SAARC Regional Disaster Management Center - A Conceptual Framework

TIFAC-IDRiM Conference 28th –30th October 2015 New Delhi, India

SAARC REGIONAL DISASTER MANAGEMENT CENTER – A CONCEPTUAL FRAMEWORK

R. K. DAVE Information Technology Research Academy, Media Lab Asia, DietY (GoI)

Abstract: The costs of coordination failures are serious in disaster response operation. Uncoordinated responses lead to inefficient use of resources and sometimes fatally, result in disaster affected persons not receiving ‘the right aid at the right time, delivered in the right way. The situation can be highly complex when international response agencies from multiple countries chip in their resources and seek lead or guidance from the host-nation, which is already developed country. Disaster might impact resources (man, material and machines) earmarked under the disaster management plan of the host nation - leaving house open for all and everyone and no one may seem to be in charge! Such situations can only be mitigated through building “regional disaster management capabilities” and practicing on regular basis with active participation from each member country. It was a farsighted move when the Heads of the Country’s/Governments at the Fifteenth SAARC Summit held in Colombo on August 2-3, 2008, decided that a “Natural Disaster Rapid Response Mechanism (NDRRM)” shall be created under the aegis of the SAARC Disaster Management Centre (SDMC), New Delhi to adopt a coordinated and planned approach to meet such emergencies. There is need to revisit SAARC’s mandate on Natural Disaster Management Rapid Response Mechanism and devise a model framework. In this paper - author discusses key aspects of regional disaster management system and suggests a strategic model. Keywords: Regional; Disaster Management, Mitigation, International relief, Coordination INTRODUCTION: SAAR covering eight nations (Afghanistan, Bangladesh, Bhutan, India, Maldives, Nepal, Pakistan and Sri Lanka) is one of the most disaster prone regions of the world. Most of the natural disasters in South Asia are rooted in the geo-physical and hydro-climatic conditions of the sub-continent that connect several countries of the region. Countries in the region share similar risks and challenges as well as the same threats inherent to climate change. There exist several agreements, networks, and structures for cross-sector and cross-border assistance in this region. The present mix of arrangements need a review for establishing mutual aid system between neighboring and other countries for effective and efficient exchange of information and resources during sever calamities to enables players with their best capabilities to quickly come-in and respond to disasters more rapidly. At the Fifteenth SAARC Summit held in Colombo on August 2-3, 2008, the Heads of the Country’s/Governments had decided that a Natural Disaster Rapid Response Mechanism

(NDRRM) should be created under the aegis of the SAARC Disaster Management Centre (SDMC), New Delhi to adopt a coordinated and planned approach to meet such emergencies. While SDMC is in process to develop a draft Agreement on SAARC Natural Disaster Rapid Response Mechanism (NDRRM), and a Standard Operating Procedure for consideration of the Member Countries, urgency to for establishing such a mechanism was attested again in the koshi/Jhelum floods in India and Nepal earthquake. The design of DM collaboration mechanism would be built keeping into consideration factors like- political, administrative, geographical, social-economic-cultural, vulnerabilities and risk, and specific “capabilities” attached with each member country.

REGIONAL VULNERABILITIES & RISKS: SAARC region is highly exposed to natural disasters. It has a history of devastating earthquakes, extreme temperature and floods, landslides, droughts, and cyclones that caused huge economic and human losses. In 2011, the region witnessed natural disasters with varying degree of frequencies and magnitude, for instance, around 291 natural disasters occurred in South Asia and constituted about 96.5% of total global natural disasters. (Source: EM-DAT: The OFDA/CRED International Disaster Database, www.em-dat.net – Universite Catholique de Louvain, Brussels, Belgium)

Figure: 1 Total Number of Natural Disasters in SA from 1960-2009 by Type of Event

Hazard exposure is primarily due to two geographic features of the region, the Himalayan mountain belt, and the coastal waters of the Indian Ocean, including the Bay of Bengal and the Arabian Sea. Flooding is the most common disaster event in the region and affects the greatest number of people. Cyclones are the second most commonly occurring hazard in the region. With over 600 million people living along the fault line across the Himalayan belt, earthquake exposure is very high. In South Asia, major population centers live on key fault lines and in coastal areas that are exposed to hazards, and exposure will increase significantly over the next 40 years. By 2050, there will be 246 million city dwellers in cyclone-prone areas in South Asia, in contrast to 160 million people in OECD countries. The urban population exposed to cyclones is expected to grow at 2.2 percent per year up until 2050. Exposure to earthquake risk will increase significantly as well. The fastest exposure growth rate in the world is in South Asia, at 3.5 percent per year (world Bank-GFDRR 2012).

In a recent Global Assessment Report (GAR), the UN International Strategy for Disaster Reduction (UNISDR) published a risk model that assesses a country’s exposure to natural disasters in terms of mortality and economic losses. A risk classification of 10 points signifies extreme mortality risk. All South Asian countries are positioned above five, with Maldives assigned an unknown classification. Bangladesh and India are classified as nine (major risk) Pakistan and Afghanistan as eight (very high risk), Nepal and Bhutan as six and Sri Lanka as five (medium risk). Table: 1 Climate Change Impacts on Natural Disasters in South Asia Country

Potential CC Impacts on Natural Disaster Scenario

Afghanistan Increased drought, glacial melt, flash floods, landslides Bangladesh Cyclones and storm surges, reduction of mangroves extent due to salinity- loss of natural barrier, heavier flooding leading to more crop loss and displacement, inundation of low lying coastal areas Bhutan Glacial lake outburst floods, increased drought episodes, landslides India Longer periods of drought, heavy rainfall leading to flash floods, increased cyclones in the Bay of Bengal, inundation of low lying coastal areas, glacial melt Maldives Sea erosion, inundation of islands with people and infrastructure, storm surges, long drought periods affecting drinking water supplies Nepal Glacial melt, reduced river flows impacting downstream water availability, landslides, floods and mudslides, Glacial Lake Outburst Floods Pakistan Increased drought, flash floods, glacial melt, reduced river flows, inundation of low-lying coastal areas Sri Lanka Increased drought, flash floods, increased cyclones in the Bay of Bengal , landslides, inundation of low-lying coastal areas

Multiple mortality risk class 0-10 (ISDR 2009) 8 9

6 9

n/a

6

8 5

(Sources: South Asia Disaster Report Special Copenhagen Issue)

While national disaster management agencies in each member country have begun to systematically, determine the causes and effects of disasters for taking mitigation measures, the capacity to respond to sever incidents remains limited with many. The South Asian Association for Regional Cooperation (SAARC) is promoting comprehensive DRM engagements. SAARC supports knowledge sharing initiatives to increase preparedness and mitigation efforts amongst all its member countries.

CONCEPTUAL FRAMEWORK OF SRDMC: Cross boarder collaboration in not new in emergency management. Collaborative efforts have been effectively used in containing infectious diseases / epidemics (HINI, SARS, H5N1, Ebola) in past by using common procedures and protocols by countries involved. 2004 tsunami triggered the concept of global warning system for all hazards with no country left out - resulting into an international agreement on disaster risk reduction at the World Conference on Disaster Reduction in Kobe, Japan, 18–22 January 2005, namely the Hyogo

Framework for Action 2005–201: building the resilience of nations and communities to disasters. While instruments like Hyogo Framework have been successful in setting up objectives and goals for each member country but how much each country could “realize” these objectives and goals - remain a question. The fact of the matter is that each country has its own priority list and there exists huge “capacity gap” between the countries as far as disaster preparedness and resilience coefficient is concerned. Looking to the local and regional variabilities, which are associated not only with hazards but also with socio-economic-cultural-geophysical and political conditions – it is strongly felt that effective regional disaster management mechanism, sensitive to local and regional needs, should be planned and established without losing sight of the global agenda on preparedness and resilience. No single global approach or solution could address regional variabilities associated with disaster management. SRDMC will address – management of regional risk information, development of common resources pools for quick deployment during emergencies, funding, operation, and management system built on a consensus on role and responsibilities of each member country. As per SAARC Regional Disaster Management Plan, SDRMC will facilitate resources when capacity of affected country gets overwhelmed. SRDMP (SAARC Regional DM Plan) will incorporate followings:Purpose The objective behind planning and development of regional disaster management plan is to provide a common platform and an institutional arrangement where SAR countries can work together to prepare, mitigate, respond, and recover from common hazards and risks that may affect them jointly or independently. Sever incidents with impact spread over multiple jurisdiction require established and tested/ exercised inter-Country emergency information and resource coordination mechanism for acquisition of resources within the region available for deployment during response and recovery efforts. Scope 1. Regional emergency resource coordination - Prior to an incident, resources are inventoried and categorized by kind and type, including their size, capacity, capability, skills, and other characteristics. Member countries will exchange information about resource assets and needs. Resource readiness and credentialing are maintained through periodic training and exercises. This also includes – identification and harnessing potential offered by structural resources viz. DM training institutions etc., established by any of the member country. 2. Regional emergency response coordination – during the onset of sever conditions or after the incident 3. Regional hazard profiling and mitigation management Institutional Arrangements: SRDMC’s organization will work in the form of a “Regional Response Coordination Group (RRCG)”, positions of which will be filled by personnel from member countries. The purpose of the RCG is to function as the regional coordinating actor to facilitate the smooth flow of resources and expertise from member countries and territories to the requesting disaster-impacted country(s). SRDMC will allow a quick response to disasters using the unique resources and expertise possessed by each of the member countries. In addition to an established and tested system for acquiring expert resources from member countries, SRDMC would also maintain and manage an inventory of resources depending on the regional hazards, vulnerability, and risks. Center would also be responsible for helping member countries on mitigation and preparedness program.

Organization – Human Resources: The basic objective behind creation and establishing SRDMC is – that response and relief resource should be deployed to any country in SAR within minimal time possible (quick response). During incidence – advance knowledge and acquaintance with demographic, topography, language and other factors of country under impact would of immense value to SRDMC. Thus, a multi-country jurisdiction SRDMC should have strategic team composed of officials from each Member Country. Representatives from different countries would bring “country specific” knowledge of local language, geography, and administrative system with them, which is extremely useful during emergency deployment. Operational team at SDRMC would, thus have representatives from each Member Countries in order to 1. Bring a sense of collaboration and partnership through actual participation 2. Provide a common platform where Inter- Country Knowledge, Skills, and abilities (KSA) would converge and shared. 3. Maximize the use of available resources 4. Reduce “resource deployment response time” 5. Provide training opportunity on inter-Country Disaster Management Plan to the official deputed on rotation on continuous basis. Member Country would depute officials (number of personnel as per the agreed policy), preferably from country’s National Disaster management agency / National Disaster response Force (NDRF), to be a part of SRDMC organization. Such deputation would last for two years and would rotate official under the mutually agreed policy. SDRMC Functions: Receiving “First Information Report” from impacted country (ies) Activating SAARC-RDMC Emergency Operation Center Running a model for estimating damages on life and infrastructures Receiving emergency resource requirements from impacted countries and acknowledging that Running a model for identifying and estimating “resource requirement “ in each of the impacted country 6. Match making of required resources with regional disaster resource list 1. 2. 3. 4. 5.

7. Confirming resource readiness with the identified assisting countries 8. Manage - mobilization , transportation and deployment of resources 9. Assist impacted countries in integration of emergency resources with local system 10. Assist impacted country in soliciting additional resources from countries other than SAARC consortium 11. Monitor the changing dynamics disaster situation and adjust resource requirement. 12. Assist impacted countries in de-commissioning of returnable resources 13. Settle all charges involved in deployment of SAARC consortium resources 14. Asset affected country in preparation of after action report highlighting lessons for SAARC-RDMC. SDRMC Activation: SDRMC will be activated as per the mutually agreed policy. Following are sample circumstances, which can trigger SDRMC activation:  When disaster or catastrophic event occurs and member country declares a State of Emergency;  During sever incidents impacting and resources demand exceed copying capacity of country involved and request is received from the impacted country  When Disaster or catastrophic event has impacted more than one Member countries  On-set of a sever disaster (cyclone or flood) – on receiving request from competent authority of member country (ies)  On receiving request from the member country’s competent authority during on-set, transit or post disaster

 On receiving request from competent authority during a planned exercise or drill  SDRMC has a planned drill or exercise locally. Resource Management:  SRDMC will have in-house inventory of specific resources  SRDMC will have updated resource repository (not older than maximum six months) of each Member country  SRDMC will have Standard Procedure for facilitating collection of resources from assisting country (ies), deployment into impacted country (ies) and demobilization of same once there is no necessity. Immediately on receiving a request from member country for emergency response and resource support – the Officer-In-Charge of SRDMC will call for a meeting of RRCG to discuss and conclude the IAP (Incident action plan). An Incident Task Force will be constituted to work on the IAP and deployed to the affected country for response coordination. Liaison & Liaison Qualification: Officers / Staff of SRDMC must possess the planning and operational knowledge of emergency management operation and the ability to identify and contact emergency support function leads for their respective country (ies). The SRDMC will immediately deploy liaison to the affected country (ies) to expedite deployment resources and facilitate coordination. Officer(s) in SRDM belonging to the affected country will invariably be assigned to undertake this task so as his/her knowledge/awareness and pre-established contacts can be put to use in overall operation management. Training: A special training program will be designed to address on SDRMC activation and functioning. The training will be mandatory for personnel are deployed at SDRMC as well as for the designated nodal officer in the member countries.

CONCLUSION Disasters are large, rapid-onset incidents relative to the size and resources of an affected jurisdiction. By definition, an event constitutes a disaster if it exceeds the capacity of the government or governments in whose jurisdiction it occurs. Very often -Dealing with disaster therefore requires outside resources. In line with the recommendation made in 15th SAARC summit, (SAARC 2008) the conceptual framework for SDRMC proposes institutional mechanism at regional level for providing assistance to affected country by either supporting or supplanting the DM activities. Accountability is the biggest challenge for outside agencies (not from the host country) conducting response operation. SAARC regional disaster management plan (SDRMP) should adequately address this issue. It is also necessary that national disaster management plan of each member country suitably incorporate procedures for requisitioning, deploying and demobilization of resources from SAARC regional disaster management center. RFERENCES: Dissanaike Tharuka - Practical Action; South Asia Disaster Report Special Copenhagen Issue, 2009 SAARC 15th Summit, Colombo, 2008, SDMC, Progress report- Implementation of Hyogo Framework for Action in the South Asian Region, 2009 USAID, Policy level workshop, setting up regional response system for SAARC region, 2015 World Bank-GFDRR, Disaster Risk Management in South Asia-an overview, 2012