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Disaster Management at the Commune Level – A Manual

Vietnam Red Cross Society 1 Funded by DIPECHO and UNDP

Vietnam Red Cross Society

An introduction to disaster management for people living at the commune level

Hanoi, July 2002



An introduction to disaster management for people living at the commune level Contents Acknowledgments Introduction Resource material Glossary of terms Lesson 1 Hazards and disasters Lesson 2 Hazard, vulnerability and capacity assessment Lesson 3 Risk reduction measures Lesson 4 Community based disaster management Lesson 5 Disaster response

A. Search and rescue B. Distribution of relief Items C. Information and reporting

Lesson 6 Disaster preparedness planning



Acknowledgements The “An introduction to Disaster Management for people living at the Commune Level” and the attached “A Guidebook for Trainers” en were developed principally during a five-day workshop held in Da Nang, in November 2001. This workshop brought together participants from different levels within the VNRC and several external resource persons. The editors would like to express our sincere gratitude to the individuals who have contributed to the development of this material. The VNRC Editorial Board Mr.Nguyen Hai Duong, Vice President Mr.Nguyen Thiep, Under Secretary General Mr. Nguyen Duc Thuan, Director of Youth and Trainig Department Madame Tran Thu Thuy, Director of Health Department Mr.Dang Minh Chau, Vice Director of International Relaton and Development Department The Working Group Dr. Vo Dinh Vinh (Director, Social Welfare Dept.,); Ms. Nguyen Thi Thu Ha (Disaster Preparedness and Relief Programme Officer, Social Welfare Dept., Disaster Preparedness and Relief Section, VNRC HQ) Ms. Vu Minh Hai (Disaster Preparedness and Relief Programme Officer, Federation Delegation, Vietnam) and Dr. Ian Wilderspin (Disaster Preparedness Delegate, Federation Delegation, Vietnam). DP officer from the VNRC Headquarters Dr. Ha Thai Binh (Disaster Preparedness and Relief Programme Officer) Social Welfare Dept., Disaster Preparedness and Relief Section, VNRC HQ. Federation Disaster Management department Mr. Dang Van Tao (Disaster Preparedness Programme Officer) Ms. Nguyen Thu Giang (Assistant Disaster Preparedness and Relief Programme Officers) Mr. Duong Van Hung (Assistant Disaster Preparedness and Relief Programme Officers). Red Cross National Trainers on DP Mr. Cao Quang Canh, Mr. To Ngoc Chanh, Mr. Doan Minh Cuong, Mr. Phan Dai, Mr. Tran Van Diem, Mr. Cao Xuan Thang. Red Cross Provincial Trainers on DP Mr. Nguyen Manh Bong, Mr. Pham Quang Hieu, Ms. Ho Thi Kim Luyen, Ms. Huynh Thi Mai, Ms. Ton Thi Thanh Nhan, Mr. Huynh Vinh Quang, and Mr. Le Thanh Tri. DP officer of Quang Tri Red Cross chapter Mr. Cap Kim Liem. UNDP project staff Mr. Ngo Thanh Hung and Mr. Nguyen Vu. External resource persons Ms. Annelies Heijmans and Mrs. Lorna Victoria (independent consultants, community based disaster management). Ms. Anne Scott (independent training consultant) and Ms. Nguyen Huu Ngoc (interpreter). Ms. Nguyen Thu Le Hang and Ms. Nguyen Thanh Giang (independent training consultants).



Introduction The Vietnam Red Cross (VNRC) has provided training on disaster management through a 16-day training course for Red Cross Provincial Trainers. These Trainers are responsible for training mid- and senior level Red Cross staff, school teachers, members of local authorities, staff of other mass organisations, volunteers, etc. throughout the country. This Manual aims to address the urgent requirement from people living in disaster prone communities for basic knowledge on disaster management. The Manual is aimed at leaders working at the commune level within the People’s Committee, in mass organizations, for religious bodies, as commune heads, village leaders, for staff of NGOs and for heads of households. The Disaster Management Section of the Social Welfare Department of the VNRC Headquarters aims to assist disaster management work with communities that are prone to disasters: communities affected by typhoons or drought, communities situated along rivers or coastal areas that are flooded seasonally, etc. Aside from on-going interventions, the VNRC needs to be constantly ready to respond to unexpected disasters alongside the government authorities/other agencies to work with communities affected by disasters. One thing that the VNRC realised in the more than 50 years that it has served the Vietnamese people is that it cannot do everything by itself – it needs the help of the communities themselves. Hence this Manual, that aims to provide information on the conceptual aspects of disaster management but more importantly, practical guidance to assist people living in communities to prepare for disasters, reduce their risk to them, mitigate against their effects, etc.

This Manual is for you. Each lesson comprises a Content page and starts with a Purpose (a brief statement of the aims of the lesson) and is followed by the Learning Objectives and the lesson itself.

Resource materials are provided for you to refer to other sources of information. A Glossary of terms is included at the start of the Manual. This provides you with an easy reference to word meanings and also presents the standard word definitions adopted by the VNRC. You may need to refer to the Glossary to help explain more difficult concepts. Each lesson concludes with a Worksheet that you should fill in during the training session. There are spaces provided for you to make your own notes to use as a source of reference in the future. VNRC Trainers will require three days to facilitate this course. We at the Red Cross hope that through this Manual you will become more knowledgeable about disaster management and help to build a safer community in which you live.



Resource materials Other material that you will find useful is available from the Red Cross or other sources: · VNRC Disaster Preparedness Manual and poster set (edited and issued in 2000) · VNRC primary school children book: “An introduction to Disaster Preparedness for Primary School Children” and easel (edited and issued in

2000) · VNRC Community Based Disaster Management materials (translated in 2001) · WHO booklet “A Handbook for Managers and Policymakers“ (published in 2001) · VNRC booklets “Collecting Basic Information” and “Humanitarian Needs Assessment” (edited and issued in 2001) · ADPC manual “Community Based Disaster Management”.



Glossary of Terms

Assessment A process of systematically collecting information, which is analysed to make a determination of a specific condition or situation. Capacity The capacities of people and the communities they live in are the basic building blocks of disaster preparedness and development. Capacities are the resources and skills people possess, can develop, mobilise or have access to, which allow them to have more control over shaping their own futures. Capacities can be physical assets like the ownership of land or cash, they can be skills, like literacy, they can be social, like community organisations or national welfare systems, they can be personal, like the will to survive or belief in an ideology or religion. Community A group of people who live in the same geographic area, share resources, have common interests with similar cultural beliefs. The community forms part of the overall national administrative structure. Disaster A serious disruption of the functioning of a society causing widespread human, material or environmental losses which exceed the ability of the affected society to cope using only its own resources. Disasters may be classified according to speed of onset (sudden or slow) or according to their cause (natural or man induced, or perhaps a combination of both). Disasters combine the elements of hazards and risks, and vulnerability. Slow-onset disasters Situations in which the ability of people to sustain their livelihood slowly declines to a point where survival is ultimately jeopardised. Such situations are typically brought on or precipitated by ecological, social, economic or political conditions. Sudden-onset disasters Sudden calamities caused by natural phenomena such as earthquakes, floods, tropical storms, volcanic eruptions. They strike with little or no warning and have an immediate adverse effect on human populations, activities, and economic systems.



Technological disasters Situations in which large numbers of people, property, infrastructure, or economic activity are directly and adversely affected by major industrial accidents, severe pollution incidents, nuclear accidents, air crashes (in populated areas), major fires, or explosions. Disaster mitigation Mitigation refers to measures which can be taken to minimise the destructive and disruptive effects of hazards and thus lessen the magnitude of a disaster. Mitigation measures can be of different kinds, ranging from physical measures such as flood defences or safe building design, to legislation, training and public awareness. Mitigation is an activity which can take place at any time: before a disaster occurs, during an emergency, or after disaster, during recovery or reconstruction. Disaster preparedness Measures that ensure the readiness and ability of a society to: (a) Forecast and take precautionary measures in advance of an imminent threat (in cases where advance warnings are possible), and (b) Respond to and cope with the effects of a disaster by organising and delivering timely and effective rescue, relief and other appropriate post-disaster assistance. Preparedness involves the development and regular testing of warning systems (linked to forecasting systems) and plans for evacuation or other measures to be taken during a disaster alert period to minimise potential loss of life and physical damage; the education and training of officials and the population at risk; the establishment of policies, standards, organisational arrangements and operational plans to be applied following a disaster impact; the securing of resources (possibly including the stockpiling of supplies and the earmarking of funds); and the training of intervention teams. It must be supported by enabling legislation. Emergency An extraordinary situation where there are serious and immediate threats to human life as a result of disaster, imminent threat of a disaster, cumulative process of neglect, civil conflict, environmental degradation and socio-economic conditions. An emergency can encompass a situation in which there is a clear and marked deterioration in the coping abilities of a group or community. Evacuation The orderly removal or endanger persons away from a threatened area. Plans and procedures for possible evacuation should be developed beforehand, taking into account individual needs, and be understood by community members. Hazard A rare or extreme natural or human made event that threatens to adversely affect human life, property or activity to the extent of causing disaster. A hazard is a natural or human-made phenomenon which may cause physical damage, economic losses, or threaten human life and well-being if it occurs in an area of human settlement, agricultural, or industrial activity.



Hazards Hazards are extreme events, which disrupt the lives of people, particularly vulnerable people. The hazard may be natural such as a flood, earthquake or hurricane. It may be based in man-made hazard such as armed conflict, intimidation, hostility, etc., or it may be based in deprivation, such as environmental and technological deprivation, political or economic deprivation, illiteracy, etc. It may be a combination, with man-made events exacerbating a natural phenomenon e.g. deforestation increasing the risk of flooding. The disruption cause to people’s lives can be in the form of personal injury, malnutrition, the loss of property or livelihood, or in extreme cases, the loss of life. Hazard assessment The process of estimating, for defined areas, the probabilities of the occurrence of potentially-damaging phenomena of given magnitudes within a specified period of time. Hazard assessment involves analysis of formal and informal historical records, and skilled interpretation of existing topographical, geological, geomorphologic, hydrological and land-use maps, as well as analysis of social and economic and political conditions. Hazard mapping The process of establishing geographically where and to what extent particular phenomena are likely to pose a threat to people, property, infrastructure, and economic activities. Hazard mapping represents the results of hazard assessment on a map, showing the frequency/probability of occurrences of various magnitudes or duration. Post disaster assessment The process of determining the impact of a disaster or events on a society, the needs for immediate, emergency measures to save and sustain the lives of survivors, and the possibilities for expediting recovery and development. Assessment is an interdisciplinary process undertaken in phases and involving on-the-spot surveys and the collation, evaluation and interpretation of information from various sources concerning both direct and indirect losses, short- and long-term effects. It involves determining not only what has happened and what assistance might be needed, but also defining objectives and how relevant assistance can actually be provided to the victims. It requires attention to both short-term needs and long-term implications. Preparedness Measures to ensure the readiness and ability of a society to forecast and take precautionary measures in advance of an imminent threat, and to respond to and cope with the effects of a disaster by organising and facilitating timely and effective rescue, relief and appropriate post-disaster assistance.



Rehabilitation Rehabilitation refers to the actions taken in the aftermath of a disaster to enable basic services to resume functioning, to assist affected people self-help efforts to repair physical damage and community facilities, to revive economic activities and provide support for the psychological and social well-being of the survivors. Whilst it initially focuses on enabling the affected population to resume more-or-less normal (pre-disaster) patterns of life, it should always strive to reduce vulnerability and create an improvement in living standards. It may be considered as a transitional phase between immediate relief and the pursuit of on-going development. Reconstruction Reconstruction is a part of rehabilitation. It is defined as the replacement of buildings, machinery, equipment and materials destroyed or damaged in disaster. Reconstruction must be fully integrated into long-term development plans, taking into account future disaster risks and possibilities to reduce such risks by incorporating appropriate measures. Damaged structures and services may not necessarily be restored in their previous form or location. It may include the replacement of any temporary arrangements established as a part of emergency response or rehabilitation. Response Activities that immediately follow the occurrence of a disaster. Activities that will save life and property. Response activities include emergency assistance to disaster casualties, evacuation of community members, shelter and medical care and actions to reduce the probability or extend of secondary damage, such as anti-looting security patrols or sandbagging against impending floodwaters. Risk Risk is the expected losses (lives lost, persons injured, damage to property, and disruption of economic activity or livelihood) caused by a particular phenomenon. Risk is a function of the probability of particular occurrences and the losses each would cause. This term is also used to mean the probability of a disaster occurring and resulting in a particular level of loss. A societal element is said to be ‘at-risk’ or ‘vulnerable’, when it is exposed to known hazards and is likely to be adversely affected by the impact of those hazards if and when they occur. The communities, structures, services, or activities concerned are described as “elements at risk”. Vulnerability The extent to which an individual, community, structure, service, or geographic area is likely to be damaged or disrupted by the impact of a particular disaster hazard.



Lesson 1. Hazards and Disasters

Contents Purpose Learning objectives 1. Distinction between hazards and disasters 1.1 Hazard 1.2 Disaster 2. Main hazards in Vietnam 2.1 Overall Introduction 2.1.1 Main hazard areas in Vietnam 2.1.2 Frequency of Hazards 2.2 Hazards 2.2.1 Tropical low depressions and typhoons 2.2.2 Floods 2.2.3 Drought 2.2.4 Landslides 2.3 Other hazards 2.3.1 Thunderstorms and lightning 2.3.2 Whirlwinds 2.3.3 Hailstorms



Lesson 1: Hazards and disasters

Purpose This lesson introduces the main hazard types that commonly affect our country.

Learning objectives After reading this chapter, you will be able to: · Distinguish between hazards and disasters · Identify the common hazards that affect your community and their adverse effects

1. Distinction between hazards and disasters

1.1 Hazard A hazard is an event that has the potential for causing injuries to life damaging property and the environment. Examples · Natural hazards: storms, earthquakes, volcanic eruptions · Human-made hazards: wars, terrorist attacks, leakage of toxic or radioactive substances, environmental pollution · In addition, there are also natural hazards that maybe exacerbated by human activity, such as floods, landslides, droughts and fires 1.2 Disaster A disaster occurs when a hazard affects a vulnerable community and causes casualties, damage to property and the environment. 2. Main hazards in Vietnam 2.1 Overall Introduction Vietnam is located in the monsoon tropical zone of the South East Asia region. At the same time, it is situated in the most typhoon- prone area in the world. Given the topography of narrow and low plains to steep and high mountains, floods happen frequently in Vietnam. Annually, heavy rains, typhoons, floods, droughts and epidemics cause a lot of casualties and severe damage to property. Sudden onset hazards are geological or climatic hazards and include: flashfloods, sea surges, landslides, earthquakes Slow onset hazards include: droughts, desertification



2.1.1 Main hazards and their location in Vietnam

Hazard zone Main hazards

Northern mountain Floods, landslides

Red river delta Seasonal floods, storms

Central provinces Storms, flashfloods

Central highlands Flashfloods, landslides

Mekong delta Floods, storms

2.1.2 Frequency of Hazards

High Medium Low

Flood Hailstorm Earthquake

Storm Drought Technological accidents

Inundation Landslide Frost

Erosion/ silting Fire

Sea water intrusion Deforestation



2.2 Hazards 2.2.1 Tropical low depressions and typhoons Causes A mixture of heat and moisture forms a low-pressure center over the sea where the water temperature exceeds 26° C. Winds spin and circulate around an air column causing low pressure that increases towards the center and moves from East to West. An area of low pressure becomes a storm when winds reach gale force Grade 8 or 62 km per hour. Characteristics When storms strike inland, strong winds, especially heavy rains and sea surges cause damage with secondary flooding and landslides. Factors contributing to the increased damage caused by storms · Communities located in low-lying coastal areas (direct impact) · Communities in adjacent areas (heavy rains, flooding) · Poor communications or warning systems · Community awareness of hazards with poorly developed local economy and infrastructure · Communities are passive in typhoon preparedness measures Typical adverse effects Casualties/public health: deaths, injuries and epidemics Physical damage, etc.: buildings destroyed, property damaged and lost, traffic disrupted, communications interrupted, environment polluted, crops destroyed, lack of water and food supplies



2.2.2 Floods Causes · Long lasting heavy rains · Construction works, such as roads, railways and irrigation systems that obstruct the natural flow of water. Silting of rivers and springs, that

reduce the flow of water. Dam, dyke and reservoir failures · Sea surges raise water level causing flooding and salt water intrusion · Destruction of rain forests Types of floods and their characteristics · Flash floods: occur within a short time and comprises fast moving water carrying debris that can wash away everything in their path · River floods: slow build-up, usually seasonally in river systems, e.g. the Mekong and Red River Deltas · Coastal floods: associated with sudden sea surges and high tides, breakage or overtopping of sea dykes Factors contributing to the increase of damage caused by floods · Locations of the communities on the floodplains · Lack of awareness of flood hazard · Houses and foundations which are not strong enough to resist damage by floods · Unprotected food stocks, standing crops and livestock · Lack of safe habour for fishing boats, etc. Typical adverse effects Casualties/public health: deaths resulting from drowning, epidemics Physical damage: structures are damaged by being washed away. Household property is damaged and lost. Crop failure and subsequent food shortage due to inundation. Livestock, farm tools and seeds are lost. Environmental pollution, scarcity of fresh water supplies.



2.2.3 Drought Causes · Shortage of rain for a long time · Changes in global climate (e.g. increase of atmospheric carbon dioxide and greenhouse gases) · Over exploitation of ground water resources Characteristics · Reduction in water and moisture availability in relation to the norm Factors contributing to vulnerability · Locations in arid areas, where dry conditions are worsened by droughts · Farming on infertile lands, lack of irrigation systems · Areas dependent on other weather systems for water · Areas of low moisture retention · Lack of investment for agricultural production Typical adverse effects · Reduction in farmers’ income, increase in the price of agricultural products · Deterioration of nutritional status, outbreaks of epidemics · Reduction in drinking water sources, loss of livestock and eco-system imbalance 2.2.4 Landslides Causes · Resulting from natural seismic vibrations of the earth that loosen the soil and the rocks on hills and mountains · Landslides occur when there are heavy rains or floods that cause soils to become saturated and slide down · Landslides may also be caused by an additional weight on a slope (like building works) or by heavy rains after deforestation or fire · In addition, landslides occur when the flow of the water source is changed by people’s actions Characteristics Landslides vary in their type of movement, e.g. fall and flows. They may be secondary effects of heavy storms and earthquakes. Landslides are more common than any other geological event. Factors contributing to the increase of damage caused by landslides · Settlements built on steep slopes, at the base of steep slopes, at the mouth of streams in mountain valleys



· Lack of understanding of landslide hazard · Unplanned exploitation of resources, deforestation of watersheds (i.e. cutting down trees in the upland areas) Typical adverse effects · Landslides may result in death or injury as people can be buried under debris or collapsed buildings · Mud and rocks fall off with such a force and speed that they destroy or seriously damage houses, people’s belongings and block roads · Farming land that becomes covered by debris cannot be used for cultivation · Animals can also be killed or injured 2.3 Other hazards · Thunderstorms and lightning a. Thunderstorms occur when there are huge dark clouds that reach high into the sky and are accompanied by heavy rains, thunder, flashes of lightning, gusts of strong winds and sometimes hail. b. Lightning occurs mainly in such clouds and usually accompanies thunder. Lightning is a giant spark of electricity, which hits the earth surface from the sky. It strikes high points such as tall trees, electric poles and mountaintops. Lightning has a high voltage and everything, including air becomes an electrical conductor. Lightning is also attracted to metal things and even water, which are good conductors of electricity. Effects - Thunderstorms are dangerous because they produce lightning which can cause death or injury to people - Lightning can strike and destroy houses, trees and the electric power system in your community - Lightning may also start fires · Whirlwinds Whirlwinds are funnel shaped columns of swiftly circulating air, which move quickly over land or sea. The column is visible because of the material (dust, sand, straw, etc.) that they lift up from the ground Effects - Whirlwinds often occur suddenly and last for a short period. They have a devastating effect on a small area. - Whirlwinds can pick up houses, possessions and people. Whirlwinds occur unexpectedly and without warning. They can cause injury and

death to people and livestock as well as destroying houses, crops and trees. · Hailstorms Hail is solid balls or lumps of ice, in different shapes and sizes, which fall to the ground. Normally, hail ranges from the size of a pea to that of a corn seed, but sometimes they can be as big as a chicken egg.



Effects - Hailstorms can destroy crops and damage trees. - Large hail can cause injuries or even death of people and livestock if they do not take refuge. Moreover, many other hazards occur in our country such as: chemical and industrial accidents, deforestation, environmental pollution, desertification, forest fires, epidemics, earthquakes and traffic accidents. For further information about such hazards, please see Chapter I of the VNRC Disaster Preparedness Manual.

We need to identify the principle hazards in our community and develop disaster preparedness plans that aim to reduce adverse affects of these hazards and to prevent them from turning into disasters.



Worksheet

Exercise 1: Hazards and disasters Please answer the following questions based upon what you have learnt in the lesson as well as your own knowledge. 1. What is a hazard? Give some examples: 2. What hazards do you face in your community? 3. When does a hazard become a disaster? 4. What can people in your community do to prepare for disasters and reduce their effect?



Lesson 2. Hazard, vulnerability and capacity assessment

Contents Purpose Learning objectives 1. Some disaster related concepts 1.1 Risk 1.2 Disaster risk 1.3 Vulnerability 1.2 Capacity 1.3 Relationship between hazard, vulnerability and capacity 2. Disaster risk assessment 2.1 Concepts 2.2 Aims of disaster risk assessment 2.3 Disaster assessment procedures 2.3.1 Hazard assessment 2.3.2 Vulnerability assessment 2.3.3 Capacity assessment 2.3.4 Community risk assessment 2.4 The role of our community in disaster risk assessment 2.5 Assessment tools



Lesson 2: Hazard, vulnerability and capacity assessment

Purpose This lesson introduces the interrelated concepts of hazard, vulnerability and capacity and guidelines for risk assessment.

Learning objectives After studying this lesson you will be able to: · Explain the concepts of vulnerability and capacity · Outline how a disaster risk assessment (a hazard, vulnerability and capacity assessment and different perceptions on risk) may be undertaken 1. Some disaster related concepts 1.1 Risk Risk is the possibility of meeting danger or suffering damage or loss. 1.2 Disaster risk Disaster risk is the possibility that a hazard may adversely affect a vulnerable community that is incapable of responding (is the expected losses that may be caused to people, property and habitats, by a particular hazard). 1.3 Vulnerability Vulnerability is a set of prevailing or consequential conditions, which adversely affect an individual, a household, or a community’s ability to prevent, mitigate, prepare for or respond to a threat, hazard or a process.



1.4 Capacity Capacities are resources, skills, knowledge, means and strengths that exist in households and communities that enable them to cope with, withstand, prepare for, mitigate or quickly recover from a disaster (in contrast to vulnerabilities).



1.5 Relationship between hazard, vulnerability and capacity The relationship between hazard, vulnerability and capacity can be simply displayed as follow:

Disaster risk = Hazard x Vulnerability Capacity

Disaster risk increases when a hazard affects a vulnerable community with limited capacity. Therefore, to reduce disaster risk, a community needs to undertake various activities aimed at reducing the impact of hazards reducing vulnerability and increasing capacity. 2. Disaster Hazard, Vulnerability and Capacity Assessment 2.1 Concepts 2.1.1 Assessment Assessment is a process of gathering, explaining and analyzing information from various sources (a process of considering the occurrence, existence, development and ending of an event or a phenomenon). 2.1.2 Community risk assessment Community risk assessment involves a participatory analysis of past patterns of hazards and present threats on community level (hazard assessment), combined with an understanding of the underlying causes of why hazards become disasters (vulnerability assessment) and the available resources an affected community uses to reduce risk (capacity assessment), and of how different people measure risk 2.1.2 Aims of disaster risk assessment If as a community we are well aware of, and can assess risks of a particular hazard that face our community, we will be able to make appropriate decisions to reduce risks. The aims of disaster risk assessment include: · The community themselves can identify, estimate and rank their own risks · They can identify adequate and successful community-based disaster risk reduction policies and measures · Continuous community risk assessment provides us with indicators to measure changes in people’s vulnerability · The community contributes to their own awareness raising about potential risks that they did not know before · Providing disaster specific information can be integrated in baseline studies for development programs · Results can be used during emergency periods to draft appeals, and to identify emergency relief needs These activities need to be carried out with the support of trained facilitators who work with our community. They will help us to assess hazards, our real conditions such as our economic and living conditions, knowledge, threats and factors that cause harm to our life, psychological obstacles, and our abilities when organized/mobilized.



2.3 Disaster assessment procedures 2.3.1 Hazard assessment Is a process undertaken by community members to analyze the nature and behavior of the hazard and to identify which hazards (or threats) will probably affect their community.

The hazard assessment is aimed at specifying the possibility of occurrence, frequency, scope, time, of different hazards that may affect “elements at risk” and cause certain damage.

“Elements at risk” include people (their lives and health), organizations of households and communities, means and services (houses, roads, bridges, schools, hospitals, etc.), livelihoods and economic activities (work, equipment, goods, livestock, etc.).

While doing the assessment, we need to identify the factors that relate to a hazard such as: force, warning signs and signals, forewarning, speed of onset, frequency, when, and duration.

a. Force: wind, water (rain, flood, storm, sea surge) land (landslide, silting, mudflow) fire (forest fire, house fire) industrial (pollution, explosion)

other human related (drought) b. Warning signs and signals: scientific and indigenous indicators that suggest a hazard is likely to happen c. Forewarning: the time between warning and impact of the hazard (i.e. the time gap between knowing that a hazard is likely to occur and when it

actually does) d. Speed of onset: the speed of arrival and impact. We can distinguish between hazards that occur almost without warning (e.g. earthquakes,

whirlwinds, lightning) and hazards that can be predicted three or four days in advance (e.g. a typhoon) to slow onset hazards like droughts that may take months to develop

e. Frequency: does the hazard occur seasonally, yearly, once in every ten years? f. When: does the hazard occur at a particular time of year, certain months? g. Duration: how long is the hazard felt? Minutes (e.g. earthquakes), days (e.g. depressions, storms), months (e.g. floods in the Mekong delta)?



We can use a hazard matrix to systemise the information about a certain hazard:

Hazard type Force Warning signs Forewarning Speed of onset Frequency When Duration

Flood

Storm

Etc.

2.3.2 Vulnerability assessment Vulnerability assessment is a participatory process to identify what elements are at risk per hazard type, and to analyze the root causes of why these elements are at risk To understand the root causes of vulnerability, we use the following map for analysis:



‘Pressures’ on the community that result in disasters:progression of vulnerability

Intensifying people’s vulnerability

Physical exposure to hazard

Disaster Progression of

vulnerability

Hazard

Flood Typhoon Drought Landslides Pollution Etc.

Unsafe Condition

Dynamic Pressure

Root Cause

Dangerous location Unsafe houses Dangerous livelihood Unstable livelihood No savings Lack of skills No social safety net Lack of basic services Lack of unity Unaware of hazards Etc.

Limited access to resource, basic services, political decision-making Population growth Export promotion Land conversion Deforestation Migration Unfavorable laws Lack of GO funds Etc.

Policies resulting in unequal distribution of resources, services, wealth and power Ideologies: gender roles, definitions of rights, political- economic ideologies Etc.

Communities at riskElements at risk



In the assessment, we need to consider that the vulnerability of a community results from economic and political processes and its root causes can be far away from the disaster events. The unsafe conditions show three different aspects of the vulnerability. The following list may help you in gathering appropriate information for assessment of vulnerability. It is necessary to take into account the difference in vulnerabilities between men and women, the rich and the poor, between the elderly and the younger people. Physical vulnerability: · Population, houses, farmland, infrastructure and basic services in prone disaster area. · Inefficiency of production means (land, agricultural material, capital, live stock) · Frequent lack of food (food security not ensured) · Lack of basic services: education, health care, water, houses, traffic roads, electricity, communication Social/organisational vulnerability: · Low commitment to each other within family members · Inequality of the participation in community activities · Discrimination of races, social statues, religions and ideology · Few opportunities for people to take part in various activities due to their habits or customs · Lack or inefficiency of mass organisations at the commune level Attitudinal/motivational vulnerability: · People that are passive, defeated by the events, pessimistic and dependent · Lack of solidarity, co-operation, unification · Negative ideology/ belief 2.3.3 Capacity assessment Capacity assessment is an analysis to determine what people do in times of crisis to reduce the damaging effects of the hazard, and to secure sustainability of their livelihoods · Understanding people’s previous experiences with hazards that enabled them to develop coping strategies · Analyzing which resources are available and used by community to reduce risk (who has access and who controls resources) The purpose of capacity assessment is to identify resources, means and strengths that exist in households and within our communities. These capacities enable us to cope with, withstand, prepare for, mitigate or quickly recover from a disaster. Capacity assessment of the people at risk is important in selecting disaster risk reduction strategies and for raising the capacity of community. Without this assessment, we may wrongly design our programme and waste the scarce external support. Moreover, if we ignore the need to increase the strengths of the community, their disaster coping mechanism may be weakened or even their vulnerability will increase.



As with vulnerability assessment, capacity assessment is also divided into 3 categories: · Physical assessment Even people whose houses have been destroyed by a storm or whose crops have been destroyed by flood can salvage things from their homes or lands. Sometimes they have food in store or crops that enable them to overcome difficulty. · Social/organisational capacity assessment Even when everything is destroyed, people still have skills and knowledge. They have family and community organisation. They have leaders and systems for making decisions. · Attitudinal/motivational capacity assessment People also have positive attitudes and strong motivation such as the will to survive, love and concern for each other, bravery and willingness to help each other. These too are important capacities and form the basis for development just as much as the physical resources that people have. Coping mechanisms or strategies are important capacities for survival. 2.3.4 Community risk assessment aims to understand clearly people’s awareness of risks in relation to economic, social, cultural, age, religious,

and gender factors. People have different perceptions of risk. Risk assessment is undertaken by considering the negative impacts and weighing these against the intermediate benefit. People carry out their disaster response activities based on their experience, knowledge, economic, cultural and social condition. This relates to their situation, attitude and behavior. Therefore, we must consider these different perceptions of risk. Disaster risks are unlikely to be considered important among communities that face much greater everyday threats from, for example, chronic food shortages. Where resources and capacities are limited and everyday risks are too great, it becomes difficult to invest time and money on reducing risk to a potential hazard. Where literacy and access to the media are limited, people often lack knowledge or awareness of the hazards that threaten them. People’s perception of risks may decrease during times of rapid social and technological change or when there are long periods between major disaster events. Programmes to raise awareness about disaster preparedness should be implemented to increase people’s perception of risk, to educate people that risks are preventable and to encourage them to participate in protecting themselves. 2.4 The role of our community in disaster risk assessment



Many communities are not aware of the potential hazards that threaten them. Misperceptions and culturally negative viewpoints on certain risks are widespread amongst communities. We in our communities have to identify and deal with these attitudes. Red Cross members, commune level volunteers and officials can help in this process. By understanding a disaster risk assessment, we can: · Find who within our community are more vulnerable to disasters, more likely to be worst hit and are less capable to recover. The answer will

help us to understand the balance between vulnerability and capacity. · Help us to analyse why such people are the poorest and what activities and conditions create or intensify their weaknesses. The analysis will

unveil the major pressures and underlying causes of their vulnerability. · Show us as a community how to reduce our vulnerability through better understanding resources and strengths we have. Our improved

understanding of the situation will contribute to the reduction of vulnerability. 2.5 Tools for assessment To gather and analyze information for disaster risk assessment, participatory rural appraisal tools need to be utilized Examples: · Tools for hazard assessment: Hazard map, historical profile, seasonal calendar · Tools for vulnerability assessment: hazard map, seasonal calendar, transect walk, problem tree, livelihood analysis · Tools for capacity assessment: hazard map, historical profile, seasonal calendar; gender resource mapping; livelihood analysis, institutional and

social network analysis, etc.



Worksheet

Exercise 2: Hazard, vulnerability and capacity assessment Please answer the following questions based upon what you have learnt in the lesson as well as your own knowledge. 1. For a particular hazard that may affect your community, fill in a hazard matrix.

Hazard type Force Warning signs Forewarning Speed of onset Frequency When Duration

2. What is the purpose of vulnerability assessment?

3. Describe the three different categories that one uses to undertake a vulnerability assessment.

For your community, list people/groups that fall under these different headings.



What capacities does your community posses, list them under the following headings:

Physical

Attitudinal/motivation

Organisational/social

4. What does a community based disaster risk assessment aim to identify?

5. In your community, which person/ groups have different perception of risk with you?



Lesson 3. Risk reduction measures Contents Purpose Learning objectives 1. Introduction to risk reduction 1.1 Disaster risk reduction 1.2 Disaster risk reduction measures 2. Risk reduction measures 2.1 Physical planning measures 2.2 Economic measures 2.3 Engineering and technical measures 3. Public awareness in disaster preparedness 3.1 What is public awareness for disaster preparedness? 3.2 Why public awareness for disaster preparedness? 3.3 Activities for public awareness 3.4 What should we do in public awareness? 3.4.1 Identify target group 3.4.2 Communication media 3.4.3 Involve others 4. Some example of disaster preparedness and risk reduction measures



Lesson 3. Risk reduction measures

Purpose This lesson introduces the concept of risk reduction for specific hazards and aims to show that reducing the impact of the hazard, reducing people’s vulnerability or enhancing the capacity of the community can minimize the risk to disasters. Different perceptions of risk of by the community members are highlighted. Risk reduction and disaster preparedness measures for specific hazards are detailed.

Learning objectives After reading this lesson, you will be able to: · Describe the concept of risk reduction · Identify different perceptions of risks that people in our community have · Identify disaster preparedness and risk reduction (mitigation) activities that we may undertake for specific hazards that affect our community 1. Introduction to disaster risk reduction

In Lesson 1, we were introduced to the main hazard types affecting Vietnam. In Lesson 2, we developed our understanding of how to undertake community - based risk assessment. In this Lesson, we build upon the knowledge and skills acquired and apply this specifically to practical risk reduction measures. 1.1 Disaster risk reduction Disaster risk reduction aims to decrease losses that might happen (i.e. death, injury, damage, breaking up the economic and social activities) caused by certain hazards. Risk is higher when hazards affect vulnerable communities with limited capacity. The purpose of disaster risk reduction is to decrease the hazard and the community’s vulnerability and to increase their capacities. 1.2 Disaster risk reduction measures To undertake appropriate disaster risk reduction measures, that tap and make full use of the strengths of the community members, as well as to decrease the vulnerability of a certain community, we have to consider the hazards that might affect a community, the vulnerability and the capacity of the community. This can be done only when disaster risk reduction assessment is undertaken. As part of this process, we need to better understand the way people in the community perceive risk and how they prioritise risk reduction.



The results from the community based disaster risk assessment are used to identify the reduction measures with the following steps: · Collate the results from HVCA and give priority to the element at risk · Discuss the past experience in risk reduction of the community · List the possible solutions/ measures for risk reduction · Analyse the criteria used by the community to select the appropriate risk reduction measures · Discuss the risk reduction measures in relation to gender, environment and age · Check the HVCA table to determine which vulnerability will be given priority · Rank the risk reduction measures in order of priority · Reach to an agreement between groups on prioritised risk reduction measures · Identify the area for intervention based on the available resources, skill and mandate 2. Risk reduction measures There are different ways of classifying risk reduction measures. In this material, risk reduction measures are categorised into the following: 2.1 Physical planning measures Reality shows that in high-risk areas, i.e. high population density or where facilities are located in unsafe areas, damage and suffering is large when a disaster occurs. Physical planning measures aim to ensure that facilities, e.g. schools, clinics, hospitals and residential areas are located in safe places. In coastal areas, the construction/maintenance of dyke systems may also be required. 2.2 Economic measures The local economy can be more vulnerable to disruption by a disaster than the physical infrastructure. Diversification of the economy is an important way to reduce risk. A strong economy is the best defence against disaster. We can work together to help our communities, for example, through community development programmes that aim to get financial support (a grant or a loan) to purchase livestock, fishing nets, fishing boats or household items. 2.3 Engineering and technical measures Engineering measures range from large-scale engineering works (e.g. strengthening buildings) to small-scale community-based projects. Codes of practice for disaster protection (such as construction and land utilisation codes) are unlikely to be effective unless they are accepted and understood by the community (e.g. which requires training of local builders/others in safe-housing design).



Ten principles for house building in storm prone areas

When building a house in a windstorm area, ten principles should be remembered:

The first is to make the best use of location To prevent the wind blowing to our construction

The second is the house’s structure

Should be simple and avoid convex and concave

The third is a high-pitched roof1 To lessen the possibility of being blown up

The fourth is about the corners and edges of the roofs

Should avoid long spans2 and be separate from the veranda

The fifth is close linkages Between foundation, walls, rafters and roof

Want to keep the house steady

Then the sixth is to add triangular bracing and diagonal girders

The seventh is roof-slabs Should be tied tightly

The eight is front and back doors

Should have similar size

The ninth is a tight door With enough latches and bolts to prevent the wind shaking

The tenth is to plant a tree fence

It’s the advice of Uncle Ho.

(1) 30 – 45o (2) 50 cm (not applicable for a concrete roof of 7-8 cm thick)



3. Public awareness in disaster preparedness We have a role to play in helping vulnerable communities to understand that risk reduction activities should be carried out and are best when there is a consensus that it is desirable, feasible and participatory. We should aim to develop “safe cultures” in which all members of communities are aware of the hazards they face, know how to protect themselves and will support the protection efforts of others. 3.1 What is public awareness for disaster preparedness? Public awareness for disaster preparedness is a process of disseminating information to increase people’s understanding about preparing for disaster or other emergencies. It is a way of reducing their vulnerability to hazards and aims at bringing about a change in attitude and behaviour. 3.2 Why public awareness for disaster preparedness? Public awareness helps people understand about hazards, reduce vulnerability and increase the existing capacity to undertake a variety of disaster preparedness activities. 3.3 Activities for public awareness · Display some examples of stronger houses · Set up historical flood marks to remind people of the incidents in the past, e.g. the highest floodwater level in 1999 · Identify flood prone/other hazard areas · Inform and disseminate about hazards that might affect the locality and what people can do to prepare for and respond to these 3.4 What should we do in public awareness? 3.4.1 Identify target group In order for the public awareness raising activities to be effective, we need to identify and clearly define the target audience, e.g. their sex, age, jobs, educational status, their knowledge of the disaster preparedness, their standing in the community and their vulnerability when a disaster occurs. The more we understand the target group, the more practical information we have about them the better able we will be to select the appropriate communication media.



3.4.2 Communication media Many media exist for communicating your messages. Based on your objectives and resources you should choose the ones that best meet your needs. The following is a list of popular media: · Booklets, leaflets · Posters · Community meetings, including various kinds of presentations · Lessons at schools · Talks or presentations · Plays, chants, etc. · Emergency drills and exercises

3.4.3 Involve others Public awareness is more likely to succeed if you involve others in planning and organizing. It is important to involve enthusiastic members who can help to plan and promote your efforts. Then you will: · Benefit from their creative ideas and critical feedback · Be able to share the work among more people · Receive contributions from people’s practical experiences · Have an extensive network of contacts and access to resources 4. Disaster preparedness and risk reduction measures The following table shows some examples of various hazard specific measures and needs.



Hazards Risk reduction measures Disaster preparedness measures Needs after disasters Assessment measures

Tropical storms and typhoons

· Hazard, vulnerability, capacity assessment implementation. The community identifies: - the risks people have to

suffer - who are the most

vulnerable people - available capacities

· Identify the affected areas · Reinforce houses, build

houses, roads of resilient materials

· In coastal communes, plant mangrove trees on the sea-facing side of the sea dykes

· Plant wind break trees around the communities

· Forewarn the areas that are likely to be affected

· Install and upgrade the information system in the communities

· Update/develop evacuation plans in the village and communes

· Establish and train the shock brigade and volunteer teams in disaster preparedness measures

· Closely monitor the storm tracks (mass media, Internet, e.g. www.undp.vn/dmu )

· Evacuate people, arrange the emergency refuge points/safe havens

· Undertake search and rescue · Provide First Aid · Carry out relief operations, provide

clean water supply · Maintain the information system · Submit progress reports · Provide reconstruction materials,

seeds and livelihood support

· Observations, summaries, analysis, consolidation

· Aid social and political survey

Floods · Map the flooded areas · Raise the public awareness of

the flood hazard · Reinforce houses with simple

materials, assist in building safer houses

· Encourage people to abide to land use regulations and to be involved in flood preparedness and prevention

· Build up and upgrade the broadcasting system

· Involve people in maintenance and protection of dykes and dams

· Give training on flood preparedness to each household

· Establish an evacuation plan · Closely monitor the flood situation

· Search and rescue · Give First Aid · Distribute water filters, WPTs,

fresh water and food supplies · Control disease and epidemics · Build up temporary settlement

area

· Observations, summaries, analysis, consolidation

· Aid social and political survey



Hazards Risk reduction measures Disaster preparedness measures Needs after disasters Assessment measures

Drought · Warn people of the likelihood of a drought

· Construct and reinforce the irrigation system

· Do not waste water. Protect all the water resources carefully

· Store seed crops in a safe place

· Regularly listen to the T.V, radio, or loudspeakers for weather forecasts and warning of drought

· Save water · Encourage people to store and

exploit other water sources, particularly to store rainwater

· Provide means for water storage (e.g. jars, containers, guttering, etc.)

· Ensure food security · Provide basic food supplies and

fresh water · Control disease and epidemics · Provide crop seeds

· Survey rainfall and hydrographic indicators

· Survey the nutrition and socio-economic situations

Deforestation · Involve people in the protection of the forests

· Establish re-forestation projects

· Raise the awareness of the people to the benefits of forests

· Help people to understand the consequences of deforestation, especially the “ slash and burn” cultivation in mountainous areas

· Encourage alternatives to fire wood and soil protection measures

· Report to responsible agencies for handling

· Take part in preventing deforestation

· Take part in forestation

· Give help in forest mapping

Landslide · Identify the high risk areas and infrastructure

· Encourage people to abide by the government regulations on building and land use planning

· Encourage and help vulnerable families to buy property and life insurance

· Establish local forewarning, preparedness and evacuation plans

· Listen to the weather forecasts, especially when it rains heavily for a long time

· Watch out for the changes of water, from clear to muddy colour

· Observe the cracks in the walls of buildings or on the hillsides, depressions on the ground or on the roads

· Plant trees in areas where landslides often occur

· Develop rehabilitation and reconstruction programs (search and rescue: give emergency aid to affected people)

· Clean up the environment · Rebuild basic infrastructure · Replant forests

· Observation, summaries, analysis, consolidation

· Give aid in assessing effects caused by landslides



Hazards Risk reduction measures

Disaster preparedness measures Needs after disasters Assessment measures

Thunderstorm and lightning

· Raise public awareness of the possible impacts and how to avoid

· Install lightning conduction poles on tops of tall houses and other buildings

· Stay away from tall and isolated trees, fences, electricity poles and metal things

· Stay inside your house, sit on a wooden chair with your feet not touching the ground

· If you can’t get inside, crouch down and sit like a frog, on the balls of your feet, put your hands on your knees and lower your head

· Turn off electricity sources · Do not stay in a boat or in the

water

· Give First Aid and medical assistance

· Assist families in terms of psychological support

· Rebuild destroyed houses and constructions

Hailstorm · Raise public awareness of effects and preparedness measures for hailstorm

· Build houses with resistant roofs

· Stay indoors and don’t go out · If you can’t get inside, cover your

head with a hard hat, a school bag, or your hands

· Take refuge for animals · Cover your crops with bamboo

sheet if possible


· Repair or re-fix the roofs if damaged

· Distribute relief goods (food, crop seeds, livestock, etc)


Whirlwind · Raise public awareness of effects and preparedness measures for whirlwind

· Get out of its path, seek refuge in a safe place(hide under a table, a stairway, or a bed)

· If you cannot avoid a whirlwind, jump into a nearby ditch or lie flat on the ground


· Repair and rebuild damaged houses and other buildings

· Distribute relief goods, food, livestock, crop seeds




Worksheet

Exercise 3: Risk reduction measures 1. How risk reduction measures are identified by community based disaster management methods? 2. In your community, list any measures that have been undertaken to reduce risk. 3. For the most serious hazard that your community faces, list the practical risk reduction and disaster preparedness measures that you could start

to undertake. 4. What public awareness activities could be undertaken to enhance people’s knowledge of hazards that they face in your community? List the

media that you would use. 5. Who would you involve in your public awareness programme?



Lesson 4. Community based disaster management

Contents

Purpose

Learning objectives

1. Introduction

2. Concepts

2.1 What is community

2.2 What is community based disaster management?

3. Why is community based disaster management?

4. Features of community based disaster management

4.1 People’s participation is promoted

4.2 Priority is given to most vulnerable people

4.3 A variety of perceptions of risk are recognised

4.4 Risk reduction measures are locally originated

4.5 Development is associated with risk reduction

4.6 The supporting role of organizations/individuals in community based disaster management

5. Steps to undertake community based disaster management

6. The role of the Red Cross at different levels in community based disaster management



Lesson 4: Community based disaster management

Purpose This lesson is aimed at introducing community based disaster management measures with a view to encouraging community members to help to facilitate these measures in their communities.

Learning objectives After reading this chapter, you should be able to: · Explain what community based disaster management is · Present how to build a more resilient community · Change your way of thinking about disaster management 1. Introduction As part of our work in disaster management at the commune level, we use the: “four on the spot policy” to involve people in the community. The lesson encourages the participation of community members in decision making in terms of the selection of appropriate risk reduction measures, developing disaster management plans, etc. as well as their participation in the implementation of such measures. Often people living in the community, especially the most vulnerable, have little chance to participate in disaster preparedness activities. In this lesson, community based disaster management measures are introduced that aim to involve all the people in a community, including the most vulnerable, in disaster management measures. These measures aim to reduce people’s vulnerability and increase their capacity to cope with hazards. Ideas are provided to equip you, as local leaders in your communities, with new ways of involving people. 2. Concepts 2.1 What is community? Community is an interacting population living in a common locality, sharing common resources, experience. Community is not necessarily a homogeneous unit but a dynamic mix of interest groups. In the CBDM context, community often coincides with the lowest level governance. 2.2 What is community based disaster management? Community based disaster management is a range of disaster preparedness, mitigation and response activities that are developed by members of a vulnerable community, based on their needs, capacities and perceptions of risk.



The CBDM process gathers people of one community in a meeting to solve a common problem or pursue a common desire. Community based disaster management activities aim to reduce vulnerability and increase people’s capacity to cope with hazards. 3. Why community based disaster management? CBDM can be done by the fully participating of the community members in situation estimate, need assessment as well as decision making. The advantages of these participation are: · Better information Local people are the best sources of their living environment knowledge that can be used for decision making. · Community empowerment Participatory process develops confidence, skill, capacity and co-operation probability of the local people. This helps them to increase their coping capacity to challenges towards each individuals and groups. · Professional education The external experts can obtain a more comprehensive understanding on the community where they are providing assistance and therefore, they are more efficient in their work. · More appropriate responses The solution is more appropriate to the need and desire of the people. Proposal/ project can be amended properly before approval. The result is the resources are more appropriate used. · Towards development People have a clear understanding on the practical selection and have positive attitude towards development. That can help to avoid disputes. · Smaller expenditure People are more committed to their environment so they can better manage and maintain the environment, reducing damage, · Democratically desirable Community participate in the planning this is an important part in the trend to a democracy of all social aspects. · More humane and sustainable settlements That is the results from all of the above bullet points 4. Features of community based disaster management 4.1 People’s participation is promoted Local people are encouraged and facilitated to participate in activities regarding hazard, vulnerability and capacity assessment, the establishment and implementation of disaster preparedness activities including the selection of appropriate measures to reduce risk.



4.2 Priority is given to the most vulnerable people The most vulnerable people have a chance to participate in the disaster management activities in their locality. They are assisted with activities that reduce their vulnerability and increase their capacity to cope with disasters. 4.3 Different perceptions of risk are recognised People all understand the threats of hazards in their community. However, each person has his or her own perception of risk. In the first place, we have to recognise these perceptions. For example, many people still smoke even though they know the bad effects of smoking. Also, people understand the threats of floods to their life and property if they live outside the dykes, yet they still build there. 4.4 Risk reduction measures are locally originated These measures need to be locally found and selected that are appropriate and specific for the local requirement. 4.5 Development is associated with risk reduction Local economic development plans should be linked with risk reduction measures. 4.6 The supporting role of organisations/individuals in community based disaster management Organisations such as the Red Cross at different levles have a key role in assisting and guiding local people in their disaster management activities. Most people working for such organisations are drawn from the local communities and are therefore community members themselves. However, trained Red Cross personnel from outside the provinces may be involved, for example, in assisting local Red Cross members in facilitating training events, evaluation and monitoring of disaster management activities.



5. Steps for CBDM

CBDM aims at reducing vulnerability and increasing capacity of the community to build a more resilient community.

To achieve this aim, the following steps may be taken:

Build up relationships with leaders in the community such as heads of villages, of kinship families, intellectuals, members of the local authorities, mass organisations, religious groups, etc.

ß

Initiate an orientation in community based disaster management

ß

Implement disaster risk assessment (i.e. hazard, vulnerability and capacity assessment)

ß

Specify prioritised risk reduction measures or ways to reduce people’s vulnerability

ß

Select short and long term risk reduction measures

ß

Establish disaster management plans

ß

Establish a group from the community to be responsible for disaster preparedness and response in their community

ß

Co-operate with other communities and organisations in solving the root causes of vulnerability



6. The role of the local Red Cross in community based disaster management

· Play a key role as a member of the community · Provide advice and support to local government in the implementation of community based disaster management activities · Build up and reinforce relationships between community leaders and other organisations so as to involve them in community based disaster

management · Encourage and facilitate community members to take initiative in implementation of community based disaster management



Worksheet

Exercise 4: Community based disaster management Please answer the following questions based upon what you have learnt as well as your own knowledge. 1. What do you understand by the term: “community based disaster management”? 2. Why do we need to undertake community based disaster management activities? 3. What is the difference between a community based approach to disaster management and the approaches undertaken so far? 4. Why do we need to promote the people’s participation in disaster management? 5. Why do we have to prioritise the most vulnerable people? 6. Why do we need to consider and recognise different perceptions of risk? 7. List down all organisations/individuals (stakeholders) involved in disaster management in your community? 8. What is the role of each stakeholder? What is the role of the Red Cross in your community? What help can organisations/individuals from outside

your community provide in disaster management? 9. Which steps should your community undertake to change from a vulnerable to a more resilient community?



Lesson 5: Disaster response

A. Relief supply distribution

Contents Purpose Learning outcomes 1. Identifying the beneficiary population 1.1 Information sources 1.1.1 Census data and the Poverty List 1.1.2 House count 1.1.3 Village meetings 1.1.4 Basic principles for Red Cross assistance 1.2 Criteria for targeting the most vulnerable 2. Beneficiary List and Beneficiary Card 2.1 Beneficiary List 2.2 Beneficiary Cards 3. Distribution 3.1 Strengthening co-ordination and co-operation 3.2 Planning the distribution 3.3 Receiving relief supplies 3.4 Distribution centres and delivery

5. Distribution report



A. Relief supply distribution

Purpose Provide information about the identification of beneficiaries and some guidelines for relief distribution management and monitoring.

Learning objectives After studying this section you will be able to: · Apply methods for identifying beneficiaries (the most vulnerable households affected by the disaster) · Organize relief distributions 1. Identifying the beneficiary population To target the beneficiaries, we need methods for collecting information and certain criteria for beneficiary selection. 1.1 Information sources 1.1.1 Census data and Poverty List The most updated census data provides us information that is valuable when determining whom we should assist in the disaster affected areas. The Poverty List can be the basis for quickly identifying the poorest households. It is important that the list is the most recent. 1.1.2 House count Affected houses should be counted so that poor people who lost their houses completely or whose houses were seriously damaged could be targeted. 1.1.3 Village meetings One effective method used to identify beneficiaries is to hold village meetings to which people from affected communities are gathered and participate in the selection of households in most need of assistance. The local authorities with other mass organizations/INGOs, etc. should coordinate such meetings. Minutes of the meetings should be taken. 1.1.4 Basic principles for Red Cross assistance In the Red Cross/Red Crescent movement the organization aims to adhere to Seven Fundamental Principles. During relief distributions the following three are particularly important: · Humanity · Impartiality · Independence



1.2 Criteria for targeting the most vulnerable In our country, as in many other countries, vulnerability is related to poverty. After disasters, the rich are often not affected, or are able to recover without external assistance. It is generally the poor, who have been most affected by a disaster. Among the poor there are those who are more vulnerable to disasters than others. When identifying the most vulnerable groups, the following should be given special consideration: · Households that have been affected by the most recent disaster · Households that appear on the current Poverty List · Households that have no labour force · Households that receive no significant support from outside sources · Households that have lost all their means of generating income Amongst these households, priority should be given to the following: · Disabled household members · Households with young children (0 – 5 years) · Women-headed households · Pregnant and lactating women household members · Households who have lost a family member (during the disaster) · Households whose houses collapsed It should be noted that not all people belonging to these groups are always vulnerable. For example, some of the elderly might receive more than sufficient assistance from relatives.



Targeting the most vulnerable – an example from the Red Cross

Total population in the disaster area (E.g. 2,000,000)

Total population affected by the disaster (E.g. 600,000)

Total affected population in need of assistance (E.g. 300,000)

Total affected population assisted by other organizations (E.g. 100,000)

Poor people in need of assistance (E.g. 200,000)

Most vulnerable in need of assistance (E.g. 50,000)

Limits to Red Cross resources and capacity to assist

Target group 20,000 most vulnerable in need of assistance from Red Cross

Preparation of Beneficiary Lists and distribution of Beneficiary Cards

Distributions

Evaluation Check



2. Beneficiary List and Beneficiary Card 2.1 Beneficiary List During a Red Cross relief operation, once it is clear what resources can be mobilised and what assistance is to be provided by others, the total number of households can be determined (using the criteria outlined above). The targeted or beneficiary households are listed on a standard Beneficiary List (see the VNRC Disaster Preparedness Manual). The representative of the Red Cross at the commune level, in close co-operation with the People’s Committee, village heads and other Fatherland Front member organisations compiles this list. After being checked by the District Red Cross, the List should be posted in public places and announced over the loudspeaker system by the commune level authorities. 2.2 Beneficiary Cards In the Red Cross, Beneficiary Cards are issued at the district level based on the names on the Beneficiary List approved by the commune Red Cross and the local authorities. These Cards should be given to households in advance of a distribution. 3. Distribution 3.1 Strengthening co-ordination and co-operation Relief operations provide good opportunities for the Red Cross and other organisations to strengthen co-operation and to build the capacity of their staff. This is important, as it will promote the effectiveness of relief supply distribution. 3.2 Planning the distribution The main questions to answer when we plan a distribution are: · How many target groups are there? · Where and how many distribution points are there? · When are the supplies to be distributed? · Who to distribute? What to distribute? · When to end the distribution? Depending on the nature of the emergency, type of assistance, specific donor requirements and others factors, supplies are distributed once, normally as soon after the disaster as possible. 3.3 Receiving relief supplies When receiving relief supplies, we have to prepare warehouses, receiving points, transportation and also pay attention to weather conditions and security.



3.4 Distribution centres and delivery The number of targeted households in the area, the topography and the access will determine the location of a distribution center. The location of a center should be determined depending upon its convenience for the targeted households as well as on logistical considerations. To be manageable, a distribution center should preferably serve not more than 2,000 households. Usually, it will be in a central village, in a public building such as a communal house, a school or the People’s Committee office.



Worksheet Lesson 5: Disaster response

A. Distribution of relief Items 1. What is your opinion about the value of targeting the most vulnerable population affected by a disaster? Should we try to help as many people as

possible with the resources that we have or target those who are poorest and have been affected the most?

2. Where may we obtain information to help us to determine who are the most vulnerable?

3. What criteria are used for targeting the most vulnerable groups?

4. Why the relief distribution is needed? What kind of report have you done?



Lesson 5. Disaster response

B. Information and reporting

Contents Purpose Learning objectives 1. The importance of information and reporting 2. Types of reports 2.1 Reports related to a specific disaster or emergency 2.2. Reports related to actual relief appeals and relief operations



Lesson 5: Disaster response

B. Information and reporting

Purpose This lesson presents disaster information and reporting forms that are utilised by Red Cross staff involved in disaster preparedness and emergency response.

Learning objectives After reading this lesson, you will be able to: · State the importance of disaster information and reporting · List the different types of reports and the main contents of each 1. The importance of information and reporting Timely, regular and accurate reporting is the most important tool to ensure good management support and sufficient funding for an emergency operation or long-term disaster management programme. Reports are management tools, which provide essential information to facilitate effective decision-making, fundraising efforts and donor relations. Conscientious reporting also is important for ensuring accountability and transparency in the use of funds and in programme implementation. The collection and reporting of information should always have a clear purpose and a specific audience in mind. Reporting is extremely important and we must, as a preparedness measure, establish and communicate the importance and necessity of producing good reports. We should understand that reporting is a critical part of our jobs, not a burden but rather an essential tool in decision-making.



2. Types of reports Recommended reports and reporting formats that the Red Cross aim to utilise are: Reports related to a specific disaster or emergency · Early Notification Reports · Disaster Situation Reports · Short-term and Rehabilitation Needs Assessment Reports Reports related to actual relief appeals and relief operations · Relief Operations Situation Reports · Relief Supply Distribution Reports · Stock Reports 2.1 Reports related to a specific disaster or emergency When a disaster strikes, timely assessments are required for the various levels of the Red Cross. These are necessary to plan disaster response action and to conduct effective fundraising appeals (either national or international) to assist in the disaster response operation. 2.1.1 Early Notification Reports In the first few hours and days of a disaster, decisive action is necessary. In sudden onset disasters, a preliminary Early Notification Report should be completed as soon as possible after the disaster occurrence, preferably within 10 hours. This early notification alerts the HQ that a disaster has occurred, gives an indication of the extent and location of the damage and indicates immediate humanitarian needs. 2.1.2 Disaster Situation Reports This Early Notification Report in turn will be followed by a more intensive detailed Disaster Situation Report, usually within the first 12- 36 hours after the disaster. This report provides more details of the disaster and the damage, but concentrates mainly on urgent needs and priorities, and actual response measures being taken. These Disaster Situation Reports continue to be submitted as required, i.e., twice a week. 2.1.3 Short-term and Rehabilitation Needs Assessments Report Between 36 and 72 hours after a disaster, as more complete information is known, there should be a rapid, yet more detailed assessment of resources, responses and needs within the different sectors. This includes food, household needs, shelter, water supply, health and nutrition, infrastructure and communications, etc. This is a detailed assessment of specific needs and should identify and forecast needs in the immediate term. The report should concentrate on detailing humanitarian needs and not damage. 2.2. Reports related to actual relief appeals and relief operations 2.2.1. Relief Situation Reports Relief Situation Reports provide the HQ the information on the status of relief operations. These reports should be as comprehensive as possible, concise in length and should take precedence over other types of reporting. Depending on the situation, reports should be submitted as required and



should cover facts and figures that happen in reality. Relief Situation Reports ideally should be accompanied by updated Relief Supply Distribution Reports and Stock Reports. 2.2.2. Relief Supply Distribution Reports The Distribution Report describes and quantifies relief distribution activities. The Distribution Report is compiled using information from Waybills and Beneficiary Lists. 2.2.3. Stock Reports The Stock Reports are prepared by the person responsible for overseeing relief distributions and indicate what stock has been received, issued, lost (cause, place, time) and the total closing stock. The statistics of each kind of item should be noted.



Worksheet Lesson 5: Disaster response

B. Information and reporting 1. List the main types of reporting formats utilized during disaster response operations by the Red Cross. 2. Who is responsible for collecting information for such reports? List the main stakeholders that you would consult in your community to obtain

accurate information for your reports during a disaster? 3. Why is information gathered from the affected people in the commune during a disaster so important for decision making?



Lesson 6 Disaster preparedness planning

Contents Purpose Learning objectives 1. The importance of community based disaster preparedness planning 2. Contents of a disaster preparedness plan 2.1. Introduction 2.2. Types of disasters 2.3. Roles and responsibilities of each member 2.4. Disaster preparedness and response activities 2.4.1 Raising public awareness 2.4.2 Essential risk reduction activity 2.4.3 Early Warning systems 2.4.4 Damage and Humanitarian needs assessment 2.4.5 Evacuation 2.4.5 Search and rescue 2.4.6 Water and sanitation 2.4.7 Shelter 2.4.8 Food supply 2.4.9 First Aid and medical assistance 2.4.10 Communication 2.4.11 Logistics 2.4.12 Other activities 2.5 Condition to ensure the plan 3. Check and update the plan frequently 4. Action plan



Lesson 6: Disaster preparedness planning

Purpose The importance of community based disaster preparedness planning is introduced and a comprehensive format for planning provided.

Learning objectives After reading this lesson, you will be able to: · Describe the importance of preparedness planning · Define the issues to be considered in planning · Know how to make a community based disaster preparedness plan 1. The importance of community based disaster preparedness planning Community based disaster preparedness planning plays an important role in helping communities prepare for and respond to a disaster. If we have a detailed and relevant plan, we will be able to: · Respond to the disaster quickly, and in a timely and effective manner · Mobilize all resources both human and material · Ensure good cooperation between the communities and other important stakeholders Success of these activities will help to reduce the risk of disasters. A local plan can best be effective if it is based on the specific plans of each village and household. 2. Contents of a disaster preparedness plan No plan can be applied to all disasters and different localities. The contents of a disaster preparedness plan needs to be specified or adjusted to maximize the effectiveness, depending on the situations and realities of each community, nature and characteristics of the hazards. Normally, a disaster preparedness plan would include the following: 2.1. Introduction · Characteristics of the disasters that frequently occur in the locality · Disaster preparedness and response activities carried out and experiences gained · The participation of sections of the community (covered by the plan) in disaster preparedness planning · The main objectives of this plan (these objectives must be specified, quantifiable, achievable, appropriate and be time bound)



2.2. Types of disasters This plan is to prepare for disasters (specifically the disasters that frequently happen in the local area). 2.3. Roles and responsibilities of each member · The Communist Party · The local People’s Committee · The mass organizations and shock brigades · Each village and living area · Each household · Others The roles and responsibilities of each member listed above in the organization and implementation of the disaster preparedness plan (diagrams maybe used to show interrelationships).



2.4. Disaster preparedness and response activities 2.4.1 Raising public awareness · Raise awareness among people of the preparedness activities that each household and the community can undertake to reduce the effects of a

disaster · Organize training courses for shock brigade teams(organize small rehearsal training) · Inform all the people of the disaster preparedness plans 2.4.2 Essential risk reduction activity · What are the basic needs after a disaster and do we have enough resources to meet these needs? · What tools and means do we have to assess the effects of disasters undertake humanitarian need assessment; are maps of affected areas

available? · What risk reduction measures identified by the community during disaster risk assessment process need to be undertaken between hazards? · What disaster preparedness activities are prioritized to be implemented? 2.5. Warning systems Early warning systems contribute much to the reduction of the effects of disasters and risks that people take. In order to prepare for a disaster, it is essential that early warning systems are effective and understood. In our disaster preparedness plan, it is necessary to identify the means of communication, the staff responsible for forewarning people and those responsible for accessing to the information even when the public means of communication do not work. In this section, preparedness and response activities in terms of life protection during the disaster are listed. When making the plan, it is necessary to identify the activities and people responsible for organizing and monitoring these activities. It is essential that local people will know what to do when they hear or see the warning signals. 2.4.4 Humanitarian needs assessment The assessment of damage incurred following a disaster is the responsibility of the government authorities, i.e. the CFSC and the People’s Committee. The Red Cross undertakes humanitarian needs assessment. Such assessment needs to be implemented quickly and accurately in order for the response activities to be timely and effective (See separate booklets *: “Collecting Basic Information” and “Humanitarian Needs Assessment”). Each locality should assign its members or groups of members to the task of assessing the humanitarian needs. In the Red Cross such reports should be submitted to the local government and to the higher levels in the Red Cross. a) Damage assessment information includes affected areas, the severity, affected households, specific damage in the locality (including the names

of affected villages, most affected households, etc.) and is available from the CFSC b) For the Red Cross, humanitarian need assessment should be undertaken according to the detailed criteria in the relevant Red Cross booklets*



2.4.5 Evacuation Loss of life will be minimized if we carry out evacuation tasks as required in a timely manner. So, in the evacuation plan, we should identify: · Where and who to evacuate (according to each type of disaster) · Where to evacuate to (according to each type of disaster) · The safe ways to the evacuation places · The person (s) in charge of the evacuation tasks



2.4.6 Search and rescue Good implementation of search and rescue can reduce risks and the loss of life. In the local plan, we need: · To have search and rescue teams, which have been trained well and mastered the principles and practices for search and rescue and First Aid · To distribute basic equipment to the teams involved in search and rescue and evacuation · To comfort the relatives of the people who are missing or who have died in the disaster 2.4.7 Water and sanitation In an emergency situation, fresh water is often in short supply. This shortage may cause serious health problems, as people may have to drink dirty water. Obviously people can withstand the lack of food more than the lack of water; therefore the supply of fresh drinking water should be prioritized in emergency situations. Key concerns in water/sanitation include the provision of fresh drinking water, areas for human defecation, areas for animal shelter and garbage disposal. A plan should identify: · People in charge of water/sanitation within the local authorities/other organizations · Safe water sources; guidance for people on how to store, preserve and clean water sources, e.g. the use of alum, WPTs and water filters · Treatment methods for waste and the disposal of bodies of animals · The readiness of the local health units in terms of human resources, medicines and means to assess the situation, treat water sources, provide

temporary sanitation arrangements, etc. 2.4.8 Shelter In some situations, it is necessary to provide temporary shelter to those whose houses were destroyed or are no longer safe. We also need to repair houses, distribute plastic sheets or bamboo for them to make temporary shelters in safe places. The following should be considered: · The person in charge of this aspect of response in the various organizations, e.g. the People’s Committee, the Red Cross, etc. · How to contact suppliers? How to get to people whose houses are located in safe areas? How to provide basic water and sanitation facilities? · Who/which organizations are responsible for this? · How many households need to be provided with temporary shelters? Where are these shelters be located?



2.4.9 Food supply · Who within the local authorities/the Red Cross/other organizations is responsible for assessing the need for food when a disaster strikes? · What food is available in the local area? What capacity do we have to distribute? It is ideal to know the price of each kind of supply (a list of kind

of foods, quantity, prices, suppliers contact details, etc. should be attached) · The distribution plan · How to mobilize the support from the local people? · How do the local people prepare food reserves themselves? 2.4.10 First Aid and medical assistance Casualties are unavoidable in disasters. Minimizing the suffering of casualties depends on timely and effective First Aid. We have to consider the following questions: · Which groups/how many people will take part in search and rescue activities? Are they ready? Have they received appropriate training? Do the

people and local government recognize their role? · Are the local medical care facilities ready? (e.g. staff on duty in the office at the disaster affected areas, essential medicines/equipment available

and operational? Are there appropriate means of transport available? · What potential diseases/epidemics may occur in the aftermath of a disaster? Are we prepared for such eventualities? 2.4.11 Communication Efficient communication during disasters is vital. Plans have to consider a worst-case scenario wherein lines of normal communication maybe cut temporally. Information exchange is important for good coordination in disaster response activities. When making a disaster preparedness plan, attention should be paid to the worst-case scenario and to problems that are likely to occur. Solutions to these problems should be outlined in advance so that the higher authorities/other organizations outside the disaster areas can be regularly updated on the situation 2.4.12 Logistics Logistics is also included in the “ 4 on-the spot policies”. It is important to ensure well functioning response activities. Therefore, the following relevant issues need to be taken into consideration: Warehouses, means of transport and access · We need to identify the means of transport that can be mobilized from people or easily accessed so that we have the necessary means for search

and rescue, emergency relief supply and evacuation · In addition to the people’s preparation, the local CFSC/other organizations should negotiate in advance with owners of various means of transport

to ensure different means of transport are available · Other organizations that can assist in the supply of relief items need to be identified, contact information known



2.4.13 Other activities Other activities can be added according to the real situation in the locality. 2.5 Conditions to ensure that the plan is undertaken Community participation in planning plays an important role in ensuring the feasibility and sustainability of the plan, and then raising awareness and capacity of the community. We need to identify the hazards that occur frequently, the impacts and which areas are at risk. At the same time, we need to identify the available resources and existing capacity to most effectively cope with a disaster. We need to make full use of and mobilize all the local resources. Running out of fuel, or batteries or having available resources that are not ready for use should be avoided. All community members should be informed about their roles and responsibilities to fulfill the plan. 3. Frequently check and update the plan The plan is not suitable as the economic, social situation changes. Therefore, it is necessary to frequently review and update the plan. The implementation of the plan needs the regular monitor and supervision. After the disaster, evaluation of effectiveness of the Disaster Preparedness plan should be done. Lesson learnt should be shared with all related parties. Lesson from the previous plan should be learnt for the new DP plan.



4. Action plan The following table can be used for DP planning Commune District Province

ACTION PLAN FOR DISASTER PREPAREDNESS FROM..............TO ...............

No. Activity

Person in charge Time Condition Note



Worksheet

Lesson 6: Disaster preparedness planning

1. Why must a disaster preparedness plan be made?

2. Who should be involved in disaster preparedness planning? Please list down the names of responsible people in your community!

3. Make an outline of a plan to prepare for a specific hazard that often occurs in your locality.

4. What are you most interested in, regarding the contents of a community based disaster preparedness plan? Why?

5. What do we need to pay attention to when making a disaster preparedness plan?

an introduction to disaster management - dmc.gov.vndmc.gov.vn/uploads/thu vien tai lieu/ref22... ·...

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