Disaster management in_Pakistan (6)

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U N I V E R S I T Y O F T H E P U N J A B , LA H O R E
Disaster
Management in
Pakistan
National Disaster Management Plan (NDMP)
Muhammad Waseem Sajjad-31
Institute of Administrative Sciences IAS

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Disaster Management in Pakistan
(National Disaster Management Plan)
Muhammad Waseem Sajjad
11-BS-R-31
Submitted to:-
Altaf Ezid Khan
Secretary PWD
Institute of Administrative Sciences
University of the Punjab, Lahore

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EXECUTIVE SUMMARY……………………………………………………………. 1
1. BRIEF OF SUBJECT OF PUBLIC POLICY…………………………….…………………….3
2. INTRODUCTION……………………………………………………………….………………….4
3. NATURAL DISASTER IN PAKISTAN …………………………………..………………… 6
4. PREVAIOUS POLICIES………………………………………………………….……………….8
5. INSTITUTIONAL MECHANISM OF DISASTER
MANAGEMETN IN PAKISTAN……………………………………………………………..9
6. VISION, MISSION, SCOPE AND OBJECTIVE ……………………………………… 13
6.1 Vision…………………………………………………………………………………………… 13
6.2 Mission ……………………………………………………………………………………….. 13
6.3 Objectives ……………………………………………………………………….…….………13
6.4 Scope ……………………………………………………………………………..…………….14
6.5 Time Frame ………………………………………………………………….….……………14
7. STAKEHOLDERS …………………………………………………………………………………14
7.1 National Disaster Management
Commission & Authority (NDMC&A) …………….…………………..…….……14
7.2 Federal Ministries & Authorities ……………….…………………………………..15
7.2.1 Ministry of Interior ……………………………………………………..……..15
7.2.2 Ministry of Information Technology .…………………………….……15
7.2.3 Ministry of Railways ……………….……………………………………..…..16
7.2.4 Ministry of Water and Power ………………………………………….….16
7.2.5 Ministry of Defense……………………………………………..………….….17
7.2.6 Ministry of Foreign Affairs …..…………………….………………………17
7.2.7 Federal Flood Commission ………………….……………………………..17
7.2.8 Emergency Relief Cell ……………………………………………………….18
7.2.9 Space and Upper Atmosphere Research
Commission (Suparco)…….…………………………………………………..18
7.2.10 Pakistan Meteorological Department …..…………….………………18
7.2.11 Pakistan Telecommunication Authority……………………………….18
7.3 Pakistan Army…………………………………………..………………………………...19
7.4 Provincial/State Disaster Management Commission & Authority…20

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7.5 District Disaster Management Authorities (DDMAs) …………………20
7.6 Community Organization ……………………………………………………………21
7.7 Individual ……………………………………………………………………………………21
7.8 University and Research Institutes……………………………………………….21
7.9 International Agencies ………………………………………………….…………….22
7.10 Volunteers…………………………………………………………………………………..22
7.11 Other Key Stakeholders ……………………………………………………………..22
8. REVIEW OF IMPLEMENTATION AND OUTCOMES…………………………………23
8.1 Review ……………………………………………………………………………………………..23
8.2 Outcome-I………………………………………………………………………………………….26
8.3 Outcome-II……………………………………………………………………………………..…27
8.4 Outcome-III………………………………………………………………………………………28
9. EVALUATION FRAMEWORKS………………………………………………………………..29
9.1 Introduction & Rational ………………………………………………………………..… 29
9.2 Objectives and Use …………………………………………………………………………..29
9.3 Methodology…………………………………………………………………………………….30
9.4 Focus & IR RTE Framework ……………………………………………………….……30
10. CONCLUSION.........................................................................................32
11. RECOMMENDTATIONS………………………………………………………………………..33
REFERENCES……………………………………………………………………...…34
INTERVIEW…………………………………………………………………………..29
Figures
Figure 5.1:Disaster Management Institutional Mechanism of Pakistan……...11
Figure 9.1:the ‗IA RTE Framework‘ as Diagram………………………...31

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EXECUTIVE SUMMARY
Public policy affects each citizen in hundreds of ways, some of them familiar and some
unsuspected. Public policy affects a vast range of activities, from nuclear warheads to
bathroom plumbing, from arresting lawbreakers to providing medical care for the
elderly. Even though examples of public policy come readily to mind, defining public
policy in clear and unambiguous terms is not easy. David Easton defines public policy
as the authoritative allocation of values for the whole society. On the other hand,
Lasswell and Kaplan define policy as a projected program of goals, values and
practices.
Globally, the risks, vulnerabilities and impacts induced by natural hazards and disasters
are on rise. Their economic costs and damage are widespread as seen in recent
disasters such as the 2004 Indian Ocean Tsunami, the 2005 Kashmir Earthquake, and
Japan's 2011 tsunami. Many government agencies have utilized disaster management
principals in an attempt to minimize the impact of disasters. Research has underscored
that local level vulnerability assessment; disaster management and resilience are
required to empower com-munities to cope with disasters.
Geographically Pakistan is situated in a region very much prone to natural hazards,
particularly the northern part of the country. The area experiences natural hazards such
as earthquakes, landslides, floods, glacial melting and soil erosion. Flooding from river
overflows is the most common natural disaster in Pakistan. They are costly natural
hazards due to damage to property and croplands.
Historically, disaster management in Pakistan was focused on the ‗Emergency
Response Paradigm‘ (ERP). Prior to 2005, the West Pakistan National Calamities Act
of 1958 was the available legal remedy that regulated the maintenance and restoration
of order in areas affected by calamities and relief against such calamities. An
Emergency Relief Cell within the Cabinet Division has been serving since 1971 as an
institutional disaster relief support at the national level
The United Nations International Strategy for Disaster Reduction (UNISDR)
introduced the paradigm shift from a reactive to a proactive approach in the form of the
Hyogo Framework of Action (2005-2015) signed by 168 countries including Pakistan.
To fulfill the global obligations as well as cope with the challenges emerged in the
aftermath of the October 2005 earthquake; the Government of Pakistan promulgated

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the National Disaster Management Ordinance in 2007 to introduce a comprehensive
National Disaster Management System in the country. The Ordinance became the Act
called the National Disaster Management Act in December 2010.
The National Disaster Management Authority (NDMA) was subsequently established
in 2007 in line with the Act, and serves as the implementing, coordinating and
monitoring body for disaster risk management at the national level. NDMA in
collaboration with national and international partners had been in the process of
strengthening the DRM system in the country and has developed National Disaster
Management Plan.
The structure of disaster and emergency management in Pakistan, centered on the
National Disaster Management Commission (NMDC), was established immediately
after the disastrous Kashmir Earthquake in 2005. The provincial government has the
authority to form the Provincial Disaster Management Authority (PDMA). A District
Disaster Management Authority (DDMA) can be established by Provincial
governments in the hazard prone areas on a priority basis.
The NDMA realized the importance of formulating the National Disaster Management
Plan. It is a long-term, holistic policy document for Disaster Risk Management (DRM)
at the national level. It contains all the aspects of disaster management policy,
strategies and actions, including (i) national hazard and vulnerability assessment, (ii)
human resource development, (iii) community-based disaster risk management, (iv)
multi-hazard early warning system, (v) disaster management operation by type of
disaster, such as earthquake, tsunami, flood, drought, cyclone, etc., and (vi)
actions/programs for disaster management. The National Disaster Management Plan
will determine the overall strategies for disaster management in Pakistan.
There are different stakeholders/Clients involve such as National Disaster Management
Commission and Authority, PDMAs, DDMAs, Pak Army, International Organization
etc. all these discuss in detail.
The success or failure of any disaster management system depends upon the
availability and operational efficiency of the human resources, technology, information
architecture, funds etc. The more effective integration of disaster management
considerations into sustainable development policies, planning and programming at all
levels, with a special emphasis on disaster prevention, mitigation, preparedness and
vulnerability reduction. The development and strengthening of institutions,

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mechanisms and capacities at all levels, in particular at the community level, that can
systematically contribute to building resilience to hazards The systematic incorporation
of risk reduction approaches into the design and implementation of emergency
preparedness, response and recovery programs in the reconstruction of affected
communities.
Inter-Agency‐Real Time Evaluation (IA RTEs) is an initiative of the Inter‐Agency
Standing Committee IASC). An IA RTE can be defined as an evaluation carried out at
the early implementation stages of a humanitarian operation which almost
simultaneously feeds back findings for immediate use by the broader humanitarian
community, particularly at the field level. The applied methods for IA RTE shall be
light and participatory. The evaluation will be conducted by teams comprising
independent consultants. The evaluation will be carried out through analyses of various
sources of information including desk reviews; field visits; interviews with key
stakeholders (affected population, UN, / I/NGOs, donors, governments) and through
cross validation of data.
1. BRIEF OF SUBJECT OF POLICY
Public policy affects each citizen in hundreds of ways, some of them familiar and some
unsuspected. Citizens directly confront public policy when they are arrested for
speeding, but they seldom remember that the advertising on the television shows they
watch is regulated by PEMRA. Many citizens who complain loudly at tax time about
government bureaucracy and overregulation have forgotten the fire and police
protection or the paved streets those revenues provide. Indeed, public policy affects a
vast range of activities, from nuclear warheads to bathroom plumbing, from arresting
lawbreakers to providing medical care for the elderly.
Even though examples of public policy come readily to mind, defining public policy in
clear and unambiguous terms is not easy. Political scientists have devoted considerable
attention to the problem without reaching a consensus. The term public policy always
refers to the actions of government and the intentions that determine those actions.
David Easton defines public policy as the authoritative allocation of values for the

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whole society. On the other hand, Lasswell and Kaplan define policy as a projected
program of goals, values and practices. It may be stated that goals purposes, objectives
are often used synonymously. According to Hughes, Public Policy is a statement or an
interpretation of government authority. It may be used in determining business and
political decisions. In a democratic society, public policy making is thought, as being
the function of the elected representative to announce certain objectives in the best
interest of the people. However, in the complexity of big governments of modern
times, there are many points in the articulate stages of the political process, where
elected officials lose control of their initially announced objectives, embedded in a law
passed by a legislature, is usually the result of many compromises. Policy is the output
resulting from the interactions from the governmental and non-governmental
individuals and groups.
The public policy-making arena is fraught with confusion, contradictions, and
consternation. In order to make policy, decision makers often merge conflicting
objectives into acceptable outcomes. It is not pretty, but it works. The world for which
policies have to be developed is becoming increasingly complex, uncertain and
unpredictable. Citizens are better informed, have rising expectations and are making
growing demands for services tailored to their individual needs. Key policy issues,
such as social need, low educational achievement and poor health, are connected and
cannot be tackled effectively by departments or agencies acting individually. At the
same time, the world is increasingly inter-connected and inter-dependent. National and
global events and trends can very quickly become major issues for a regional
administration - for example, the terrorism.
2. INTRODUCTION
Globally, the risks, vulnerabilities and impacts induced by natural hazards and
disasters are on rise. Their economic costs and damage are widespread as seen in
recent disasters such as the 2004 Indian Ocean Tsunami, the 2005 Kashmir
Earthquake, and Japan's 2011 tsunami. Many government agencies have utilized
disaster management principals in an attempt to minimize the impact of disasters. The
development literature on hazards and disasters reveal that most of the countries

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around the globe still practice the post-disaster relief approach. As a result, many
individuals and communities remain vulnerable to natural hazards. However, a
paradigm shift from relief to risk assessment, preparedness and early warning systems
under the Hyogo Framework for Actions is underway, emphasizing community
resilience to disasters for hazard mitigation.
Research has underscored that local level vulnerability assessment; disaster
management and resilience are required to empower com-munities to cope with
disasters. Local level vulnerability assessments incorporate assessment of vulnerable
communities both at the district, Union council and com-munity levels in line with
national level assessment. This would set the ground for risk reduction strategies at the
grassroots level. Once we know the risks and vulnerabilities, better mitigation and
preparedness measures can be taken to avoid disaster impacts. By taking these
measures, the communities would cope better with the disaster impacts, subsequently
their vulnerabilities would be reduced and enhance their resiliency to natural disasters.
Further, it is widely acknowledged that local government engagement in risk reduction
and management activities serves as a viable strategy for disaster management. Local
communities, and not national authorities, are always the first to respond to any
disasters.
Effective and decentralized policies for disaster risk reduction can greatly reduce the
loss of life and assets caused by disasters. The existing research on the impacts of
decentralization of disaster management institutions envisions the procedure positively
in terms of public service delivery because nations with decentralized government
processes experience fewer disaster-related deaths. Such governments prepare for and
respond to disaster more effectively relative to more centralized systems. In addition
decentralization reduces disaster-induced deaths by enhancing human capital. As we
are well aware that communities always respond first to any disaster's impacts
therefore their role becomes imperative that they are engaged in disaster related
activities at the local level. i.e., they are engaged in decision making, preparedness and
mitigation activities, design, implementation and evaluation of the risk management
activities at the community and union council level. Further, the effective
implementation of mitigation strategies requires the incorporation of local decision-

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making in disaster management processes.
Disaster management is not just a process of identification, assessment and
management of disaster risks. It is also a process of understanding people's perception
about their risks and vulnerabilities, their interaction with each other and indigenous
coping strategies, power structures along with laying out the methods of effective
cooperation. Prevention and mitigation need to be understood as social phenomena. An
effective disaster management entails more than resource management, evacuation,
shelter and health interventions; it also rests on an understanding of human behavior,
stresses, strains and vulnerability. Similarly, post-disaster recovery is not merely a
mega-project involving construction and rehabilitation. Community-based disaster
management activities serve as increasingly important elements of vulnerability
reduction and disaster management strategies at the local levels. This paper attempts to
address the implementation of disaster management, preparedness, risk reduction,
implementation etc.
3. NATURAL DISASTER IN PAKISTAN
Geographically Pakistan is situated in a region very much prone to natural hazards,
particularly the northern part of the country where Himalayan and Hindukush
mountains are situated. The area experiences natural hazards such as earthquakes,
landslides, floods, glacial melting and soil erosion. Pakistan's vulnerability to natural
hazards and disaster ranges from moderate to severe. It has faced both natural as well
as man-made disasters in its history. Natural hazards for the country include cyclones,
earthquakes, floods, glacial out-burst, storms, droughts, landslides, river erosion,
tsunami and epidemics. Pakistan is also under the threat of a number of human induced
hazards such as forest fires, civil conflicts, transport, terrorism and industrial disasters.
However some of the floods, earthquakes, droughts, wind storms and landslides have
caused immense damage to life and property in the past. Table 1 below shows the
number and effects of major hazards in Pakistan over the last two decades.

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Flooding from river overflows is the most common natural disaster in Pakistan. They
are costly natural hazards due to damage to property and croplands. Floods are usually
short-lived events that can happen with little or no warning. The Indus basin—the
biggest in the country—covers 70% area of the country and generally major floods
occurs in the basin in the late summer when south Asian region is subjected to heavy
monsoon rainfall. Major flooding in Pakistan is associated with the monsoon low
depression that develops in the bay of Bengal and move across India west/north
westerly direction to enter Pakistan. The Indo-Australian plate upon which Pakistan,
India and Nepal lie, is continuously mov-ing northward and sub-ducting under the
Eurasian plate, thus triggering earthquakes in the process and forming the Himalayas
mountain range. The collision of the two continental plates indicates that Pakistan is
situated in a highly seismically active region of the world. Major earthquakes over the
past100 years include the 1945 Makran earthquake with magnitude above 8.0 to the
Kashmir earthquake in 1905 with magnitude of 7.6 has caused heavy damage to life
and properties. The October 2005 Kashmir earthquake enhanced conscious-ness about
the increasing vulnerability of Pakistan's growing population in the area. The areas in
Pakistan which are likely to be susceptible to the future earth-quakes are the northern
areas, Chitral district in North West Frontier Province (NWFP), and Kashmir including
Muzaffarabad, and Quetta. The region of Kashmir, northern Areas and parts of the
NWFP are particularly vulnerable to landslide hazards. Apart from the young geology
and fragile soil type of mountain ranges, accelerated deforesta-tion is a major cause
behind being increased incidences of landslides (NDMA 2007). In all natural hazards
and dis-asters droughts have tremendous potential impact across broad areas compared
to other disasters like flood, tropical cyclones etc. Due to the unique geo climatic
conditions in some parts of the country drought have been a major threat and will have
substantial consequences on sustain-able development and food security, agriculture,
livestock, water resources, environment and hydro-electricity. The main arid areas of
the country include D. G. Khan, D. I. Khan, Kohistan and western Baluchistan. Some
of the areas are drastically vulnerable to droughts. For example in Baluchistan due to
the decrease of both the vegetation cover and precipitation has affected about 92% area
of the province. Pakistan's vulnerability to tsunamis is low, but it did experience a large
tsunami on 28 November 1945 due to a submarine 8.0 magnitude earthquakes near the

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Makran coast. The tsunami produced a wave 12–15 m in height which had killed at
least 4000 people near the coastal belt of Baluchistan. The cities like Karachi and
Gawader are likely to be the victims of any future tsunami.
4. PREVAIOUS POLICIES
Historically, disaster management in Pakistan was focused on the ‗Emergency
of order in areas affected by calamities and relief against such calamities. An
Emergency Relief Cell within the Cabinet Division has been serving since 1971 as an
institutional disaster relief support at the national level. Similar institutional
arrangements existed at the provincial level in the form of relief commissioners.
However, that regime provided a reactive approach towards emergency response only.
The United Nations International Strategy for Disaster Reduction (UNISDR)
introduced the paradigm shift from a reactive to a proactive approach in the form of the
Hyogo Framework of Action (2005-2015) signed by 168 countries including Pakistan.
To fulfill the global obligations as well as cope with the challenges emerged in the
aftermath of the October 2005 earthquake; the Government of Pakistan promulgated
the National Disaster Management Ordinance in 2007 to introduce a comprehensive
National Disaster Management System in the country. The Ordinance became the Act
called the National Disaster Management Act in December 2010. The Act establishes
three tiers for the disaster management system: i.e., national, provincial and district
levels.
Under the Act, the National Disaster Management Commission (NDMC) was
established at the national level, and has the responsibility for laying down policies and
guidelines for disaster risk management and approval of the National Plan. The
National Disaster Management Authority (NDMA) was subsequently established in
2007 in line with the Act, and serves as the implementing, coordinating and monitoring
body for disaster risk management at the national level. Along with the Ordinance
(now Act), the National Disaster Risk Management Framework (NDRMF) was
prepared by the NDMA in March 2007. The NDRMF served as an overall guideline
for disaster risk management at national, provincial and district levels. In March 2010,

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the NDMA formulated the National Disaster Response Plan (NDRP) identifying
specific roles and responsibilities of the relevant stakeholders in emergency response
including Standard Operation Procedures (SOPs).
NDMA in collaboration with national and international partners had been in the
process of strengthening the DRM system in the country. In order to support this new
approach in Pakistan, the Japan International Cooperation Agency (JICA) dispatched a
series of missions from the year 2008 to 2009 based on the request from the
Government of Pakistan. It studied the whole legal and administrative system of DRM
in Pakistan and held meetings with all stakeholders to identify the needs and
requirements to enhance the capacity of the national DRM system. Based on thorough
bilateral consultations, a project document on formulation of a National Disaster
Management Plan (NDMP) for Pakistan was conceived for implementation through
Japanese Grant-in-Aid. A PC-II was prepared accordingly and was approved by the
Planning Commission in the meeting of Central Development Working Party held on
19-11-2009. For implementation through Grant-in-Aid, the scope of work for the
project was discussed, agreed and signed between the Government of Pakistan and
JICA on 11-12-2009 and the project Inception Report was prepared in April 2010. The
Plan, aimed at enhancing the capacity of the country to prepare for and respond to
disasters by defining the measures to be considered necessary for disaster management
and risk reduction in line with the provision of the National Disaster Management Act
was finalized in June 2012.
5. INSTITUTIONAL MECHANISM OF DISASTER
MANAGEMENT IN PAKISTAN
The structure of disaster and emergency management in Pakistan, centered on the
National Disaster Management Commission (NMDC), was established immediately
after the disastrous Kashmir Earthquake in 2005 and has been operational since 2007.
As Fig. 5.1 below illustrates, the institutions begin at the national level and extend to
the Union Council levels for the implementation of disaster policies. The commission
is the highest policy and decision making-body for disaster risk management. It also

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oversees the integration of disaster risk management issues into sectorial development
plans and manages the implementation of this policy through National Disaster
Management Authority (NDMA), chaired by the Prime Minister. Since disaster risk is
a multi-sectorial activity that requires timely response, the NDMA was established to
serve as focal point and coordinating body to facilitate the implementation of disaster
related mitigation strategies. It directly communicates with all stakeholders, including
ministries, departments and other agencies which are likely to participate in disaster
risk management. The provincial government has the authority to form the Provincial
Disaster Management Authority (PDMA) which is chaired by the Chief Minister. The
authority lays down the provincial/regional disaster risk management policy and
develops the provincial disaster risk management plans in accordance with guidelines
laid down by the national commission. It also reviews the implementation of the
provincial plans and oversees the provision of funds for risk reduction and
preparedness measures. Further, it coordinates and provides technical assistance to
local authorities for carrying out their function. A District Disaster Management
Authority (DDMA) can be established by Provincial governments in the hazard prone
areas on a priority basis. This authority is headed by Nazim (district chief) of the
district. The authority formulates disaster risk management plans and coordinates their
implementation. It also prepares guidelines for local stakeholders on disaster risk
reduction. In the event of a disaster, it organizes emergency response through district
emergency operation center and maintains linkages with PDMA and relevant
departments.
Authorities at the town and Tehsil levels serve as the frontline organizations of disaster
risk reduction and response, interfacing directly with communities. Tehsil and town
Nazims lead the risk and response operations with the help of Tehsils and town officers
in consultation with DDMA. Other key players include extension workers, police
officers, fire services, community organizations, traditional leaders and NGOs. The
Union Council is the lowest tier in the governance system, but has important roles in
allocating resources for local development works. Union councils are expected to
advocate for the communities with the district councils and disaster management
authorities. The Fig.5.1 in the article describes the institutional mechanism of Pakistan.
The relationship among the different levels is important starting from national to union
council level.

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A number of situations in the aftermath of October 08 earthquakes gave NDMA some
favorable opportunities to promote disaster management in Pakistan. These include: (i)
heightened awareness among highest level decision-makers, officials, media and civil
society about disaster risks and vulnerabilities, (ii) enhanced commitment of donors
and the UN for establishing institutional arrangements and developing capacity on
disaster risk management, iii) approval of the National Disaster Management
Ordinance 2006, establishment of NDMC, and the NDMA, and iv) commitment of the
NDMA leadership.
Figure 5.1 Disaster Management Institutional Mechanism of Pakistan

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A number of situations in the aftermath of October 08 earthquakes gave NDMA some
favorable opportunities to promote disaster management in Pakistan. These include: (i)
heightened awareness among highest level decision-makers, officials, media and civil
society about disaster risks and vulnerabilities, (ii) enhanced commitment of donors
and the UN for establishing institutional arrangements and developing capacity on
disaster risk management, iii) approval of the National Disaster Management
Ordinance 2006, establishment of NDMC, and the NDMA, and iv) commitment of the
NDMA leadership. Existing disaster management system also has a number of
strengths. For example, Pakistan has relatively well developed systems for flood
mitigation, preparedness and response. Provincial revenue departments have policies,
systems and procedures in place for disaster relief, particularly for floods and droughts.
Pakistan armed forces are generally well experienced in managing various kinds of
disasters. A number of departments including agriculture and irrigation departments
have been implementing drought mitigation strategies. Some NGOs have extensive
experience in community level disaster risk reduction and preparedness. NDMA is
trying to build upon the above mentioned strengths and opportunities, while
developing systems for disaster risk management at the local levels. However at the
local levels (community and village), disaster's impacts are handled through social
networking with the support of local NGOs. Faith-based NGOs have also worked in
the response along with community groups at the village levels.
This study is basically exploratory in nature based on qualitative data from primary and
secondary sources. The secondary sources include: Pakistan Meteorological
Department, Survey of Pakistan, Seismic Center, Provincial Disaster Management
Authority, Pakistan Engineering Council, Development Authority, websites of
Provincial Disaster Management Authority and National Disaster Management
Authority. The other sources include journal articles, books, training manuals and other
government reports, documents from all levels (national to district).
The sources for the data are the Provincial Disaster Management Authority, district
government, Union council offices, Civil defense department, Rural support Program,
Muslim Aid, Pakistan Red Crescent Societies. In addition the primary data was
collected through face to face interviews with concerned institutions.

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6. VISION, MISSION AND OBJECTIVES
The NDMA realized the importance of formulating the National Disaster Management
Plan. It is a long-term, holistic policy document for Disaster Risk Management (DRM)
at the national level. It contains all the aspects of disaster management policy,
strategies and actions, including
(i) national hazard and vulnerability assessment, (ii) human resource development, (iii)
community-based disaster risk management, (iv) multi-hazard early warning system,
(v) disaster management operation by type of disaster, such as earthquake, tsunami,
flood, drought, cyclone, etc., and (vi) actions/programs for disaster management. The
National Disaster Management Plan will determine the overall strategies for disaster
management in Pakistan.
6.1 Visions
To achieve sustainable social, economic and environmental development in Pakistan
through reducing disaster risks and vulnerabilities for all groups of people in the
country; and to enhance the country‘s ability to manage natural disasters using a
comprehensive national approach.
6.2 Mission
To manage the complete spectrum of disasters by development of disaster risk
reduction policies, strategies, measures and actions of governments, especially at the
national level, the community and individuals through enhancing institutional
capacities, and human and material resources for mitigation, prevention and
preparedness, response and recovery.
6.3 Objectives
Damage and losses from disasters have physical, economic, and social impacts.
Mitigating and alleviating the damage and losses are required to collectively increase
resiliencies in physical, economic and social areas, using technologies, knowledge,

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information, and human resources. Preparations need to cover all stages including pre-
disaster, emergency response, and post-disaster periods. The National Disaster
Management Plan was developed as a part of an institutionalization process. It aims: i)
to develop resilience in society against disasters of the type that Pakistan has
experienced such as the 2005 Earthquake and Pakistan Flood 2010, ii) to mitigate
damage from recurring disasters such as earthquakes, tsunamis, floods/sediment
disasters, and other natural disasters, iii) to take care of vulnerable peoples such as
women, marginalized people, elderly people, disabled people, etc., and iv) to clarify
the roles of the national and local governments, public agencies, corporations and
residents for each type of disaster.
6.4 Scope
The concepts applied to major disasters in the National Disaster Management Plan are
for natural hazards or any other occasion for which NDMC determines that assistance
of the National Government is needed to supplement provincial and district level
efforts and capabilities.
6.5 TimeFrame
The time frame of the Plan is considered to be ten years from 2012 to 2022.
Monitoring of the Plan will be conducted by the NDMA with the participation of
relevant stakeholders.
7 STAKEHOLDERS
Following are the stakeholders in Disaster Management.
7.1 National Disaster Management Commission & Authority
(NDMC&A)

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The National Commission shall consist of:
I. The Prime Minister of Pakistan who shall be the Chairperson, ex officio
II. Leader of the Opposition in the Senate
III. Leader of the Opposition in the National Assembly
IV. Minister for Defense
V. Minister for Health
VI. Minister for Foreign Affairs
VII. Minister for Social Welfare and Special Education14
VIII. Minister for Communications
IX. Minister for Finance
X. Minister for the Interior
XI. Governor, Khyber Pakhtunkhwa (for FATA)
XII. Chief Ministers of all the provinces
XIII. Prime Minister, AJ&K
XIV. Chief Executive, Gilgit-Baltistan
XV. Chairman, JCSC or his nominee
XVI. Representatives of civil society or any other person appointed by the Prime
Minister.
7.2 Federal Ministries
The following federal ministries play major role in disaster management:
7.2.1 Ministry Of Interior
The ministry of interior prepares evacuation guidelines for different types of disasters.
The ministry is also responsible for the training of police and other security forces in
search and rescue operations. The forces mobilized by this ministry evacuate the
affected people by transporting them to the camp sites and maintain law and order in
the affected areas. The security forces operating under this ministry are also utilized to
manage the traffic in the affected area.
7.2.2 Ministry Of Information Technology

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The Ministry of Information Technology provides technological support to the Disaster
Management Authorities and ensures that private telecommunication service providers
develop Standard Operating Procedures to provide communication support in disaster
situations. This ministry would also maintain a spare pool of preferably wireless
telecom equipment to establish emergency communication networks that are essential
for the close coordination of rescue and relief efforts.
7.2.3 MINISTRY OF RAILWAYS
The Ministry of Railways develops a contingency plan to deal with the degradation of
railway‘s moveable and static assets due to natural or industrial disasters. The ministry
must install fire extinguisher in all cars of the different railway routes and Railway‘s
staff should be trained in firefighting, bomb-disposal and search & rescue. The vast rail
network of this ministry is also utilized to transport relief material from ports to the
disaster affected areas. This rail network can also be utilized to evacuate the affected
people.
Pakistan has an elaborate railway network which connects almost all main cities in the
Provinces of Pakistan. However, no railway network exits in Gilgit- Baltistan, FATA
and Azad Jammu and Kashmir. The existing railway system should be judiciously
utilized as it can be quickly mobilized for economical transportation of relief supplies
including heavy machinery, fuel, boats, building material and affected people. For this
purpose, Railways Authorities should maintain a close liaison with NDMA, PDMAs
and NLC for smooth execution of transportation of relief goods in an emergency. NLC
shall exercise over all control with regard to transportation through railways.
7.2.4 Ministry Of Water and Power
The ministry of Water and Power conducts periodic monitoring and inspection of dams
and provides telemetric data from rain gauge stations and flood data from Indus River
Basin, to the Flood Forecasting Division of the Pakistan Meteorological Department.
This ministry also coordinates with the Indian counterpart to remain informed about
the water levels in the shared water channels. The Water and Power Development

17
Authority (WAPDA) collects and transmits rainfall and flood discharge data. This data
is collected by Automatic Flood Telemetry Systems maintained by WAPDA.
7.2.5 Ministry Of Defense
The Ministry of Defense mobilizes the Armed Forces to provide immediate rescue and
relief through massive air and ground efforts. After the immediate response, the armed
forces assist the civil administration in setting up camps and tent villages for the
affected population. The ministry is also responsible for enhancing DRM capacities of
Cantonment Boards especially for firefighting, casualty, evacuation, search and rescue.
The armed forces can also deploy medical doctors to restore the health of victims and
professional engineers to restore the communication and infrastructure network in an
affected area.
7.2.6 Ministry Of Foreign Affairs
The Ministry of Foreign Affairs facilitates in the arrival of foreign humanitarian
workers and relief goods from the international community. This ministry is
responsible for maintaining a list of international experts of disaster response working
at embassies or international organizations. This list must be shared with DMAs to
ensure the immediate engagement of international experts at the time of a disaster. The
ministry would also communicate the assessment of damages and needs to the
representatives of foreign countries contemplating the provision of assistance.
7.2.7 Federal Flood Commission
FFC is a federal department responsible for coordinating efforts aimed at reducing the
risk of floods. This department reviews the capacity of flood protection works such as
embankments and overcomes the shortcomings by enhancing the physical structures
that preclude an over flow of waters from water channels such as rivers or canals. This
department engages various contractors to remove the excessive silt in the canals and
strengthen areas where a breach might occur. The department must provide DMAs
with regular updates on the flow rates and volumes in different rivers of the Province.

18
7.2.8 Emergency Relief Cell
The Emergency Relief Cell maintains a stock of key items that survivors need to
sustain themselves. Examples include tents, medicines, blankets, clothing, plastic
sheets and tarpaulins. The stock level in warehouses would be communicated to DMAs
on a regular basis to keep them informed of the resources that can be dispatched to the
worst affected communities of a disaster stricken area.
7.2.9 Space and Upper Atmosphere Research Commission (Suparco)
SUPARCO facilitates in the understanding of disaster affected areas by providing
satellite imagery and thematic maps of affected areas. SUPARCO can utilize the
satellite imagery to visualize the extent of floods and the population centers inundated
by them.
7.2.10Pakistan Meteorological Department
The primary function of this department is to provide an early warning of a natural
hazard. This department continuously monitors various meteorological factors such as
rainfall, temperature, atmospheric pressure, etc. The department issues weather
forecasts on a regular basis through electronic and print media.
7.2.11Pakistan Telecommunication Authority
PTA is responsible for the upkeep and maintenance of telephone, cellular and internet
connections. This department is also responsible for the restoration of this connectivity
in case it is negatively affected by a disaster. PTA would also create uninterrupted and
dedicated telephone lines to enable the exchange of information between the disaster
stricken area and DMAs or its representatives in the districts. This department can also
engage private telecommunication service providers to establish the connectivity
required for a well-informed emergency response.

19
7.3 Pakistan Army
The Pakistan Army‘s resources are employed for immediate search, rescue and
evacuation. The Army is called in the ‗Aid of Civil Power‘ only when a disaster
overwhelms the resources at the disposal of the Government of Punjab. Search, rescue
and evacuation are the primary responsibilities of the ‗Disaster Response Force‘ so if
the resources of this force fall short, the Army is immediately called in. The Army‘s
setup is administratively divided into Corps with a Corps Commander leading each
Corps. The District Coordination Officer of the affected district would request the
relevant Army Authorities for aid of Army upon the approval of the Home
Department. The Standard Operating Procedure of requesting the support of the Army
is to route the DCO‘s request through Home Department, and the Ministry of Defense.
The Ministry would inform the General Headquarters (GHQ) and officers at GHQ
would request the relevant Corps Commander to activate the Garrison Officer In-
charge and the Brigadier responsible for leading the on ground operations. DMAs have
equipped the Army with 850 boats for rescue and evacuation. In addition to the on
ground movement, the Army can also provide the necessary air support for
reconnaissance, relief and rescue missions. PDMA pays for the maintenance
expenditures of the 850 boats mentioned earlier. In the same manner, all of Army‘s
expenditures on disaster response are debited to the requisitioning civil authority.
The Army plays a substantial role in the opening of breaching sections. The Irrigation
department is responsible for the maintenance of manageable discharge rates in the
major rivers of Punjab. If the water flow exceeds a set discharge rate, the breaching
section is opened with the help of explosives and excessive water is diverted into a
designated area. The Breaching Section Committee responsible for the opening of the
section, contains a military representative, which is usually a representative of the
respective formation Headquarters not below the rank of Lieutenant Colonel. In case a
disaster disrupts the existing telecommunication channels in a certain area, the Army
would spearhead or assist the installation of wireless stations. In case of high floods,
the respective Corps Commander would setup a Flood Relief Committee, consisting of
but not limited to Commander Corps Engineer, Commander Corps Signals, Chief of
Staff, Colonel General Staff, Colonel Administration etc.

20
7.4 Provincial/State Disaster Management Commission/Authority
Provincial (Punjab) Departments and Authorities
The following departments and authorities shall take measures for the purpose of
disaster management:
I. Communication and works department
II. Home Department
III. Livestock & Dairy development department
IV. Rescue 1122
V. Civil Defense
VI. Public health engineering department & WASAS
VII. Education Department
VIII. Agriculture Department
IX. Local Government and community development Department
X. Social welfare Department
XI. Transport department
XII. Information department
XIII. Food department
7.5 District Disaster Management Authorities (DDMAs)
The District Governments are the first line of Defense. Each District Government has
prepared its contingency plan that must be followed in letter and spirit during the flood
season and in case of a disaster. The District Governments are required to undertake
timely action to save the lives and livelihoods of local population. The Districts
Government‘s responsibility is not limited to saving the human life, properties and
livestock; it also includes the prevention of epidemic outbreaks amongst both human
beings and livestock, to provide timely medical aid to the effected persons and to
eventually rehabilitate the affected people. The District Governments would be ready
round the clock for providing timely warning to the people and providing assistance to
flood victims with all available means and resources. The District Governments would
keep sand bags, baskets, belchas, kasies, and other flood fighting materials ready and
available. On receipt of a flood warning, the District Government will immediately

21
convey the warning to all the concerned officers. Upon the receipt of warning,
immediate action will be taken in each sector / sub sector for evacuation of the
population from the low lying areas to safer places or to Relief Camps established for
this purpose. An Assistant Commissioner will ensure that announcements in vulnerable
areas are made through loudspeakers of the mosques. Further, the Assistant
Commissioner will also utilize the services of the Revenue department. Each Patwari
will inform the Numbardar, Headmaster of the School, Imam Masjid and Councillor
etc. The District Coordination Officer would decide the strategic direction of District
Government‘s response to a disaster. The tactical operations would be headed by the
Additional District Collector (ADC). The ADC would be responsible for coordinating
and supervising the disaster control and relief measures in the district.
7.6 Community Organizations
Community level organizations will play key roles in disaster management.
Community organizations are intermediate organizations between local government
and individuals and they will promote disaster management activities. The community
level organizations shall work closely with local governments such as tehsil, town
authorities, and union councils.
7.7 Individuals
The basic principal of disaster management is that each person shall protect his own
life from disaster and each community shall protect themselves. It is important that
residents have knowledge of disaster and countermeasures against disaster situations.
The individuals and community organizations shall work together with local
governments to protect lives and assets. For the purpose of promoting effective disaster
management, individuals need to participate in disaster management drills and training.
7.8 University and Research Institutes
To reduce the disaster risk, knowledge of science and technology is very important. In
this connection, universities and research institutes should play important roles in

22
disaster risk management, including development of innovative measures for
mitigation and preparedness, collection of disaster-related information, formulation of
the collaboration among industry-government-academia, assessment of hazards and
risks, and so on.
7.9 International Agencies
International agencies, including the United Nations and multi-lateral and bilateral
donors, shall play important roles in disaster risk management in Pakistan. In
collaboration with government and other stakeholders, international agencies shall
work to improve disaster management systems, support capacity development and
strengthen institutions in disaster management.
7.10 Volunteers
Volunteers may play important roles in disaster reduction activities. Volunteer
activities should be expanded in all aspects of disaster prevention, emergency response,
and recovery and rehabilitation. In order to enrich the volunteer activities, the
government shall make an effort to create opportunities to share information among
volunteer groups and relevant entities and provide useful information.
7.11 Other Key Stakeholders
Other key stakeholders in relation to disaster management are:
I. Infrastructure Sector
II. Banks
III. Insurance Sector
IV. Hospitals
V. Telecommunications Companies
VI. Media
VII. Private Sector
These stakeholders shall prepare their own operation plan against disasters. Private
companies shall be a part of the community and provide assistance to the local people

23
in case of disaster situations. Drills and training shall be carried out periodically in the
companies.
8 REVIEW OF IMPLEMENTATION AND OUTCOMES
8.1 Review
The success or failure of any disaster management system depends upon the
availability and operational efficiency of the human resources, technology, information
architecture, funds etc. The importance of such a system in disaster management is
most critical as it can ensure the delivery of information and relief services to the
hazard affected areas and people. The combination of more extreme climate events and
an aging population has the potential to increase older people's vulnerability to risks
and disasters, especially in low- and middle-income countries.
Emergency operation centers were established at national, provincial and district levels
under the overall supervision of NDMA, F/G/S/PDMAs and DDMAs respectively. The
national EOC serves as a hub for receiving early warnings and issuing necessary
instructions to response agencies. The provincial and district EOCs lead coordination
and management of relief operations in affected areas. Civil Defense, armed forces,
fire services, police, ambulance services, Red Crescent and other related agencies will
be coordinated by the EOCs at respective levels. Standard Operating Procedures
(SOPs) were prepared in the NDRP and define roles and responsibilities of federal,
provincial and local agencies for their involvement in implementing of NDMP.
A methodology and system for post-disaster damage, loss and needs assessment was
developed for collaborative action by the stakeholders after the 2005 Earthquake. It
includes a framework for damage and loss assessment, common reporting formats,
data-collection methodologies, and roles and responsibilities of stakeholders. It also
includes SOPs on activation, deployment, reporting and de-activation of assessment
teams. These methods and systems were applied in the evaluation of damage, loss and
needs assessment in the 2010 flood. Under the support of UNDP, three Urban Search
and Rescue (USAR) teams have been formed for the Capital Development Authority,
the City District Government of Karachi and the Pakistan Army to respond to disasters.
i.e.

24
Provincial Disaster Management Authority, Punjab, has devised new mechanism to
carry out loss assessment survey to gauge the overall loss caused due to flood / disaster
for various purposes by the flood affected districts. This assessment enables the
government to know overall losses caused due to the disaster along with that helps to
devise its strategy for rehabilitation according to government‘s priorities within
available resources. PDMA has brought innovation in the losses assessment process
and mechanism. Damage assessment is conducted with Geographical references
through use of Android set to mark geo coordinate through Geographic Information
System (GIS). This minimizes the element of corruption and also helps planner to
understand water behaviors during various kinds of floods (riverine floods, hill
torrents, flash floods etc.) and their intensities.
In order to conduct damages assessment survey PDMA has developed various tools for
different types of damages to agricultural crop, livestock, properties, houses and lives
of disaster affected people. District Administrations notify Damage Assessment
Committees, number of such Committee depends on the level and geo stretch of the
damage caused during disaster. Generally Multi sectoral Committees are constituted
which helps to avoid element of nepotism and favoritism. Normally survey teams
comprise of representative from Revenue, Irrigation, Agriculture, Roads and Building
departments. Provincial Disaster Management Authority helps District Administrations
in capacity building of damage assessment Survey teams in the use of Android sets for
GIS mapping, moreover, guide survey team what aspects of the damage needs to
expose while taking photograph of the damaged property, crops and houses. Apart
from extent of damage exposed, affectee with CNIC in original is also captured for
future references with geo tagging.
District Administrations compile damage assessment data at tehsil and district level
and submit to Provincial Disaster Management Authority. PDMA after receiving
district wise damage report, prepare a consolidated damage report reflecting all kinds
of damages and losses to the Government for further planning and strategy
development for rehabilitation and compensation for the disaster affected people.
Assessment may be made according to following proformas.

25
Deceased Persons-Proforma-1
District: _____________________________
1 2 3 4 5 6 7 8 9 10 11
Sr.
No
Name of
Deceased
Person
CNIC %age Address Age Gender
Date of
Death
Cause
of
Death
Compensation
Paid by District
Administration
or not yet
Graveyard
registration receipt
from TMA or Photo
of Grave showing
the name and
address of
deceased person
Injured Persons-Proforma-2
District: _____________________________
Crops Damage Assessment-Proforma-3
District: _____________________________
1 2 3 4 5 6 7 8 9 10 11
Sr.
No
Name of
Injured
Person
CNIC %age Address Age Gender
Cause
of
Injury
Nature
of Injury
Compensation
Paid by District
Administration
or not yet
Medical Certificate
from Gov. Hospital
of Injury/s
1 2 3 4 5 6 7 8 9 10
S.
#
Tehsil
Qanoogoi
/UC
Name of
Mauzas
affected
Name of
Owner/
Farmer
Affected
CNIC
Crop
Affected
(Acres)
Type of
Crop
Total Land of
Owner/Farmer
(Acres)
% age of
Muaza
affected

26
Cattle Head Perished-Proforma-4
District: _____________________________
The more effective integration of disaster management considerations into sustainable
development policies, planning and programming at all levels, with a special emphasis
on disaster prevention, mitigation, preparedness and vulnerability reduction. The
development and strengthening of institutions, mechanisms and capacities at all levels,
in particular at the community level, that can systematically contribute to building
resilience to hazards The systematic incorporation of risk reduction approaches into the
design and implementation of emergency preparedness, response and recovery
programs in the reconstruction of affected communities.
8.2 Outcome-I
The National Disaster Management Ordinance and National Disaster Management
Plan(NDMP) which initially provided the legal framework for the disaster
management system has been enforced as the primary law of the land for disaster
management. In the line with priority areas identified under the National Framework,
several key initiatives have been implemented under the National Action Plan for 2009
and the National Action Plan 2010. Under the National Plans capacity building
initiatives in the field of disaster risk reduction have been implemented with a special
focus on the following key areas:
i. Strengthening of disaster management institutions at the provincial, regional
and district levels.
ii. National and local level risk assessment
1 2 3 4 5 6 7 8 9
Sr.
No.
Name of
Owner/
Farmer
CNIC
Father
Name
Address
Category
( i.e. goat, cow,
buffalo )
Cause of
Cattle Head
Perished
Compensation
Paid by District
Administration
or not yet
Remarks

27
iii. Disaster Risk Management (DRM) Planning.
iv. Disaster Risk Reduction (DRR) Mainstreaming.
v. Community Based Disaster Risk Management Activities.
vi. Strengthening of Early warning Systems
vii. Strengthening of disaster preparedness capacities through establishment of
USAR teams
viii. Raising public awareness through mock drills, easy to read publications and
media campaign.
.
8.3 Outcome-II
The National Disaster Management Ordinance calls for the establishment of DM
Institutions at the Federal, Provincial and Districts levels. Accordingly, the National
Disaster Management Commission (NDMC) and National Disaster Management
Authority (NDMA) have been established at the Federal level and are fully functional.
The Provincial Disaster Management Commissions (PDMCs), and Provincial Disaster
Management Authorities (PDMAs) have been notified by the Provincial Governments.
Likewise State Disaster Management Commission (SDMC) and State Disaster
Management Authority (SDMA) have been established by the Government of AJ&K.
Similar institutional arrangements have also been introduced in Gilgit-Baltistan, and
Federally Administered Tribal Areas (FATA). The District Disaster Management
Authorities (DDMAs), being the first responders and lynchpin of the whole system,
have been notified in each district/agency. Under the National Action Plans for 2009
and 2010, several capacity building programs for the capacity building of DM
institutions were implemented which included:
i. Provision of technical assistance to the provinces for formulation of provincial
disaster management plans
ii. Provision of technical assistance to 50 districts for formulation of district
disaster management plans
iii. DRM coordinators at Provincial level and District levels in selected districts
were attached to develop DRM capacities.
iv. 150 district officials have been trained in DRM

28
v. Municipal Disaster Management Cells (MDMCs) have been established and
made operationalized in Chitral, Murree, Muzaffarabad and Mansehra. The
project for establishment of National Institute of Disaster Management (NIDM)
has been initiated. The NIDM will be the Centre of excellence in the field of
disaster management. The government has allocated 06 acres of land for the
NIDM while DRM training courses have already been started under the
auspices of NIDM in a rented building. National Disaster Response Plan
(NDRP) and SOPs for National Response have been developed to provide a
national mechanic
8.4 Outcomes-III
The Earthquake Reconstruction and Rehabilitation Authority (ERRA), a dedicated
organization created by the Government of Pakistan to implement the reconstruction
programs in the areas effected by Earthquake 2005, has adopted risk reduction
approaches into the design and implementation of emergency preparedness, response
and recovery programs in the reconstruction of affected communities. The ERRA's
programs have been particularly successful in promoting earthquake safer construction
in housing, education, health and land development sectors. As the post disaster
reconstruction programmers in the earthquake affected areas of KPK and AJ&K are
nearing completion, the local capacities on account of emergency preparedness,
response and recovery to deal with future disasters has increased manifolds. Due to the
implementation of a range of DRR initiatives in these affected areas a culture of
resilience to disasters has already taken its roots which can be reflected in safer
constructions, community awareness about disasters and other DRR initiatives being
taken by the local Governments and community based organizations. However, the
sustenance of such initiatives is dependent upon consistent support by the local
Government through allocation of dedicated resources and capacity building of local
authorities in the field of DRR. In areas affected by Floods 2010, special emphasis is
laid on incorporating the element of DRR into all rehabilitation and reconstruction
projects and it is expected that same will lead to safer reconstruction practices, promote
a culture of safety and enhanced resilience of communities against future disasters.

29
9 EVALUATION FRAMEWORKS
9.1 Introduction & Rationale
IA RTEs are an initiative of the Inter‐Agency Standing Committee IASC). An IA RTE
can be defined as an evaluation carried out at the early implementation stages of a
humanitarian operation which almost simultaneously feeds back findings for
immediate use by the broader humanitarian community, particularly at the field level.
An IA RTE is primarily intended for sudden‐onset disasters, or protracted crises
undergoing a phase of rapid deterioration or escalating violence. These evaluations
differ from other forms of humanitarian evaluation in their speed, coverage, methods,
and outputs. IA RTEs are typified by their shared management and methodological
oversight through global and national level inter‐agency support, management groups
and in‐country Advisory Groups; speed of mobilization, feedback and follow‐up; light,
agile approaches; restricted scope; and participatory methods. Ideally, IA RTEs seek to
unlock inter‐agency coordination problems or operational bottlenecks and provide real
time learning to the field. The IASC IA RTE Support Group39 has agreed to carry out
an IA RTE in Pakistan since the humanitarian emergency meets the selection criteria
identified by the IASC as automatic triggers. According to the ‗automatic trigger
criteria‘ endorsed by IASC Working Group in July 2010, an IA RTE is triggered if
more than 1 million individuals are affected and if the Flash Appeal asks for more than
50$ million US Dollars. In the case of Pakistan, the August 2010 Pakistan Initial
Floods Emergency Response Plan identified the affected population as 14 million and
the total funding requested was at 459$ million US Dollars.
9.2 Objectives and Use
The IA RTE team will be deployed during the current response phase, ideally in
January/ February. The IA RTE will aim to provide snapshots of current situations,
including real‐time feedback and learning to the HCT: (local IASC, Cluster, NGO‘s,
Government, and NGO‘s involved in the humanitarian response – at Federal, District
and Provincial level). The main objective of the IA RTE is to assess the current

30
response to date and provide real time feedback and input into ongoing decision
making in the field. This will enable the adoption of corrective actions as needed and
demonstrate a visible capacity for the humanitarian system as a whole to learn lessons.
The evaluation will in this way support the ongoing operational planning of the
Humanitarian Country Team (HCT), which will be the most immediate user of the
feedback and recommendations.
9.3 Methodology
The applied methods for IA RTE shall be light and participatory. The evaluation will
be conducted by teams comprising independent consultants, with the possibility that
members of the IASC IA RTE Support Group will participate. The evaluation will be
carried out through analyses of various sources of information including desk reviews;
field visits; interviews with key stakeholders (affected population, UN, / I/NGOs,
donors, governments) and through cross validation of data. While maintaining
independence, the evaluation will seek the views of all parties, especially the affected
population. Evaluation teams will serve as ‗facilitators‘, encouraging and assisting
field personnel, both individually and collectively, to look critically at their operations
and find creative solutions to problems. The IA RTE will be a one‐phase approach,
which would carried out within the two first month and consist of remote monitoring
and the IA RTE mission to Pakistan In order to best prepare the consultants /
consultant team for the upcoming evaluation, members of the IA RTE Support Group
remotely monitored the response and gathered relevant information since the onset of
the emergency. Data has been gathered along the main questions set out in the IA RTE
Framework (see below) and consist of: e.g. Situation Reports, Needs Assessment
Reports, Key Messages, timelines of key decisions, timelines of cluster activation, and
timelines of the funding status, exit surveys, and main contact lists of key humanitarian
stakeholders. The data will be handed over confidentially to the consultant team to
carry out a desk review well in advance of the field mission.
9.4 Focus & ‘IA RTE Framework’
The evaluation will first identify the extent to which the overall response achieved or
did not achieve key objectives including addressing in a timely and meaningful way

31
the needs of all segments of the affected population. Deductive analysis will then guide
the evaluators to the other elements and dimension (as displayed in the IA RTE
Framework below) on which the evaluation should specifically focus. In general, the
IA RTE will focus in large part on the effectiveness and efficiency of the coordination
and management systems, addressing critical issues related to both the provision of
relief and to the transition to recovery.
IA RTE Framework, including Key Issues & Key Questions the IA RTE Framework is
a model that intends to display crucial characteristics. It was developed to be applied
for natural disasters and rapid external evaluation. Moreover, the Framework serves a
communication tool between all stakeholders and can therefore be slightly adapted to
local issues and relevant opportunities for learning. The IA RTE Framework intends to
provide the evaluators and the HCT with guidance on the most critical questions and
issues to be evaluated. Ideally, the IA RTE Framework should be shared with all
relevant stakeholders. It is expected that evaluators use the Framework as main
reference tool for their assessment.
To reiterate, evaluators should try to first focus on the outputs and outcomes of the
humanitarian response at the level of the affected population, especially by answering
one of the main questions of the Framework – ―How adequate was the response as a
whole, and what operational results as well as positive and negative outcomes for the
affected population did it produce?‖.
Figure 9.1 the Inter Agency‐Real Time Evaluation (IA RTE) Framework’ as Diagram

32
10 Conclusions
David Easton defines public policy as the authoritative allocation of values for the
whole society. On the other hand, Lasswell and Kaplan define policy as a projected
program of goals, values and practices.
Globally, the risks, vulnerabilities and impacts induced by natural hazards and disasters
are on rise. Disaster management in Pakistan was focused on the ‗Emergency
of order in areas affected by calamities and relief against such calamities. The NDMA
realized the importance of formulating the National Disaster Management Plan. It is a
long-term, holistic policy document for Disaster Risk Management (DRM) at the
national level.
Disasters happen in society and disaster management is the key in disaster
management impacts at all levels. Disaster institutions for risk reduction at the local
level serve as the best approach for reducing community vulnerabilities to natural
disasters.
Like many other countries, Pakistan has enacted laws and formulated policies on DM,
conforming to international standards and practices. Strategies have been developed to
integrate DRR in development policies and practices. However, due to bad
governance, lack of political commitment, rampant corruption, economic constraints
and overambitious plans, these policies and plans have not been implemented
effectively. It has also transpired that DRM policies have been implemented in an ad
hoc and uncoordinated manner. It is therefore concluded that despite proactive DM
laws and policies, implementation is still reactively focused in Pakistan. Current DM
policies and plans in Pakistan have noticeably failed to reduce human suffering.

33
11 GENERAL RECOMMENDATIONS
 Amendments to NDMA 2010
The influence of managing disaster is evident in the provisions of the Act; however, it
needs changes in some provisions, as follows.
i. Addition of new sub-sections in Section 2 defining ‗Natural Hazard‘ and
‗Mitigation‘ should be inserted, as suggested below.
ii. In Section 2(b), after ―property‖ in the last line, the words ―or damage to, or
degradation of, the envir-onment‖ should be inserted.
iii. In Section 2(c), the heading should be changed from ―disaster management‖
to ‗disaster risk manage-ment‘ and before ―Preparedness‖, the words ‗Pre-
vention‘ and ‗Reduction of risk‘ should be inserted.
 In Section 42, after ―No court or tribunal‖, the words ‗except the Supreme Court or
a High Court‘ should be inserted.
 Need awareness activities at the union council level.
 Need to work on pre-disaster activities involving community at local level for risk
reduction.
 Need to work on pre-disaster activities such as awareness programs at different
level for capacity development.
 NDMA/Line Departments, with clusters, must roll out a joint recovery needs
assessment. On this basis the NDMA/PDMA, with line departments and UN
agencies (led by UNDP) must develop a joint early recovery and rehabilitation
plans according to different geographical area needs and dynamics. To do so:
 The UN must reduce transaction costs UN agencies and IPs produce results
commensurate to the level of funding received (i.e. through unit cost analysis).
HCT members will ensure that response is monitored and results are shared in
a transparent fashion.

34
REFERENCES
Books
Chand, Prof. Basir. Public Policy- Conceptual Framework . Islamabad : Statesman Institute ,
2010.
Habib, Hassan. Public Policy Formulation and Review. Lahore : WajidAlis , 1976.
Thomas A. Brikland, An Introduction to policy process: Theories, Concepts and Model
of Public Policy,M.E. Sharpe, 2001
Journal Articles
Zubair Ahmed, Disaster risks and disaster management policies and practices in
Pakistan: A critical analysis of Disaster Management Act 2010 of Pakistan,
International Journal of Disaster Risk Reduction, 2013
Syed A. N., Daniel P. A., Jayant K.R., Shabana A.N., Abid A., The need for local
involvement: Decentralization of disaster management institutions in Baluchistan, Pakistan,
International Journal of Disaster Risk Reduction, 2013
S.N. Sadasivan, Dynamics of Public Policy. Indian Journal of Public Administration, 1985, No.
4, P. 1204.
Magazine Article
Irshad A. S., Disaster Management in Pakistan, World Times 2011
Newspaper articles
M. Zaidi, Poor Disaster Management, DAWN NEWS 2012
Raza Rumi, Negligence, the biggest disaster in Pakistan, Express Tribune 2014
GOVERNMENTS REPORTS
Provincial Disaster Management Authority (Punjab), Punjab Disaster Response Plan
2014

35
National Disaster Management Authority (NDMA), Government of Pakistan, National
Disaster Risk Management Framework Pakistan 2007
Disaster Management Plan (NDMA)
Annual Report 2013
INTERVIEW
Muhammad Sajjad Director Operations PDMA, Punjab
40-A, Lawrence Road, LahorePhone: 042-99203303, 99204409, 0300-4441170
Fax: (92-42) 99204405
Email: pdma.gop@gmail.com
Emergency Helpline (UAN): 1129

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