Palau Community BaseD Disaster riskReduction toolkit
September 2016“ViSion: Safe, reSilient and prepared CommunitieS in palau
©NEMO, Kayangel after Super Typhoon Haiyan in 2013
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Palau Community BaseD Disaster risk reDuCtion toolkit
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September 2016Vision: Safe, reSilient and prepared CommunitieS in palau
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Palau Community BaseD Disaster risk reDuCtion toolkit
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Palau Community BaseD Disaster risk reDuCtion toolkit
palau Community baSed diSaSter riSk reduCtion toolkit
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Palau Community BaseD Disaster risk reDuCtion toolkit
table of ContentS FoReWoRd Message from chair, nec AcknoWledGMentS eXecutiVe SuMMARY intRoduction GloSSARY oF teRMS ABBReViAtionS And AcRonYMS
Part 1: General
1.1 Introduction1.2 legal and Policy References 1.3 RelationshipwithOtherPlans1.4 International,NationalandStateLevelDisasterRiskManagement Arrangements 1.4.1. TheInternational,Regional,andNationalStateLevelDisasterRiskManagement Arrangements1.4.2. content and Structure 1.4.3. StateandCommunityDemographics
Part 2: CBDrm, “tool kit”
2.1 Purpose2.2 Objectives2.3 target Audience 2.4 RolesandResponsibilities2.5 Methodology
Part 3: unDerstanDinG CBDrm
3.1 IntroductiontoCBDRM3.2 ImportanceofCBDRM3.3 CoreguidingprinciplesofCBDRM
Part 4: Community BaseD Disaster risk reDuCtion ProCess
4.1 CommunityBasedDisasterRiskManagementProcesses steps for Community risk assessment
Step1: Selectingandrankingcommunities Purpose Criteriaforselectingcommunities Activity1:ToolsforSelectingandRankingCommunitiesusing theRankingMatrix
Step2: CommunityHazardAssessment Introduction Objective OtherToolscommonlyusedforHazardAssessment HazardMap HazardProfile timeline Seasonal calendar LevelsofHazardsRisk
Step3: CommunityVulnerabilityAssessment Introduction Objectives Hazardmapping Physicalvulnerabilitymapping Socialvulnerability CriticalInfrastructuresvulnerability TransectWalk Purpose HowtoConductaTransectWalk Householdwealth/incomeranking Purpose Howtodoit GenderMapping Purpose Howtoconductit? PeoplewithDisabilityMapping Purpose Howtoconductit?
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Step4: CommunityCapacityAssessment Introduction Objectives RecommendedToolsforCapacityAssessment Venn diagram Introduction Purpose StepstocreateaVennDiagram HazardVulnerabilityCapacityAssessmentHVCAMatrix Purpose Howtoconductit? HistoricalProfileofDisasterdamages Purpose Howtodoit?
Step5: CommunityRiskReductionPlanning(Puttingitalltogether) Purpose Objectives Keyareasforconsiderationsindisasterriskreductionmeasures Structural measures non-structural measures RecommendedactivitiesforDRR Problem tree Purpose Howtodoit ObjectiveTree Purpose Objectives Howtodoit PrioritizationMatrix Purpose Howtodoit ActionPlan Purpose Howtodoit
Step6: ImplementationofCommunityDisasterRiskReductionActivities Purpose Objective Assumptions Principles Mainoutputs Purpose Howtodoit
Step7: CommunityMonitoringandEvaluationofDRRProjects/Programs Introduction Objective Assumptions Main contents RecommendedSteps Methods&Toolsusedin(M&E) GAntt chart Purpose Howtodoit
Part 5: BuilDinG/ ForminG anD traininG a Hamlet emerGenCy Committee
5.1 Introduction5.2 StepsinCreatingaHamletEmergencyCommittee5.3 MembershipofHEC5.4 RolesandResponsibilitiesofHEC PreparednessFunctions EmergencyFunctions(HEC) RecoveryFunctions(HEC)5.5 HamletDisasterManagementArrangements5.6 MajorComponentsoftheCommunityDisasterRiskManagementPlan 5.6.1 DisasterRiskReductionActionPlan5.6.2 disaster Management Plan
Part 6: reFerenCe materials
6.1 Summaryofmethodsandtoolsneededforhazards,vulnerability,andcapacity Assessment Reference Material
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Palau Community BaseD Disaster risk reDuCtion toolkit
DisastershaveaffectedPalauinthepastandwillcontinuetohappeninthefuture.Itisnotthequestionofifithappens,butwhenithappensareweready?Thisisevidencedbytheeventsof2012and2013,wheninlessthanayearPalaufaceddisastersasaresultofSuperTyphoonBophaandSuperTyphoonHaiyan.Additionally,emergingthreatofGlobalWarmingisaffectingorchangingourclimaticconditions,whichscientistbelievewillcausemorefrequentandseveretyphoons,sealevelriseandotherclimaterelatedincidents.Knowingthisfact,wemustbegintheprocessofreducingtheriskofdisastersatalllevels,butparticularlyatthecommunitylevel.Globally,thepracticeofreducingdisasterriskwasfurtherarticulatedintheworldconferenceheldinSendai,Japan,toaddresstheissueofdisasterriskreductionatalllevels.TheoutcomeofthatconferenceistheSendaiFrameworkforDisasterRiskReduction,followingtheendoftheHyogoFrameworkforAction.ThisisaglobalinitiativeandPalau,asmemberoftheUnitedNations,isobligatedtoitstermsandconditions.
Atthenationallevel,theNationalDisasterRiskManagementFramework(NDRMF)2010-2015isbeingrevisedtoincludetheintergrationofdisasterriskreductionstrategieswithinthebudgetaryallocationsandplanning.Simultaneously,effortsareunderwaybytheNationalEmergencyCommitteeandtheNationalEmergencyManagementOffice(NEMO)todeveloptheStateDisasterRiskManagementPlans(SDRMP)thatalsoadoptsdisasterriskreductionprocesses.Aswell,thePalauClimatePolicyhasbeenfinalizedandshouldalsobeusedasareferenceatthenational,stateandcommunitylevelplanning.Bottomlineis,wemustshiftourfocusfromresponseandrecoverytobuildingnationalresiliencefrombottomupapproach.Itisafactthatthecommunitymembersarethefirstrespondersduringtimesofemergencyordisasterimmediatelybefore,duringandafteranevent.Traditionally,familymemberstakechargeandbeginimmediaterecoveryforthemselvesandfamiliesandneighbours.
Basically,thisCommunityBasedDisasterRiskReductionToolkit(CBDRRT)isdevelopedasanexecutingarmoftheNationalDRMToolkitandtheStatesDRMPlansdowntothecommunityorhamletlevel.Theprocessofimplementingthetoolkitrequiresconductofworkshopsateachvulnerablecommunity,toteachitsmembers,theprocessofanalyzingtherisksinvolvedandmeasurestoaddresstheseriskusingcommunityresourcesandcapacities.Individualcommunitiesarerequiredtostarttheplanningandimplementationprocessesofmanagingdisasterrisksattheirrespectivecommunities.Animplementationplanfordisasterriskreductionthenwillbedevelopedandimplementedforthelongterm.TheNationalEmergencyCommittee(NEC)andtheNEMOandOfficeoftheVicePresidentwillbereadytoassistyouandthecommunityintheCBDRMprocess.Therefore,astheChairmanoftheNationalEmergencyCommittee,Istronglyurgecommunityleadersandorganizationstotakeaproactivepartinthisprocessandtocreatemoreresilientcommunitiestotheeffectsofdisasterandclimatechange.OnlythenwouldwebeabletoachieveourvisionstatedintheNationalDisaterRiskManagementToolkit(NDRMF)2016-2018,“Safe,ResilientandPreparedCommunitiesinPalau.”
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Palau Community BaseD Disaster risk reDuCtion toolkit
aCknowledgementS
TheRepublicofPalauisgratefulforthefundingprovidedbytheEuropeanUnion(EU)throughtheSecretariatofthePacificCommunity(SPC).SPCprovidedthesupportandguidancethroughMr.NoaTokavou,SPCNorthPacificOfficeRepresentative.
in February 2016, SPc hosted a trainingcalled“TraintheTrainer”on community Based disaster RiskManagement(CBDRM)inPalau,whereStateGovernmentsparticipantsattendedthe
workshop.Acoreteamwasselectedandtaskedtodevelopthe community Based disaster RiskReduction(CBDRR)toolkitandconductworkshopsatthecommunitylevel,withthegoalofdevelopingcommunitydisasterriskreductionactionplansanddisasterriskmanagementplans.the neMo is credited for the developmentof“BuildingSafetyandResilienceinthePacificProject(BSRP)whichincludedfundingfortheCBDRMprojectforPalau.
RePuBlic oF PAlAu
euRoPeAn union
From L to R: Back to Front: Mr. Noa Tokavou, SPC Representative (Rep.); Mr. Alonzo Kyota, CBDRR Consultant; Mr. Allen Li Rechelbang, Melekeok Rep.; Mr. Natus Misech, President OMEKESANG; Ms. Weillaih O. Kintaro, Melekeok Rep.; Ms. Tanya O. Rengulbai, NEMO Rep. - Administrative Officer; Ms. Elizabeth Ikertang, Koror State Rep.; and Ms. Delilah Fran-cisco, Koror State Rep.
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Palau Community BaseD Disaster risk reDuCtion toolkit
Threatsandhazardspresentlong-termriskstopeopleandtheirproperty.DisasterRiskReductionmeasuresareactionstakentoeliminate,preventorreducethenegativeimpactsofhazards.Byreducingtheimpactofdisastersthroughsuccessfulriskreductionmeasures,whichfacilitatesquickresponse,speeduprecovery,creates“buildingbackbetter”andtherefore,amoreresilientcommunities.ThisCBDRMtoolkitestablishesacommonplatformorfoundationforcoordinatingandaddressinghowcommunitiesmanagesrisks,aswellasdescribesmitigationrolesacrossthewholecommunity.Thetoolkitalsoaddresseshowthecommunitywilllessentheimpactofdisasterbyemployingdisasterriskassessmenttools.Thesetoolsincludeidentifyingthehazards,vulnerabilities,andcapacitiestodevelopandapplyriskreductionmeasurestoreducelossoflife,protectproperty,socialandeconomic structures.
Localcommunitiespossessawealthoflocal-basedknowledgeandexperiencewithregardstodisaster.ThistoolkitaimstocapitalizeonthelocalknowledgeandexperiencewhilefurtherdevelopingDisasterRiskReduction(DRR)strategies.Thiscanbeachievedbyengagingcommunityleadersandmembers,whoarethemainactorsofthewholeriskreductionprocess,withguidanceandassistancefromthenational,stategovernmentandotherstakeholders.
Effectivedisasterriskmanagementbeginswithacomprehensiveunderstandingoftheinteractionbetweenhazards,vulnerableelementsandlocalcapacityavailableinagiventime.Aimingtowardtheultimategoalof sustainability and resilience, reducing risksrequiresaprocessofcontinuouslearning,adaptingtochange,managingrisk,andmonitoringandevaluatingprogress.Understandingtherisksmakesitpossibletodevelopstrategiesandplanstomanage
exeCutiVe summary
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introDuCtion
Threatening Hazards in the Community
them.Managingrisksfromthreatsorhazardsrequiresdecisionmakingtoaccept,mitigate,reduce,ortransferthoserisks.Theseareprovenmethodsofreducingthelong-termvulnerabilityofacommunityandtobuildindividualandcommunityresilience.Thistoolkitisdrivenbyrisk,ratherthanthe occurrence of incidents. By fostering comprehensiveriskconsiderations,thetoolkitpromotesthewholecommunitytoadoptthecultureofresiliencethroughdevelopmentofactivitiesthatwillreducethelikelihoodofexposureandvulnerabilityofcommunities.
Stategovernmentsanditscommunitiesareatthethresholdofprogressivedevelopment.Itiswiseandforwardlookingtolayasolidfoundationfortheanticipateddevelopment.Unregulateddevelopmentwillonlyaddorincreasethevulnerabilityofthecommunityitself.Assuch,propercityplanning,adoptionofappropriatepoliciesanddevelopingmasterplansareintegralpartoftheoverallcommunityresilienceandprogressivesustainabledevelopment.
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gloSSary of termSCapacity. Thecombinationofallstrengths,attributesandresourcesavailablewithinacommunity,societyororganizationthatcanbeusedtofaceandmanageadverseconditions,emergenciesordisasters.
Climate ChangeAchangeinthestateoftheclimatethatcanbeidentified(e.g.,byusingstatisticaltest)bychangesinthemeanand/orthevariabilityofitsproperties,andthatpersistsforanextendedperiod,typicallydecadesorlonger.Climatechangemaybeduetonaturalinternalprocessesorexternalforces,ortopersistent“anthropogenic”(human-induced)changesinthecompositionoftheatmosphereorinland use.
Climate Change AdaptationTheadjustmentinnaturalorhumansystemsinresponsetoactualorexpectedclimaticstimuliortheireffects,whichinduceharmorexploitsbeneficialopportunities.Activitiessuchasbuildingseawalls,saltintrusionresistantcrops.Inthecontextofdisasterriskmanagement,theseactivitiesareconsideredasmitigationmeasures,whileinclimatechangeitisreferredtoasadaptation.
Climate Change Mitigation Theprocessofreducing,preventingoreliminatinggreenhousegasesemissionsintotheozoneoratmosphere,whichiscausingglobalwarming.Thiscanbeachievedthroughreductionofglobaldependencyonfossilfuels;andincreasingtheuseofefficientenergyconsumptionappliances,conversiontoalternativeenergy;suchassolar,thermal,windandhydropowergeneration,etc.
Community Ageographicallocationwhereaclusterofhouseholds,smallvillageoraneighborhoodinatown.Aparticularinterestgroups,ethnicgroups,professionalgroups,languagegroups,particularhazard-exposedgroups.Inthisframeworkcommunityandhamletissynonymous.
Community Based Disaster risk managementCommunity-baseddisasterriskmanagementisaprocessinwhichat-riskcommunitiesareactivelyengagedintheidentification,analysis,treatment,monitoringandevaluationofdisasterrisksinordertoreducetheirvulnerabilitiesandenhancetheircapacities.
Disabled People OrganizationsDisabledPeopleOrganizationisaNon-GovernmentOrganizationofandforpeoplewithdisabilitiespredominantlygovernedbypeoplewithdisability.
DisasterNaturalorman-madeeventwhichcausesintensenegativeimpactsonpeople,goods,servicesand/ortheenvironment,exceedingtheaffectedcommunity’scapabilitytorespond.
Disaster risk managementAsystematicprocessofusingadministrativedirectives,organizations,andoperationalskillsandcapacitiestoimplementstrategies,policiesandimprovedcopingcapacitiesinordertolessentheadverseimpactofhazardsandthepossibilityofdisaster.
Disaster Risk ReductionTheconceptandpracticeofreducingdisasterrisksthroughsystematiceffortstoanalyzeandmanagethecontributingfactorstodisasters,includingthroughreducedexposuretohazards,lessenedvulnerabilityofthepeopleandproperty,wisemanagementofthelandandtheenvironment,andtheimprovedpreparednessforadverseevents.
emergencyAsituationgeneratedbytherealorimminentoccurrenceofaneventthatrequiresimmediateactionwithoutexceedingtheaffectedcommunitycapabilitytorespond.
EvaluationTheprocessofdeterminingtheeffectivenessofDRRmeasuresbasedupontheperiodicactivities(annually,mid-project,endofproject,postproject.)
Faith Based OrganizationAnorganizationwhosevaluesarebasedonreligiousfaithand/orbeliefs,whichhasamissionbasedonsocialvaluesoftheparticularfaith,andwhichmostoftendrawsitsactivists(leaders,staff,volunteers)fromaparticularfaithgroup.
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HazardAdangerousphenomenon,substance,humanactivityorconditionthatmaycauselossoflife,injuryorotherhealthimpacts,propertydamage,lossoflivelihoodsandservices,socialandeconomicdisruption,orenvironmentaldamage.Hazardscanbecharacterizedasnaturalhazard(naturaldisasters)andman-madehazards(man-madedisasters).
MitigationThelesseningorlimitationoftheadverseimpactsofhazardsandrelateddisasters.Thismeasuresincludestructuralandnon-structuralprojectsorprograms.
monitoringThesystematiccollectionandanalysisofinformationasaprojectprogresses.Itisacontinuoustocheckhowactivitiesareprogressing,whethertheprojectisontractornot,andifresponsiblepersonsaredoingtheirtasksproperly.
People with DisabilityConsequenceofanimpairmentthatmaybephysical,cognitive,intellectual,mental,sensory,developmental,orsomecombinationofthesethatresultsinrestrictionsonanindividual’sabilitiestoparticipateinwhatisconsidered“Normal”intheireverydaysocietyfunctions.Adisabilitymaybepresentfrombirthoroccurredduringaperson’slifetime.
PreventionTheoutrightavoidanceofadverseimpactsofhazardsandrelateddisasters.
PreparednessTheknowledgeandcapacitiesdevelopedbygovernments,professionalresponseandrecoveryorganizations,communitiesandindividualstoeffectivelyanticipate,respondto,andrecoverfrom,theimpactsoflikely,imminentoroccurringhazardouseventsorconditions.
recoveryTherestorationandimprovementwhereappropriate,offacilities,livelihoods,andlivingconditionsofdisasteraffectedcommunities,includingeffortstoreducedisasterriskfactors.
resilienceTheabilityofasystem,communityorsocietyexposedtohazardstoresist,absorb,accommodatetoandrecoverfromtheeffectsofahazardinatimelyandefficientmanner,includingthroughthepreservationandrestorationofitsessentialbasicstructuresandfunctions.
responseTheprovisionofemergencyservicesandpublicassistanceimmediatelybefore,duringorimmediatelyafteradisasterinordertosavelives,reducehealthimpacts,ensurepublicsafetyandmeetthebasicsubsistenceneedsofthepeopleaffected.
relief Thisincludesactivitiesthatareundertakenafteradisastertoassistaffectedpeoplelike;searchandrescue,providingfoodandnon-foodrelief,healthcare,repairingofessentialservicesandphysiologicalinterventions.
riskThepotentialofaneventthatmaycauseharmanddamagestopeople,properties,livelihood,andcommunity infrastructures and systems.
VulnerabilityThecharacteristicsandcircumstancesofacommunity,systemorassetthatmakeitsusceptibletothedamagingeffectsofahazard.
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CBDrm - CommunityBasedDisasterRiskManagement
CBDrr - CommunityBasedDisasterRiskReduction
CCa - ClimateChangeAdaptation
CHP - CommunityHazardProfile
DPo - DisabledPeopleOrganization
Drm - DisasterRiskManagement
Drr - DisasterRiskReduction
Dm - disaster Management
eu - EuropeanUnion
eWs - early Warning System
FBo - FaithBasedOrganization
HDrmo - HamletDisasterRiskManagementOffice
HeC - HamletEmergencyCommittee
HiCP - HamletIncidentCommandPost
HVCa - HazardVulnerabilityCapacitiesAssessment
m & e - Monitoring&Evaluation
msC - Mostsignificantchanges
nDrmF - NationalDisasterRiskManagementFramework
neC - NationalEmergencyCommittee
nemo - NationalEmergencyManagementOffice
neoC - NationalEmergencyOperationCenter
nGo - Non-GovernmentOrganization
PWD - PeoplewithDisability
sDrmP - StateDisasterRiskManagementPlan
seC - StateEmergencyCommittee
seoC - StateEmergencyOperationCenter
abbreViationS and aCronymS
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ParT 1 - GENEral 1.1 intRoduction
Thecommunitybasedapproacheshasbeenpracticedfordecadesinotherpartsoftheglobe.Ithasbeenproventobeeffectiveinbuildingresilienceatthecommunitylevel.TheRepublicofPalauisdevelopingthisCommunityBasedDisasterRiskReductionToolKit,inordertoprovideclearguidancetopartnerswhoarewillingtosupportlocalcommunitiesintheireffortstoreducetherisksofdisastersandcreateaneffectivedisasterresponseandrecoverysystems.Buildingstrongerandresilientcommunitiesisanotherwayofstrengtheningandenablingnationalandstategovernmentstoachievesustainabledevelopment.Witheveryoccurrenceofdisasters,thenationalandstatedevelopmentalprogresssetsbackyearsofhardworkindevelopmentandmoreimportantly,divertingfundsfrommoreimportantprogramssuchashealth,securityandeducation,toaddressrecoveryefforts.
1.2 leGAl And PolicY ReFeRenceS
NationalDisasterRiskManagementFramework2016-2030:Disasterriskreductionarrangementsatthenationallevel,isarticulatedin: • SendaiFrameworkforDisasterRiskReduction(2016-2030)endorsedimprovedunderstanding,
strengtheningandinvestingindisasterriskreductionforresilienceatalllevels.ThisisthesuccessortotheHyogoFrameworkforAction2005-2015.
• StateDisasterRiskManagementPlans:DisasterRiskReductionisarticulatedinSection3.2.The
SDRMPlansarebeingdevelopedfollowingthearrangementsinthedocumentsabove.
• PalauClimateChangePolicy:Thispolicyhasbeenapprovedanditcoversmattersofclimatechangeatthenationallevel.Currentlycommunity-basedclimatechangepoliciesarepending.
1.3RELATIONSHIPWITHOTHERPLANS
ThereexistalinkagefromtheNationalDRMFrameworktotheStateDRMPlansintermsofarrangements,procedures,terminologiesandgeneralguidanceindealingwithdisasterrisks.ThisCBDRRtoolkittargetsthegrassrootlevelofdisasterriskmanagement.ThisCommunityBasedDisasterRiskReductiontoolkitsupportandstrengthentheglobalandnationalefforttoreducetheeffectsofdisasterrisksatthecommunitylevel.Likewise,thetoolkitmustalsosupportotherplansorpoliciessuchasbuildingcode,zoningcode,firecode,andurbandevelopmentplans,etc.,ifany.
1.4 inteRnAtionAl, nAtionAl And StAte leVel diSASteR RiSk MAnAGeMent ARRAnGeMentS
1.4.1 The International, Regional, National and State Level DRM arrangement
TheSendaiFrameworkforDisasterRiskReductionwhichsucceedstheHyogoFrameworkforDisasterRiskManagementdepictstheDRMarrangementbelow.TheFrameworkforResilientDevelopmentinthePacific,TheNationalDisasterRiskManagementFrameworkandtheStatesDisasterRiskManagementPlansalsofollowsthesameDRMarrangements.(SeeFigure1).
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1.4.3 state and Community Demographics
TheRepublicofPalauiscomprisedofsixteen(16)statesandhaveapopulationofmorethanseventeenthousand(17,6612015CensusofPopulation,Housing&Agriculture).Fiveofthe16statesaresituatedatoutlyingareas.Eachofthestateshastheirownconstitutionswhichgovernsthegovernmentaloperationsandarrangements.Alongwiththeconstitutionalgovernments,thereexisttraditionalsystemswithineachstateandhamletsthatgovernsmattersoftraditionandcustoms.Thepopulationvariabilitybetweenstatetostateandcommunitiestocommunitiesrangedfromlessthanahundred(Sonsorol)tocoupleofthousands(Koror).Somestateshavehamletswithnoinhabitants.Theinhabitantshaverelocatedtootherhamlets,butmaintainitstraditionalleadershipandclansystemsandhaverepresentativesinstatelegislatures.
Normallystateoperationsareoverseenbyagovernorandalegislature.Eachcommunityisrepresentedinthestatelegislatures,whilehamletchiefsoverseetraditionalorcustomarypractices.
1.4.2 Content and structure:
Thisdocumentisorganizedinawaythatanycommunitybaseddisasterriskreductionstakeholderorpractitionercanutilizeitasafieldreferenceandguidelines.ThisToolKitisdividedintofive(5)parts:
• Part1 GeneralInformation• Part2 TheFrameworkandRationale• Part3 Understanding• Part4 TheProcess• Part5 BuildingandCreatingCommunityDisasterRiskManagement Organization• Part6 ReferenceMaterial
Figure 1: Disaster Risk Management Diagram
diSASteR RiSk MAnAGeMent
diSASteR RiSk Reduction
PreventionAdaptionMitigation
Preparedness
diSASteR MAnAGeMent
ResponseRelief
Recovery
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Table1:ListofStateandnumberofcommunities(hamlets)
name of State NumberofHamlets PopulationAimeliik 5 334Airai 6 2,455Angaur 4 119Hatohobei 1 25kayangel 2 54Melekeok 6 277ngardmau 3 185ngeremlengui 5 350ngerchelong 8 316Ngatpang 2 282ngaraard 5 413Ngiwal 4 282ngchesar 6 291Peleliu 5 484Sonsorol 4 40koror 12 11,444total 88 17,351
Source: 2015 Census Population, Housing and Agriculture.
part 2 Cbdrm: tool kit2.1.PURPOSE:
TheCBDRRtoolkitintroducesanarrayofcommunitybasedapproaches,guidelinesandmethodologiestopartnerswhoarewillingtoworkwiththelocalcommunitiesinPalau.ThepurposeofthisdocumentservesasanorientationandreferenceforCBDRMpractitionersatthenationalandcommunitylevelforeffectivedisasterriskmanagement.
2.2OBJECTIVE:
Toensureconsistencyofapproachesinvulnerabilityandcapacityassessmentadoptedtoreducevulnerabilitytodisasterandclimatechangeimpactsatthegrassrootslevel,toembraceandpracticethecultureofresiliencytodisasterthroughtraditionalarrangements.
2.3TARGETAUDIENCE:
ItisanticipatedthatthistoolkitwillbeusedbyvariousstakeholderspracticingdisasterriskmanagementatthecommunitylevelinPalau.Thesemayinclude:
• Governmentagencies• NGOs(Non-GovernmentOrganizations)• DPOs(DisabledPeopleOrganizations)• FBOs(FaithBasedOrganizations)• CSOs(CivilSocietiesOrganizations)• Donoragencies(Private,RegionalandInternational)• Otherstakeholdersinterestedincommunityresiliencetodisastersandclimatechange
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2.4ROLESANDRESPONSIBILITIES:
• NECshallapprovethistoolkit,includingsubsequentamendments.• NEMOshallreview,updateandsustainthistoolkitperiodically.• StateGovernmentsandcommunitiesshalljointlycoordinate,implement,monitorandevaluate
theDRRprocess.
2.5METHODOLOGy
Thefollowingapproachesandstepswereadoptedwhiledevelopingthisdocument:• CBDRRTrainingprovidedtostakeholders.• ReviewofotherCBDRRguidelines,materials,andmanuals.• WorkingwithcoreteamtrainedinCBDRR.• LinkagesofarrangementsandprocessesidentifiedintheNDRMFandtheSDRMP.• Introductionofassessmenttoolsforhazards,vulnerabilities,capacitiesandrisks.
ParT 3 UNdErSTaNdiNG CBdrMCommunity-baseddisasterriskmanagement(CBDRM)isaprocessinwhichatrisk-communitiesareactivelyengagedintheidentification,analysis,treatment,monitoringandevaluationofdisasterrisksinordertoreducetheirvulnerabilitiesandenhancetheircapacities.
3.1 intRoduction to cBdRM
Theimportanceofcommunitybasedapproacheshasbeenrecognizedinpromotingacultureofsafetythroughreducinglocalvulnerabilitiesandbuildingcapacities.Theseapproacheshavebeenpracticedandreplicatedbyvariouscommunitygroups,nationalandinternationalorganizationsandgovernmentalagencies.Whilethenationalandstategovernmentshaveanimportantroletoplayindisasterriskmanagement,itistheproactiveparticipationandinvolvementoflocalcommunitiesatthegrassrootsthatmakestherealdifference.
Thismeansthatpeopleareattheheartofdecision-makingandimplementationofdisasterriskmanagementactivities.Capacitiesoflocalpeopleareenhancedtohelpthemassessthesituation,identifyriskreductionmeasuresandimplementthem.Riskreductionmeasuresincludemitigationandpreparednessactivitiesbeforeadisasteroccurs,aswellas,responseandrecoveryactivitiesduringandafteradisasterevent.
Figure 2: Disaster Risk Management Cycle
Preparedness
disasterMitigation
Recovery Response
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Figure 3: Disaster Risk Management Cycle
diSASteR
Response
RehabilitationReconstruction Prevention
Mitigation
Preparedness
development development
development
3.2 iMPoRtAnce oF cBdRM
ThroughCBDRM,thecommunitybenefitsbytakinganactiveroleinthedisasterriskmanagementprocess.Theinvolvementofthecommunityisimportanttoensure:
• Relevantinformationcollectedwillreflecttheaspirationsandrealitiesofthecommunitymembers,particularlythevulnerable,thepoor,elderly,women,childrenandpeoplewithdisabilitiesandunemployed.
• Thecapacity(self-confidence,knowledge,skillslike:teamwork,makingplans)oftheentirecommunitytodealwithhazardsisdeveloped:
• Externalexpertiseincludingbutnotlimitedtoconsultantsandgovernmentofficerswillunderstandbetteraboutthe community.
• Disastermanagementandcommunitydevelopmentprogramsandactivitieswillachievebetter,morepracticalandeffectiveresults.
• Communityexistencewillbecomemorestableandsustainable.
3.3 coRe GuidinG PRinciPleS oF cBdRM
ThefollowingarethecoreprinciplesthatshouldguideeverystepandactivitiesinCBDRMinanylocation:
a) Thecenterofallprocessisthecommunity.b) Disasterriskreductionisthehighestpriority.c) Priorityshouldbegiventothemostvulnerable.(i.e.,PeoplewithDisabilities(PWDs),thepoor,women,elderly
andchildren).d) Recognitionofdifferentperceptionsonrisks,vulnerabilitiesandorcapacities.e) Applicationbydifferentstakeholders,i.e.,climatechange,health,securityandsafety.f) Establishpartnershipwithelectedandtraditionalleaders,men,womenandyouthgroups.g) Integrationofdisasterriskreductionmanagementintolocaldevelopmentprocess.h) CBDRMisanevolvinganddynamicframework.i) CBDRMshouldtakeintoaccountemergingglobalissuessuchasclimatechangeandepidemics.
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4.1 coMMunitY BASed diSASteR RiSk MAnAGeMent PRoceSSeS
TheprocessofCBDRRatthecommunitylevelinvolvescomprehensiveanalysisoftherisksfactors.Therearethreeelementsofriskassessmentsinacommunity:hazardthreats,vulnerabilitiesandcapacities.
Figure 4. CBDRR Cycle
Figure 5: Risk Equation
[1] communityidentification[2].
Hazard,[3].Vulnerability and[4].CapacityAssessment
[5]Disasterriskreductionplanning
[6] Implementation
[7] MonitoringandEvaluation
part 4 Community baSed diSaSter riSk reduCtion proCeSS
Theresultoftheriskassessmentformsthebasisforprograms,projectsandactivities,whichaimtoreducedisasterrisks.Thereareseven(7)stepsthroughoutthisprocess,whichthecommunitymembersareatthecenteroftheactivities.Recommendedriskassessmenttoolsareintroducedimmediatelyfollowingeachstep.
HaZarD (+ elements at risk)VulneraBility
CaPaCity(to cope)
riskx =
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stePs For Community risk assessmentStep 1: SeleCting and ranking CommunitieSPurpose:ToselectandrankcommunitieswithinagivenState,adeterminationofrankingintermsofhazards,vulnerabilityandcapacityarefromtheleasttothemostvulnerable.Theselectingagencywilldecidewhereinterventionwillbemostbeneficialandmustcoordinatewiththestategovernmentpriortoselectingacommunity.
CRITERIAFORSELECTINGCOMMUNITIES:
Thefollowingcriteriashallbeusedtorankcommunitiesinordertomakeaninformedjudgmentinselectingorrankingcommunities:
• Typeofhazards,frequencyofhazards,andseverityofimpact.• NumberofpeopletobenefitfromCBDRMprogram.• Readinessofcommunitytoengageintheintervention.• Communitiesinremoteareaswhicharedifficulttoreachimmediatelybefore,duringandafter
disasters,suchastyphoons,stormsurgesortsunamisaremostvulnerableandtheyneedtoincrease their resiliency.
Activity 1: Tools for Selecting and Ranking Communities using the Ranking Matrix.
Usingthenumbersfrom1to7,rankeachcommunityaccordingtoeachcriteriawith1beingtheleastand7beingthemostvulnerable.Thecommunitywiththehighesttotalisselectedandotherswithlowerscoresmaybeeligiblefortheprogramatalaterdate.
Table 2: Community Ranking Matrix
name of
community
Types of Hazards
Frequency of each Hazard
History of Severity
Severity of exposure to
risk
Number of people to benefit
readiness of
community to engage
remoteness of
community
Total
Thisactivityisperformedbyanorganizationorgovernmentagencyinconsultationwiththestategovernmentandthecommunitytoensurefullparticipationbythecommunity.
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STEP 2: COMMUNiTy Hazard aSSeSSmentINTRODUCTION:
Whenhazardsimpactonvulnerablegroupsofpeople,infrastructures,socio-economicandenvironmentinacommunity,theresultisadisaster.Hazardassessmentistheprocessofidentifyingandanalyzingahazardorthreatthatmayaffectthecommunitybasedonlocalknowledgeandexperiencewithrecentdisasters.
Objective:• Toidentifyallhazardsthathavedirectimpactonthecommunity• Toprioritizethehazardsthatmayhavedirectimpactonthecommunityandtofurthercarryout
vulnerabilityassessmentandriskreductionplanning
How to carry out a community hazard profile?Labeltitlesofeachcolumnbasedonhazardscriteriasuchas:• Type : naturalorman-madeevents• Magnitude : scale,amountorsize• Severity : degreeofdestructionordamages• Frequency : re-occurrences• Speedofonset : fastorslowonset• Duration : periodorlengthofimpact• Location : siteofimpactorareaaffected• Warningsigns : traditionalorscientific
Figure 6: Hazard Assessment Risk Prioritization
Type Magnitude Severity Frequency Speedofonset Duration Location Warning Signs
Typhoone
droughtStorm Surge
Table 3. Hazard Assessment
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Palau Community BaseD Disaster risk reDuCtion toolkit
Figure 7: Hazard Profile
Table 8. Timeline
OTHEr TOOlS COMMONly USEd FOr Hazard aSSESSMENTS:Thistablecanbefurthercomplimentedbytoolslistedbelow.Theseareothercommontoolsusedbycommunityandstakeholderstoassesshazardsthatmayaffectthecommunity.Thepurposeofthisprocessisforthecommunitymemberstoidentifytypesofhazardsthathavecontinuedtoaffectthecommunityinthepastincludingotheremerginghazardsthatarelikelytohappeninthefuture.ResultsofthesetoolswillenablethecommunitytoprioritizeDRRmeasuresforthemostrecurrenthazardswithsuchseverityandmagnitudewhichthecommunitywouldnotbeabletocopewiththeaftermath.
• Hazard map:Amapofthecommunityshowingareaswhereaparticularhazardhasimpactedorlikelytoimpact.Thecommunitymemberscouldaccessandacquireadigital(GISbasedmap)toidentifyareas(wherepeople,housing,andinfrastructuresarelocated),whicharelikelytobeimpactedbyahazardorbydrawingamapthemselvestoindicatethesame.Thistoolgivesanoverviewofthevulnerableelementsinthecommunity.
• Hazard Profile:Communitymembersdivideintogroupsandidentifyhazardsthathaveoccurredinthepastincludinghazardsthatmayoccurinthefuture.Thisisagoodmethodofidentifyingtheimpactsofclimatechangeandotheremerginghazards.
• Timeline: Communitymembersdivideintogroupsandidentifyandreviewthechronological
historyofdisastersforthepastfivetotenyears,indicatingtheyear,numberofdeaths,damagesincurred,directandindirectcosts,ifany.Theresultofthistoolisusedtoforecastthenextdisaster.
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Palau Community BaseD Disaster risk reDuCtion toolkit
• Seasonal Calendar:Somedisastershaveseasonsandorepisodes(i.e.,typhoonseason,droughtepisode).Communitymembersidentifytypesofhazardsandindicateaperiodthehazardismostlikelytohappen.Theresultofthisistoremindandalertcommunitiestopreparebeforeaseasonandoranepisodeofahazardbeginsorstarts.
Table 4: Seasonal Calendar
Table 5: Ranking of level of hazard risk
Fivelevelsareusedtorankthehazardsrisksindicatedonthetablebelow.Probability Impact
Trivial Minor Moderate Major ExtremeRare Low Low Low Medium MediumUnlikely Low Low Medium Medium MediumModerate Low Medium Medium Medium HighLikely Medium Medium Medium High HighVerylikely Medium Medium High High High
Season calendaryear Disasters 1 2 3 4 5 6 7 8 9 10 11 122016 el nino2013 STyHaiyan2012 STyBopha2001 Tropical
Storm utoR1997 ElNino/
drought1990 STyMike
Plates 2: Photos of Typhoon Damages
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Palau Community BaseD Disaster risk reDuCtion toolkit
Plates 3: Vulnerability Assessment W/ Community
STEP 3: COMMUNiTy VUlNEraBiliTy aSSeSSmentINTRODUCTION:
VulnerabilityisoneoftheelementsoftheriskequationindicatedinFigure7.Itisthedegreetowhichasystem,subsystem,orsystemcomponentislikelytoexperienceharmduetoexposuretoahazard.Theimpactofahazardisthereforeafunctionofexposuretothehazardeventandtheresponsivecapacityoftheentityexposed.Thedegreeofdamagessustainedwhetherbelossoflives,injuries,sufferings,destroyedhomesandlossofbusinesses,lossofessentialservicessuchashealth,water,power,andcommunicationsdependonthecapabilityoftheelementsatriskthatarebeingexposedtowithstandtheimpactofclimatechangeanddisasters.Whenasignificanthazardoccurs,itwillimpactthevulnerableelementsinthecommunity.Theresultisadisaster-lossoflives,injuries,sufferings,destroyhomesandbusinessesleavingpeoplehomelessandoutofwork.Communities,presently,havethecapabilitytorespondandrecoverfromadisaster,buttowhatextentisnotknown.Thisiswhyitisimportantforthecommunitytobeginassessingtheircapacitysothatthevulnerablecanbestrengthened and the resilient nurtured.
OBJECTIVES:
The objectives of this step are:
• Assessthestatusoftheelementsatrisk(people,properties,environment,economy,andsocial)andtheircapabilitytowithstandtheimpactsofclimatechangeanddisaster.
• Assessthespecificareaswithinthecommunitythatareimpactedthemostfromclimatechangeand disaster.
• Assesssourcesoflivelihoodwithinthecommunitythatareimpactedfromclimatechangeanddisaster.
Inallthetoolsofconductingvulnerability,thecommunitymustparticipateandbeproactivelyengagedsothattheythemselvescancompletetheassessment.Thefacilitatorswillbeginwiththeintroductionofthetoolsandallowthecommunitymemberstocompletethem.
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Palau Community BaseD Disaster risk reDuCtion toolkit
HAzARDMAPPING
Discusswiththegrouptoidentifyandmapareaswherethegreatestrisksexist.Usingamapofthecommunity,identifythefollowing:• Lowlyingareasorcoastalareasvulnerabletostormsurgesandtsunamis• Identifyaccesspointstoandfromthecommunity.(i.e.,roadblockages,bridgecollapserestricting
responseandreliefoperations,etc.)• Industrialareasandcommercialcenters.(i.e.,fueldepot,shoppingcenters,etc.)
PHySICALVULNERABILITIESMAPPING
Discusswiththegroupthephysicalcharacteristicsofdwellings,houses,church,classrooms,communityhalls,shopsetc.Useamaptoshowthelocationsofthedifferenttypesofexamplesaccordingtotheirvulnerabilityinthecommunity.
Plates 4: Hazard Mapping
Plates 5: Vulnerabilities Mapping
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Palau Community BaseD Disaster risk reDuCtion toolkit
SociAl VulneRABilitieS
Discusswiththegroupwhichsocialsystems(youth,men,women,andfaith-basedgroups)aremostvulnerable.Theseinclude:
• Socialorganizations.(i.e.,communitygroups,faithbasedorganizations,socialcohesion.)• Schools.
cRiticAl inFRAStRuctuReS VulneRABilitieS
Discusswiththegrouptolistcriticalinfrastructures(hospital,power,water,sewer,communication,school,church,etc.)thatsupportthecommunity.Useamaptoidentifywheretheyarelocated.
tRAnSect WAlk
Thistoolinvolvesthecommunitymembersinidentifyinganareawhereahazardmayimpactandvisitthesitebywalkinginonestraightdirectionwhilemakingalistofallvulnerableelementsseeninthearea.Thisisanothermethodofwitnessingthetangibleelementswhicharevulnerabletoahazard.Theresultofatransectwalkistoidentifyandprioritizethemostvulnerableelements.
Purpose:Toacquaintcommunitiestotheprocessofidentifyingandevaluatingvulnerableelementsinthecommunitythroughparticipation.
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Palau Community BaseD Disaster risk reDuCtion toolkit
1. Identifyagroupofparticipants.2. Discusswiththeparticipantsthepurposeofthewalk,anddecideonthepaththatshouldbe
takentocoverthegeographicalcharacteristicsofthearea.3. Decidewiththeparticipantswhatparametersshouldbeusedforrecordingobservations.4. Conductthewalkandrecordallthevulnerabilitiesobserved.
HOUSEHOLDWEALTH/INCOMERANKING:
Purpose: •Tocollectandanalyzedataontheperceptionofwealthdifferencesandinequalitiesina
community;andforidentifyingandunderstandinglocalindicatorsandcriteria’sofwealth,well-beingandpoverty.
HOWTODOIT?
Inagroupdiscussionidentifyincomestatusandhierarchyoffamilies.Thisprocesswillshowtheextentofthewholecommunitycopingcapabilities.Specialattentionmustfocusonthepoor,marginalizedpersonsandsingleparentswhowillhaveadifficulttimetoperformdisasterriskreductionmeasures.
GENDERMAPPING:
Purpose: •Toidentifythevulnerablegroupsinthecommunitysuchaswomen,children,andelderlyby
makingalistindicatingtheirlocationandtheirsituation.Thiswouldallowresponderstoprovideassistance during disasters.
HOWTOCONDUCTIT?
Discusswithagrouptoidentifythemostvulnerablegroupswithinthecommunity;anddrawamapoftheirlocations.Categorizeandgroupdifferenttypesofvulnerabilities.Informationmaybeobtainedatgovernmentagenciesandnon-governmentorganizations.
PEOPLEWITHDISABILITyMAPPING:
Purpose: •Toidentifyallpeoplewithdisabilities,theirlocationandsituation.Thismapwillallowfirst
responderstoprovidetimelyresponsebefore,duringandafteradisaster.
How to conduct it:Discussinagroupanddrawamapidentifyinglocationsofallpeoplewithdisabilitieswithinthecommunity.Relevantinformationmaybeobtainedatgovernmentandnon-governmentagenciessuchas oMekeSAnG and others.
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Palau Community BaseD Disaster risk reDuCtion toolkit
Step 4: Community CapaCity aSSeSSmentINTRODUCTION:
Capacityistheabilityofthecommunitytocopewithdisastersbefore,duringandafteranevent.Copingstrategiesincludepreparingtorespondwhenawarningisissuedbyauthorities,supportingeachotherinthecommunityimmediatelyafteradisastersuchasprovidingtemporaryhousingforthosedisplaced.Historically,communitiesoftendependonthenationalgovernmentandnon-governmentorganizationstofacilitateitscopingstrategies.TheconceptofCBDRRistoreversethistrendandempowerthecommunitytoleaditsdisasterriskmanagementactivities,particularly,reducingdisasterrisksandimprovingemergencyresponses.Thenationalandstategovernmentwillassistthecommunitythroughoutthisendeavor.Inthelongterm,communitiesshouldbeabletoimproveandstrengthenitsdisasterriskmanagementskills.
Objectives: • Analyzethesocialcopingcapacitythatexistsinthecommunity(traditional,socialsystem,faith
basedsupportsystem,etc.• Analyzetheresourcesintermsofhuman,materials,organizations,equipmentthatareavailable
inthecommunitythatcanbeusedtosupportanyresponse.• Analyzetheaspectofphysical,social,andattitudinalmotivation.
RecoMMended toolS FoR cAPAcitY ASSeSSMent
Venn diAGRAM
Introduction:Toidentifyorganizations/groups/individualsbothlocalandoutsiderincludingtheirroles/importanceandperceptionsthatpeoplehaveaboutthem,especiallyactivitiesrelatedtodisasterpreventionandresponse.
Purpose:Toidentifypotentialorganizationsusingcirclestoillustratehowagenciesinteractwitheachotherinagivencommunitytosupportdisasterriskmanagementactivities.Alsothelocationofthecircleindicateswhethertheagencyiswithinthecommunityoroutside,whilethesizeofthecircleindicateitsimportanceandlinkagetothecommunity.
steps to create a Venn Diagram:• CreatingaVenndiagramisbestperformedbyagroupinaworkshopsetting.Thegroupwith
knowledgeandunderstandingofthecommunitydecideswhichagenciesarerepresentedwithinthe community.
• Drawalargecircletorepresentthecommunity.Drawothercirclesinthelargercircletorepresentagencieslocatedwithinthecommunityandindicateitsimportancebyitssize.Thenfinallydrawadditionalcirclesoutsidethelargercircletorepresentagencies/organizationlocatedoutsidethecommunityandindicatewithanarrowtowardthecommunityiftheycansupportorprovideassistance.
• Closenessofthecirclesindicatesstrengthofinteraction.Overlappingcirclesmeansastrongrelationship.
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Palau Community BaseD Disaster risk reDuCtion toolkit
Figure 9: Venn diagram
HAzARDVULNERABILITyCAPACITyASSESSMENTHVCAMATRIx:
Purpose:Giventhehazards,vulnerabilitiesandcapacitiesinacommunity,thismatrixallowsthecommunitytogetacompletepictureoftheoverallrankingofthecommunityintermsofdisasterriskreductionactivities.
How to conduct it?Step2throughStep4coverseachoftheHVCA.
Figure 10: HVCA Matrix
STATE CBDRR VENN-DIAGRAM
HVCa matrix
SPC/EU
PPuc
PPnc
R.o.PNAT’LGoVt
church
Youths
Men’sclub
Traditionalleaders
Women’sOrganization
elders
StateSchool
undP
neMo
Red cRoSS
M.O.H
ndBPM.o.j
diSASteR RiSk
Venn diagramHistoricalProfiles
early Warning System
emergency PlanPublicAwareness
ProgramPublicParticipation
HazardMappingPhysical
Vulnerability Mapping
Social VulerabilityCritical
infrastructuresTransectWalk
community Participation
Householdwealth/incomerankingGenderMapping
Peoplew/DisabilityMapping
HazardMapHazardProfile
timelineSeasonal calendar
HaZarDs VulneraBility CaPaCity
u.S embassy
Taiwanembassy
Japanembassy
u.SSeA - BeeS
cAt -teAMS
otherembassies
AllBanks&other Agencies
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Palau Community BaseD Disaster risk reDuCtion toolkit
How to do it?Inagroupdiscussthedisasterdamagesfrompasteventssuchastyphoon,droughts,etc.Usingthetablebelowindicateeacheventinchronologicalorder.
Year Event Development Reconstruction
Table 6: Historical Profile
Step 5: Community riSk reduCtion PlaNNiNG (PUTTiNG iT all TOGETHEr)Purpose:UsingthevulnerabilityassessmentdevelopedbythecommunityunderStep3,themembersdevelopacommunitydisasterriskreductionplan.Theconceptandpracticeofreducingdisasterrisksthroughsystematiceffortsaretoanalyzeandmanagethecontributingfactorstodisasters,includingthroughreducedexposuretohazards,lessenedvulnerabilityofthepeopleandproperty,wisemanagementofthelandandtheenvironment,andtheimprovedpreparednessforadverseevent.
Objectives:Theobjectivesofthestepare:
• Developanactionplanforactivitiesthatcanreducevulnerabilitiesinthecommunityandenhance safety.
• Prioritizetheactivitiestoreducevulnerabilitiesinorderofpracticalityfromtheavailableresourceswithinthecommunity.
• Identifystrategiestomobilizeresourcesthatcansupportactivitiesthatarebeyondthecommunity’scapacity.
• Identifyexistingmechanismthatcanmonitorandevaluatetheimplementationoftheactionplan.
HISTORICALPROFILEOFDISASTERDAMAGES.
Purpose:Toallowthecommunitytoseethehistoricalprofileofpastdisasterdamagesandtheirimpacts,andthecostofrecovery.Thisprocessenablesthecommunitytoimplementdisasterriskreductionorbuildbackbetter.
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Palau Community BaseD Disaster risk reDuCtion toolkit
KEyAREASFORCONSIDERATIONSINDISASTERRISKREDUCTIONMEASURES:
Riskreductionmeasurescanbeeitherstructuralornon-structural.DRRPlansshouldcontaintheseelements:
structural measures:
• Constructionorretrofittingbuilding school,centers,hospitals.• Transportation:roads,bridges.• Lifelines;water,power,communications,sewer.• Communication;earlywarningsystems.• Protectivemeasures;seawalls;mangroveplanting.
non-structural:
• HealthandSanitationPrograms.• Capacitybuilding.• Livelihoods.• Responseplans.• Preparedness;publicdisastereducationandawarenessprograms.
Plates 8: Structural
Plates 8: Non-Structural
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Palau Community BaseD Disaster risk reDuCtion toolkit
RECOMMENDEDACTIVITIESFORDRR:
ThesemeasuresareexamplesofDRRactivitiesandshouldbeidentifiedandpresentedinstagesduringcommunityworkshop(s).Throughthisprocessthecommunitycanexpandtoincludeactualmeasuresinthehamlet:
• Beforeadisaster.• Duringadisaster.• Afteradisaster.
Drr measures Before a disaster During a disaster After a disasterUpgradeinfrastructures;houses,publicstructuresetc..
Disasterproofingbuildings,seawalls
Activateemergencyresponseplans,evacuation,health,food,water,sanitation
Recoverysupportafterdisaster to ensure basicservicesforcommunities.
Communicationsystem Developearlywarningsystem
Activateearlywarningtopublic
Reviewwarningproceduresforeffectiveness
Policydevelopment Buildingcodes,zoningcodes etc.
Trainingandawarenessprograms
Table 7: DRR Measures
Figures 11: Problem Trees
oBjectiVe tRee
Purpose:Thegoalisadirectoutcomeofthedesiredattributesandbehaviorsthatthecommunitywantstoseeintheproject/activity.
Objectives:• Turnsnegativeproblemstatementintopositiveones.• Defineprojectactivitiesinputsandoutputs.
How to do it?Giventheproblemsidentifiedintheproblemanalysis,includingtherootcausesandeffectsoftheproblemswhichareidentifiedasnegativestatements,thegroupwilldiscussandbrainstormpositivesolutionstotherootcausesoftheproblemstherebyresultinginapositiveeffects.Forexample:
Floods
Deforestation
Steep terrain
Unequal landownership
Landslides
Erosion
Low-soil fertility
Chronic Foodshortage
Malnutrition
High debtsOut-migration
Low recoverability
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Palau Community BaseD Disaster risk reDuCtion toolkit
ProBlem tree analysis
Problem:Typhoonscausedextensivedamagetohomes.root Cause: Homesarebuiltwithnoorsubstandardconstructionpractices.Effect: Familiesarechallengedwithrebuildingcostofnewhomes.
oBjectiVe tRee AnAlYSiS
root Cause remedy: Buildingcodesaredevelopedandenforced.Newhomesfollowthebuildingcode.Existinghomesareretrofittedtostandard.Effect:Homeswithstandtyphoonforcewindduringtyphoons.Problem: Solved.
Figures 12. Objective Trees
examPle oF an oBjeCtiVe tree
Improvedhealthcondition
of rural population
endS
MeAnS
cash inccome
oBjectiVe tRee
Increasedfarmproductivity
Clearextensionsmessages
increased labour productivity
.....
.....
Post-harvestlossesreduced
Improvedcultivationtechniques
Soilfertilityincreased
Marketablesurplus
Sufficientfoodavailable
endS
MeAnS
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Palau Community BaseD Disaster risk reDuCtion toolkit
Action PlAn
Purpose:Toidentifyinthecommunity,priorityareasthatneedstobedevelopedorimproved.Thisisdevelopedinaworkshopsettingforvariousmembers/leadersofthecommunity.Priorityareasshouldincludeeffectiveearlywarningsystem,evacuationandsheltersmanagement,publiceducation,medicalfirstaidandemergencyresponse.Basedonthethematicareas,thecommunityidentifiesmainactivities,responsibleparty,supportinggroupandrankingofprioritystatus.DRRprojectactivitiesshouldprimarilyutilizealltheresourcesavailablewithinthecommunity.However,forcomplexandcostlyprojectsthecommunitymayseekassistanceexternally.
How to do it?UsingthePrioritizationMatrix,listactivitiesintheformatbelow.
theme/Phase in Cycle 1:
responsible support Priority status
Activities:1.2.3.theme 2/Phase in Cycle:Activities:1.2.3.
Table 9: DRR Action Plans
PRIORITIzATIONMATRIx
Tolistactivitiesorprojectsintheirpriorityrankingofimplementation.
How to do it?Usingtheresultsoftheobjectivetree,listactivitiesorprojectsinthePrioritizationMatrixbelow.One(1)beingthemosturgentandfour(4)maybedelayed.
Table 8: Prioritization Matrix
PrioritaZation matrixDescription of Activity 1 2 3 4Activity 1Activity 2Activity 3Activity 4
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Palau Community BaseD Disaster risk reDuCtion toolkit
Step 6: implementation of Community diSaSter riSk reduCtion aCtiVitieSPurpose:Thepurposeofthisstepistoenablevulnerablecommunitiestotakeleadershipinreducingdisasterrisksfacedbythem.Thecommunityparticipatesinimplementingandmonitoringactivitieswitheffectivesupportandassistancefromnationalandstategovernmentagenciesandotherstakeholders.
Objectives: • ImplementDRRactivitiesintheactionplan.• ReduceCommunityvulnerability.
Assumptions:• Disasterriskreductionplansareeffectivelyimplementedachievinggoodresults.• Communityparticipationinimplementingactivities.• Effectiveuseofresourcesmobilizedfrominternalandexternalsources.• Riskreductionactivitiesareimplementedandmonitoredwithgoodsupportandcoordination
fromstakeholders.• Implementedactivitieshelptoreducecommunity’svulnerabilityandenhancetheircapacityto
copewithdisasterrisks,incontributiontopovertyreduction,livingconditionsimprovementandlocaldevelopmentprocess.
Principles:• Ensuregoodcoordinationandactiveparticipationofthecommunityandrelatedagencies.• Ensuretransparentandaccountableimplementationprocesstobothcommunitiesand
stakeholders.• Usemethodsandtoolsthatareacceptabletovarioussub-groupsinthecommunity,giventheir
culturalcontext.
main outputs:• Fromdisasterriskreductionplaninthepreviousstep,resources(human,finance,technical
resources,etc.)willbeallocatedandcoordinatedtoensuretheeffectiveandtimelyimplementation.Measureswillbelistedandprioritized.
Project Description responsibility Financial source timeline
Table 10: Implementation Plan
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Palau Community BaseD Disaster risk reDuCtion toolkit
loG FRAMe
Purpose: Thepurposeofalogframeistomanagedisasterriskreductionprojectsorprogramsprogressthroughoutuntilthegoalisachieved.Asthesametime,monitorandevaluatetheprojectforpotentialriskswhichmayimpedecompletion.
How to do it?Usingalogframebelow,identifythegoal,objective,orpurposeofaproject/programoractivity.Withineachgoal,identifymeasurableindicatoroftheproject,meansofverifyingtheindicatorsandalsoidentifyotherrisksandassumptionsthatmayaffecttheachievementofthegoals.(Seenextpageforsample).
log FrameObjectives indicators Meansofverification RiskandAssumptionsGoalObjectivesOutputs:1.2.Activities:1.2.
Table 11: Log Frame
Step 7: Community monitoring and eValuation of drr projeCtS/programSINTRODUCTION:
Projectmonitoringandevaluation(M&E)istoreviewtheprogressandsupportthedecision-makingandmanagementsystem.Monitoringhasthefollowingpurposes:• Toknowwhetherornotimplementedactivitiesachievetheplannedobjectives.Whatcanbe
donetobetterachievetheplannedobjectives?• Tomeasuretheprocessofachievingobjectives,performance,efficiencyandimpacts.• Todevelopfeedbacksystemthatencouragesregularlearningandsharingamongcommunities
andstakeholdersforbetterimplementationinthefuture.
Objective: ToensureDRRactivitiesorprojectsareprogressingaccordingtoplanandmeetstheexpectationsofthecommunity.Anydeviationsorunexpectedconflictsfromtheplanarecorrectedaheadoftime.
Assumptions:• Disasterriskreductionmeasuresareimplementedeffectively,andinatimelymanner.• Accountabilityisappliedandhelpstoimprovethemanagementanddecisionmakingsystem.• Upskillingofcommunitymembersinplanning,problemsolvinganddecision-makingprocesses.
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Palau Community BaseD Disaster risk reDuCtion toolkit
main Contents:• Monitoring:isthesystematiccollectionandanalysisofinformationasaprojectprogresses.Itis
acontinuoustocheckhowactivitiesareprogressing,whethertheprojectisontractornot,andifresponsiblepersonsaredoingtheirtasksproperly.
• Monitoringhelpsorganizationstrackachievementsbyregularcollectionofinformationtoassisttimelydecisionmaking,ensureaccountability,andprovidethebasisforevaluationandlearning.
• Evaluation:TheprocessofdeterminingtheeffectivenessofDRRmeasuresbasedupontheperiodicactivities(annually,mid-project,endofproject,postproject).
• M&Ecouldusedifferentmethodsdependingonthequantitative(numbersandcharts)and/orqualitativeindicators(people’sknowledge,attitudeandbehavior).
• Theevaluationprocessneedstoprovidereliableandtrustworthyinformation,offeringprovidesinputsandlessonslearnedforthedecisionmakingprocessofthecommunitiesandassociatedagencies.
recommended steps:• DevelopM&EPlan.• Collectdata/information.• Analyzedata.• Document,communicateandsharefindings.
methods and tools used in m&e
GANTTCHART
Purpose:GanttChartisascheduleofDRRprograms/project/taskalreadyidentifiedinthevulnerabilityassessment.Thisisatimelineorientedchartalongwithpeoplewhoareresponsibleforthetaskandtheresourcesrequiredtocompletetheactivity.
How to do it?Followingagroupdiscussion,duringaworkshopormeeting,fillintherestofthechart.Advantageofthechartincludeavoidconfusion,keeppartnersonthesamepage,understandtherelationshipsbetweentasks,effectiveresourceallocation,andforwardlookingtoensuretasksareprogressingasplanned.
Gantt ChartTask Responsibility Begin end Resources1.2.3.4.5.
Table 12. Gantt Chart
• Quantitative indicators: can be measured using numbers.• Qualitative indicators: cannotbemeasuredbynumbersbutinformationisgatheredthrough
materialssuchasminutesofmeetings,observationorgroupdiscussionandfeedback.Examplesoftheseare:directobservation,interviewwithkeypeople,focusgroupdiscussions.
• log Frame:willcontainindicatorsformonitoringandevaluation.• Most significant changes (MSC):anotherformofM&Einwhichmanystakeholdersareinvolved
indecidingsortofchangestoberecordedandinanalysisdata.Usestwosimplequestionstoanswersignificantchanges:
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Palau Community BaseD Disaster risk reDuCtion toolkit
5.2STEPSINCREATINGAHAMLETEMERGENCyCOMMITTEES
Hamlet Emergency Committee (HEC)
ThefirststepincreatingaHamletEmergencyCommitteeistoobtainacknowledgementandsupportofthetraditionalleaders.TheHamletEmergencyCommitteeisthecommand,controlandcoordinatingbodyfordisasterriskmanagementactivitiesatthehamletlevel.
TherehasalwaysexistedinallthecommunitiesinPalau,abodyconsistingoftraditionalchiefs.ThebodyiscalledCouncilofHamletChiefs(“RubekulaBeluu”).ThisbodyhastheauthoritytocreateitslocalHamletEmergencyCommitteebytraditionalvirtueofitsresponsibilityforthesafetyandwell-beingofthewholecommunity.Therefore,toeffectivelyintroducetheconceptofCBDRRatthehamletlevel,therehastobeafusionfactorbringingthetraditionalandnewconceptstogether.
1. “Looking back over the last period (month, quarter, etc.) what do you think was the most significant change in the (project or program)?”
2. “Among all the changes what is the most significant change?”
part 5: building/forming and TraiNiNG a HaMlET EMErGENCy Committee5.1 intRoduction
Communitiesorhamlets,inagivenStategovernment,haveaninformalorganizationthatoverseesdisasterriskmanagementmatters.ThecurrentpracticeistowaitfortheNationalandStateGovernmentfordirectionintermsofearlywarning,evacuation,anddisasterriskreductionmeasures.PublicdisastereducationandawarenessprogramsareconductedbynationalgovernmentagenciesandNGOs,however,thesearefewandfarbetween.
Itisinthebestinterestofthecommunitytohavesuchacommitteewithinthecommunity,toundertaketheresponsibilityfordisasterriskreductionmeasuresanddisastermanagementactivities.Theobjectiveofhamletcommitteetoenablecommunitiestobecomebetterpreparedforimpendingdisastersandtobecome disaster resilient in the long term.
Plates 9: Community workshop,
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Palau Community BaseD Disaster risk reDuCtion toolkit
Plates 10: Melekeok Community workshop
5.3MEMBERSHIPOFHEC
MembershipoftheHECmayincludethefollowing:(Communityleadersmayaddordelete).
MembersofHEC:
• Fourofthehighestrankingchiefs; a.Chairpersonisthehighestrankingchief. b.Alternatechairisthesecondrankingchieforappointed. c.Thirdrankingchief. d.Fourthrankingchief.
Note:Eachofthefourchiefsmayappointtheiralternatemembertorepresentthem,iftheyareunabletoparticipate.
• Member,Presidentofthetraditionalmen’sgroup.• Member,Presidentofthetraditionalwomen’sgroup.• Member,Presidentoftheyouthgroup.• Member,ElectedrepresentativeofthecommunityorhamlettotheState legislature.• Member,FaithBasedOrganization.• Member,RedCrossRepresentative,ifany.• Member,RepresentativeofPWDs,ifany.
TheTraditionalleadersmayappointCommunityCoordinatorandaSecretaryoftheHEC.
5.4ROLESANDRESPONSIBILITIESOFHEC
TherolesandresponsibilitiesoftheHECcanbedividedintothreecategoriesaccordingtothedisasterriskmanagementphases;before,duringandafteranevent.Theseare:
1. Preparedness functions:
• Shareandacquaintcommunitydisasterriskmanagementplanwithallthecommunitymembers.• Mobilizecommunitymemberstoimplementtheplanneddisasterriskreductionmeasures.(Ureor
elBeluu).• Resourcesthatthecommunitycannotproduceoraccessonitsown.HECwillrequesttheState
Governmentforsuppliesandexpertiseasrequired.• Conductdisasterpreparednesstrainingwiththecommunitymembers.• Monitordisasterthreats,warnings,conductdrills/exercisesanddrawlessonstoimprovetheplan.
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Palau Community BaseD Disaster risk reDuCtion toolkit
• NetworkandcoordinatewithotherHECandtheStateoffice.• Engageinincreasingvisibilityandpromoteworkregardingdisastermanagementand
development-relatedissuestosupportlocalandcommunitydisasterriskmanagement.• DevelopandmaintaintheCommunityBasedDisasterRiskManagementPlanwhichincludes
EmergencyResponsePlansandDisasterRiskReductionActionPlansuchasEarlywarningplansandevacuationplans,etc.
2. Emergency Functions of HEC:
• Receiveandnotifythecommunity.• Makesmajordecisionsintermsofresponse.• Manageevacuationtosheltersordesignatedsafeareas.• Organizesearchandrescuewithcommunityparticipation.• Providefirst-aidandarrangesubsequentmedicalassistance.• Conductinitialdamageassessment(IDA)andreporttoStategovernmentauthorities.• RequestassistancefromStategovernmentand/ornationalgovernment.• Immediatelyafteraneventcoordinate,planandimplementreliefdeliveryoperationswith
responsiblegovernmentagenciesoraidagencies. 3. Recovery Functions of the HEC:
• Facilitatesocial,economic,andphysicalrehabilitationofcommunity;e.g.livelihood,traumacounseling,reconstructionofhousesandinfrastructure.
• ConductInitialDamageAssessment(IDA)andsubmitreporttotheGovernor.• Coordinatewithgovernmentandaidagenciestoreceiveassistanceinrehabilitation.• Ensurethatriskreductionmeasuresareintegratedduringthereconstructionandrehabilitation
phases.• EvaluatetheperformanceintermsofHECcapacityandeffectivenesstopromotecommunity
safetyandidentifystrategiesforfuturerecommendations.
5.5HAMLETDISASTERRISKMANAGEMENTARRANGEMENTS
ThedisasterriskmanagementarrangementsatthecommunitylevelfollowsthearrangementsillustratedintheNationalDRMFrameworkandtheStateDRMPlans.ItislogicalfortheStateandtheCommunityleveltoadoptthesearrangementsforgoverningcommitteesandoperationalcenters.
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Palau Community BaseD Disaster risk reDuCtion toolkit
nAtionAl eMeRGencY
COMMITTEE(NEC)
State emergency Committee(SEC)
HamletEmergencyCommittee(HEC)
NationalEmergencyOperationCenter
(NEOC)
Figure13:HierarchyofNationalemergency Committees
Figure14:Hierarchyof emergency
ResponseOperations
State emergency OperationCenter
(SEOC)
HAMLETINCIDENTcoMMAnd PoSt
(HICP)
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Palau Community BaseD Disaster risk reDuCtion toolkit
5.6MAJORCOMPONENTSOFTHECOMMUNITyDISASTERRISKMAnAGeMent PlAn
CommunitymemberswiththeassistanceofstakeholderswilldeveloptheCBDRMPlanandsupportingemergencyfunctionsorproceduresforthefollowing.(SeethefollowingTable13:Developingemergencyfunctions).
5.6.1 diSASteR RiSk Reduction Action PlAn
TheresultoftheCBDRRTrainingProgramwillbeincorporatedintotheDRRActionPlan.
TheresultsofStep5inthisToolKitaredocumentedandprioritizedusingtheDRRPrioritizationMatrixindicatingtheactivity,responsibleparty,priorityandstatus.Step6willguidethecommunitymembersimplementtheactivities.
5.6.2 diSASteR MAnAGeMent PlAn
ThecomponentsofthissectionofthisCBDRMareasfollows:
Table13:MajorComponents
1 early Warning System Theplanshouldindicatethesourceofthewarning,personresponsiblefordisseminatingthewarningtothecommunity,andthetoolsrequired.
2. EvacuationPlan Theplanshouldidentifyevacuationcenters,personresponsible,andspecifymainrouteandalternateevacuationroutes.
3. Shelter Management Theplanshouldidentifytyphoonshelters,personresponsible,contactnumbers,andnecessarydocumentation.
4. Medical First Aid Thecommunityshouldhaveamedicalfirstaidplanorprocedures.PRCSandMOHcanassistcommunitywiththisplanningandtraining.
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Palau Community BaseD Disaster risk reDuCtion toolkit
Figures 15. Stakeholders and other Private and Public Agencies
part 6: referenCe materialSsummary of methods and tools needed for Hazards, Vulnerability and Capacity assessment
no. methods/tools Hazards Vulnerability Capacity1. DirectObservation X X X2. Secondary data
collectionX X X
3. Groupdiscussion X X X4. Semi-structured
interviewsX X X
5. TheHazardMap X X6. TransectWalk X X X7. Historicalprofile X X X8. Ranking X X9. Hazardandseasonal
calendarX X X
10. Venn diagram (institutionalandsocialnetworkanalysis
X
11. Healthandnutritionassessment
X X
12. Livelihoodanalysis X X13. Gender resources
mappingX
14. Householdwealthranking
X
15. Problem trees method X
Table 14: Summary of methods and tools for risk assessments
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Palau Community BaseD Disaster risk reDuCtion toolkit
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Palau Community BaseD Disaster risk reDuCtion toolkit
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Palau Community BaseD Disaster risk reDuCtion toolkit
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Palau Community BaseD Disaster risk reDuCtion toolkit