Final Report
Honduras A Neighborhood-Based Approach to Disaster Risk Reduction for Highly Vulnerable Hillside Communities in Tegucigalpa
Taiwan–Honduras Final Report
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Acknowledgements The Pan American Development Foundation (PADF) would like to thank the Government of the Republic of China-Taiwan’s (ROC-Taiwan) Ministry of Foreign Affairs (MOFA) for its dedication to vulnerable communities in Latin America and its technical and financial contribution to the project “A Neighborhood-Based Approach to Disaster Risk Reduction for Highly Vulnerable Hillside Communities in Tegucigalpa, Honduras”. We would like to extend a special thanks to Douglas Y.T. Hsu, Deputy Director, and Daniel K.C. Chen, Executive Officer of the Political Division, of the Taipei Economic and Cultural Representative Office (TECRO) in Washington, D.C. and Joseph Y.L. Kuo, Ambassador, Carlos Antonio Yeh, First Secretary, and Iván Lo, Political Counselor of the Embassy of ROC-Taiwan to Honduras. Also, PADF would like to thank the National Autonomous University of Honduras (UNAH), the Permanent Contingency Commission (COPECO), the Secretary of Development and Social Inclusion (SEDIS), the Municipal Emergency Committee of the Central District (CODEM), and the Local Emergency Committees (CODELs) of La Canaán for their contribution and commitment to the project and effective coordination with PADF staff.
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PADF
Acronyms Disaster Risk Reduction
DRR
Early Warning System
EWS
Global Positioning System
GPS
Government of Honduras
GoH
Honduran Earth Sciences Institute
IHCIT
Institute of Community Development, Water and Sanitation
IDECOAS
Local Emergency Committee
CODEL
Ministry of Foreign Affairs of the Government of the Republic of China (Taiwan)
MOFA CODEM
Municipal Emergency Committee of the Central District
UNAH
National Autonomous University of Honduras National Disaster Management System
SINAGER
Permanent Contingency Commission
COPECO
Republic of China (Taiwan)
ROC-Taiwan
Secretary of Development and Social Inclusion of Honduras
SEDIS
Secretary of Infrastructure and Public Services of Honduras
INSEP
Table of Contents Executive Summary
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Introduction
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Project Description
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Impact by Sector
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Results
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First Regional Conference
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Best Practices and Lessons Learned
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Sustainability
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Impact by Numbers
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Conclusions
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Financial Statements
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Partners
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Executive Summary In Tegucigalpa, Honduras, informal urban settlements are extremely susceptible to the calamitous impacts of meteorological and geological disasters. Due to landslides, floods, and seismic movements, residents in marginalized neighborhoods, particularly those that live on hillsides, constantly face threats to their lives and livelihoods. Based on the need to increase the resilience of vulnerable populations, save lives, and reduce the impact of disasters on informal settlements, the Pan American Development Foundation (PADF) implemented the project “A Neighborhood-Based Approach to Disaster Risk Reduction for Highly Vulnerable Hillside Communities in Tegucigalpa, Honduras.” The 13-month project was implemented in La Canaán, an at-risk neighborhood located in the Picacho district. The project achieved the following results: restructured, trained and equipped two Local Emergency Committees (CODELs); strengthened the Early Warning Systems (EWS); produced two risk maps of La Canaán; identified and defined evacuation routes and install over 200 signs; constructed small-scale, disaster mitigation infrastructure in La Canaán’s four sectors; trained more than 800 students and teachers of La Canaán in basic disaster risk reduction (DRR) concepts; and trained 16 UNAH students in DRR and involve them in the implementation of the project. The project benefited more than 12,200 people. The Government of Honduras (GoH) provided follow-on funding through the Secretary of Infrastructure and Public Services (INSEP), the Institute of Community Development, Water and Sanitation (IDECOAS), and the Secretary of Development and Social Inclusion (SEDIS), to continue the construction of the disaster mitigation infrastructure in La Canaán, investing over 5 million Lempiras (approximately $235,000 USD) and relying on various project outputs such as the newly strengthened CODELs, trained community members, and hazard risk maps. The project was financed by the Government of the Republic of China-Taiwan (ROC-Taiwan), through its Ministry of Foreign Affairs (MOFA) and was executed in collaboration with the Permanent Contingencies Committee (COPECO), the Municipal Emergency Committee of the Central District (CODEM), CODELs, SEDIS, and the National Autonomous University of Honduras (UNAH). PADF has a long history of assisting Honduras and other Organization of American States (OAS) member states to implement natural disaster response and preparedness and mitigation programs, working with the Inter-American Committee on Natural Disaster Reduction and mobilizing
cooperation from international agencies, bilateral donors, and corporate and private contributors.
About PADF The Foundation was established in 1962 as a specialized private sector instrument of the OAS to assist member states address their most serious challenges, such as preparing for and mitigating the impacts of natural disasters. For over 50 years, PADF has been aiding victims of every major natural disaster in Latin America and the Caribbean and the project described herein is a continuation of that mandate. See www.padf.org for further details about PADF programs.
Introduction Honduras is one of the most vulnerable countries in the world in terms of mortality and economic losses due to hydrometeorological and geological hazards. From 1980 to 2008, 50 natural disasters hit the country, killing 15,548 people and causing $4.4 billion U.S. dollars in damages. Hurricane Mitch is a clear example of the high vulnerability of the Honduran population. In 1998, the disaster killed 7,007 people, injured 11,998 others, left 285,000 people homeless. The damage in Tegucigalpa was severe, affecting the most vulnerable populations due to the precarious nature of housing and the lack of capacity at the local level to prepare for and respond to disasters in informal settlements. Unfortunately, informal neighborhoods presenting similar vulnerabilities have continued to proliferate across the country. The present project was implemented in La Canaán, an informal settlement located on a deforested hillside, characterized by precarious housing and poor infrastructure. Exacerbating this informality is the fact that 61% of the homes are constructed on steep slopes that increase the risk of death and economic losses due to flooding, landslides, and earthquakes. Additionally, the two CODELs— the community-based organizations that assist in the preparation for disasters at the neighborhood level—lacked the capacity and tools to prepare for and respond to emergencies, increasing the vulnerability of residents. La Canaán’s high susceptibility to major damages and losses due to disasters was the motivation for implementing the project. It should be noted that the project was designed to include a strong community participatory element where residents could take ownership of the intervention.
Project Description Through an integrated and participatory approach, the project aimed to reduce risk, save lives, and promote community resilience in La Canaán. PADF, in coordination with ROCTaiwan, COPECO, CODEM, the CODELs, SEDIS, and the UNAH, implemented the following activities:
Capacity Building at the Community Level CODELs The PADF technical team evaluated the conditions of the two CODELs, identifying gaps in the organizational structure of the committee and capacity of its members. In order to respond to the gaps, PADF restructured the two CODELs, integrating community leaders and equipping the committee with tools such as wheel barrels, lanterns, machetes, pickaxes, among others, to implement disaster mitigation and response activities. In order to strengthen the capacity of the CODELs, PADF provided intensive training in the following areas: basic DRR concepts; Emergency Response; Global Positioning Systems (GPS); Risk and Resource mapping; First Aid; and Emergency Drills. COPECO and CODEM participated actively in the trainings, providing essential technical and operational guidance and expertise to the CODELs, while also opening up channels of communication between the organizations.
La Canaán Community Members In order to motivate the community and foment their involvement in the project, PADF invited community members to participate in a “Culture of Life” retreat. The two-day retreat in Valle de Ángeles, Honduras, was aimed at developing key leadership and teamwork skills in participants. While the other project activities were focused on DRR, the retreat’s central purpose was to foster a sense of comradery between the various community members and strengthen their commitment towards the collective needs of the neighborhood.
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PADF
UNAH In order to incorporate the academic sector and the valuable technical expertise provided by the UNAH’s Earth Sciences Institute (IHCIT), as well as offer professional experience to advanced university students, PADF collaborated with the national university. In order to prepare the 16 Social Work and Engineering students for an active participation in the project, PADF provided training to the students in the following areas: basic DRR concepts, First Aid and Response, and Emergency Shelter Management.
La Canaán Educational Centers As youth are recognized transmitters of knowledge, the project targeted the student population in La Canaán. Through site visits and meetings with school directors, PADF identified gaps in the knowledge and capacity of students and teachers at La Canaán’s three education centers. In response, PADF provided training in basic DRR concepts and established emergency protocols and drills. PADF employed the Red Cross methodology and tool kit to hone the student body’s ability to identify risk and how to respond during and after an emergency situation.
Strengthen Community Early Warning Systems and Risk Mapping Early Warning Systems (EWS) Supported by a Central District Municipal Council engineer, PADF evaluated the effectiveness of the EWS in sectors 1, 2, and 3 of La Canaรกn. The team detected various deficiencies and proceeded to rehabilitate the systems, replacing vital equipment such as sirens and megaphones, and provided the CODELs with training on the use and maintenance of the EWS. PADF also sensitized community members, communicating the importance of heading early warnings and what precautions to take in the event of an emergency. EWS are critical elements in DRR and have the potential to save lives and property if the local community is involved and understands the nature of the warnings.
PADF staff and community member use GPS technology to carry out risk mapping activities in La Canaán.
Hazard Risk Mapping In order to identify the exact location of high risk areas prone to natural disasters in La Canaán, the CODELs, led by COPECO technicians, utilized GPS technology to produce risk maps. The maps served to identify evacuation routes, demarcate La Canaán, and generate greater community awareness surrounding high-risk zones in the neighborhood.
Construction of small-scale disaster mitigation infrastructure PADF mobilized partners and the greater community to construct small-scale disaster mitigation infrastructure in the four sectors of La Canaán in order to reduce the impacts of landslides and flooding in the community. To this end, PADF, the UNAH, and the local community carried out microzonificaction studies, surveys, and also referred to the community risk maps, in order to determine the highest priority zones and types of projects. Based off of this information, the engineers from the UNAH elaborated project profiles and constructed the mitigation works with the CODELs and the community volunteers. The disaster mitigation infrastructure included contention walls, drainage systems, box culverts, and paved walkways and streets. To complement the assistance, SEDIS provided “Solidarity Bags” (food packages) to the community volunteers who carried out the construction activities.
Taiwan–Honduras Final Report
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Honduras
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PADF
Impact by Sector With the participation of over 150 community volunteers, PADF and partners constructed small-scale disaster mitigation infrastructure in La Canaan’s four sectors.
Sector 2
Sector 1 Before
After
Before
After
Sector 3
Sector 4
Before
Before
After
After
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Results Throughout the 13 months of implementation, PADF, in collaboration with ROC-Taiwan, the UNAH, CODELs, CODEM, COPECO, and SEDIS, achieved all of the proposed activities and surpassed anticipated results. PADF was able to leverage significant additional funds through the Academic DRR mobilization of new partners, expanding the Participation Mapping reach of the project. The intervention benefitted more than 12,200 people. The two CODELs in La Canaán were restructured and reorganized, with 22 community leaders trained and integrated into the committees. The three education centers were also targeted, with 867 students and teachers benefitting from DRR training and the establishment of emergency protocols and drills. In addition, 16 university students benefitted from the project, receiving training in DRR and the opportunity to participate actively in the program, gaining invaluable professional experience.
• 2 risk and community resource maps created. • Evacuation routes identified and formalized; 200 evacuation route signs installed.
The strengthening of the CODELs, the organizations responsible for protecting the community during an emergency, and the construction of 11 disaster mitigation infrastructure projects benefitted the 12,200 residents of La Canaán and will reduce the catastrophic impact of extreme weather events on their lives and livelihoods.
UNAH carries out microzonificaction studies in La Canaán.
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PADF
Infrastructure Construction • 11 mitigation infrastructure constructed in La Canaán’s 4 sectors. • 150 community volunteers participated in the construction of mitigation infrastructure.
Academic Participation • One preliminary diagnostic and one in-depth study produced about the socioeconomic conditions of La Canaán by the Social Work students. • Microzonificaction studies carried out by part of IHCIT to determine earthquake risk in La Canaán. • Engineering students participated in the project as construction managers, under PADF and IHCIT tutelage. • 16 UNAH students trained in DRR.
Capacity Building
• 2 CODELs restructured. • 22 community leaders incorporated into the CODELs (15 males and 7 females). • CODELs equipped with tools to prevent and respond to disasters (axes, wheel barrels, lanterns, and machetes). • 6 intensive DRR workshops provided to CODEL members.
Results and Model Dissemination Strategic Alliances Alliances established among COPECO, CODEM, CODELes, SEDIS, UNAH, and ROC-Taiwan.
Community Engagement & Preparedness
• Regional Conference “Best Practices and Lessons Learned in Disaster Risk Reduction: The Neighborhood Approach in Central America,” organized in Tegucigalpa from August 7-10, 2014. • Project disseminated through media outlets.
• 38 community leaders participated in the “Culture of Life” retreat where participants developed key leaderships and teamwork skills (15 males and 23 females). • 867 students and teachers trained in DRR. • EWS rehabilitated in sectors 1, 2, and 3. • CODELs trained in the use and maintenance of the EWS. Taiwan–Honduras Final Report
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First Regional Conference Best Practices and Lessons Learned in Disaster Risk Reduction: The Neighborhood Approach in Central America
PADF and ROC-Taiwan organized the Regional Conference “Best Practices and Lessons Learned in Disaster Risk Reduction: The Neighborhood Approach in Central America” held in Tegucigalpa, Honduras from August 7-10, 2014. The conference was co-sponsored by COPECO and CODEM. The conference’s objectives were to present and showcase the Taiwan-funded DRR project in La Canaán, Tegucigalpa; bring together local and national disaster management authorities, specialists from multilateral institutions, professors, and non-governmental organization representatives to exchange ideas, best practices, and lessons learned as it relates to the neighborhood-based approach to DRR in high-risk urban communities in Central America; promote the institutionalization of the neighborhood-based approach to DRR; and create meaningful ties as well as encourage relationship-building among high-level government authorities, multilateral institutions, and local Central American
Liza Mantilla, PADF Director of Disaster Management, gives opening remarks at the Regional Conference.
communities to foster regional solidarity in disaster assistance. Nearly 40 representatives from Taiwan, Costa Rica, El Salvador, Guatemala, Honduras, Nicaragua, and Panama attended the regional conference. The conference was launched with opening remarks from Carlos Antonio Yeh, First Secretary, Embassy of the Republic of China-Taiwan to Honduras; Nasry Asfura, Mayor of Tegucigalpa; Moisés Alvarado, National Commissioner of COPECO; and Roy Barboza Sequeira, Executive Secretary of the Coordination Center for the Prevention of Natural Disasters in Central America (CEPREDENAC). The three-day conference concluded with a visit to the colonia Canaán, where PADF implemented the Taiwan-funded 13-month urban disaster risk reduction project “Neighborhood-Based Approach to Disaster Risk Reduction for Highly Vulnerable Hillside Communities in Tegucigalpa, Honduras.”
Carlos Antonio Yeh, First Secretary, Embassy of ROC-Taiwan to Honduras, talks to local media about the Regional Conference.
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Best Practices and Lessons Learned Best Practices Integrate Diverse Actors and the Local Community DRR and the protection of vulnerable groups is responsibility of the public and private sectors as well as civil society, and calls for a fine-tuned coordination and an appropriate division of responsibilities between the diverse actors. The present project achieved an effective and coordinated “institutional infrastructure” where PADF, ROC-Taiwan, COPECO, CODEM, the CODELs, the UNAH, and SEDIS worked in collaboration, contributing a variety of technical expertise and resources to the project’s multifaceted range of activities. PADF could not have implemented the program alone, and relied heavily on the academic expertise of the UNAH and the technical and operational guidance as well as local know-how of COPECO, CODEM, the CODELs, SEDIS, and ROC-Taiwan. The PADF technical staff played an integral role in the creation of an effective “institutional infrastructure” through the involvement of the aforementioned entities in the design and implementation of the project. In addition, the will of each institution to better the lives of vulnerable populations was essential and fostered an environment for fluid teamwork, as each actor recognized the importance of DRR activities in marginal neighborhoods.
(From left to right) Julio César Quiñónez, PADF Technical Advisor, Marco Aranda, PADF Project Coordinator, Martha (Bethy) López, PADF Capacity Building and Training Advisor, Liza Mantilla, PADF Director of Disaster Management, Carlos Antonio Yeh, First Secretary, Embassy of ROC-Taiwan to Honduras, and José Han, former Political Counselor, Embassy of ROC-Taiwan to Honduras, participate in the Culture of Life retreat in Valle de Angeles, Honduras.
Another element that contributed to the success of the project was the creation of mechanisms for community participation. Each activity was planned and implemented according to the actual needs and the opinions of the community members, generating greater credibility in the project and PADF. In addition, the integrated and participatory approach set the stage for the sustainability of the project. As the residents of La Canaán have taken ownership of the project, maintenance and the correct use of key components of the intervention, such as the EWS and the drainage systems, are much more likely.
Develop Individual Capacity and Interpersonal skills The “Culture of Life” retreat was an uncommon activity in terms of DRR projects, yet, it played an essential role in motivating community leaders. The retreat, which included a variety of teamwork and personal reflection activities, helped develop leadership skills in key community actors. In addition, the retreat fostered a spirit of comradery between the community members and increased concern for the general well-being of La Canaán and its residents.
Youth as Transmitters of Knowledge PADF provided training to 867 students and teachers in DRR in order to foment a culture of prevention in the community. Engaging youth was very important in not only ensuring their safety during emergency situations at school, but also in expanding the reach of the intervention and reinforcing the project as a whole. As it is common for young people to share acquired knowledge with their families, the newly trained youth were returning home and sharing tips and information with parents and siblings, further reinforcing disaster preparedness in the community.
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Lessons Learned Throughout the project cycle, PADF and partners encountered various challenges. Thanks to PADF technical staff’s breadth of experience and the will and resourcefulness of all involved partners, the project was able to overcome setbacks and surpass planned activities. However, it is worth mentioning the challenges faced throughout the process:
Skepticism Community leaders and the population in general were skeptical to some degree at the beginning of the project. The skepticism can be attributed to past interventions where proposed goals were not met and/or did not create opportunities for community participation. PADF and partners tackled this challenge immediately, due to the fact that a positive perception by part of the community is essential to successful project implementation. Consequently, PADF created mechanisms for participation in and the socialization of the project through meetings, training sessions, and other activities such as the “Culture of Life” retreat.
Violence in La Canaán Due to gangs and drug trafficking, violence has escalated in Honduras, particularly in marginal urban communities. As a result, Honduras is known as the “world homicide capital” with 90.4 intentional homicides per 100,000 people. In order to reduce violence, the GoH deployed Military Police across the country as to lower homicide rates and increase neighborhood safety. La Canaán was no exception, and due to the increment in violence during the initial phases of the project, community members were too afraid to go to meetings and PADF eventually was not able to enter the neighborhood. From October 7 to 18, 2013, the initial project activities were delayed. Once the Military Police were deployed, the violence decreased significantly and project activities were resumed. It is recommended that security issues are seriously considered during the design of the project and that delays are planned for, especially when executing programming in informal settlements in violence-plagued nations. It is also advisable to develop alternate project strategies or locations if a site becomes too dangerous.
Community members volunteer to carry out mitigation projects.
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PADF
Sustainability The Taiwan-PADF project, which closed out in August 2014, received additional support from the GoH due to the success of the intervention. Beginning in November 2014, INSEP, IDECOAS, and SEDIS, continued to construct disaster mitigation infrastructure in La CanaĂĄn, investing over 5 million Lempiras ($235,000 USD) and relying on various project outputs such as the newly strengthened CODELs, trained community members and risk maps.
Taiwan–Honduras Final Report
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Impact by Numbers
400
meters of
drainage
system
canals
100 meters of paved
walkways
one contention wall & one box culvert constructed
in follow-on funding from the Government of Honduras invested in La
Canaรกn for small-scale
mitigation projects
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PADF
867
students and teachers
trained in DRR
$70,000
invested in small-scale
disaster mitigation
infrastructure
12,200
$235,000 USD
over
200 signs installed
evacuation route
people now live in a
safer La Canaรกn
Conclusions The project was based off of the necessity to increase the resiliency and reduce the levels of risk faced by vulnerable populations in Tegucigalpa. La Canaán, due to its geographic location, informal character, and high levels of poverty, was particularly vulnerable and required a multifaceted intervention to reduce risk of life and property due to natural disasters. Through a series of activities aimed at building capacity at the community level, strengthening the EWS, the construction of small-scale disaster mitigation infrastructure, and the coordination and collaboration between various local, national, and international DRR entities, the project was able to reduce disaster risk, promote a culture of prevention, and improve the quality of life and security for more than 12,200 people in La Canaán. The project was able to complete all proposed activities and surpassed the expectations of all the involved actors. The success is largely based off of the coordinated and efficient actions by part of all actors, whom which contributed diverse resources and technical expertise for the myriad of activities in the project. Of equal importance, the community’s commitment, which was achieved though incorporating residents into the design and implementation of the project, was elemental to the success and sustainability of the initiative. The fact that La Canaán’s community members took ownership of the project is a telling indicator that a culture of prevention has been fostered in the neighborhood. It is expected that community members will continue to correctly use and maintain important project outputs such as the EWS, the risk maps, and the mitigation infrastructure. It is also expected that the CODELs will now adequately fulfill their responsibility as La Canaán’s local disaster risk management authority and continue to coordinate with municipal and national authorities.
Financial Statements Table 4: Updated Program Expenditure Expenses through August 30, 2014
DESCRIPTION
TOTAL
CUMULATIVE EXPENSES
BUDGET BALANCE
Staff Costs
$90,239
$106,522
($16,283)
Equipment and Supplies
$42,969
$10,640
$32,329
Travel
$12,990
$37,446
($24,456)
Field Activities
$97,318
$85,183
$12,135
Other Direct Costs
$14,860
$18,796
($3,936)
Total Direct Costs
$258,376
$258,587
($211)
$41,624
$41,413
$211
$300,000
$300,000
$0.00
Total Indirect Costs Total Project Costs Counterpart Contributions* Grand Total
$34,575 $300,000
$334,575
*Counterpart contributions include local labor, food rations provided by SEDIS, machinery and risk mapping support provided by COPECO, and the Municipality’s contribution of construction materials, trucks, and engineers.
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PADF
Partners PADF PADF is a non-profit organization that was established in 1962 to implement socio-economic development programs and disaster assistance in Latin America and the Caribbean.
PADF was responsible for the design and management of the project, specifically the financial and technical supervision, monitoring and evaluation.
ROC-Taiwan/MOFA In November of 2012, ROC-Taiwan and PADF entered into an agreement to establish a Disaster Assistance and Reconstruction Fund for Latin America and the Caribbean.
Thanks to the fund and Taiwan’s technical expertise in disaster management, PADF was able to implement the present project as well as others in Haiti, Dominican Republic, and Saint Vincent and the Grenadines.
Community-Based Organizations The CODELs, the churches, and other representative organizations.
CODEM The municipal entity responsible for first response in emergency situations.
COPECO The national entity responsible for risk management and reduction, emergency response, early recovery, and adaptation to climate change in order to save lives and livelihoods.
The community-based organizations participated actively in the planning, socialization, and implementation of the project, ensuring the success of the intervention and the high levels of community participation. The CODEM supported the entire process of implementation and provided the technical and logistical support to strengthen the EWS and construct the disaster mitigation infrastructure. COPECO supported the entire process of implementation and provided the technical and logistical support to carry out trainings, strengthen the EWS, and construct the disaster mitigation infrastructure.
UNAH Is the national university whose mission is to contribute to the sustainable human development of Honduras through vocational training, research and service-learning.
SEDIS Belongs to the Executive Branch and is responsible for policy related to poverty reduction in Honduras.
The UNAH students and professors carried out socioeconomic and geological studies to ensure the sound implementation of the technical aspects of the project. UNAH students also participated in trainings and supported the design and construction of the disaster mitigation infrastructure. SEDIS donated food rations (“Solidarity Bags”) to the families in La Canaán that volunteered their time to help construct the disaster mitigation infrastructure.
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About PADF The Pan American Development Foundation, a 501 (c) (3) nonprofit organization, brings together many stakeholders to improve livelihoods, empower communities, strengthen civil society, support human rights, protect the environment, and respond to natural disasters in Latin America and the Caribbean. Established by the Organization of American States in 1962, PADF has worked in every country in the region. In 2013 PADF reached more than 10 million people by investing $69 million in development resources in 22 Latin American and Caribbean countries.
padf
P A N A M E R I C A N D E V E L O P M E N T F O U N D AT I O N
1889 F Street, NW, 2nd Floor Washington, D.C. 20006 Tel. 202.458.3969 padf.org /padforg @padforg 22
PADF