk Likely Triggers Timeframe Moderately high Adequate levels of preparedness should be put in place by Government and all stakeholders to ensure effective response regardless of the scenario realized. There has been some areas that have experienced food shortage in three consecutive years which renders communities in these areas very vulnerable. 7

16 Scenario Description Planning Assumptions Prolonged dry spells over the crucial growing period especially December to February. April 2013 to March C. STRONG WINDS Scenario Description Planning Assumptions 1 Minimal localised strong winds, Best case and most likely scenario Damage to infrastructure and consequences to human life (casualties, traumas, separations, etc.) and livestock will be limited. Each occurrence will allow for early recovery. Total population at national level affected will be between 2000 and 5000 households. Districts most likely to be affected include: Chikwawa, Blantyre, Mulanje, Karonga, Mangochi, Machinga, Nsanje, Phalombe, Salima, Nkhotakota, Chitipa, Ntcheu, Lilongwe Thyolo, Nkhatabay and Zomba. Early recovery is probable through provision of humanitarian assistance to replenish immediate losses at household level. Affected households will require only temporary assistance from 1 to 3 months. Response interventions will be managed by Government. International support may be requested to assist in the case of a single acute event, or concurrent acute events affecting a large number of the population. 2 Extensive strong winds Worst case scenario Large areas of land will be affected simultaneously across districts and borders. Strong winds will cause damage to crops, infrastructure (public buildings, private dwellings, power lines), temporary disruption of access to basic services (health and education). Over 5,000 households will be affected and will require temporary shelter. Recovery is expected to take a relatively longer period. Factors Degree of Risk Comments Probability Almost Certain RISK ANALYSIS Disasters caused by strong winds in Malawi are becoming an annual episode and is likely to occur particularly in the Southern Region which is mostly affected by tropical cyclones from Mozambique channel. Consequences Moderate to Major Damage to infrastructure and consequences to human life, crops, infrastructure (roads, public buildings, private dwellings), temporary disruption to access of basic services (health and education). 8

17 Scenario Description Planning Assumptions Overall Risk Moderate Adequate levels of preparedness should be in place by Government and all stakeholders to ensure effective response regardless of the scenario realized. Most of strong winds are associated with the first rains In October, November and December. 9

18 D. EARTHQUAKES Scenario Description Planning Assumptions 1 Minimal localised tremors, Best case scenario affecting a few districts over a shorter period of time Occurrence of tremors measuring less than 3.0 on the Richter scale in one or more areas Damage to infrastructure and consequences to human life (casualties, traumas psychological, separations, etc.) and livestock will be limited. Total population at national level affected will not exceed a cumulative figure of 5,000 households. Districts most likely to be affected are those along the : lakeshore as well as Lilongwe,Dowa,Ntchisi Chitipa, and Machinga Based on rapid assessment, early recovery and humanitarian assistance may be provided to replenish immediate losses at household level. Affected households will require only temporary assistance from 1 to 3 months. 2 Significant tremors, occurring in a number of areas over a longer period of time. 3 Major earthquakes, causing widespread damage in several areas. Factors Degree of Risk Comments Response interventions will be managed by Government.. Most likely scenario. Occurrence of tremors measuring between 3.0 and 6.2 on the Richter scale in a number of areas. The earthquakes may impact 5,000 to 10,000 households. Damage can be severe resulting in destruction of homes, loss of human/animal lives and public infrastructure. Based on rapid assessment, International support may be called upon to assist in providing humanitarian assistance to replenish immediate losses at household level, basic services and to assist with early recovery. Affected households will require only temporary assistance for up to 9 months including evacuation sites/camps. Worst case scenario Occurrence of major earthquakes measuring more than 6.2 on the Richter scale in several areas. Large areas of land will be affected simultaneously across Malawi. Major damage to infrastructure (roads, public buildings, private dwellings, telecommunication), disruption to access of basic services (health and education), loss of lives and displacement of households. More than 10, 000 households will be affected, External financial, material and technical assistance will be required and government will have to declare a national disaster Evacuation of entire villages will be required and camps for the displaced will be established Recovery is expected to occur over a period of more than 9 months. Outbreaks of disease (measles, cholera, malaria) can be expected because of damage to water and sanitation facilities and camp conditions. RISK ANALYSIS 10

19 Probability Likely Districts along the lakeshore are at a higher risk of earthquakes. However, the contingency plan is working on the premise that since Malawi is laying in the great African Rift Valley, the whole country is prone to earthquakes, therefore any part of the country might be affected. Consequences Moderate to Major Earthquakes mainly cause damage to infrastructure, including buildings, roads, bridges and others. Injuries to humans and animals are usually as a result of buildings, trees or other structures falling on them. Death might occur as a result of serious injuries from falling infrastructure and psychological trauma. Disease outbreaks including STI/HIV infections may occur due to breakdown in support structures. Overall Risk Moderate The risk of having a serious earthquake within the period of this contingency plan is moderate. Sufficient preparedness measures by government both at central and district levels will ensure that any impact resulting from the occurrence of the hazard is addressed within the shortest possible time. Timeframe November 2012 to October E. DISEASE OUTBREAK (Cholera, Measles, Birhalzia, Malnutrition) Scenario Description Planning Assumptions 1 Minimal outbreak (less than Best case scenario 5000 people affected) Consequences to human life (casualties, extraordinary outbreak of diseases, traumas etc.) will be limited. Total population at national level affected will not exceed a cumulative figure of 5,000 people for each disease. Districts most likely to be affected (Karonga, Nkhatabay, Rumphi, Mzuzu, Nkhotakota, Salima, Lilongwe, Mangochi, Balaka, Machinga, Zomba, Phalombe, Mulanje, Blantyre, Chikwawa, Nsanje) Early recovery is probable through provision of health care services and humanitarian assistance. Response interventions will be managed by Government. 11

20 Scenario Description Planning Assumptions 2 Significant outbreaks of diseases Most likely scenario. Periods of further spread and treatment ranging from 1-3 months Each disease may impact 5,000 to 10,000 people Impact can be severe especially to women and lactating women particularly if localized International support may be called upon to assist in providing health care services and humanitarian assistance and to assist with early recovery. 3 Extensive outbreaks of diseases Worst case scenario Fatal Disease outbreaks will cause loss of human life and productivity, and overstretch capacity of provision of basic health services. Over 10,000 people will be affected by each disease, though not at one time. RISK ANALYSIS Factors Degree of Risk Comments Probability Almost Certain Disease outbreaks in Malawi are likely to occur. The outbreaks are likely to occur in areas where there is breakdown of good health practices, severe flooding and acute food shortage. Consequences Moderate to Major Disease outbreaks will cause loss of human life and productivity, and overstretch capacity of provision of basic health services. Overall Risk Likely Triggers Timeframe Moderate to high Adequate levels of preparedness should be in place by Government and all stakeholders to ensure effective response regardless of the scenario realized. Flooding, lack of portable water, breakdown of good health practices, acute food shortage, animal and human movements to and from confirmed affected areas November 2012 to October

21 1.6 National Disaster Response Capacity Analysis The Disaster Preparedness and Relief Act of 1991 was enacted by Parliament to make provision for the coordination and implementation of measures to alleviate the effects of disasters. It included the establishment of a National Disaster Preparedness and Relief Fund (NDPRF). Although NDPRF was created, resources are only made available after a disaster has occurred, which substantially delays relief efforts. Furthermore, the resources are insufficient to respond beyond a Scenario 1 emergency. Government institutions at the national level, and in particular, at the district level under the authority of the District Commissioner s Office, face a number of challenges, including the following:: Scarce financial resources for maintenance of existing disaster response structures Inadequate leadership and motivation in some districts to ensure effective emergency response and updating of district contingency plans. Inadequate Early Warning and Surveillance Systems for a number of disasters including floods, cholera, earthquake, strong winds, dry spells and, pest and disease outbreaks. Inadequate transport and communication facilities impeding dissemination of early warning messages, rapid assessments and disaster response. Inadequate capacity (human, technical, material and financial) for coordination at both national and district levels which negatively impact timely and effective assessment, response and information management during disasters. To address some of these deficiencies, the UN System in Malawi, DoDMA, civil society organisations and other stakeholders have facilitated training and orientation workshops for national and district staff on disaster risk management, with a particular emphasis on coordination, vulnerability assessments, reporting and contingency planning. In 2010, the department recruited 14 non established 1 officers in 14 disaster prone districts of the country to enhance human and technical capacity for mitigation, preparedness, response and recovery from disasters. Disaster risk management structures known as District Civil Protection Committees, Area Civil Protection Committees and Village Civil Protection Committees have been put in place. Efforts are under way to build their capacity to implement mitigation actions as well as respond to disasters 2. Significant investments in disaster risk reduction have been made by government partners. For example, the UK Department for International Development (DFID) has injected a total of 4.8 billion Malawi Kwacha through two consortia for implementing climate change adaptation projects. One consortium is led by Concern Universal and operates in the 5 disaster prone districts of Karonga, Salima, Dedza, Balaka and Nsanje. The other consortium led by Christian Aid is operating in 7 disaster prone districts, namely Chikhwawa, Mulanje, Thyolo, Mwanza, Nsanje, Machinga and Kasungu. World Bank through the Shire River Basin Management Programme (Phase 1 Project) is investing US $13.3 million (about MK4.3 billion) for flood risk management in the Shire River Basin, specifically in the Lower Shire districts of Chikhwawa and Nsanje. DoDMA has also conducted capacity building of District Commissioners from the most disaster prone districts in disaster risk reduction mainstreaming. Other government departments, such as the Ministry of Gender, trained government line ministries in disaster prone districts on how to respond to disasters affecting women and children. To further institutionalise disaster risk management, the DoDMA has developed a DRM Handbook, a National DRR Framework, DRM Operational Guidelines and is currently finalising a DRM policy. All these efforts are in line with the Hyogo Framework for Action (HFA) which 1 Fixed Term contract as compared to permanent contract. 2 For example, DIPECHO funded the capacity building of Village Civil Protection Committees in Salima through COOPI. 13

22 calls on states to build resilience of communities to disasters 3 thereby reducing resource requirements for preparedness, response and recovery. 3 Disaster Preparedness for Effective Response: Guidance and Indicator package for implementing Priority Five of the Hyogo Framework; United Nations,

23 SECTION TWO 15

24 2.1. ASSESSMENT MODALITIES Assessment Objectives The main purpose of the assessment is to identify the circumstances existing in the affected areas and quantify the extent of damage caused by disaster to people, their livelihoods and infrastructure. This information will allow activation of a coordinated and effective response to the situation if required, and the initial planning of early recovery measures. In particular assessment will concentrate on the following aspects: Identify the population affected, disaggregated by gender, age, sex, health and social status. Highlight key findings by sector: agriculture and food security, education, health, nutrition and, HIV and AIDS, environment, water and sanitation, public infrastructure (including communication and accessibility issues) and protection. Indicate how people and their livelihoods have been affected. Highlight contingency measures that were in place before the disaster. Highlight response measures already undertaken by different stakeholders. Highlight any response gaps that need to be filled. Highlight measures undertaken by affected communities to mitigate/cope with the situation. Highlight possible early recovery activities. Provide key recommendations on actions to be taken Activation of Assessment Mission An assessment mission will be deployed to the affected areas within 48 hours if: Reports are received from district officials through the DoDMA on a disaster affecting up to 1,000 households in either one or different areas within a period of 1 week (rapid onset). Reports are received from district officials through the DoDMA of the occurrence of a disaster affecting more than 1,000 households in a period of 2 to 3 weeks (slow onset). Information on occurrence of a disaster is received from the affected districts but reports on the extent of damage and number of people affected are not forthcoming and there is an indication that the number of households in the affected area is at least 1, 000 (e.g. in case of inaccessibility of the areas involved) Roles and Responsibilities As the ultimate coordinator of all actions involved in an emergency response, the Government of Malawi, through DoDMA, will be responsible for coordinating and leading a Joint Disaster Assessment Mission. The assessment team may include representatives from the following stakeholders: DoDMA Relevant Government ministries: Ministry of Agriculture, Irrigation and Water Development, Ministry of Health, Ministry of Education, Ministry of Local Government and Rural Development, Ministry of Transport and Public Infrastructure, Ministry of Gender, Children and Community Development, Department of Geological Surveys, Department of Surveys; Malawi Defence Force and Malawi Police Service. UN agencies: UNDP, FAO, UNFPA, UNHCR, UNICEF, UNRCO, UNAIDS, WFP, WHO Other cooperating partners: DFID, Irish Aid, USAID MRCS 16

25 NGO partners The assessment team will join a district level team comprised of district officials and NGOs operating in the affected areas Assessment Tools and Timeline for Emergency Response The assessment forms, report format including checklists, timeline for emergency response and other relevant summary tables are provided in the Annexes Assessment Modalities for Dry spells The Malawi Vulnerability Assessment Committee (MVAC) remains the main assessment modality for the impact of dry spells. The MVAC is mandated to assess food security and livelihood vulnerability for timely and accurate early warning information. Membership comprises: Ministry of Agriculture, Irrigation and Water Development, Ministry of Health, Ministry of Finance and Development Planning, National Statistical Office, Department of Nutrition & HIV and AIDS, Ministry of Development Planning and Cooperation, DoDMA, NGOs (in food security & humanitarian interventions), University of Malawi, FEWSNET, UN agencies (FAO, UNDP, UNICEF, WFP) and other development partners. The information gathered from the MVAC assessments will be used for programming purposes to counter the impact of dry spells. Using an entitlements approach, the MVAC comes up with the total missing food entitlements as well as data on the groups of people affected. The information is disaggregated by gender, location and period when assistance would be required CO-ORDINATION ROLES AND RESPONSIBILITIES Co-Ordination Arrangements The following is a summary of planned co-ordination arrangements and activities between Government, UN agencies, MRCS and NGOs: As the ultimate coordinator of all actors involved in an emergency response, the Government of Malawi (GoM) through the DoDMA is responsible for disaster prevention, mitigation, preparedness, response and recovery. Emergency response is led by the DoDMA, assisted by the relevant line ministries. District Commissioners are mandated to coordinate any emergency-related activities in their districts through Civil Protection Committees with the assistance of NGOs in the districts. Following the end of the rainy season, DoDMA will conduct a post-mortem with all stakeholders to assess the overall effectiveness of the plan, and preparedness, response and recovery activities executed. This feedback will serve as input to future contingency plan preparation. A National Epidemic Committee under MoH has been established with membership from key stakeholders including the donor community and government departments, to coordinate all activities at all levels for epidemic prevention and control, through which service delivery, surveillance, monitoring, data collection, analysis and dissemination are coordinated. The responsibility for cholera surveillance falls under this committee. Donor Coordination can facilitate an effective and timely response. For example, DFID s role as the coordinator in 2007/08 was instrumental in harmonizing and aligning efforts by creating a conducive environment for a collaborative effort, strengthening the relationship between Government, UN and the donor community around disasters. Malawi Red Cross Society (MRCS) is a member of the International Federation of Red Cross and Red Crescent Societies (IFRC). As a member of the IFRC, the MRCS embodies the work and principles of the Red Cross Movement. IFRC directs and channels its international assistance to 17

26 victims of natural and technological disasters through National Societies, in this case the Malawi Red Cross Society. IFRC acts as the official representative of its member societies and works to strengthen their capacity to carry out effective disaster preparedness, health, and social programmes. This is accomplished through provision of financial, technical and human resource assistance. The UN Resident Coordinator (UNRC) is also the designated Humanitarian Coordinator. Under the guidance of the UNRC, the Humanitarian Country Team (HCT), made up of heads of UN Agencies and Non Governmental Organisations is responsible for the effective and efficient implementation of inter-agency disaster management activities in Malawi for prayers outside of government UN agencies, MRCS and a network of NGO implementing partners will respond to an emergency in collaboration with and through the Government of Malawi. In accordance with UN Humanitarian Reform and the cluster directions of the Inter-Agency Standing Committee (IASC), Cluster Lead agencies will ensure a coordinated action among partners in their respective sectors. This responsibility requires coordination with Government, other agencies and NGOs to ensure that the needs of these sectors are addressed, that information is shared and that reporting is carried out. The following are the lead ministries coordinating the different clusters as well as the lead UN agency supporting those ministries. Early recovery and protection, as cross-cutting issues, are considered by all sectors through the coordination of DoDMA. Table Lead Cluster Ministries and UN Support Agencies Cluster Lead Ministry Lead UN Support Agency Agriculture & Food Security MoAFS FAO Health, HIV/AIDS and Nutrition MoH WHO/UNAIDS Education MoEST UNICEF Water & Sanitation MoAIWD UNICEF Transport, Logistics & Communication MoTPW WFP Protection MoGCCD UNICEF 4 Emergency Shelter & Camp MoHUD UN HABITAT/MRCS Management Coordination, Communication, Assessment DoDMA UNRCO Principles and Strategies Exposure to disasters may reduce access to basic rights including food, education, health services, safe housing, protection, drinking water and sanitation. The Government of Malawi is committed to ensuring these rights are maintained also during an emergency situation. Key strategic areas identified in the contingency plan are: Developing national capacity at all levels for emergency response. Pre-positioning of emergency supplies. (for example RH kits, ARTs and condoms). Surveillance and monitoring of key emergency indicators. Intensifying service delivery to avert the impact of emergencies, e.g. PMTCT. Awareness raising for prevention of HIV/AIDS, cholera and malaria. 4 UNHCR is supposed to co-lead the Protection cluster; however, UNHCR indicated that it does not have the capacity at the local level to provide support to the cluster. In the event of a major emergency, UNCHR will assume its global responsibilities and provide leadership to the cluster. 18

27 Advocacy on issues of protection and health. Advocacy on preventing sexual abuse and exploitation of women and children. Early recovery is considered as a cross-cutting issue for planning in all sectors, based on the Early Recovery Framework. In addition, disaster risk reduction measures should be integrated into early recovery interventions. The Government will call upon support from UN agencies, MRCS and NGOs to assist with Malawi s emergency preparedness. Response will build on existing activities and partnerships developed through country programmes of co-operation (Government, UN agencies and NGOs) as well as on community mobilization and participation. Through this developed network of partnerships, Government will monitor emergency situations and potential threats in an attempt to ensure early warning and response. At the time of an emergency situation, additional programmes will be developed as needed to support humanitarian action and post-incident rehabilitation and recovery efforts within the respective cluster responsibilities. To ensure rapid response to emergencies which exceed Government capacity, UN agencies, MRCS, NGOs and other stakeholders may be called upon to provide initial relief assistance in line with respective corporate core commitments. The duration of the required assistance will vary depending on the scenarios and according to the nature of the activities in the different sectors (i.e., emergency activities versus recovery activities) (see details for each sector below, section 2: Preparedness and Response Plans) Activation of Plan The National Contingency Plan is activated at the onset of the rainy season under the authority of the Secretary and Commissioner for Disaster Management Affairs. Activation signifies that all coordination mechanisms, and roles and responsibilities of the various stakeholders are in effect. Each stakeholder is responsible for executing the actions identified in this document as appropriate, in preparing for and responding to an emergency. 19

28 SECTION THREE 20

29 3.0 CLUSTER PREPAREDNESS, RESPONSE AND EARLY RECOVERY PLANS 3.1 CO-ORDINATION, COMMUNICATION 5 AND ASSESSMENT The DoDMA leads the Co-ordination, Communication and Assessment operation for preparedness, emergency response and recovery Overall Objective To facilitate appropriate coordination arrangements, communication and assessment activities between Government, UN, and NGOs including MRCS in responding to emergencies and during contingency planning process Specific Objectives i. To ensure inter-cluster coordination and communication. ii. To coordinate the overall disaster preparedness, response and recovery efforts iii. To ensure that Protection and Early Recovery concerns are mainstreamed by all clusters in the three phases of preparedness, response and recovery. iv. To facilitate communication between the UN, NGOs and district councils. v. To facilitate the provision of information on early warning and emergency response and recovery between stakeholders involved in the response. vi. Coordinate joint resource mobilisation effort vii. Coordinate joint assessments in line with call-down mechanisms (triggers) which indicate when assessments should be conducted. viii. To coordinate revision/update of the contingency plan ix. To coordinate evaluations and lessons learnt following responses to disasters Definition of Affected The term affected in this cluster is understood as covering all people that are deemed and accepted as affected by the various clusters Emergency Preparedness and Capacity-Building Activities # Activities Lead When Budget available Gap Agency 1 Facilitate the review of the National Contingency Plan DoDMA, ministries, UN, NGOs and other stakeholders September 30,000 2 Initiate the evaluation and lessons learnt of the previous season s contingency plan 3 Review standing assessment team DoDMA Cluster Lead Chairpersons July August mobilize resources for humanitarian fund to be used for assessments for initial UNRCO -Oct 0 5 Communication as used in this context refers to the flow of information to the other clusters in an effort to link them up. This is upper level of communication. 6 Resource mobilisation is an ongoing process but the target is the have fund mobilised by October 21