Agriculture Disaster Risk Management Planning: Strategy for Loss Reduction in

Jamaica’s Agricultural Sector

5th Caribbean Conference on Comprehensive Disaster Management “CDM: Strengthening Partnerships for Resilience”

Hilton Rose Hall Resort-Montego Bay, Jamaica6-10 December, 2010

Dr. Balfour SpenceApplied Disaster & Emergency Studies Department

Brandon UniversityBrandon Manitoba

Canada

Context of Agriculture Disaster Risk Management (ADRM) Planning

ADRM Plan Development Strategy

ADRM Planning Outcome

Next Steps

Outline of Presentation

Context of ADRM Planning

• CDM planning evolution in Caribbean

• Role of Agriculture in Social and Economic development in Jamaica

• Specific vulnerability of agricultural sector

• Climate change: Changing disaster risk potential in the agricultural sector

Context: CDM Planning Evolution

National Disaster Plans

Hazard-Specific Plans

Economic sector Plans

Plans

National Disaster Risk Reduction

Policies

Context: CDM Planning Evolution–Model Plan/Model Policy Approach

• Model plan/model policy adaptation approach to DRR as part of CDM strategy

• Facilitate and expedite disaster readiness in CDEMA-PS

• Greater uniformity in DRM process among PS

• Regional commonality in socioeconomics of agriculture

• Discussion of ADRM planning process in Jamaica can facilitate model plan process for agricultural sector among CDEMA-PS

Context: Role of Agriculture in Socio-economics - Jamaica

0

5

10

15

20

25

GDP

Lab.Force

• Declining GDP contribution

• 2nd Highest employer of labour

• Indispensable to livelihood profile

• Compelling rationale for ADRM Plan

Context: Specific Vulnerability of Agricultural Sector

Physical & social vulnerability in Agricultural sector

• Physical – Hydro-meteorological hazard exposure, impact, riskFloods

DroughtHurricanes

• Social – Livelihood vulnerabilities

Specific Vulnerability - Hurricanes

Total Loss

Dom Crop

Exp Crop Lvestock Fisheries0

1000

2000

3000

4000

5000

6000

7000

8000

9000

Hurricane -related losses in Agriculture since 2004 - J$Mill.

IvanDenis/EmiDeanGustav

Loss Categories

J$M

illio

n

Specific Vulnerability: Agricultural Impacts of Flooding since 2001 (J$mill)

Context: Links to Existing National and International DRR & Development Strategies

National Strategies• Jamaica National Disaster

Plan (1993)

• Jamaica National Hazard Mitigation Policy (2005)

• Jamaica National Food security Programme

• Jamaica National School Garden Programme

International Initiatives• Millennium Development

Goals (MDGs)

• Hyogo Framework for Action (HFA)

• International Strategy for Disaster Risk Reduction (ISDR)

ADRM Plan Development Strategy

Pre-plan Phase• Establishment of national focal point for plan

development – Rural Agriculture Development Authority (RADA)

• Establishment of Plan Development Committee (PDC)- spearhead plan development, provide technical and operational oversight/back-stopping

• Additional oversight/back-stopping from funding agency- UN-FAO

ADRM Pre- Plan: Composition of PDCOrganizations Functions

Ministry of Agriculture and Land – RADA, Fisheries Division, Data Bank & Evaluation, Commodity entities, 4-H Clubs, Forestry Department

Policy, regulations, research , data management, agricultural extension, rural agricultural development, insurance, project management

Office of Disaster Preparedness and Emergency Management (ODPEM)

Disaster Management and Coordination

Jamaica Agricultural Society Farmer mobilization

Jamaica Livestock Association Supply distribution, livestock issues

Agricultural input Suppliers Supply Distribution

College of Agriculture, Science and Education Education, research, community outreach

National Works Agency Preparedness, recovery

Jamaica Defence Force Aerial reconnaissance, search & rescue, disaster recovery

Food and Agricultural Organization Technical assistance, funding

Inter-American Institute for Cooperation on Agriculture Technical assistance, funding

Meteorological Office Meteorological data

ADRM Pre-plan: Consensus on Hazard Specificity of ADRM Plan

• Hydro-meteorological hazards: hurricanes (strong winds); floods, droughts

• Epidemiological hazards – crops and animal infestations

• Other hazards to be incorporated at later stage

ADRM Pre-Plan: Agricultural sub-sectors in ADRM Plan

1. Domestic cash crops2. Coffee3. Sugar cane 4. Banana5. Livestock including poultry 6. Aquaculture and marine fisheries7. Apiculture

ADRM Pre-plan: Generation of Baseline Data

• Plan is premised on parish-focussed implementation strategy

• Baseline data collection focus and impact assessment parish targeted

• Template matrices circulated to capture basic baseline info

• Template baseline profile/parish

• Baseline data focused on targeted agricultural subsectors

Example of Subsector Baseline Data Matrix – Domestic Cash Crops

Parish Arable Area Total Area DCC #DCC Farmers

Portland

St Mary

St Ann

Trelawny

St James

Hanover

Westmoreland

St Elizabeth

Manchester

St Catherine

Kingston & St Andrew

St Thomas

Pre- plan: Audit of Pre-ADRM Initiatives in Agricultural Sector

Pre-ADRM Responsibilities of Ministry of Agriculture:• Response readiness• Damage assessment/Data gathering• Transportation• Public cleansing and disposal of dead animals• Rehabilitation• Assess agricultural damage and needs in association with the

NEOC and damage survey team• In association with the NEOC, assist with the coordination of all

counter measures needed to control or eradicate the outbreak of any exotic animal or plant disease

• Organize relief measures, in association with the NEOC, for any situation which has a significant effect on animal welfare

Pre-plan: Agricultural Good Practice Identification

Attributes Description

Name Guinea Grass Mulching

Historical aspect Long established in southern St. Elizabeth

Hazard applicability Drought moisture deficit

Environmental Suitability Flat sloping land in moisture-deficit agro-ecological zones

Farming scale applicability Small scale (,10ha.)

Input needs Reliable source of abundant Guinea Grass (approx. 60)

DRM Good Practice in Agriculture-Jamaica

ADRM Plan Development Outcome: Link to National Organizational Structure for DRM

National Disaster Risk Management Structure (Administrative)

Prime Minister Cabinet

Office of Disaster Preparedness and Emergency Management

National Disaster Committee

Health Sub-committee

Admin. & Finance

Sub-committee

Welfare, shelter and Clearance Sub-committee

National Disaster Executive

Public Info. Sub-committee

Emergency Operations

Sub-committee

Damage Assessment Sub-committee

Parish Disaster Committee

Parish Disaster Executive

Regional Disaster Coordinators

NGOs PVCs Regional & International Agencies

Outcome- Link NDRM Operational

National Disaster Risk Management Structure (Operational)

Prime Minister

Director ODPEM

NEOC

Parish EOC’s

Ministry & Agency EOC’s Field Teams, Parish, National

Outcome: Proposed Institutional Framework and Implementation Mechanism for ADRM Plan

Proposed Institutional Framework for ADRM

Ministry of Agriculture

RADA

NDRM Committee & sub-committees

PDCs

NADRM Unit

NADRM Committee

PADRM Committees

NGO & Civic Groups

Outcome: Proposed Operational Structure of NADRM

Operational Structure National Agriculture Disaster Risk Management

Field Teams (National & Parish

Minister of Agriculture

NEOC

PEOC

Chair NADRM Committee (RADA Exec

Director)

NAEOC

Chair PADRM Committee (RADA Parish

Manager)

PAEOCs

Outcome: Plan Development Phase

Mitigation, Prevention Preparedness

Livelihood protection

Food security

Agricultural insurance

Rationalization of early warning Systems (EWS)

Streamlining of primary roles and functions of relevant organizations

Hazard Activity Relevance to

ADRM

Benefit Primary

Responsibility

Secondary

Responsibility

Hurricane

1.Conduct wind velocity analysis

Provides data on spatial pattern of wind impact

Informs land use rationalization

Meteorological Services

Research and private interests

2 Conduct wind velocity mapping

Identifies land use risk

Informs land use rationalization

Meteorological Services

Research interests

3. Conduct surge mapping

Identifies agricultural land use at risk

Promotes Land use rationalization, inform mitigation

ODPEM/Geological Surveys

Research interests

Floods

1.Conduct riverine and non-riverine flood mapping

Identifies vulnerable agricultural lands

Facilitates land use rationalization, inform mitigation

Water Resources Authority

Landslides

1. Conduct landslide vulnerability mapping

1. Identifies vulnerable agricultural areas

2. Facilitates agric. Land use rationalization

3. Informs Mitigation strategies

1. Facilitates landslide mpact reduction

2. Facilitates soil loss reduction

3.Prevents road closure prevention

Geological Surveys Division

Research interest, National Works Agency

2. Conduct landslide zonation

1. Identifies agricultural areas at risk to landslides

1. Facilitates prioritization of mitigation intervention

Geological Survey Division

Research interests

Drought

1. Conduct drought prediction & mapping

1. Identifies drought-prone agric zones

1. Facilitate land use rationalization

2. Informs drought mitigation strategy

Water Resource Authority

. National Irrigation Commission, Meteorological Services

Bush Fires Conduct fire potential analysis

Informs fire prediction & mitigation

Informs mitigation and response to bush fires

1. Dept. of Forestry RADA, Jamaica fire Brigade

Crop Infestation

Conduct crop disease monitoring

Informs disease prediction and mitigation

Promotes crop loss reduction

RADA

Livestock infestation

See Emergency Animal Disease Preparedness Plan: A Manual for Jamaica

Outcome: Agricultural Land-use PlanningHazard Activity Relevance to ADRM Benefit Primary

Responsibility

Secondary

Responsibility

Hurricane

1.Commence measures to integrate wind vulnerability in agric. land use planning

Promote rationalization of land use in relation to hurricanes

Reduce agri. damage from hurricanes

RADA, RPPU

Commodity Associations, JAS

Floods

1.Commence measures to integrate flood vulnerability into agric. Land use planning

Promote rationalization of agric land use in relation to floods, informs appropriate crop selection, improved cropping systems and cultivation methods, adjustment of cropping calendars, sustainable water management

Reduce agric loss from flooding

RADA, RPPU Commodity Associations, JAS

Landslide Commence measures to integrate landslide vulnerability into agric. land use planning on steep slopes

Promote agric. land use rationalization in relation to landslide, informs appropriate crop selection, improved cropping systems and cultivation methods, adjustment of cropping calendars, sustainable water management

Rationalization of land use on steep slopes, soil loss reduction, slope stabilization, flood reduction,

RADA, RPPU Commodity Associations, JAS

Drought Commence measure to integrate drought vulnerability into agric. land use planning

Promote agric land use rationalization in relation to drought, informs appropriate crop selection, improved cropping systems and cultivation methods, adjustment of cropping calendars, sustainable water management

Reduce agric. loss to drought, sustainable food production

RADA, NIC, RPPU

WRA, MET.

Bush Fires Commence measure to integrate bush fire vulnerability into agric. land use planning

Promote agric land use rationalization in relation to bush fires, informs appropriate crop selection, improved cropping systems and cultivation methods, adjustment of cropping calendars, sustainable water management

Reduce agric. loss to bush fires, sustainable food production

RADA, Forestry Department

Commodity Associations, JAS

Crop Infestation

Commence measures to map spatial patterns of crop infestation

Build predictive element into crop infestation, informs appropriate crop selection, improved cropping systems and cultivation methods,

Reduce agric. loss to crop infestation, sustainable food production

RADA

Livestock Infestation

See Emergency Animal Disease Preparedness Plan: A Manual for Jamaica

Outcome: Education and Awareness PromotionHazard Activity Relevance to

ADRM

Benefit Primary

Responsibility

Secondary

Responsibility

Hurricane Educate farmers and youths on the role of hurricane DRM in agric. sustainability and livelihood improvement

Target schools and youth groups in the promotion of ADRM in relation to hurricane

Reduction of current and future disaster risk in agric.

Promotes sustainability of ADRM initiatives

Reduced agric. loss reduction

Sustainable benefits of ADRM initiatives

RADA, 4-H Club, ODPEM

All Agricultural stakeholders

Floods Educate farmers and youths on the role of flood risk management measures in agric. Loss reduction

Promotes knowledge management for DRM in the agric. sector

Reduced agric. loss reduction

Sustainable benefits of ADRM initiatives

RADA, 4-H Club, ODPEM

All Agricultural stakeholders

Landslide Educate farmers and youths on the role of landslide risk management measures in agric. Loss reduction

Promotes landslide knowledge management for DRM in the agric. sector

Reduced agric. loss reduction

Sustainable benefits of ADRM initiatives

RADA, 4-H Club, ODPEM

All Agricultural stakeholders

Drought Educate farmers and youths on cost effective drought management measures and their role in DRM

Facilitate drought management for ADRM

Promote more reliable crop and livestock production

RADA All Agricultural stakeholders

Bush Fires Provide farmers with information on measures to manage bush fire risk

Refer to National Fire Management Plan 2002

Integrate management of bush fire risk into overall ADRM

Reduced agricultural loss from bush fires

RADA, Forestry Dept,

ODPEM

Crop Infestation

Continued advancement of strategies for reducing crop infestation

Facilitate dissemination of crop infestation information for ADRM

Containment of crop infestation, improved crop production

RADA

Livestock Infestation

See Emergency Animal Disease Preparedness Plan: A Manual for Jamaica

Outcome: Livelihood ProtectionHazard Activities Relevance to

ADRM Benefits Responsible

Organizations

Hurricane Promote and expand use of movable seed trays for seedlings

Facilitates timely recovery following impact

Agricultural business continuity

RADA, other agricultural stakeholder

Promote and expand greenhouse technology

Reduce impact loss

Facilitate agric. business continuity

Loss reduction RADA, other agric. stakeholders

Promote and expand tree-top management initiative

Reduce impact loss and recovery costs

Income improvement, improved production

RADA, other agric. stakeholders

Initiate programme for agricultural windbreaks

Impact loss reduction Recovery cost reduction RADA, Forestry Dept.

Revive mini-sett technology Recovery cost reduction in yam-growing areas

Reduce environmental impacts from yam-stick harvesting

RADA

Promote and expand planting of dwarf tree crop varieties

Reduce impact loss and recovery costs

Recovery cost reduction RADA

Initiate design and use of shelter for small livestock -including bees (Cuban model)

Impact loss reduction Recovery cost reduction RADA, other agric. stakeholders

Expand campaign for securing irrigation equipment

Impact loss reduction Recovery cost reduction RADA, NIC

Initiate design of facilities/plan for securing marine fishing equipment

Impact loss reduction Recovery cost reduction Fisheries Division

Promote good practice for oxygen-level control of fish ponds

Impact loss reduction Recovery cost reduction RADA

Enforce measure to combat praedial larceny – especially in relation to aquaculture

Impact loss reduction Recovery cost reduction RADA, National Security

Promote bilateral collaboration for livelihood protection – E.g. with Cuba

Impact loss reduction Recovery cost reduction MOA, Foreign Affairs

Promote diesel/solar-powered refrigerated storage facilities

ditto Savings/extended earnings PMOs, JAS, other farmer groups

Floods See Tables on good practice promotion

Landslides See Tables on good practice promotion

Drought See Tables on good practice promotion

Bush See Tables on good practice promotion

Outcome: Agricultural Insurance

• 2008 Government of Jamaica requested support from World Bank to design and implement country strategy for managing weather risk in agricultural sector.

• First step - conducting pre-feasibility study on agricultural Weather Risk Management (WRM) within agricultural sector

• WRM - assist insurers to design insurance products at farmer level and as a tool for donor intervention

Outcome: Emergency Response - SOP for ADRM Plan

• Principal objective of SOP - delineation of authority, roles and procedures during emergency phase of DRM.

Outcome: SOP Steps, Actions and Responsibilities for ADRM

SOP

Stages

Action Personnel/Organization Responsible

1 Declaration of emergency state ODPEM

2 Convene NADRM Committee Chair, NADRM Committee (RADA Exec Director)/PS Agriculture

3 Instruct convening of PADRM

Committee

Chair, NADRM Committee

4. Convene PADRM Committee Chair , PADRM Committee (RADA Parish Manager)

5 Activate NAEOC Chair, NADRM Committee (RADA Exec Director)/

6 Instruct activation of PAEOC Chair, NADRM Committee (RADA Exec Director)/

7 Activate PAEOC Chair , PADRM Committee (RADA Parish Manager)

8 Activate livelihood protection measures Chair , PADRM Committee (RADA Parish Manager)/ EA Officers/Farmers

Outcome: SOP Steps, Actions and Responsibilities for ADRM cont’d

9 Mobilize livelihood impact assessment teams RADA Parish Manager, EA Officers

10 Collect impact assessment data Impact assessment teams/ EA Officers

11 Transmit impact data to PAEOC Impact assessment teams/ EA Officers

12 Analyse impact data PADRM Committee/PAEOC

13 Transmit impact information to NEOC via NAEOC RADA Parish Manager

14 Brief media on national impact /NEOC/PAEOC

15 Advice NEOC on agric emergency response needs PAEOC

Outcome: Recovery and Rehabilitation

Informed by effectiveness of measures and activities implemented for mitigation, prevention, preparedness and emergency response as well as recovery and rehabilitation strategy.

Efficiency of rehabilitation/recovery - function of reliability of damage assessment process that informs short-term flash appeals and more long term interventions for rebuilding livelihoods.

Outcome: Damage and Loss Assessment

Damage and loss assessment in Jamaica’s DRM ad hoc Recent emergence of more comprehensive and standardized approaches.

E.g. ECLAC damage assessment approach and Livelihood Assessment Tool-Kit developed and published by FAO/ILO.

Livelihood Assessment Tool-Kit being adopted for ADRM planning in Jamaica.

Broad-brush international focus.

More tailored manual for effecting damage and loss assessment in the agricultural sector is being developed as a part of this ADRM Plan.

Outcome: Damage and Loss Assessment cont’d

• Number of short-term measures are proposed to effect immediate damage and loss assessment needs

• RADA with support from the FAO commenced training cadre of institutional and parish-level personnel to undertake livelihood impact assessment related to disasters

• Effectiveness of this exercise contingent on its integration with the decision-making structure for DRM that is proposed

Outcome: Needs Assessment for Recovery

Envisage two-tiered approach to needs assessment for recovery will emerge from the livelihood impact assessment approach being implemented for ADRM.

Tier 1: Flash Appeals – coordinated and prepared by parish level decision-makers to effect immediate recovery needs and following the format proposed in the LAT/Livelihood Assessment Manual. Synthesizing of these parish flash appeals into a national flash appeal for the agricultural sector should be mandated to the NADRM Unit.

Tier 2: National Agricultural Sector Need – coordinated at the national level to reflect more long-term recovery and rehabilitation needs. This activity should fall within the portfolio of the NADRM Unit.

Outcome: Preparation of Agricultural Recovery and Rehabilitation Strategy

A critical aspect of the recovery/rehabilitation component of the ADRM Plan is the preparation of a recovery and rehabilitation strategy.

This strategy must be informed by the needs assessment process as well as the unique requirements of the specific hazard impact.

Generally though, the strategy must relate the guidelines of the flash appeal as well as national agricultural sector needs and be implemented within the context of the ADRM structure for the agricultural sector.

The NADRM Unit should have responsibility for coordinating the strategy.

Monitoring and Evaluation

• Effectiveness of ADRM based on the extent to which set ADRM targets are achieved within specified timeframes.

• NADRM Committee to initiate deliberations on timelines for implementation of the mitigation, prevention, preparedness, emergency response and recovery/rehabilitation measures proposed in this Plan

Monitoring and Evaluation Framework

• Timelines for targets of the ADRM Plan coincide with existing international and national development frameworks and actions that are pertinent to ADRM.

• Monitoring and evaluation framework coincide with the proposed ADRM structure and responsibilities.

• Achievement of ADRM objectives unlikely to be spatially uniform- two-tier approach to monitoring and evaluation proposed:

Next Step….

Development of comprehensive ADRM Implementation strategy that Incorporates Climate Change

considerations

Thank You!