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Pakistan

Community Based Disaster Risk Management:

Towards Risk-informed DEVELOPMENT

CBDRM Learning Document

UNITED NATIONS DEVELOPMENT PROGRAMMEISLAMABAD, PAKISTAN

Pakistan

Published under DRR in Pakistan ProjectCrisis Prevention Recovery UnitUnited Nations Development Programme, 4th floor, Serena Business Complex, Khayaban-e-Suharwardy, Sector G5/1, P.O. Box 1051, Islamabad, PakistanTel: +92-51-835 5600 +92-51-835 5600Fax: +92-51-2600254-5www.pk.undp.org

AuthorDr. Hyungguen Park, DRR and Resilience Research Officer, DRR in Pakistan Project

Technical Advisor Muhi Usamah, PhD, DRR specialist, DRR in Pakistan Project ManagerNaeem Iqbal, National Project Coordinator, DRR in Pakistan Project

Place and date of publication Islamabad, December 2015Front Cover PhotoCBDRM Process in Tharparkar, Sindh, Root for Work Foundation.

“All rights are reserved. No part of this book may be reproduced by any means without written permission from UNDP. Reproduction for non-commercial purposes is permitted provided the source is properly referenced.”

Copyright © UNDP 2015

COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT i

Foreword

Disasters and climate change disproportionately the discourse and practice of CBDRM which remains a affect the poor and vulnerable communities, not just critical pillar of our approach to community resilience in terms of loss of lives but also in term of damages to and risk-informed development. The Learning Report social, physical and financial assets. Communities are on CBDRM: Towards Risk-informed development is now increasingly challenged to live with uncertainty, timely and promising as it aims to link the global ambiguity and unpredictability, especially due to discourse on disaster risk and development with the climate change. local context of Pakistan. We hope that it will be a

useful tool to promote coherence and maintain the Given the altering nature of disaster risk, we need to momentum of our commitment to building the complement national and sub-national efforts with resilience of the Pakistani society. We acknowledge localized preparedness and response capacities if we the commitment and support of our CBDRM partners are to prevent or minimise losses and damages. The including the NDMA, PDMAs, NGO partners, Sendai Framework for Disaster Risk Reduction and communities and the Embassy of Norway. We look the Sustainable Development Goals also emphasise forward to building upon the lessons learnt on the integration of traditional and new practices to presented in the report and would welcome your reduce disaster risk. comments and feedback.

A key pillar of UNDP's approach to DRM focusses on supporting the national and provincial authorities (NDMA and PDMAs) to empower and strengthen local communities to further risk-informed development. In my recent visits to Chitral, which was Marc-André Franche worst hit by the double disasters of floods and Country Director earthquake this year, it struck me how important it is to enable the communities' to adapt to the various hazards and risks facing them and be prepared to manage the impact of various disasters and crises. Despite the devastating impacts of the recent disasters, the communities in Chitral were able to use their traditional knowledge and wisdom as well as the scientific knowledge and methods to withstand the impact of the disasters and quickly begin the recovery process.

Our work on Community Based Disaster Risk Reduction supports the communities to identify disaster risks and hazards and deploy low-cost adaptation solutions, undertake risk-informed development and be better prepared for disasters. This publication presents the lessons learnt from the pilot phase of our work on CBDRM and fills a gap in

Preface

The social and environmental interface is rapidly through which the devastating impact of disaster and changing over the globe; and the socio-ecological delayed development mutually exacerbate the changes are characterised by uncertainty, threshold vulnerability of Pakistan. As part of this endeavor, and cascading effects and non-linear dynamics. In UNDP has launched a three year CBDRM project (2014 addition, the difficulty of translating scientific to 2017). This project regards CBDRM as one of critical information of the changes into social knowledge entry points of risk-informed development, as challenges local communities at multiple risk. Along opposed to other CBDRM works with a pure technical with structural changes such as globalisation, focus. Differently put, the UNDP CBDRM work identify urbanisation, migration and demographic change, and address local needs in a wider development climate change will add further complexity to the context.already intricate pattern of environmental hazards.

This learning report on CBDRM presents key lessons Amidst growing concern over the complex risk of learnt from the pilot CBDRM phase undertaken from environmental hazards, the Sendai Framework for October 2014 to January 2015. Informed by critical Disaster Risk Reduction and other cognate global conceptualisation of CBDRM, the report develops policies such as SDGs have emphasised the critical analytical frameworks (i.e. CBDRM cycle and need of a paradigm shift towards risk-informed discursive change) to shed light on the process by development. Pointing out the importance of the which various ideas and practices coevolve to reclaim paradigm shift may appear redundant; but the the space of DRR in the public sphere. In the end, modus operandi, policy tools and initiatives to active participation of a wider group of stakeholders achieve the vision should go hand in hand with and strong partnerships will have to be ensured to rigorous analyses of political landscapes and existing translate the concept of risk-informed development institutional arrangements at a national level and into concrete action and initiatives in local contexts of below. Pakistan.

In the last decade, the impact of disasters in Pakistan This report is intended for students and practitioners has been devastating; 59 disasters, triggered by of DRM, policy makers, other UN agencies and local different types of natural hazard have affected over leaders. The development of this report is part of a 50 million people with damages and loses estimated learning process for ongoing UNDP's CBDRM at 25.5 billion US$ and 80708 fatalities respectively. initiative in Pakistan. Key lessons were learnt from Some had been notably catastrophic, such as the continuous dialogues with partners and other UN 2005 earthquake that killed 73338 people and caused agencies, without which this report would not have 5 million homeless and the floods in 2010 and 2011 been produced. The author thanks to these partners with losses estimated at US$ 9.5 billion and 2.5 billion including, but not limited to, 30 partner communities, respectively. Thus the disasters have destroyed much implementing partners, NDMA and PDMA as well as of the development gains Pakistani society had UN Women. Last but not least, without support and attained; not to mention many other non-episodic guidance of colleagues at DRR in Pakistan team, this hazards that have thwar ted various local learning report would not have been completed.development initiatives.

Hyungguen Park, PhDUNDP has been at pains of breaking the vicious cycle DRR Research officer

COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENTii COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT iii

Contents

ForewordPrefaceFigures, Tables and BoxAcronyms and abbreviationKey messages

1. Introduction2. CBDRM in Pakistan

2.1. Key ideas of CBDRM2.2. NDMP framework of CBDRM2.3. UNDP initiatives of CBDRM in Pakistan

3. Objectives of the pilot project4. Lessons, emergent challenges and missing opportunities5. Findings and recommendations

AppendicesAppendix one

iii

iiiivv1224568

212626

Figure 2.1. Discursive space transformed by disaster and CBDRM processFigure 2.2. CBDRM frameworkFigure 3.1. Sites for pilot CBDRM in PakistanTable 4.1. Learnings from the application of the NDMP framework of CBDRMBox 5.1. 2015 Floods in Chitral: local voices of the impacts of CBDRM

3478

22

Figures, Tables and Box

COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENTiv COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT v

AC Assistant CommissionerADPC Asian Disaster Preparedness CenterBOQ Bills of QuantitiesCBDRM Community Based Disaster Risk ManagementCBO Community Based OrganisationCCA Climate Change AdaptationCO Community OrganisationCRPs Community Resource PersonsCRRT Community Rapid Response TeamsC&W Civil and WorksDDMA District Disaster Management AuthorityDDMO District Disaster Management OfficeDDMU District Disaster Management UnitDRR Disaster Risk ReductionDRM Disaster Risk ManagementERT Emergency Response TeamFATA Federally Administered Tribal AreasGIS Geographic Information SystemHFA Hyogo Framework for ActionIPCC Intergovernmental Panel on Climate ChangeKPK Khyber PakhtunkhwaNDMA National Disaster Management AuthorityNDMP National Disaster Management PlanNGO Non-Governmental OrganisationPDMA Provincial Disaster Management AuthorityPRA Participatory Rural AppraisalPWDs People with DisabilitiesSFDRR Sendai Framework for Disaster Risk ReductionSAR Search And RescueSREX Special Report on Managing the Risks of Extreme Events and Disasters to Advance Climate

Change AdaptationUNDP United Nations Development ProgrammeUNFCCC United Nations Framework Convention on Climate ChangeUNICEF United Nations Children's FundUNISDR United Nations International Strategy for Disaster ReductionUNWOMEN Also known as United Nations Entity for Gender Equality and the Empowerment of WomenVCA Vulnerability and Capacity AssessmentVDMC Village Disaster Management Committee

Acronyms and Abbreviation Key Messages

Ÿ CBDRM can be taken as one of entry points of risk- participation in training. Women tend to be informed development. generally excluded from core activities of CBDRM,

for example, the decision making process of Ÿ CBDRM initiative ought to take into consideration identifying and implementing mitigation

a local political landscape and power relations structures. Quite evidently, however, failure of within communities in which core decisions are addressing gendered impacts of environmental made in the presence of inequality of different hazard has negative effects on welling-being of types. wider community members.

Ÿ Participation of groups and communities from different backgrounds itself can be a first step towards enhancing social cohesion for addressing a wider range of structural issues of development.

Ÿ Local needs on CBDRM cannot be properly grasped without consideration of how they are socially, politically and culturally expressed as well as why they continue to fail to be dealt with within the existing social settings.

Ÿ The local production of tailored risk information through CBDRM processes can be conducted in light of wider participation and contribution of local people as well as their local memories and traditional knowledge.

Ÿ Findings of the pilot project suggest that CBDRM can trigger a wider societal change as it originally aims to encourage critical consciousness and self-confidence of the local people in coping with disaster risk.

Ÿ Ideational and behavioral changes brought about by CBDRM become more visible when actual disasters occur to question the nature of local resilience against known and unfamiliar hazards.

Ÿ Women are core stakeholders with critical agency to take action on their behalf in different phases of DRM and development governance. Nonetheless, their participation tends to be limited to

COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT 1

1. Introduction

Over the last decade, Islamic Republic of Pakistan of building codes for (non-) engineered construction in (hereafter, Pakistan) has severely suffered from a series of Pakistan in light of multiple disaster riskrecurring disasters triggered by multiple hazards such as flood, drought, earthquake, and landslide. According to Implementation of the activities in these key areas has the UNDP Human Development Report (2014), Pakistan ensured to create a synergy effect, alongside multiple also faces a myriad of development challenges: the lack of stakeholder approach and thematic integration of

4basic public services and social protection, gender practices. Accordingly, UNDP Pakistan launched a CBDRM inequality, maternal mor tal ity, environmental pilot phase in 30 villages in three provinces (KPK,

1degradation and so forth . These development challenges Balochistan and Sindh) from September 2014 through are also linked to non-episodic, yet severe hazards to cause 2015. This report presents key reflections and lessons on day-to-day disasters (e.g. the lack of drinking water, poor the findings of the pilot project.hygiene and epidemics). In addition, research institutes such as Germanwatch consider Pakistan as one of most That said, spreading lessons and good practices of CBDRM

2vulnerable countries to the impacts of climate change. across different systems and scales is not without challenges. This is so because the ways that disasters are

Indeed, the above three pillars of practice and discourse triggered, experienced, politicized and memorized greatly (natural hazards, climate change risk and sustainable differ relying on local history and contexts. Simply put, it is development) should go together if each pillar is to worth questioning how far lessons drawn from particular

3 cases with contextual specificity can inform CBDRM for succeed; and evidently Pakistan is no exception. In wider at-risk communities. The success of learning for response to the complex challenges of disaster risk, and CBDRM also depends on the type of governance system based on the vast experience of undertaking risk-and public-private partnerships in place. In this regard, this informed development across 60 countries since 2005, report should be regarded as part of an ongoing learning UNDP has supported the establishment of the Sendai process, not a panacea for disaster risk challenges in framework for Disaster Risk Reduction (DRR). Informed by Pakistan.this corporate-wise endeavor, UNDP DRR in Pakistan team

formulated 2014-2017 UNDP DRR Support Strategy. In This learning report begins by discussing key ideas, pursuit of a holistic approach to building disaster contexts and the NDMP framework of CBDRM in Pakistan. resilience of Pakistan, three focal support areas were Then the objectives of the CBDRM pilot project will be programmed in the strategy as follows.briefly discussed to underline the necessity of more specific and measurable objectives. In Section 4, the report Ÿ Institutional development support to DRM authorities presents key findings of the pilot phase. In Section 5, the at national, provincial and district level report presents several suggestions by which future Ÿ Support to community resilience building for at-risk CBDRM projects can gain more accountability and communities through CBDRM initiativeseffectiveness in Pakistan.Ÿ Technical support to the development and application

Community Based Disaster Risk Management: Towards Risk-informed development

1. See http://hdr.undp.org/sites/default/files/hdr14-report-en-1.pdf 2. See http://germanwatch.org/en/download/10333.pdf 3. Schipper, Lisa, and Mark Pelling. "Disaster risk, climate change and international development: scope for, and challenges to, integration." Disasters 30.1 (2006): pp.

19-38.4. A community can be defined by geographical proximity, shared experience, and sector. This learning report adopts ADPC's definition of a community as referring

to individuals and groups who are exposed to common hazards due to their proximate living location. For more understanding of a community in terms of CBDRM, see http://www.adpc.net/pdr-sea/publications/12 handbk.pdf.

8. Often, this can happen when taken-for-granted ideas, orthodox causal beliefs and vest-interests are strongly upheld by existing discursive alliances in place.9. There is no assumption of who will raise critical consciousness first and whether it would happen of or against one's will. Of importance is the roles played by a

CBDRM process that trigger change in risk perception and ways of grasping realities of risk construction.10. One United Nations Programme (phase one – 2009-2012, phase two – 2013-2017) is part of global UN reforms by which different UN agencies with their strengths

and expertise work together to bring about more effective and efficient development outcomes. See http://www.un.org.pk/?page_id=194

COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT2 COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT 3

another type of external humanitarian aid to communities 2.1. Key ideas of CBDRMpost-disaster. Moreover, it often ends up to be planned and implemented in the absence of considering ongoing In global negotiations and implementation of Disaster and expected changes of wider and deeper social and Risk Management (DRM), CBDRM has been considered as a political structures. This said, the necessity and modus crucial process by which to address (local) realities of operandi of CBDRM differ relying on the nature of society disaster risk. It is an alternative paradigm, approach and (e.g. conservative, progressive, liberal or authoritarian), strategy to the previously dominant, technocratic DRM under which communities co-evolve with environmental approach. The latter often failed to factor local needs and changes. Thus there is a continuing possibility that CBDRM priorities on DRR/DRM into a wider process of can be semantically and empirically mislead and development. Even if it has ceased to be openly and misinformed. The pilot project finds this to be the case in exclusively supported, however, the top-down approach many of the target communities for the pilot phase; it is is still preferred – either intentionally or inevitably – for necessary to clarify the basic rationale for CBDRM.governments with few experience of deliberative

democracy and stable economy. At issue is if society in The need for external intervention to communities often question has a functioning institutional infrastructure for arises when the risk of natural and manufactured hazards the planning and implementation of CBDRM. overwhelms their existing adaptive capacity and local institutional and physical resources. In this learning report, CBDRM has originally emerged as differing reflections on CBDRM is not narrowly defined as a one-off training event; the orthodox, top-down, technocratic, and engineering-rather, vertical and horizontal cooperation to secure a oriented DRM policy, as well as the sociopolitical discursive space in which potential stakeholders structures in which the latter approach is favored to focus altogether make material and institutional contribution to on addressing symptoms (i.e. damages and losses), not enhancing local resilience against multiple hazards. underlying drivers of disasters (see, for example, O'Brien et

5 Evidently local governments (particularly Lower Dir, al., 2006). Tharpakar, and Chitral) are attentive to the issue of DRM, albeit with a lack of resources and expertise to fulfill it.Heijmans (2009) ably deconstructs hitherto CBDRM

traditions to trace their origins since the 1970s: home-6 Figure 2.1 below illustrates that a CBDRM process is grown versus international community-led (or UN-led).

analogous to a disaster in a way that transforms a pre-Importantly, CBDRM is premised on such core values as disaster discursive space. Within the pre-disaster space, it participation and inclusiveness that even the most is assumed that: 1) Discourse on livelihoods and economic underrepresented groups are assured to make growth predominates the public discourse while the issue contribution to the whole process; rather than remained of disaster is rarely addressed; and 2) There is a strong as mere recipients of external aids. Thus, it aims to make tendency for the issue of disaster risk to be dealt with in sure of local concerns and ideas to be voiced at different isolation. Differently put, links between different themes phases and scales of DRR as well as development

7 and practices from which structural mechanisms of risk governance. construction can be grasped are less visible, if existent, in

Yet, CBDRM is often deceptively seen as connoting the pre-disaster public sphere.

2. CBDRM in Pakistan

5. O'Brien, G., O'Keefe, P., Rose, J. & Wisner, B. 2006. Climate Change and disaster risk management, Disasters, 30, 64-80.6. Heijmans, A., 2009. The Social life of community-based disasrer risk reduction: Origins, Politics and Framing.7. The pilot phase has placed particular attention to the vulnerability of women, the elderly and the disabled. The validity of findings related to the issue of gender

was further crosschecked though an informal meeting with UN Women (4, May, 2015).

Figure 2.1. Discursive space transformed by disaster and CBDRM process

Pre-disaster and pre-interventiondiscursive space

Newly shaped discursive space

CBDRM process

Disaster

Source: Author. Notes: 1. Each circle refers to a public discursive space in which ideas are formed, delivered, mediated and negotiated; 2. Change in a size of space indicates

change in the volume, regularity and significance of existing and new values to be addressed; 3. Overlaps denote that previously invisible, yet existing linkages among different human realms emerge as critical dimensions for research and project on disaster risk, and in particular roles and responsibilities of different stakeholders of CBDRM can be articulated 4) this model can be applied to different scales of governance system (from village to global).

In the newly shaped space, however, not only existing but and insufficient access to resources might become more also newly emerging values as well as their relationships visible requiring policy priority and support at the level of

9 are reconfigured altogether presenting new realities. In project and programme. Additional needs for practice, exchange of ideas, interpretation of rights and collaboration between different practices and discourses responsibilities, needs for structural and people-centered might also continue at higher levels. In fact, One United

10interventions interact in a much more complex way. Yet, Nations Programme I and II can be seen as a deliberate the diagram sheds light on the important role of CBDRM in effort whereby disaster risk can be dealt with in a more formulating essential insights and critical consciousness integrated and effective manner. Also, the IPCC Special necessary for innovative interventions “without” causing Report on Managing the Risks of Extreme Events and huge losses and damages; cf. when disasters transform a Disasters to Advance Climate Change Adaptation (SREX) discursive space. Equally important, in the newly exemplifies this point well in terms of global levels. After a formulated space previously invisible structures and series of continuing failures of DRM and CCA in segmented processes, and their empirical relationships (e.g. power approaches, different epistemic communities (UNFCCC, relations, inequality of many different types) become UNISDR and schools of thought) have started to work more observable, if not guaranteed to be defined as a together since 2009, surely following many academics'

8“problem.” calls for such an integration (for example, see Disasters, 2006, Volume 30, Issue 1). At issue is to what extent the

In the newly formed discursive space, for example, the CBDRM pilot phase led to discursive change, if any, in each vulnerability of females and migrants to the impacts of target village as well as higher political realms of Pakistan environmental hazards and their underrepresented rights (see Table 4.1. and Section Five).


were added based on the findings of the pilot project. This 2.2. NDMP framework of CBDRMis to secure the sustainability and wider impacts of future CBDRM interventions. In actual implementation, CBDRM Then how can CBDRM as cooperative endeavor be might not always follow the below linear process; for conducted in practice to bring about the above discursive example, it can unfold in a different order, different steps transformation? The below diagram illustrate the NDMP can coincide at the same time or already undertaken steps framework of CBDRM: note however that this CBDRM cycle need be revisited when necessary.has been taken as a heuristic, and additional steps (12-15)

Figure 2.2. CBDRM framework

11Source: Modified from NDMP (2012)Note: The original NDMP framework defines CBDRM framework only up to Step 11. The steps 12 to 15 are suggested adds to the existing framework,

which are derived from the lessons learned from the pilot CBDRM project. The recommended steps are added to ensure the sustainability, wider impacts and up-scalability of future CBDRM.

Detail analysis on how the pilot projects were conducted is groups (e.g. ethnic, religious, castes and PWDs) and urban 13presented systematically based on the NDMP framework areas. The pilot CBDRM project of UNDP Pakistan (2014-

on CBDRM, i.e. corresponding to Steps 1-11. Accordingly, 15) is UNDP's first response – within the period of One lessons learnt of each corresponding step is presented United Nations Programme II (2013-2017) – to the above-(Table 4.1). Section Five discusses steps 12 to 15 through mentioned partiality and biases of the previous CBDRM which up-scaling of the pilot project can be secured. initiatives.

2.3. UNDP initiatives of CBDRM in Pakistan With this point in mind, UNDP initiatives of CBDRM should not only research and document the root-causes and

In the last ten years Pakistan has seen an increasing processes of disaster risk construction, and local priority number of CBDRM initiatives (or projects labelled as needs on DRR, but also explore “underlying mechanisms” CBDRM). At the same time, however, the initiatives are that either enable or constrain the findings (i.e. uttered claimed to have been short of systematic assessments, local priority needs) to take place in a newly shaped public

12 sphere. Before dealing with this issue, however, it is detailed documentation, and rigorous evaluations. Also, essential to have a closer look at the original objectives of they tend to have focused on particular types of the pilot project.vulnerable groups (e.g. women) and geographical areas

(rural areas) to pay far less attention to other marginalised

11. NDMA, National Disaster Management Plan Volume-III. Instructor's Guideline on Community Based Disaster Management, August 2012, pp 12-5.

12. Combaz, Emilie. "Community-based disaster risk management in Pakistan." Helpdesk Research Report, GSDRC, 2013, pp 2-3, available at: http://www.gsdrc.org/docs/open/HDQ1028.pdf.

13. Ibid.


The overall rationale for DRR in Pakistan project is to commitments, resources so that they can make their own consolidate an institutional and technical arrangement for contribution to CBDRM. After the completion of the pilot different levels of DRR in Pakistan to gain momentum and project, however, it was found that the objectives need to support from stakeholders of multiple scales. In the light of be more specific and measurable. DRR in Pakistan Project Strategy (2013-2017), the CBDRM pilot project aimed to attain the following objectives: For instance, the enhancement of knowledge, capacities

and awareness regarding DRR cannot be directly assessed. Ÿ To enhance Disaster Risk Management (DRM) Knowledge itself is a very broad concept and different

knowledge, build capacities and increase DRR from information or knowing of “things”. Also, a way it is awareness of stake holders in 30 hazard prone villages delivered also matters; for example, one of reasons for of [five] districts across Balochistan, Sindh and KPK by failure of CBDRM is misled translation of science of hazards implementing a CBDRM Program; and and climate to local communities. More detailed account

Ÿ To enhance the capacity of the communities through of this point should be made, but suffice it to say that the knowledge transfer, awareness raising and skills original objectives should be made more specific, in light building including identification and prioritization of of aspects, level of difficulty, and the extent of integration adaptation or mitigation measures and by developing between traditional and outside knowledge, applicability Community Rapid Response Teams (CRRT) while and the nature of required evidence.providing them with basic equipment.

In order to fulfil the objectives, UNDP has undertaken These objectives can be construed as requiring the target CBDRM pilot project for 30 communities in 5 districts. communities along with other stakeholders to identify, Throughout the pilot project, the total number of direct express and even “renegotiate” local priority needs on DRR and indirect beneficiaries was estimated to be 66873, (see Figure 2.1). Also, the local communities were including those directly trained throughout the pilot expected to realise and demonstrate their own capacities, project; 771 males and 432 females.

3. Objectives of the pilot project Figure 3.1. Sites for pilot CBDRM in Pakistan

Source: Author.Note: The numbers in the brackets indicate the total number of direct and indirect beneficiaries of the pilot CBDRM project. The direct beneficiaries (771

males and 432 females) are assumed to play key roles in social mobilisation and social learning for sustaining CBDRM impacts (e.g. early warning, emergency response) as well as social innovation (transformative adaptation).

As part of DRR in Pakistan Project Strategy (2013-2017), a 400 communities in 2016 to 2017. fuller scale CBDRM is intended to be implemented across


This section closely looks at not only actual steps below describes how the CBDRM model was applied in undertaken during the CBDRM pilot project but also practice. Since the project is a piloting phase, however, emergent challenges and missed opportunities thereof. In steps 11 to 15 will be included in the process throughout particular, it is crucial to probe into core factors and the upcoming full-scale CBDRM project. The lessons learnt contexts that have either enabled or hindered the were der ived from consistent dialogues and implementation of the CBDRM pilot project in the target communications of UNDP with the implementing communities. Based on the learning, Section Five partners via emails and (in)formal meetings, reviews of discusses ways in which the lessons can be directed their outcome reports and minutes of meetings, and towards advancing future CBDRM projects, particularly in UNDP's field visit for M&E and validation.terms of the added steps of CBDRM framework. Table 4.1

4. Lessons, emergent challenges and missing opportunities

1. Identifying participants:I d e n t i f y i n g a p p ro p r i a te par t ic ipants is v ital for understanding the social and institutional context. From the beginning, it is important to consider who will be affected, who can influence others, which individuals, groups, and organizations need to be involved, and how and whose c a p a c i t i e s s h o u l d b e e n h a n c e d . A t t h e f i r s t meeting, clarifying whose plan it will be and setting the p l a n n i n g g o a l s c a n b e discussed. Stakeholders of the planning exercise include community leaders, health and medical representatives, social workers, health workers, s c h o o l s , m o s q u e s , c o m m u n i t y - b a s e d organizations, local private enterprises, officials from the district, tehsils, union councils etc.

1.1. In all target communities, UNDP had a series of consultation with PDMAs and district governments to develop a set of criteria by w h i c h t o s e l e c t t a r g e t communities as well as most vulnerable groups in light of vulnerabi l i t y, secur i t y and accessibility and avoidance of repetition of CBDRM in the same place.

1.2. NGOs already working in the district were invited at the early stage to map out the existing work on DRR. A joint session of departmental representatives and development agencies helped to understand local contexts (Tharparker).

1.3. C B D R M p r o c e s s w a s implemented with preexisting local organisations that helped to launch the project as community was a l ready aware of the significance of a partnership (Lower Dir and Chitral districts). Where no such formal structures

A. Political landscape and power relations:

Learning point: CBDRM ought to take into consideration a local political landscape and power relations of communities in which different kinds of inequality prevail.Field evidence:Within some communities, partial power relations are found to have excluded certain groups to partake in communal activities. For example in Tharparkar, a caste system in Thakur and Meghwarr has prevented certain low caste groups from participating in joint community sessions, but during the CBDRM process joint community organizations were formed to enable fair participation of men and women from each caste. In Ziarat and Lower Dir, local political elites influence the process of CBDRM.B. Participation as a trigger of

social cohesionLearning point: P a r t i c i p a t i o n o f g r o u p s a n d c o m m u n i t i e s w i t h d i f f e r e n t

Table 4.1. Learnings from the application of the NDMP framework of CBDRM

w e r e f o u n d ( T h a r p a r k a r ) , Community Resource Persons (CRPs) were identified to organise community groups.

1.4. Project facilitators were hired from the local areas because they were believed to have a better understading of local norms and practices so that they can better c o m m u n i c a t e w i t h l o c a l co m m u n i t i e s . I t h a s b e e n assumed that locally hired field staff have more acceptability to local communities than strangers.

1.5. Participation of the elderly was ensured throughout a r isk assessment process as their m e m o r i e s a n d i n d i g e n o u s knowledge of disaster history helps to assess hazards and community coping capacities (risk perception).

1.6. In each district, line department representatives (e.g. Agriculture, Public Health Engineering, Social Welfare and Livestock) were invited to participate in a one-day learning session.

1.7. T h e i n v o l v e m e n t o f l i n e department representatives in a risk assessment process is also very important to ensure the quality and sustainability of CBDRM. Line department representatives were selected in consultation with local authority and they were trained on CBDRM and a risk assessment process.

1.8 Line department representaives also provided expert opinions in CBDRM and DRR planning. They agreed to make identif ied mitigation activities as part of

backgrounds itself can be a first step towards enhancing social cohesion for a d d r e s s i n g a w i d e r a n g e o f development issues.Field evidence: Social cohesion has been developed and st rengthened thanks to a participatory approach of CBDRM facilitation projects. In Tharparker, relatively weak sects (low castes) such as Thakurs, Bheels, Menghwars and Fakeers have also attended CBDRM sessions together at one place as one team, along with physically disabled people, widows and the elderly. According to the local people, the gathering was the first of its kind in the area. Even if this does not mean an immediate reinforcement of social network, it can be seen as a first step towards addressing the issue of vulnerability to hazards in a collective manner. Collective learning has been observed throughout all the target villages.C. Targeting for suitability versus

accessibility:Learning point: The process of selecting target c o m m u n i t i e s c a n b e f u r t h e r sophisticated to consider suitability (severity of hazards, vulnerability and needs) to be more important than accessibility (security and accessibility).Field evidence:Most vulnerable communities tend to be poorly approachable, dangerous and culturally closed off. Many of these communities were not selected for the piloting phase because, among other reasons, no security was guaranteed for the IPs and UNDP to conduct CBDRM in the areas. Stronger partnership with government is required.

14Steps of CBDRM framework Key points made during the 15application of each step (UNDP)

Learning drawn (challenges and opportunities)

Steps of CBDRM framework Key points made during the application of each step (UNDP)


14. NDMA, National Disaster Management Plan Volume-III. Instructor's Guideline on Community Based Disaster Management, August 2012, pp 12-5.15. General CBDRM observation applicable to all districts, unless specifically mentioned.




2. Establishing Planning Committee

A p l a n n i n g c o m m i t t e e consisting of core members is a practical way to begin formulating community plans. This committee will act as the s e c re t a r i a t o f p l a n n i n g activities and its roles will be identif ied. Be sure that representatives from the community and key persons from local organizations are involved.

2.1. Before forming Village Disaster M a n a g e m e n t C o m m i t t e e (VDMC), tools such as a map of c o m m u n i t y i n d i c a t i n g a l l sects/castes residing in the village were prepared.

2.2. It was important to understand o t h e r e x i s t i n g c o m m u n a l structures, be they traditional (e.g. Jirga) or emerging (e.g. youth community groups), that can either substitute or support the building of a planning committee.

2.3. Community representatives from

E. Rigid structure of local politicsLearning point: CBDRM DRR Planning takes into consideration that the presence of political leaders and governments in post-disaster situations can rather hamper the implementation of planned DRR activities altogether. Field evidence:This point is also supported by finding of another academic work that explores structural causes of vulnerability to

16natural hazards. It is common to find in Pakistan that local political leaders are

each sect and vulnerable groups w e r e i d e n t i f i e d i n c l o s e c o o r d i n a t i o n w i t h l o c a l c o m m u n i t y m e m b e r s ( Tharparker, Lower Dir and Chitral) to engage them in the whole CBDRM pilot process. I n s t e a d o f e n g a g i n g f e w committee members, the entire village population was intended to engage in expressing their views of risks and prioritizing mitigation measures.

2.4. During the formation of VDMCs, female participation was also secured. To make sure that community structures take lead in the overall risk assessment process, VDMCs were capacitated to employ Participatory Rural Appraisal (PRA) tools during the CBDRM processes.

2.5. These committees were also made responsible for lobbying to get the findings of CBDRM (local needs and priorities) to be reflected in annual development plans of local governments.

2.6. E s t a b l i s h i n g C o m m u n i t y Response Force (CRF) at the v i l l a g e l e ve l w a s a n o t h e r important component of the p i l o t i n g p h a s e . I n a l l 3 0 communities, mostly young men and women were identified and engaged in First Aid and Search & R e s c u e t r a i n i n g s . T h e s e committees are part of the VDMCs.

prosperous landlords with a strong influence on the local people (e.g. feudalism). Future project should place more attention to the issue of power relations and patterns of land use that have the potential to shrink the discursive space in which CBDRM can otherwise be more openly discussed. In Chitral, it was found that over-grazing is perceived as one of causes of floods; and often the domestic animals are owned by those outside the flood-affected communities.F. Appropriate level of forming a

CBDRM committeeLearning point:To form a CBDRM committee at a higher administrative level than a village might be more effective in terms of the availability of human and physical resources and expertise.Field evidence: According to the social welfare department (Tharparkar) it does not suit their cause to register VDMCs at grass root levels (e.g. hamlet or village), and UNDP was asked to support in registration of VDMCs at the UC level. It is also evident in other districts that villages at UC levels face the same type of environemtnal hazards and other challenges.G. Forming a group for advocacy

and lobbying as part of VDMCLearning point:It was learnt that a smaller sub-group as part of VDMC, comprised of those relatitvely educated and socially active can better propagate the significance of local needs and priorities on DRR. Field evidence: In Lower Dir, Tharpaker and Chitral, communities reported their limitated



their annual development plans ( Tharparker, Lower Dir and Chitral). Yet, local officials in charge of DRR are often assigned with another responsibility (also note a frequent turnover). This makes it difficut to sustain consistent partnerships between g o v e r n m e n t s a n d l o c a l communities in CBDRM.

D. R e s e a r c h c a p a c i t y o f stakeholders

Learning point:CBDRM is a practical process, yet it requires stakeholders to possess basic research skills and reporting ability in light of the social production of risk knowledge.Evidence:The pilot project focused on identifying the nature of risk problems facing the local communities. In this regard, of significance is to encourage discursive interactions between local values and external ideas of DRR though which better options for (non-)structural interventions can also be suggested in a more feasible and realistic manner. Not only introduction of new concepts and ideas to local people but also systematic approach to probing into multi-d i m e n s i o n a l a s p e c t s o f at - r i s k community is extremely important. So is a way of organizing and reporting research findings. This is a first step towards the social production of risk k n o w l e d g e a n d t a i l o r e d r i s k information.

16. Mustafa, Daanish. "Structural Causes of Vulnerability to Flood Hazard in Pakistan*." Economic Geography 74.3 (1998): 289-305.


access and insufficient networks to c o m m u n i c a t e w i t h d i s t r i c t departments. Also, many of them were completely unaware of the structres, functions and responsibilities of governments, and the basic public service tha the government is obligated to provide. It is critical for UNDP to set up channels though which translation and communication of knowledge and institutions are accerelated. There is huge room for coolaboration between DRR in Pakistan project and other ongoing UNDP programmes and initiatives (e.g. governance reform, social cohesion and climate change risk).


Learning drawn (challenges and opportunities) Steps of CBDRM framework Key points made during the

application of each step (UNDP)Learning drawn

(challenges and opportunities)

participate and contribute to events of CBDRM organized by UNDP. In some districts, however, t o g e t s u p p o r t w a s n o t straightforward (Jaffarabad). It is also true that DRM is not among p o l i c y p r i o r i t i e s fo r l o c a l governments.

3.3. Many opportunities to create a synergy effect between local g o v e r n m e n t s a n d l o c a l volunteers in enhancing disaster resilience seem to have missed due to a lack of partnership and trust.

valuable items such as first aid kits and Search and Rescue (SAR) tools for emergency response that the target villages were offered. This exemplifies a lack of partnership and trust of local governments with local communities. In fact, local communities in Chitral made full use of the tools, if limited, and mobilized to volunteer to help the affected groups when the floods in July, 2015 hit the district. It was found that local governments tend to lack a coordinating capacity to util ize vo l u n te e r i n g co m m i t m e n t a n d available resources.I. Prior conceptual learningLerning point:Learning of essential concepts and good practices regarding DRM needs to be done for both governments and communities along with mapping out stakeholders' commitment in a more integrated way.Field evidence:Some DC offices and other line departments were highly cooperative in participating in the whole pioting phase (e.g. Tharparker). This is a strength, and needs to be utilised by assigning lead roles to line departments in some of the project steps. Yet, more time and resources needs to be allocated for capacity building of DMCs and Eergency Response Teams (ERTs) while capacity building of line departments should be conducted at the beggining of the projec t . In doing so, they can understand their responsibilities more clearly from the beginning of the project.Of profound importance for UNDP is to utilise a varierty of tools and materials to ensure that not only illiterate but less educated members of communities can

3. M a p p i n g O u t S t a k e h o l d e r s ' Commitment:

Once the participants are identified, it is useful to categorize the degree of participation and roles and responsibilities for the entire planning effort.

3.1. Community structures with line departments led the whole process with technical facilitation from CBDRM facilitators. During the whole process community volunteers with line department representat ives conduc ted hazard, vulnerability and capacity a s s e s s m e n t s w i t h l o c a l community members. Local communit y members with community volunteers and line department representatives d e v e l o p e d D R R p l a n s b y identifying causes of problems and their potential solutions as well as required technical support from the line departments. Their findings were later shared with other civil society organizations during DRR forum meetings.

3.2. To gain support from local governments is not always straightforward. In most districts, local governments were willing to

H. Rapport buildingLerning point:Rapport building is essential for any CBDRM project as the latter is much more than an external intervention, yet cooperative efforts based on mutual u n d e r s t a n d i n g a m o n g t h e stakeholders. Evidence:An increasing number of research have been at pains of examining the relationship between social capital (e.g. bonding, bridging, trust and reciprocity) and resilience against hazards. Despite their different themes, focuses and approaches, it should be noted that trust building is a precondition of any successful participatory projects such as C B D R M . To a s s i g n r o l e s a n d responsibilities can be done on the existing or revised social contracts b e t w e e n g o v e r n m e n t s a n d communities.It has been found that some district governments have withheld some




have a grasp of basic ideas regarding DRR. Equally importnatly, multiple ways of translating difficult scientific knowledge (e.g. sceince of cliamte change and environemtnal hazards) should be developed.

4. Needs Analysis:T o k n o w t h e l o c a l stakeholders' needs is an essential factor. To prepare for disasters requires not only disaster risk management, but a l s o a t t a i n i n g o v e r a l l development. For sustainable development, local needs and p r i o r i t i e s s h o u l d b e researched and analyzed. Development needs, problem identification, constraints and dr iv ing forces for each problem need to be identified.

4.1. UNDP initiated a risk analysis process with district authorities, departmental representatives and NGOs working in selected districts. The needs analysis was linked with previous exercises (e.g. Districts DRR plans (Ziarat and Tharparker) developed in 2009 to 2011 at districts level under UNDP's One UN DRM inter ventions) . S ince then, however, district authorities have neither updated these plans nor allocated resources to implement the plans.

4.2. UNDP explored key factors that m a k e l o c a l c o m m u n i t i e s vulnerable to hazards through gender-sensitive risk perception assessments. Females' needs on DRR and development are quite different, yet the existing social structures in local communities are not always inclusive of females as decision makers.

4.3. Research tools such as hazard timelines, hazard ranking charts, seasonal calendars, vulnerability and capacity matrixes were employed bearing in mind the differences between genders, education levels, ages and c u l t u r e s . D u r i n g t h e implementation of the pilot project, representatives from line departments (e.g. agriculture,

J. Analysis of risk constructionLearning point: Multifocal insights and diverse methods should be employed for a risk analysis as dynamic and contributing factors of risk prevail.Evidence:Analyses of risk carried out by UNDP focused on exploring factors that vulnerable groups think of as making themselves exposed, fragile and less resi l ient to hazards. While r isk perception is very important, it is still one of many aspects of risk construction in practice. It is recommended that future CBDRM employs var ious approaches to understand complex “processes” by which various factors, processes and drivers interact to construct risk in local contexts.K. Expressed needs without

follow-upsLearning point:Most district DRR plans indicate local needs on DRR without adequate means and capacity to satisfy them.Field evidence:Local authorities are well informed and a w a r e o f e x i s t i n g h a z a r d s , vulnerabilities, (a lack of ) local capacities and constraints that need to be addressed. However, most existing DRM plans lack practical approaches and follow-up measures. Before enumerating and analyzing local needs on DRR, it is important to contexualise (the rationale of ) CBDRM



livestock, social welfare and public health engineering) p a r t i c i p a t e d i n o r d e r t o encourage the whole process. They also assisted communities in DRR planning by providing expertise, particularly in terms of s t r u c t u r a l m i t i g a t i o n interventions. Almost every community was found to lack essential infrastructures. In some c o m m u n i t i e s , p u b l i c infrastructures such as schools or health facilities were planned to be built on floodplains.

4.4. The need for building resilience of main livelihood systems in target areas arose, for example research o n t h e m a n a g e m e n t o f agriculture and livestock and an early warning system specialized for securing livelihoods. For example, in one of the target communities an animal disease was ranked as the 2nd most serious hazard (Tharparker). This implies that not only episodic but also everyday hazards need to be taken seriously for implementing CBDRM.

4.5. Different time scales of disaster impacts were considered to shed light on the importance of preparing for abrupt weather changes and climate change risk.

4.6. Needs for (non-)struc tural interventions are enumerated and further detailed with the rationale for each need: who will get most benefits; how much it will cost; any potential constraints for each intervention; and any room for alternatives with less costs.

considering the socio-political nature of the target communities. This allows CBDRM stakeholders holding realistic insights for developing ways in which expressed needs can be addressed with consideration of key questions as to why they cannot be solved within the existing milieu and what can be done by whose participation.For example, the UNDP team met with the DDMU in charge of DRM (Assistant Commissioner HQ who assigned with an additional charge of District Management Unit –DDMU) and discussed the process of CBDRM (Lower Dir). The AC was fully aware of the process and the details of prioritized structural measures identified by the target communities. During the meeting, the AC asked for UNDP assistance for a list of required equipment (IT equipment for GIS information, vehicle for mobility and requisite human resource etc.) for making DDMU functional. He was made clear about the scope of current work and expected roles of the district government to complete the entire C B D R M p r o c e s s i n s e l e c t e d communities. He assured his full support and indicated areas under the threats of flash flood on the bank of River Panjgora. It was also identified that Members of national and provincial assemblies have discretionary power to allocate funds for the development plans. That said, the funds are mostly allocated towards strengthening the status quo rather than satisfying people's prioritized needs. As a final point, the AC assured his commitment towards extending district government support in completing the CBDRM process in identified areas. Relevant




departments (e.g. civil engineering) can b e m o r e e n g a g e d o n c e t h e communities finalize their prioritized schemes for estimation and other design details. It remains to be seen how far the expressed commitment will lead to substantial outcomes in the second phase of CBDRM in 2015.

5. Disseminating Damage Estimation:

Identification of the possible local hazards and the possible effects from them on each and every community is essential. This process provides the basis f o r r i s k m a n a g e m e n t planning. This enables local people to set planning o b j e c t i ve s a n d i d e nt i f y problems in planning.

5.1. The indirect participants and beneficiaries of CBDRM in these communities were estimated to be 9,020 households.

5.2. The target communities took part in the identification of; a) The priority structural and

n o n - s t r u c t u r a l D R R measures;

b) The estimated total cost of these measures;

c) Available resources; and d) External support.

5.3. Estimated costs vary depending on the type and severity of risks t h at t h e co m m u n i t i e s a re exposed to as well as the availability of local resources.

5.4. The purpose of this phase was to demonstrate the usefulness of risk reduction measures and to document cost benefits of such measures as a pathway to a d v o c a t e f o r i n c r e a s e d investment in DRR.

L. C o s t e s t i m a t i o n o f Interventions

Learning Point:Cost-benefit analyses of identified mit igation measures and other interventions help to understand the actual benefits of risk reduction. A toolkit for a cost-benefit analysis should be developed to allow not only efficiency but also effectiveness of CBDRM interventions. This can also help to lobby to get DRR more prioritised in policy arena.Cost estimates of DRR measures and their technical details should be shared with district departments to come up with more accurate estimates for better planning purposes. For instance, if communities identify a need for a structural intervention for flood protection, C&W and irr igation department would be in a better position to provide technical details such as BOQs, design details and cost estimates. This way cooperation and coordination effort would lead to bringing about cost efficiency of DRR inter vent ions : over lapping and duplication of a similar project can be avoided. One of recommended approaches to cost-benefit analysis for future CBDRM initiatives is a “shared

17learning dialogues” approach.



A s s e s s m e n t s a n d l o c a t i n g o f vulnerability and hazards were carried out along with those of priority needs on CBDRM (see Step four).

6. I d e n t i f y i n g V u l n e r a b i l i t y a n d Capacity:

Vulnerability and Capacity Assessment ( VCA) is the starting point of disaster risk management. It is important to know weaknesses and s t r e n g t h s t o o v e r c o m e disasters. VCA aims to identify, analyze and evaluate disaster response capacities, for not only physical resources but also social, attitudinal, and organizational aspects. It involves the community's participation to analyze their own capacities, which will encourage the community to build a sense of ownership.

Field evidence:UNDP Pakistan prepared participatory village DRR plans. These plans also have more details of proposed mitigation measures; both structural and non-structural. The details include the nature of hazards, population and assets at risk, frequency, nature of interventions, required resources and cost estimates.

M. D y n a m i c a n a l y s i s o f vulnerability and capacity: room for societal innovation

Learning point:Findings of vulnerability and capacity assessments need to be further analysed in light of both ongoing social changes (e.g. weakening Jirga system, unplanned urbanization processes, and increasing extremism) and expected social changes (e.g. possible investment on infrastructures and its future impacts, improved standard of living and new marriage institutions).Evidence: The future of disaster risk management in the UNISDR assessment

18report (2015) ably shows that to enhance resilience is not enough for dealing with social construction of increasingly complex disaster risk. The convent ional emphasis on r isk reduction needs to be substituted by a more progressive approach that explores fundamental mechanisms of r i s k c o n s t r u c t i o n . S i m p l y p u t , prospective rather than reactive approaches to exploring how disaster risk can be socially produced are recommended for CBDRM as well.

17. Dixit, A., Pokhrel, A., M. Moench and The Risk to Resilience Study Team, (2008): Costs and Benefits of Flood Mitigation in the Lower Bagmati Basin: Case of Nepal Tarai and North Bihar, From Risk to Resilience Working Paper No. 5, eds. Moench, M., Caspari, E. & A. Pokhrel, ISET, ISET-Nepal and ProVention, Kathmandu, Nepal, 34 pp. 18. Available at http://www.preventionweb.net/english/hyogo/gar/2015/en/gar-pdf/GAR2015_EN.pdf




7. L o c a t i n g t h e Vulnerabil it ies and Capacities:

A f t e r i d e n t i f y i n g t h e vulnerabilities and capacities, locating them on a map will help participants to visualize local situations more clearly. T h e l o c a t i o n o f t h e vulnerability and capacity will make it easier to discuss how to manage the disaster situation and make a plan for it. To accomplish this, “Town Watching” and “Risk and Resource Mapping” are two useful tools.

7.1. Maps of hazards and local needs on DRR were prepared in each community that illustrate the e x p o s u r e o f i m p o r t a n t infrastructures such as houses, schools and wells to hazards, as well as root-causes of disaster that are embedded in the failure of development.

7.2. Particular attention was given to the location of vulnerable groups that is under threat of disasters to ensure planned responses to be immediately implemented.

N. To search for potential sites of infrastructures

Learning point:On the hazard maps, the participants can express their opinions about where to locate required mitigation structures, if it is a safe location or if there is any side effect from them. More important is that along with the description of physical vulnerability, the participants can discuss social aspects of vulnerability, for example if there is any disagreement in terms of location for structural interventions to take in place (see also learning point O below). In local areas of Pakistan, it is not rare to find that a village consists of more than one hamlet or sect that there can always be conflict and differing ideas.

8. S e t t i n g P l a n n i n g Objectives:

Af te r g at h e r i n g a l l t h e necessary information about hazards, vulnerabilities, and capacities, the areas for special attention and support will b e c o m e c l e a r . S e t t i n g p l a n n i n g o b j e c t i v e s i s recommended in the earlier stage of the planning session. If it is difficult to agree on certain objectives, a practical a p p r o a c h i s s e t t i n g provisional objectives and in the course of the planning process they can be revised and f inal ized upon the c o n s e n s u s o f e a c h stakeholder.

8.1. I n t e r m s o f s e t t i n g u p preparedness plans, UNDP explained the entire process of CBDRM to concerned district governments and the selected communities, and made them clear about the rationale of the pilot project. For example, in Lower Dir, the primary purpose of risk assessment was to employ a diagnostic tool to provide reliable data to support better informed decisions on the planning and implementation of risk reduction measures.

8.2. In Tharparkar, communities were given opportunities to identify probable hazards and possible methods of reducing the impact o f t h e s e h a z a r d s . L o c a l communit y capacit ies and available resources were also considered in order to effectively mitigate impending disasters. In

O. The origin of tension latent within the socio -political landscape

Learning point:Tension latent within the local political landscape was taken into consideration; quite often the origin of tension needs to be traced back to local history and culture. If there exist different sects and religious groups or any minority groups such as migrants and sexual minority groups, particular attention should be paid to them when objectives of CBDRM are set up.Field evidence:In Tharparkar, for example, Thakur sect is more dominant than other sects such as Menghwar, Bheel and Faqirs, thanks to their wealth and social status; the former tends to possess more livestock and lands. In this case, it is likely that particularly structural interventions (e.g. irrigation system, dykes, gabion walls, etc.) can be primarily planned in



addition to the hazard-specific s o l u t i o n s d e s c r i b e d i n a l l m i t i g a t i o n p l a n s a t t h e (sub)village levels, preparedness trainings, evacuation planning and early warning systems were provided.

8.3. DRR plans were developed in c o o r d i n a t i o n w i t h l o c a l c o m m u n i t i e s a n d l i n e department representatives with clear roles and responsibilities of different stakeholders.

particular places to remain the status quo and power relations of the communities either deliberately or unintentionally. There also exist reverse kinds of social capital that dominant groups in a community can have more access to the leadership and political channels though which to present their interests. In Chitral, local knowledge and memories of disaster tend not to be considered for urban planning and construction. Additional research needs to be done to explore the potential of which traditional knowledge and science of hazards can have a synergy.

9. A l l o c a t i o n o f Responsibilities:

Responsibilities for each task will be decided. Functions of c o n t r o l , c o m m a n d a n d c o o r d i n a t i o n w i l l b e crosschecked to avoid overlap between teams / task forces and other actors.

9.1. In order to assign responsibilities for each task and measure of CBDRM, the stakeholders looked into capabilities, mandates and resources that different groups can present. Governments were found to have more financial and political resources; and local NGOs and CBOs are relatively better connected with the local people. For planned tasks and measures, particular groups were a s s i g n e d w i t h c e r t a i n responsibilities, for example, d e p a r t m e n t s o f l o c a l governments, local NGOs and owners of land and livestock.

9.2. UNDP have been aware of the issue that there is dilemma of how l o c a l c o m m u n i t i e s a n d governments acquire and share greater ownership of DRM when insufficient local resources and expertise, other competing priorities, lack of trust and supportive institutions, and

P. Social contracts for DRRLearning point: In any society, there is a social contract for DRR, if not always codified, in which (local) governments are designated as the major actor in charge of securing human safety against hazards. However, the increasing acceptance of CBDRM as an alternative approach to the top-down command and control DRR means the compelling need for reinterpretation of the social contract t ow a rd s o n e t h a t u n d e r s c o re s decentra l i sat ion of power and mandates. This is not a simple and short-term task, as the political structures of rural areas in Pakistan have been found very rigid and centralised.Field evidence:It is already clear that the 18th

19Amendment to the Constitution has no direct impact on the relationship between NDMA and PDMAs. Moreover, the power from provinces to local governments has not been transferred since provinces are still to make their

19. Note that this context is generally not well understood that the 18th Amendment had impacted on the power relations between NDMA and PDMAs. DRR, however, has not been among the functions that were devolved to the provincial level under the 18th Amendment.




vulnerability to the impacts of structural changes shape the nature of coping and adaptive capacity.

own laws to set up district level disaster a u t h o r i t i e s a n d t o e l e c t l o c a l representatives at the district level. The district level financial, planning and law making powers rest at the province level, which undermines a truly decentral ized DRM system. The responsibilities between federal and provincial levels provide the scope for an inclusive DRR process, given the overlapping functions between NDMA and PDMAs resolved, and the capacity and resource gaps that constrain effective operation of federal and provincial institutions can be removed.

10. Documenting the Plan:After the plan has been developed, putting it in the d o c u m e n t i s t h e m o s t important process. A common format can be developed within the same district. The statement should be simple and clear. Organizational charts, lists of equipment, and risk and resource maps can be attached.

10.1. As a result of the process, 30 v i l l a g e p l a n s h a v e b e e n documented with a focus on clarifying the abovementioned responsibilities and roles.

Q. A need for developing a clearer guideline for reporting the plan and outcomes of CBDRM

Learning point:As noted above, CBDRM initiatives in P a k i s t a n h a v e b e e n s h o r t o f documentation, which is essential for the social production of risk knowledge and tailored information.It is suggested that UNDP Pakistan needs to develop a clearer guideline for concerned stakeholders to express project outcomes in a more concise and organized way.

11. Testing and Reviewing the Plan:

After completion of the plan, exercises are important to ensure that the plans are effective and workable. In this exercise it is essential to involve, not only community people but also planners and members of disaster response organizations.

This step will be undertaken during the upcoming full-scale CBDRM project in 2015 to 2017. In particular, UNDP will carry out scenario-given simulation of how different stakeholders think and act in different stages of DRM.

UNDP Pakistan considers the pilot project as an can be renegotiated. Yet, it is also evident that opportunity to see the feasibility and potential of CBDRM communities alone cannot bring about this change in to open up multi-sectoral and multi-stakeholder isolation. dialogues on local DRR and DRM. Considering the latter in a newly shaped discursive space, the pilot project has Another finding of the pilot phase suggests that most produced a great learning opportunity. Coupled with the target communities have not fully developed formal traditional risk perception (e.g. seeing a natural disaster as institutional arrangements of CBDRM (e.g. CO and VDMC). God's work), disasters have often ended up to be However, communities have also maintained forms, considered as individuals' tragedy or a separate sector processes and dynamics of DRM, if not always visible and leaving less room for social innovation in Pakistan. Against functioning, in its traditional institutional arrangements

21this orthodoxy, the pilot project brought about some (e.g. Jirga, Hashar, Mauza and Jora systems). Within the ideational and behavioral changes. latter institutions, local tradition, religion, culture,

language, norms and social networks are complexly In Lower Dir in KPK, for example, the village leaders talked interwoven to not only construct and but also mitigate to the district government as part of advocacy for disaster risk. In addition to establishing a formal VDMC and relocating a construction site for a public school – claimed CO, a way forwards developing adaptive capacity latent to be a flood plain according to the local memories and within informal arrangements needs to be found out in the

20knowledge. This resulted from consistent dialogues upcoming phases of CBDRM. between the community, NGOs, local governments and UNDP Pakistan through which different ideas (e.g. Evidently, the pilot CBDRM project has brought about traditional memories, social rendering of hazards science) change in consciousness and behavior of the local people; were shared and mediated. The result of the advocacy and it is worth presenting local expressions of CBDRM remains to be seen, yet this finding reminds that CBDRM experience in light of the local response to the recent

22can generate a new discursive space in which local values floods in Chitral in July 2015 (see Box 5.1).

5. Findings and recommendations

20. This point should not be understood as arguing that flood plains cannot be used for construction of any infrastructure at all. More importantly, the transition of critical consciousness to concrete action for lobby and dialogues with local government is extremely important point here.

21. Jirga refers to a traditional institution in which a group of village leaders make decisions, informed by the teachings of Islam, in order to prevent conflict between community members. Hashar means the collective form of harvesting and any other farming related joint actions. Mauza is a local organization that has regular meetings to discuss local issues (e.g. social, agriculture). Jora is a local practice for seedbed preparation for wheat planting. More detailed accounts of these institutions can be found at: http://waterinfo.net.pk/?q=node/1107.

22. See also http://www.pk.undp.org/content/pakistan/en/home/presscenter/articles/2015/08/18/july-2015-floods---community-based-disaster-risk-management-in-c/


Box 5.1. 2015 Floods in Chitral: local voices of the impacts of CBDRM

Case One: Safety versus competing priority

Naseem Akhtar (a 45 year old female, health worker, CBDRM volunteer) says:“When a group of people were collecting logs floating down the swollen river, I was on the way to my work place at around 12:00 pm on 23, July 2015. To collect floating logs is an ordinary practice of our village during flood seasons as they can be used for construction, and cooking and heating during winter seasons.” Thus, it is part of the local mechanism through which to cope with their vulnerability to different types of hazards. Yet, Naseem adds that “It kills people every year. During the CBDRM project, we learnt about important roles individuals can play when perceiving potential risk. I immediately talked to the people about the risk facing them. Of course, not all of them wholly listened to me, but some people then tried to keep a distance.” It is not straightforward to see the impacts of CBDRM, but it is worth pinpointing how competing priorities can be renegotiated as a result of CBDRM.

Case Two: Communal work amid altering social structures

Sajjad Ahmed (47 year old male, resident of Village Jughoor, UC chairman) recalls:“In the past we had a much stronger culture of communal work, for example, people volunteered in maintenance of roads, recovery of drinking water supplies and irrigation channels. This used to be a usual expectation people had of each other. Over the past twenty years, however, this culture has diminished.”Accounting of the changing culture of communal work (embedded in traditional norms and culture), however, he finds an emerging group of young VDMC members for CBDRM as alternative to the past counterpart. “Their efforts and enthusiasm also attracted other villagers to take part in communal works, and I think CBDRM has encouraged young people to reinforce their identity of place as well as confidence in their own potential to bring about change.” Indeed, this comment proved right when the recent floods hit the village. “When the recent floods hit our village, the small group of young VDMC members, after consultation with the elderly, came to me to seek my support. I was so happy to see their voluntary efforts, and supported them with provision of equipment. I also encouraged other people to join their work to restore the damaged irrigation channel…this example shows that old and emerging structures of local villages can cooperate to have a synergy of knowledge/experience and energy.”

Case Three: Women as decision makers and catalysts of change

Fauzia Tabbasum, 35 year old female, housewife, deputy chairman of VDMC Singhoor:“Since the 2010 floods and CBDRM trainings, I have become more aware of the importance of timely decision making on emergency response and evacuation…when the recent floods occurred, I realized that some families who recently migrated from Upper Chitral were living in the nearby hill torrent at flood risk. I was then conscious about the rapidity of water influx, so I decided to warn the people about floods and help evacuate them. I brought them to my home and we had stayed together for a couple of hours until the flood situation got settled down.” The damages to the migrants' houses were minor, but her timely decision making and action pinpoint that women can play key decision makers in different emergency situations; this used to be not the case in the past. It is also crucial to acknowledge an emerging view in Pakistan that women are stakeholders who have agency to take action on their behalf. It is normal to see in Pakistan many male heads of household are absent from their homes for migrant labor, and then it is not optional but mandatory for women to prepare for and act against external shocks and uncertain events.

Sources: Analysed from case studies, conducted by Naeem Iqbal (UNDP Pakistan).

At this stage, it is beyond the scope of this learning paper This report underlines the importance of taking into to unearth deeper and long-term impacts of CBDRM on consideration power relations that not only shape the the target areas; these remain to be seen at later phases of nature of local vulnerabilities to natural hazards but also CBDRM when the below added steps are fully taken into influence ways in which local needs are expressed and consideration. Again, corresponding to the CBDRM steps practically fulfilled. In fact, it is anticipated that clearer of NDMP, the process of the pilot CBDRM under UNDP pictures of power relations in communities under CBDRM initiatives only covered steps one to eleven. To induce will be seen when more tangible interventions take in wider impacts, sustainability and up-scaling of future place. Future CBDRM should pay greater attention to the CBDRM, additional steps are proposed to complement the possibility of if there are any critical, yet underrepresented existing CBDRM steps of NDMP (Figure 2.2). needs, how already expressed priorities are dealt with, and

what wider social impacts of CBDRM interventions will be in a long run, be they positive or negative.Step 12: Implementation of village plans – (non-)

structural schemes / lobbying and advocacy; Equally important is to provide local people adequate Step 13: Tracking wider social impacts of CBDRM on political channels through which the local leadership can target communities;reach higher levels of politics for taking prospective Step 14: Exploring the linkages of CBDRM with broader actions that help to enhance community resilience. In this and longer term priorities and processes; andregard, there is huge room for other teams and units of Step 15: Identification of Lessons learnt, and CBDRM up-UNDP Pakistan (e.g. development, governance reform, scaling or replication.climate change, etc.) to make invaluable contribution to CBDRM in Pakistan.Based on understanding of the challenges and

opportunities, the following recommendations are Social production of risk information and knowledge presented, each of which corresponds to the specific steps (Step 15)newly added to the CBDRM framework. The following

points also act as recommendations for future CBDRM The local production of risk information through CBDRM implementation that NDMA and other levels of DMA in processes can be conducted in light of wider participation Pakistan as well as NGOs can take into account.and contribution of local people. Findings of the pilot project suggest that a CBDRM process can trigger a wider Local needs and priorities (Step 12, 14)societal change as it originally aims to encourage critical consciousness and ownership of the local people. Local needs on CBDRM cannot be properly understood However, this should go hand in hand with practices of without consideration of how they are socially, politically sustainable development and climate change risk. The and culturally “expressed” as well as why they continue to traditional production of risk information should be fail to be dealt with within the existing social settings. This replaced by a somewhat transformative system of issue is closely related to the root causes of vulnerability allowing groups with different interests, objectives and such as poverty, land ownership, gender inequality, and focuses access to more practical and understandable other wider development challenges. Equally importantly, information. It is not difficult to expect that different local needs and priorities on DRR need to be much more groups and sectors of the society give differential elaborated in a way that they indicate not only what is meanings to the same hazard, thereby leading to differing required, but also why such intervention is needed, who responses and priorities. The current social production of will get benefits, if there exist alternative measures in light risk information in Pakistan (surely many other countries in of cost-benefit effectiveness, and how and what kind of the globe) needs to be much more detailed, elaborated synergy effects can be made to encourage other and contextualized with wider participation of different communities-led activities. In addition, it is necessary for stakeholders.each structural intervention scheme to go through an

engineering-based verification process.


Participation and sustainability (Steps 13) To take a challenge as an opportunity (Step 14)

Past CBDRM projects have focused merely on encouraging It was discovered that some communities had to have more active participation of the local people. Yet, it might migrated to another place due in mainly to severe weather possibly cause harm to the local people to trespass on their conditions in the middle of the CBDRM project. Two points time and labor that can otherwise be secured for their stand out. On one hand, migration – a challenge for the livelihood. CBDRM process to be wholly implemented – due to severe

weather conditions was found to be a regular, annual A way of sustaining the impacts of CBDRM particularly in coping strategy for adapting to the changing terms of the development of risk knowledge can be environment. On the other hand, for this same reason the suggested: the identification and engagement of active challenge could have been an excellent opportunity to and educated participants. Further opportunities and probe into the relationship between the regular migration compensation can be made for the local participants so pattern and potential risk of climate change. It is that they can regard CBDRM not as a bothersome expectable that nomadic communities' needs and intervention but as a new opportunity for their required follow-ups are somewhat different from other communities. There is an example from the case of early communities. UNDP Pakistan will seriously take into recovery work such as cash-for-work programmes that can consideration the above point that a challenge can be

23play assets for long-term development. regarded as an opportunity to open a new prospect in the field of DRR research and project.

It is also important to point out that gender-sensitive CBDRM means much more than securing an equal number A more comprehensive framework and ambitious, yet of male and female participants in training and examining plausible objectives (Step 12, 15)differing gender perspectives. What should be done together with these is to explore underlying mechanisms In addition to gearing up for a future CBDRM with in which females are deprived of an opportunity to consideration of the above points, UNDP Pakistan will address their differential needs in their everyday life. There continue to strike a balance between nurturing ambition is a compelling need for UNDP to work together with other and securing feasibility in terms of transforming the social agencies specialized in gender such as UN Women and production of CBDRM knowledge in Pakistan. More efforts UNICEF, for example. should be made to have a closer look at local realities of risk

and succeed in bringing about grater and loner-term In Pakistan, the major issue of gender inequality is not only effects in years to come. that voices and ideas of women are not fully integrated to policy making processes, but also that women are merely In the piloting phase, there emerged an opportunity to considered as victims or aid recipients. In fact, however, have local and district development planning be informed this conventional perspective has been found by the analysis of hazards, vulnerabilities, risks, capacities contradictory to an emerging view in Pakistan that women and assessment of mitigation/prevention measures. Yet, are stakeholders who have agency to take action on their CBDRM is a long-term process. One-off CBDRM training behalf. For example, in certain provinces (FATA and KPK) in cannot immediately bring about substantial changes such which many male heads of household are absent from as renegotiation of local development priorities (e.g. their homes for migrant labor, it is not optional but allocation of a more budget to local DRR, and this remains mandatory for women to prepare for and act against to be seen in upcoming phased of CBDRM when the new

24external shocks and uncertain events. budget plan of districts will have been passed). To

strengthen mainstreaming DRR into local development, supported by field level data; and the following activities will be undertaken: 3) Supporting DRR mainstreaming in selected UNDP

development projects. The future project will also 1) Advocating and supporting PDMAs/DDMAs/line financially and technically support selected

departments in their effort in mainstreaming DRR c o m m u n i t i e s ' f l o o d a n d d r o u g h t into development plans; mitigation/adaptation measures in light of

2) Dissemination of hazard, vulnerability, capacity and diversifying livelihood options. mitigation/prevention profiles of the districts

23. Cluster (Community Restoration) Working Group (UN), Toolkit, Community Restoration Needs Assessment, 2013, p.2.24. Personal communication with UNWOMEN Pakistan, on 4 May 2015.

COMMUNITY BASED DISASTER RISK MANAGEMENT: TOWARDS RISK-INFORMED DEVELOPMENT26

Appendices

Appendix oneSummary of disasters triggered by natural forces in Pakistan (2005-2013)

Events count

1

6

1

2

92454241

59

Total deaths

248

73,968

22

190

2,2133,2091662332651781680,708

Total affected

0

5,405,603

111

300

20,442,52622,244,4622670737081,654,00008249,777,499

Total damage ('000 US$)

18,000

5,310,000

0

0

9,827,1188,633,00018,00001,700,0000025,506,118

Disaster type

Drought

Earthquake

EpidemicExtreme temperature

Flood

Landslide

Storm

Subtype

Drought

Ground movement

Bacterial disease

Heat wave

Flash floodRiverine floodLandslideAvalancheTropical cyclonen/aConvective storm

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