Disaster Risk Resilience Guide

ABSTRACT The Salvation Army has a long history of international disaster response and will continue its work in that area. However, this guide is focused on ways in which The Salvation Army can be at work in a community before a disaster strikes – both to reduce the risk of a disaster occurring and to increase resilience in the case that one does; ultimately minimising damage and loss for individuals and communities as a whole.

DRR GUIDE Community-Based Disaster Risk Reduction

1

The Salvation Army International Headquarters 101 Queen Victoria Street London EC4V 4EH United Kingdom This resource pack was developed by the Programme Resources Department at International Headquarters, with International Emergency Services and International Projects and Development Services working together to achieve its completion: Elise Belcher Community Development Coordinator (Africa) Emma Blount Research Assistant Damaris Frick Field Operations Officer (International Emergency Services) Benjamin Gilbert Community Development Coordinator (South Asia, and South Pacific and East Asia) Jonathan Hibbert-Hingston Former Community Development Coordinator (South Asia, and South Pacific and East Asia) Ruth Samuels Community Development Coordinator (Europe, Americas and Caribbean) Film Credits: The Salvation Army Video Production Unit, United Kingdom Territory Neil MacInnes Director/Cameraman John Anscombe Sound Recordist Community Albums / Sitting Duck Music and Media Rob May Executive Producer Simon Hill Executive Producer Jamie Barty Film Editor

Published: September 2016

2

Acknowledgements We are grateful for the support from The Salvation Army World Service Office (USA National Headquarters), Sektion Mission (Switzerland, Austria and Hungary Territory) and Salvation Army International Development (United Kingdom Territory with the Republic of Ireland), as well as several other country representatives who gave their input.

We also thank the Bangladesh Command for hosting the film crew and sharing their stories with us, as well as several other territories, all of which have given valuable input to this resource.

3

Preface This guide is for anyone who wants to build resilience or reduce the risk of disaster in their community. It will help you come together with others to think about how to achieve this – either through being alert and preparing for hazards, or by working to mitigate the impact of a disaster faced.

Corps officers are encouraged to use this guide to build local resilience in and with their communities.

Projects officers and staff are encouraged to use it to support their efforts, develop national disaster management strategies to achieve the wider aim of growing resilient communities around the world and as training for their role and the development of others. Territorial leaders are encouraged to prioritise disaster risk reduction considerations throughout all existing programmes and activities.

Many of these tools can be used in community care ministries, home leagues, women’s ministry groups, youth groups and board meetings, or in other existing Salvation Army programmes to engage leadership. The guide’s success will be based on us working together across departments and divisions to build resilient communities.

This is a living document and there is a joint responsibility to make sure it stays as relevant and effective as possible. Please continue to share your stories of building resilience or give examples of new tools and Bible studies you have used so we can update this resource regularly and learn together internationally.

Alongside this guide and the film featuring work in Bangladesh, we have collated a resource pack of useful tools, case studies, training activities, general advice and Bible studies. The pack involves a combination of Salvation Army materials and links to other organisations’ expertise on the topic.

When using external resources please reference the author in the appropriate way.

For further information, or to share your own stories, lessons learned and best practice ideas, please contact: IHQ-Projects@salvationarmy.org IHQ-Emergency@salvationarmy.org

4

Contents Finding Your Way Around the Guide ................................................................................................ 6 Chapters and Structure ................................................................................................................... 6 Introduction............................................................................................................................................ 7 What does DRR involve? ............................................................................................................. 7 Who is this guide for?................................................................................................................... 7 Points to Consider ............................................................................................................................ 7 The Bigger Picture of Our Work ..................................................................................................... 8 Figure 1: Livelihoods Model ........................................................................................................ 8 Glossary of Terms .............................................................................................................................. 10 Chapter One: Vision and Community Engagement ...................................................................... 13 SALVATION ARMY CONTEXT ................................................................................................... 13 UNDERSTANDING KEY THEMES/TRAINING ......................................................................... 14 FURTHER RESOURCES ............................................................................................................. 16 Chapter Two: Key Definitions ........................................................................................................... 19 SALVATION ARMY CONTEXT ................................................................................................... 19 CASE STUDY ................................................................................................................................. 24 FURTHER RESOURCES ............................................................................................................. 24 Chapter Three: Vulnerability and Capacity Assessment.............................................................. 26 SALVATION ARMY CONTEXT ................................................................................................... 26 UNDERSTANDING KEY THEMES/TRAINING ......................................................................... 26 FURTHER RESOURCES ............................................................................................................. 30 Chapter Four: Hazard and Risk Assessment ................................................................................ 32 SALVATION ARMY CONTEXT ................................................................................................... 32 UNDERSTANDING KEY THEMES/TRAINING ......................................................................... 33 .......................................................................................................................................................... 34 FURTHER RESOURCES ............................................................................................................. 35 Chapter Five: Disaster Management Plans and Mitigation Actions ........................................... 37 UNDERSTANDING KEY THEMES/TRAINING ......................................................................... 38 Figure 7: Index of Types of Hazard ............................................................................................. 42 Bibliography ........................................................................................................................................ 44 Further Resources ............................................................................................................................. 45

5

Finding Your Way Around the Guide This guide is designed to be as simple and easy to use as possible. There are a number of attachments throughout that you may find useful in other circumstances or group discussions. This page will help you find what you are looking for.

Chapters and Structure This guide is divided into six chapters. Chapters One to Five involve six key sections: ‘Salvation Army Context’, ‘Understanding Key Themes/Training’, ‘Bible Study’, ‘Tool Sheets’, ‘Case Study’ and ‘Further Resources’.

Chapter Six is specifically for thematic issues. There is an index of how we have organised these, which matches the online folder of resources.

Tool Sheets These are interactive tasks designed to help you apply the relevant information to projects you, or others, may be personally working on. You can use them in your daily work or as examples in your training, and where feasible you should try to use them in group and community settings so that as many people as possible are engaged in the decisions and actions taken. In each chapter of this guide a specific tool is suggested and named; more detailed instructions for that tool can be found in the accompanying booklet.

Bible Studies These studies should help you to reflect on the issues presented and, in particular, those faced in your locality. The text boxes within each chapter can be found easily and are related to further documentation in the accompanying booklet that can be used in other related group sessions or training.

Case Study This section gives examples of people, projects and communities that have applied the learning from the chapter, so we can see what it looks like in action.

Further Resources For further or more in-depth advice, we have offered a selection of resources, some from The Salvation Army and some from external sources. These allow you to read further information on the topics most relevant to your setting.

6

Introduction Across the world, The Salvation Army wants to see ‘people enjoy life in all its fullness as they engage 1 in transformative relationships with God, others and all creation.’

Whilst this is our vision, we know the reality is that countless people around the world suffer when disaster and conflict engulf their way of life. We also know that it is often the poorest who suffer the most. They are unable to live life in all its fullness.

Disasters and conflicts happen in a range of ways and with varying effects, therefore the amount and type of damage that they cause also varies extensively. However, it is important to understand that it is not only a disaster’s size or type that determines the amount of damage caused but, more importantly, a community’s ability to deal with that event. This guide aims to explore how we can look at disasters from a community development perspective and empower local people to better prepare for them and better deal with the impact. This is known as Disaster Risk Reduction (DRR).

What does DRR involve?

DRR deals with prevention, preparedness and mitigation. It focuses on measures that can a) prevent a disaster from occurring, b) prepare people for responding to a disaster if it does occur and c) minimise the level of damage that disaster causes.

There are a number of ways DRR can be implemented in an area; however, The Salvation Army’s approach – and therefore the focus of this guide – is to enable and empower communities to implement it themselves in partnership with external resources.

Who is this guide for?

This guide is designed to be accessible for those who want to help their community or local project better prepare for and recover from disasters. The aim is that it will be used in a Salvation Army context to contribute to ongoing community development programmes, both existing and new, across the world. Even if not every aspect of the guide can be implemented, key sections or activities (such as the Tool Sheets or Bible Studies) are designed to stand alone and can be used by anyone willing to facilitate a conversation with a group of others and take responsibility for ensuring that action follows.

Points to Consider •

•

1

You are entirely free to be creative and use this guide in whatever way is most helpful in your context. For example, the guide is divided into sections to make it easier for you to find the most relevant topics and ideas. So if a section is not applicable to your community or project, then simply move on and focus on the sections that are most helpful.

The same is true for the individual tools – not all of them will be right for your context, so use your judgement and either adapt the tool

Bible Study Disasters of varying kinds crop up regularly in the Bible. Noah’s story of building the ark is one many will be familiar with and it is a very helpful example of many of the things we talk about in this guide.

In Genesis 6:9-22 God tells Noah, who ‘was a righteous man, blameless among the people of his time’, that he is going to send a flood and he gives Noah instructions on how to prepare for it – so Noah had a disaster management plan!

Look at Genesis 6:18-22, 7:1-4.

Preparing to protect so many animals and many members of his family took some planning. Noah also had to think ahead to when the flooding subsided and they left the ark, not knowing what – if anything – would remain on the ground for food and shelter.

Noah’s disaster management plan included short- and long-term elements. What were these?

What are the things we most need to keep safe during times of disaster?

Salvation Army Impact Statement, p.1, The Salvation Army, 2014.

7

• •

to your context or use a different one.

Community ability (especially literacy skills) must be considered when using this guide in a group setting, particularly the Tool Sheets and Bible Studies.

However, whatever barriers of language may be present it is important not to underestimate people’s ability to know their own context, and to allow everyone who wants to contribute the opportunity to share their opinions on what matters in their lives and what should be done to build resilience to disasters in their communities.

The Bigger Picture of Our Work The Salvation Army is committed to making sure that communities are as well prepared for disaster as possible and we want to make sure that this commitment to DRR runs through all of our projects 2 and programmes. This very basic ‘Livelihoods Model’ looks at some of the key cycles of a functioning community and the impact that disasters (‘shocks and stresses’) can have upon them.

Figure 1: Livelihoods Model Resources to meet basic needs

Control of resources

Assets for development

Basic needs

Barriers to access

SHOCKS AND STRESSES

Access To resources

The core of our work is not about programmes but people, so they provide the starting point for this model. Every person has basic needs that must be met: food, water, shelter. In order to meet those basic needs, people require access to resources: usually a job or livelihood, or a particular set of skills. With good resources, they can then begin to build assets (social, physical, natural, economic, etc).

However, sometimes there can be a struggle to access resources – people face barriers such as a lack of infrastructure or unfair control of resources (i.e. an imbalance of power, meaning that some people have better access to resources than others). In addition to these (sadly) more routine elements of the cycle, there is another threat to the meeting of people’s basic needs: a disaster. The shock and stress of a hazard can be monumental and have both an immediate and lasting impact on people’s ability to access resources. Positively, as we build assets, we become more resilient to shocks and stresses that come our way.

The Salvation Army’s community work fits into this diagram in two ways: 1) in times of disaster our emergency response teams aim to meet people’s basic needs by actively providing resources such 2

Sanderson, David, ‘Cities, disasters and livelihoods’ http://reliefweb.int/report/mozambique/cities-disastersand-livelihoods

8

as food, shelter and water; and 2) in times of development our teams aim to ensure that people's needs are met by working with a community to change or remove the barriers that stop them accessing those resources for themselves.

Consider where your particular work fits into this bigger picture.

• • •

Are you providing the appropriate response for the situation?

Which part of the cycle most represents the key issues in your context?

How much of your current work takes into consideration the need to boost a community’s resilience to the shocks and stresses that a disaster can bring?

9

Glossary of Terms Adaptation: When either natural or human systems adjust themselves in response to a change in their environment (either actual or expected) in a way that lessens negative effects.

Biological hazard: Exposure to toxins, diseases or bioactive substances that can cause serious illness or even death, or major damage to property, land and the environment.

Building code: A set of regulations that are designed to control how buildings are made and ensure that they reach a certain standard, so that people who live, work or spend time in them are kept safe.

These standards include resistance to collapse and damage.

Capacity: The combination of all the strengths, attributes and resources available within a community.

(See ‘coping capacity’.)

Capacity development: The process of increasing a community’s capacity, for example through improvement of knowledge, skills and systems, or the introduction of new or improved resources.

Climate change: A change in the global natural environment, most notably the weather, that persists for decades or longer. Climate change can come as a result of either natural causes or human activity.

Contingency planning: A process that looks ahead to try to foresee possible events or situations that might put people or communities in danger, and then puts plans in place so that if those predicted situations should occur people will know what to do and how to respond.

Coping capacity: The ability of people or communities, using available skills and resources, to face and manage difficult conditions, emergencies or disasters.

Disaster: A serious disruption to the functioning of a community or society, involving widespread human, material, economic or environmental losses which exceed the ability of the affected community or society to cope using its own resources.

Disaster risk: The potential losses in lives, health, livelihoods, resources and services for a particular community if a disaster were to occur.

Disaster risk management: The putting in place of plans and systems that are designed to lessen the impact of a disaster on a community.

Disaster risk reduction: The putting in place of plans and systems that are designed to decrease the likelihood of a disaster occurring or to minimise the chances of an event having disastrous consequences.

Disaster risk reduction plan: The specific document that contains the actions designed to decrease the likelihood of a disaster occurring or to minimise the chances of an event having disastrous consequences.

Early warning system: A system designed to make sure that meaningful warning information can be easily and quickly shared so that individuals and communities threatened by a hazard have time to prepare and to act appropriately, reducing the possibility of harm or loss.

Emergency: A situation in which lives and property are at risk and either intervention from outside the community or unusual initiatives by the community itself are needed. (NOTE: In relation to other, similar, terms an emergency encompasses a more general time period, whereas a disaster occurs in a specific, limited time period. A disaster is a type of emergency.)

Emergency management: The plan and steps taken to address the emergency situation, including the organisation of resources, as a community works to recover from the impact of the emergency.

Emergency services: The set of specialised agencies that have specific responsibilities and objectives in serving and protecting people and property in emergency situations.

10

Geological hazard: A physical environment-based process or phenomenon that may have negative consequences on either people or the physical environment (e.g. a landslide or earthquake. These types of hazard can also be referred to as ‘natural disasters’.)

Hazard: A dangerous phenomenon, substance, human activity or condition that may cause loss of life, injury or other health impacts, property damage, loss of livelihoods and services, social and economic disruption, or environmental damage. (NOTE: In relation to other, similar, terms a hazard can turn into or cause a disaster, which is one type of emergency situation.)

Meteorological hazard: A weather-related process or phenomenon that may have negative consequences on either people or the physical environment (e.g. a cyclone, flood or typhoon). These types of hazard can also be referred to as ‘natural disasters’.

Mitigation: The lessening or limitation of the adverse impacts of hazards and related disasters.

Natural hazard: A non man-made process or phenomenon that may have negative consequences on either people or the physical environment.

Preparedness: The knowledge and capacities developed by individuals, communities, response and recovery organisations and governments to effectively anticipate, respond to and recover from the impacts of possible or actual hazards.

Prevention:

The

outright

avoidance

of

hazards

or

their

adverse

impacts.

Recovery: The restoration of facilities, livelihoods and living conditions of disaster-affected communities, including efforts to reduce disaster risk factors.

Relief: Response actions that reduce the impact of the disaster event after it has happened.

Resilience: The ability of a system, community, or society exposed to hazards to resist, absorb, accommodate and recover from the effects of a hazard in a timely and efficient manner.

Risk: The combination of the probability of an event and its negative consequences.

Risk assessment: A methodology to determine the nature and extent of risk by analysing potential hazards and evaluating existing conditions of vulnerability that together could potentially harm exposed people, property, services, livelihoods and the environment on which they depend.

Risk management: The systematic approach and practice of managing uncertainty to minimise potential harm and loss.

Stresses: Long-term trends that undermine the potential of a given system or process and increase the vulnerability of actors within it. These can include natural resource degradation, loss of agricultural production, urbanisation, demographic changes, climate change, political instability and economic decline.

Sustainable development: Development that meets the needs of the present without compromising the ability of future generations to meet their own needs.

Vulnerability: The characteristics and circumstances of a community, system or asset that make it susceptible to the damaging effects of a hazard.

11

Salvation Army Context Understanding Key Themes/Training Bible Study

VISION AND COMMUNITY ENGAGEMENT

Case Study Tool Sheets Further Resources

Chapter One

12

Chapter One: Vision and Community Engagement Learning in This Chapter: This chapter looks at the bigger picture of development work and how The Salvation Army envisions and works to bring change in communities. You should finish the chapter feeling able to use the suggested tools in your context to engage your community in a vision for DRR. Bible Study John 10:7-18 Tool Sheets Criteria for Resilient Communities DreamTool Building Relationships - Disaster ManagmentCycle Case Study Bangladesh Flooding SALVATION ARMY CONTEXT ‘In the past two decades, on average more than 200 million people have been affected every year by disasters… Disaster loss is on the rise with grave consequences for the survival, dignity and 3 livelihood of individuals, particularly the poor, and hard-won development gains.’

Across the world, The Salvation Army is working to ensure that as many people as possible can ‘enjoy life in all its fullness as they engage in transformative relationships with God, others 4 and all creation.’

TOOL SHEETS

Yet one of the biggest challenges we face as Criteria for Resilient Communities we work towards that goal is the disruption and damage caused to communities by disasters Dream Tool and hazards. In 2015 alone our International Building Relationships Emergency Services (IES) responded to 41 disaster events in 35 countries by providing Disaster Management Cycle financial and/or personnel support. About 300,000 people received assistance through these activities and time and time again we witnessed that it is those who are already among the poorest and most vulnerable who suffer the most in emergency situations.

However, The Salvation Army’s commitment to emergency response work should not stop us from also seeking to strengthen communities before a disaster strikes. Government policies recognise that 5 ‘peace, security and good governance are the building blocks of stable, successful societies’ and we know that those elements also build communities’ ability to respond when an emergency occurs. So whilst we will continue to be motivated by our faith to support hundreds of disaster-prone communities, relieving immediate suffering, we must not only address the symptoms but the causes.

We want to grow our ability to work with communities to prevent disasters from occurring, to prepare people for responding to a disaster if one does occur and to minimise the level of damage that

3

Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters, p.1, United Nations Office for Disaster Risk Reduction (UNISDR), 2005.

4 Salvation Army Impact Statement, p.1, The Salvation Army, 2014.

5 Single departmental plan 2015 to 2020, Department for International Development (DFID), 2016. https://www.gov.uk/government/publications/dfid-single-departmental-plan-2015-to-2020/singledepartmental-plan-2015-to-2020

13

disaster causes, not only using our own resources and skills but also those of the communities themselves.

We trust in Jesus’ promise that he came to bring life in all its fullness (John 10:10) and we believe that if we work together then this can be a reality in any time, place or context.

Bible Study

UNDERSTANDING KEY THEMES/TRAINING Save the Children recognise that ‘DRR makes economic sense. The United Nations estimates that for every US$1 invested in preparing for a disaster, US$7 6 of losses can be prevented’. This supports our vision in working now to develop communities for the future, as the positive long-term effects could be substantial if planning is carried out successfully.

However, every community is different and to engage them in a vision for DDR, and to plan the DRR most effectively, you need to look very closely at the area in which you work and make sure you fully understand your context.

The UN World Conference on Disaster Risk Reduction in Sendai, Japan, created a framework to ‘adopt a concise, focused, forward-looking and action-orientated 7 post 2015 framework for disaster risk reduction’. The framework recognises that the poorest people are the ones who inevitably suffer the most, yet that communities have many assets and strengths that can be utilised to prepare for disasters around the world if they are guided to do so. The table in Figure 2 shows the four recognised priorities for action over the next 15 years.

6 7

John 10:7-18: Jesus tell us that he came so that everyone would have life and have it fully.

What does the phrase ‘life in all its fullness’ mean to you?

Verses 7-9: How does Jesus describe himself and what is his responsibility?

Verses 9 and 16: What must our personal response be?

Verses 10-16: What will Jesus give us, and how, so that we can have life in all its fullness?

How can these values be part of our lives and work?

Reducing Risks, Saving Lives, p.2, Save the Children, 2011.

Sendai Framework for Disaster Risk Reduction 2015-2030, p.9, United Nations (UN), 2015.

14

Figure 2: Sendai Framework for Disaster Risk Reduction (2015- 2030)

8

Priorities for Action

National and Local

Global and Regional

Priority 1:

Collection, analysis and management of relevant data, and the sharing of government experiences, lessons learned, good practice, training and education.

Methodologies and tools for data and statistics-based risk modelling, assessment, mapping, monitoring and multi-hazard early warning systems.

Public education and awareness through campaigns, social media and community mobilisation.

Share information on user-friendly systems and easy-to-use disaster risk reduction technologies as well as coordination of scientific research institutions.

Compliance with sectoral laws and regulations such as urban planning, health and safety standards etc.

Create common information systems and programmes and actively engage with the Global Platform for Disaster Risk Reduction.

Meet specific regulations established by disaster management authorities.

Meet specific regulations established by disaster management authorities.

Assign clear roles to members of the community.

Promote transboundary cooperation and forge partnerships in order to share resources and practices.

Strengthen the public and private sectors through structural, nonstructural and functional disaster risk prevention, in particular schools and hospitals and physical infrastructures.

Promote coherence across systems, sectors and organisations.

Encourage the adoption of policies and programmes in accordance with national laws and circumstances.

Sharing mechanisms and instruments as well as scientific research and networks.

Promote regular practice evacuation drills, training and the establishment of area-based support systems.

Support regional cooperation to deal with disaster preparedness, including through common exercises and drills.

Cooperation of diverse institutions, multiple authorities and related stakeholders.

Sharing on lessons learned and best practices.

Understanding disaster risk.

Priority 2: Strengthening disaster risk governance to manage disaster risk.

Priority 3: Investing in disaster risk reduction for resilience.

Priority 4: Enhancing disaster preparedness for effective response and to ‘Build Back Better’ in recovery, rehabilitation and reconstruction.

8

Ibid.

15

CASE STUDY Bangladesh Three-quarters of Bangladesh is floodplain, with more children drowning here than in any other country in the world. Communities are aware that the floods come often and can be predicted, so they are keen to find ways to reduce the risks associated with flooding. So a new Salvation Army initiative has been to introduce swimming lessons for children.

Local volunteer Jibanada, who works in a small rural setting not far from Khulna, is one of the community members who has been trained to run the swimming lessons. She says: ‘When a person is born, they get vaccinations. I’d say learning to swim is like a vaccination. If a storm or a flood comes, the person who can swim can save his life, and that’s why we’re teaching them to swim. If I can teach these kids, they can save others’ lives when it comes to the flood times.’

The children themselves have also been very positive about the lessons, with one child commenting: ‘If we fall in the pond [and] we can swim, we can rescue ourselves and others.’

FURTHER RESOURCES Books:

Corbett, Steve and Fikkert, Brian, When Helping Hurts, Moody Publishers, Chicago, IL, 2009.

PDFs/Online Articles:

Resilience in Action: Lessons from Public-Private Collaborations Around the World, Climate and Development Knowledge Network (CDKN), 2013. http://www.pacificdisaster.net/pdnadmin/data/original/MCG_2013_ResilienceinActionReport.pdf Defining Disaster Resilience: a DFID Approach Paper, Department for International Development (DFID), 2011. https://www.gov.uk/government/publications/defining-disaster-resilience-a-dfid-approach-paper Investing in Urban Climate Resilience, 2009-2015, DFID, 2009. https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/501190/Urban-ClimateChange-Resilient-Trust-Fund-05Feb16.pdf

16

Saving Lives, Preventing Suffering and Building Resilience, DFID, September 2011. https://www.gov.uk/government/uploads/system/uploads/attachment_data/file/67468/The_20UK_20G overnment_s_20Humanitarian_20Policy_20-_20September_202011_20-_20Final.pdf Single Departmental Plan 2015 to 2020, DFID, 2016. https://www.gov.uk/government/publications/dfid-single-departmental-plan-2015-to-2020 General DFID resources and wider reading https://www.gov.uk/government/organisations/department-for-international-development Characteristics of a Safe and Resilient Community, International Federation of Red Cross and Red Crescent Societies (IFRC), 2011. http://www.ifrc.org/PageFiles/96986/Final_Characteristics_Report.pdf Increasing Community Disaster Awareness, IFRC, 2000. http://www.ifrc.org/Global/Inccdp.pdf The Code of Conduct for the International Red Cross and Red Crescent Movement and NonGovernmental Organisations (NGOs) in Disaster Relief, IFRC. http://www.ifrc.org/en/publications-and-reports/code-of-conduct/ Building Disaster Resilient Societies, Japan International Cooperation Agency (JICA), 2008. http://www.jica.go.jp/english/our_work/thematic_issues/water/pdf/cooperation_01.pdf The Future Framework for Disaster Risk Reduction, Overseas Development Institute (ODI), 2014. http://www.odi.org/publications/8776-future-framework-disaster-risk-reduction-guide-decision-makerssecond-edition Role of Beneficiary Communication in Building Resilience, The Red Cross. http://www.ifrc.org/PageFiles/94411/151268355-PMI-FRC-IFRC-Case-Study-BC-in-DisasterManagement.pdf Reducing Risks, Saving Lives, Save the Children, 2011. http://www.savethechildren.org.uk/resources/online-library/reducing-risks-saving-lives-our-approachdisaster-risk-reduction Disaster Risk Reduction makes Development Sustainable, United Nations Development Programme (UNDP), 2014. http://www.undp.org/content/dam/undp/library/crisis%20prevention/UNDP_CPR_CTA_20140901.pdf Disaster Resilience in an Ageing world, United Nations Office for Disaster Risk Reduction (UNISDR), 2014. http://www.unisdr.org/2014/iddr/documents/DisasterResilienceAgeingWorld.pdf Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters, World Conference on Disaster Reduction, UNISDR, Hyogo, Japan, 2005. http://www.unisdr.org/2005/wcdr/intergover/official-doc/L-docs/Hyogo-framework-for-actionenglish.pdf Sendai Framework for Disaster Risk Reduction 2015-2030, UN, 2015. http://www.unisdr.org/files/43291_sendaiframeworkfordrren.pdf

17

Salvation Army Context Understanding Key Themes/Training Bible Study Case Study Tool Sheets

KEY DEFINITIONS

Further Resources

Chapter Two

18

Chapter Two: Key Definitions Learning in This Chapter: This chapter takes a deeper look at the key terms and concepts involved in DRR. You should finish the chapter with a clear understanding of exactly what DRR is, what it involves and why it is important, as well as feeling able to recognise what it looks like in action.

Bible Study Psalm 10:14, 17-18; Psalm 146 Tool Sheets Community Mapping Disaster Strikes (Workshop Activity) Timelines The Crunch Model The Release Model Case Study Pakistan Flooding SALVATION ARMY CONTEXT ‘Resilience is a wonderful metaphor. It somehow conveys in a single word the qualities of bending 9 without breaking, of healing after an injury, of tensile rather than brittle strength.’

Community-based Disaster Risk Reduction is the practise of lessening the chances of a community being negatively affected by a disaster, through organised efforts to identify, assess and ultimately reduce the factors that lead to emergency situations. This might involve, among other things, reducing people’s exposure to hazards, lessening the vulnerability of people and property, encouraging wise management of land and the environment and improving people’s preparedness for adverse events.

The process of identifying and assessing risks involves knowing both the capacity and the vulnerability of a community, which combine to help us understand what the overall level of resilience might be.

A group’s capacity is made up of a combination of all the strengths, attributes and resources available within a community to achieve its goals. Capacities can be divided into individual, group and institutional capacities. In order to fully assess our capacity, we also need to recognise our vulnerability. Vulnerability is the characteristics and circumstances of a community, system or resource that make it susceptible to the damaging effects of a hazard.

A community’s resilience is its ability to resist, accommodate and/or recover from the effects of a hazard in a timely and effective manner, including through the preservation and restoration of its essential basic structures and functions. The growing of a group’s resilience involves both development of capacity and reduction of vulnerability. We may have a strong social capacity in our community for organisation and teamwork but also have a significant practical vulnerability to losing the key resources, leaving us without anything to organise. Here our vulnerability undermines our capacity and leaves us less able to be resilient to that disaster.

It is important to note that both vulnerability and capacity are complex and multifaceted. Different 10 features, or layers, of resilience are needed to deal with different kinds and levels of stress and what is a vulnerability in one context may not be in another. It is therefore vital for The Salvation Army to build strong relationships in communities so that we can understand their context as well as possible.

9

Vernon, Phil, Climate Conversations – Is Resilience in Hibernation? 2013. http://allafrica.com/stories/201303200126.html 10 Twigg, John, Characteristics of a Disaster Resilient Community. 2009, p.9.

19

It is also clear that no single group or organisation can address every aspect of DRR, so we must 11 work together and partner with others to give a community the best chance of being resilient.

Linking Relief, Recovery and Development.

When disasters occur – as is sadly quite common – lives are lost, people are hurt, buildings are damaged and jobs are no longer available. The Salvation Army responds with immediate aid, providing basic supplies such as food, water and blankets, so that people can survive.

Even after the emergency response phase concludes, The Salvation Army often continues a presence in the area to help people with longerterm areas of recovery. This allows us to build lasting, positive relationships with both individuals and whole communities.

TOOL SHEETS Community Mapping Disaster Strikes (Workshop Activity) Timelines The Crunch Model The Release Model

However, we need to make sure that we understand the importance of these relationships in the context of disaster preparedness. Broken relationships can have a huge impact on a 12 community’s vulnerability, just as restored relationships can contribute to its capacity ; therefore we must not overlook the significance of relationship-building in the work to prevent disasters and mitigate their effects.

The relationships that we are trying to build in our ministry are: -

Spiritual: rebuilding the broken relationship between people and God Economic: rebuilding the broken relationship between people and the systems or injustices that keep them in poverty Ecological: rebuilding the broken relationship between people and the environment Social: rebuilding the broken relationship between people and others who cause hurt or injustice.

When we look at a community trapped in the grip of poverty we quickly see the multidimensional nature of its predicament. When relationships between humans and their environment break down people are left more vulnerable to extreme weather and natural catastrophes; when social relationships are broken then communities are more likely to experience family breakdown, political unrest and violent conflict.

Figure 3 shows that there are many possible stages at which we may be working in a community, either before a disaster (preventing one, mitigating the effects of one, or preparing for or alerting people to one) or after a disaster (responding, rehabilitating or reconstructing) but that wherever we are in that cycle the most important element of our work is building and restoring relationships. This is key for addressing a community’s vulnerabilities and preparing the people to work together to either prevent, prepare for or recover from a disaster.

Figure 3: Disaster Management Cycle

11 12

Ibid, p.12.

Corbett, Steve and Fikkert, Brian, When Helping Hurts, Moody Publishers, Chicago, IL, 2009.

20

UNDERSTANDING KEY THEMES/TRAINING As mentioned in the Introduction (page 7), DRR has three key areas of focus: prevention, preparedness and mitigation. We will now address each of these areas in more detail.

1. Prevention: Activities that can either stop a hazard from occurring, or can at least stop the hazard from having negative effects.

Example: Being part of an advocacy process to negotiate and confirm a peace agreement between two parties of conflict before unrest occurs.

Example: Knowing that earthquakes are common, building earthquake-proof houses that will not collapse.

2. Preparedness: This is about two key things: being alert to an imminent disaster so that people have the time to react, and being ready for an imminent disaster so that people will know how to react.

Example: Being alert – a community radio station tells us that a tsunami warning has been issued and that people need to move to higher ground quickly to be safe.

Example: Being ready – knowing that tsunamis have happened before in the area, making a plan to stock food, clean water, some medicine and blankets in a community space on high ground (which is less likely to be affected) so that when people are evacuated there, their immediate needs can be met.

3. Mitigation: Activities that aim to reduce the negative impact of potential disaster events, up until and whilst they are occurring.

Bible Study How does God feel about the poor and oppressed?

Psalm 10:14, 17-18; Psalm 146 Reflection 1. Psalm 10 begins with despair.

What caused this despair? What threats do the people face?

2. But the psalm ends in hope.

What was it that turned despair into hope?

3. Psalm 146 is a psalm of praise.

The psalmist was giving voice to people’s gratitude. What were they grateful for?

4. How would you describe God’s relationship to the poor and oppressed in these psalms and many other passages?

5. Considering the community that you live or work in, and the threats that you face, how do the verses challenge or encourage you?

Example: Many communities in Bangladesh are vulnerable to floods, especially during the rainy season, and many villages are cut off entirely by surrounding water. They then have to rely on boats or simple bamboo structures to cross the water, which can be incredibly dangerous, especially for children and the elderly or disabled. So The Salvation Army asked community members to identify a location for a permanent bridge that would be safe and accessible and could benefit the whole community. Such a bridge was constructed in partnership with the community and local people take responsibility for its ongoing maintenance and repair. Now when flooding occurs it is still a hazard, but it does not have to become a disaster. One mother in the community told us, ‘The bamboo bridge we had before was a lot of trouble, nothing like as good as this. This makes getting across very easy, even for older people.

When we had the old bridge people would fall off into the water, even our children! But now we don’t have those worries any more.’

21

We consider the following 15 criteria to be key areas of influence in which The Salvation Army can come alongside communities in building their resilience. As you complete your own community-based disaster preparedness, consider the following table.

Figure 4: Salvation Army Criteria for Disaster Resilient Communities Criteria

Examples in communities

1. Positive

Encourage a spirit of resilience Cultural values and attitudes (to disaster) addressed Promote a positive outlook towards recovery, with the capacity to innovate and move forward Have the space or opportunity to grow spiritually and the mental attitude to overcome Allow space for spiritual reflection in times of disaster/crisis

2. Peaceful

Respectful of other religions and beliefs Respectful of the rights of others Committed to non-violence Promoting peace

3. Safe

Protecting the rights of others Disaster resilient infrastructure Hazard/risk-reducing construction and maintenance methods Safety of economic assets – e.g. protecting livestock/using bank accounts

4. Prepared

Establish an emergency warning system and practise evacuation routes, drills and/or systems Identify shelter facilities appropriate for different groups Identify vulnerable groups/members within community Keep emergency goods and supplies in a warehouse system Community disaster management plans formulated and implemented (including risk reduction, response and long-term development)

5. Aware

Know all capacities and vulnerabilities Regular assessments and reflective learning Capacity to adjust and renovate Measuring progress against goals Aware of their own and others’ fundamental human rights

6. Knowledgeable

Action to education services Lifelong learning opportunities in communities (vocational/adult learning) Appropriate life skills development.

Information about disasters and risk available and/or taught

7. Healthy

Access to health services Health education in schools and for families First aid knowledge and training Mental health and disability awareness Access to safe and sufficient water and adequate sanitation (in an emergency and in everyday life) Appropriate shelter to reduce the risk of disease Access to adequate food supplies to prevent malnutrition

8. Able to recover

Relief, recovery and development Build back better Sustain long term vision – ‘life in all its fullness’.

Celebrating community achievements and learning together

9. Sustainable

Diversity of livelihoods Environmental management to reduce hazards and risks (hazard-resistant agricultural practices and seeds, etc) Sustainable care, protection and use of the environment

22

Self-sufficient Manage natural assets Increased biodiversity 10. Resourceful

Use of local resources before reliance on external resources Emergency funding/resources in place (external and internal) Economic opportunities utilised Access to appropriate credit and savings schemes Voluntary social fund in place

11. Accountable

Transparency in decision-making and handling resources Decision-making process based on wider community plan Carefully manage funds and resources available

12. Unified

Have a sense of belonging and be able to grow spiritually Able to speak up for justice when needed Promote unity and solidarity in the community Shared vision Organised

13. Participatory

Working together (community action teams) Identify and know roles in emergency and development Good leaders and good governance Good communication and information management Priorities identified by community

14. Connected

Involve others in our work (i.e. partnerships with NGOs, communities, churches, local government and businesses) Member of appropriate networks Officially recognised/registered with local and national government (share disaster preparedness plans)

15. Inclusive

No discrimination Opportunity for every voice to be heard and everyone to communicate Involvement of women, children and the vulnerable in the decision-making process Support for the most vulnerable (e.g. elderly, disabled)

23

CASE STUDY Pakistan After a devastating flood in 2010, around 22 million people were driven from their homes and crops, animals and livelihoods were destroyed. The Salvation Army’s emergency teams were quick to respond and worked to help 1,800 families in the South Punjab, Jhang and Khyber Paktunkhwa regions. However, after the initial relief phase was over it was felt that there was also ongoing work to be done helping local communities to develop a plan of action for when the next, sadly inevitable, floods came. In this context The Salvation Army chose to address issues of both preparedness and mitigation.

In order to increase people’s alertness and better prepare them for possible disasters, 25 community members in the village of Chala were trained in providing early warnings to everyone in the community about the floods or other hazards and were shown how to assist families with evacuation. The first test of this disaster preparedness came in 2014 when the flooding returned and the results were overwhelmingly positive: not a single person died and almost all of the community’s livestock were rescued. The local people said they felt a stronger sense of working together and supporting each other, and the village leader of Chala said, ‘The Salvation Army’s awareness programme saved our lives’.

The community has also engaged in disaster mitigation, focusing on increasing people’s ability to continue making a living even when the floods come. Most of the men in the community are agricultural labourers who rely on getting hired on a day-to-day basis, and when there is flooding there is no work. So The Salvation Army has been running women’s livelihood projects which involve work that is less dependent on the land, such as sewing workshops. At the end of the training, which lasts between six and 12 months, each participant receives a certificate and a sewing machine. These women are now able to financially support their families, even when the floods come.

FURTHER RESOURCES Defining Disaster Resilience: a DFID Approach Paper, DFID, 2011. https://www.gov.uk/government/publications/defining-disaster-resilience-a-dfidapproach-paper Reducing Risk of Disaster in our Communities (2nd edition), Tearfund, 2011. http://tilz.tearfund.org/en/resources/publications/roots/reducing_risk_of_disaster_in_our_communities/ Twigg, John, Characteristics of a Disaster-Resilient Community, 2009. http://community.eldis.org/.59e907ee/Characteristics2EDITION.pdf

24

Salvation Army Context Understanding Key Themes/Training Bible Study

VULNERABILITY AND CAPACITY ASSESSMENT

Case Study Tool Sheets

Chapter Three

25

Chapter Three: Vulnerability and Capacity Assessment Learning in This Chapter: This chapter looks at putting disaster resilience into context. You should finish the chapter with a clear understanding of what it takes to assess a community’s vulnerabilities and their capacity, as well as a good base of knowledge of the key steps involved in the development of capacity.

Bible Study Genesis chapters 41 and 42 Tool Sheets Problem Tree Considering our Assets Identifying Vulnerabilities Capacity, Vulnerabilities and Needs Matrix Community Capacity Identifying Community Assets Seasonal Calendar Case Study Kenya Conflict SALVATION ARMY CONTEXT The Salvation Army’s way of working is to support the world’s most vulnerable people, especially knowing that they are most at risk from disasters. However, we do not focus on their vulnerability in isolation. In any assessment carried out we must recognise their capacity – their resources or social, economic, physical and natural assets – at individual, household, community and national level. By building on these assets, The Salvation Army supports communities to build their resilience.

UNDERSTANDING KEY THEMES/TRAINING ‘Resilience should always be clearly contextualised – allowing a coherent answer to the 13 question “resilience of what?”’

Disasters affect people differently. We saw in Chapter Two that a community’s vulnerability is the specific characteristics and circumstances that make it susceptible to the damaging effects of a hazard, reducing the overall resilience and negatively affecting the ability to predict, cope with, resist and recover from a disaster. Vulnerability can vary considerably from country to country. For example, the Caribbean island of Cuba is well prepared for hurricanes: vulnerability is low and few lives are lost. Yet the neighbouring country of Haiti is much less well-prepared and therefore vulnerability is high. Hurricanes of equal strength that hit the region will cause significantly more damage and loss of 14 life in Haiti than in Cuba.

However, even within the same country, and in fact within the same local area, vulnerabilities can still vary greatly. It is not always as simple as looking at a community as a single entity – a community might have a particular vulnerability as a whole, but then individuals and families within that community might have additional or different vulnerabilities due to their personal circumstances.

For example, a whole community might have a vulnerability to flooding because of its geographical location and the poor standard of building materials and the structures of homes. However, when that vulnerability is assessed on a family-to-family level, some people may be even more at risk than others – some families may be able to evacuate and find safety when a flood comes, whereas others 13 14

Defining Disaster Resilience: a DFID Approach Paper, p.12, DFID, 2011.

Reducing Risk of Disaster in our Communities, p.48, 2nd Edition, Roots, Tearfund.

26

may have sickness in the family, or have small children or elderly relatives living with them, making evacuation slower and harder and leaving them even more vulnerable to the floods than their neighbours. People are also likely to be vulnerable in different ways at different times – vulnerability 15 can change over time and space. (It is clear that in almost every context women, children, older and disabled people and politically marginalised and oppressed groups – i.e. those who are already among the poorest and most vulnerable – are often more exposed to risks and usually have less capacity to defend themselves from the impact of a disaster.)

Yet we must not forget that while each individual and community has its vulnerabilities, they will also have capacities. Chapter Two showed us that capacity is the combination of all the strengths, characteristics and resources available within a community, society or organisation that can be used to achieve agreed goals. So although we must not underestimate the importance of knowing and working to reduce a community’s vulnerabilities, we also must not underestimate the significance of its capacity. The reason this guide is called ‘Community-Based Disaster Risk Reduction’ is that whist we recognise that external resources are often necessary, especially in an emergency situation, we strongly believe - and have seen first hand - that communities have a critical part to play in their own disaster preparedness.

The risk of a disaster taking place is linked to both vulnerability and capacity. We call it ‘Disaster Maths’! If the likelihood of a hazard is put together with the level of vulnerability, we will be left with a certain type or level of risk; but if we bring capacity into the equation, we can reduce that risk: Hazard x Vulnerability - Capacity = Risk (To discuss the topic, see the tool sheets for further ideas on using this equation.)

It is vital, therefore, that communities are helped to develop their capacity. You may remember from the Glossary near the front of this guide that capacity development is defined as the process of increasing a community’s ability to cope with disasters, for example through improvement of knowledge, skills and systems, or the introduction of new or improved resources. Yet before capacity development begins, there must be a capacity assessment – you need accurate and up-to-date knowledge of the assets (strengths, skills and resources) currently contained within your community.

A simple way to think about the assets that exist is to divide them into three categories: 1. Individuals 2. Groups and associations 3. Institutions There are also four key types of capacity within each of those categories: 1. Individual 2. Social

TOOL SHEETS Problem Tree Considering our Assets Identifying Vulnerabilities Capacity, Vulnerabilities and Needs Matrix Community Capacity Identifying Community Assets Seasonal Calendar

3. Physical 4. Economic

15

Buckle, Philip, Marsh, Graham and Smale, Sydney, Assessment of Personal & Community Resilience & Vulnerability, Report: EMA Project 15/2000, p.13, 2001.

27

Given our long-term presence in many communities at grassroots level, there are many ways in which The Salvation Army can assist people to both reduce their vulnerabilities and strengthen their capacities. A helpful grouping of five sets of key assets is shown in Figure 5.

Figure 5: Actions to Build Capacity Asset

Examples in my community

How can the asset be used preparedness in my community?

to

build

disaster

Governance Economic Physical Social/Human Natural

It is important to note that whatever we do to assess and alter vulnerability and capacity it must involve the whole community, especially those who are most vulnerable and who may not normally have a voice in key discussions.

That means making sure that groups like women, children, the elderly, the disabled and minority groups are included, not only in initial discussions but also in the decision-making, planning, implementing and evaluating processes.

Bible Study Genesis chapters 41 and 42.

The Pharaoh’s dreams were a message from God to warn people of the coming famine. Joseph developed a strategy of collecting one fifth of all crops to help them survive during the seven years of bad harvest.

What warnings do we receive about approaching hazards?

How can people today prepare for times of disaster?

28

CASE STUDY Kenya The 2007-2008 elections in Kenya resulted in civil unrest and violence after President Mwai Kibaki was declared the winner, as people were convinced that there had been electoral manipulation. Many communities, and even The Salvation Army, were unprepared for the violence of the nation’s reaction and sadly much loss of life, property and livelihood ensued.

Therefore, as the 2013 national elections approached and allegations of political deceit began to surface again, The Salvation Army was determined to work with both local communities and other relief and development agencies to ensure that such losses would not be sustained again.

The two key areas were prevention and preparedness.

The Salvation Army wanted to do what it could to prevent another violent outbreak from occurring and to better prepare people to respond to and recover if such an outbreak did occur. The territory engaged in discussion with community members at district, divisional and national level to ensure as many voices as possible were heard as they reviewed what the problems had been in 2008 and what needed to be addressed for 2013. The Salvation Army also made connection with the Red Cross, the World Food Programme and Amref Health Africa on both local and national levels.

Prevention: In the 2008 elections, tension built even before the election and then erupted into violence after the votes had been counted. For 2013 The Salvation Army linked with Red Cross and Concern Worldwide to send out messages of peace through radio adverts, text messages, bookmarks and banners. This culminated in a national march for peace and unity which saw more than one million people gather in the centre of Nairobi (proudly led by the Nairobi Central Corps Band!) This helped to diffuse some of the tension before the election and resulted in less people resorting to violence once the election was over.

Preparedness: A communication chain, using a mix of community members and external organisation staff, was planned and documented in advance so that safety concerns could be easily shared throughout local areas. A clear financial plan was put in place so that not only was money set aside in advance but also key finance staff were given pre-approval to quickly release funds in response to need. Also, nine key centres were awarded Official Emergency Shelter status and given starting packs of maize, beans, oil, blankets and mattresses to provide necessities for a day or two should local people need to look for safety and shelter.

29

FURTHER RESOURCES

Capacity Self Assessment, Roots, Tearfund, 2003. http://tilz.tearfund.org/en/resources/publications/roots/capacity_self-assessment/ Buckle, Philip, Graham Marsh and Sydney Smale. Assessment of Personal & Community Resilience & Vulnerability Report: EMA Project 15/2000. 2001. http://citeseerx.ist.psu.edu/viewdoc/download?doi=10.1.1.113.9547&rep=rep1&type=pdf Care Climate Change.

Climate Vulnerability and Capacity Analysis.

2009. http://www.careclimatechange.org/files/adaptation/CARE_CVCAHandbook.pdf Kanta Kafle, Shesh.

Measuring Disaster-Resilient Communities: A Case Study of Coastal Communities in Indonesia, found in the Journal of Business Continuity and Disaster Planning Volume 5, number 3, 2011. http://www.forestrynepal.org/images/publications/Shesh%20Kafle_Measuring%20Disaster%20Resilie nt%20Communities.pdf Oxfam.

Participatory Capacity and Vulnerability Analysis.

2012. http://policypractice.oxfam.org.uk/publications/participatory-capacity-and-vulnerability-analysis-a-practitionersguide-232411 Renschler, C.S. et al. Developing the ‘peoples’ resilience framework for defining and measuring disaster resilience at the community scale.

2010. http://peoplesresilience.org/wpcontent/uploads/2013/07/2010_Renschler_PEOPLES_Resilience.pdf

30

Salvation Army Context Understanding Key Themes/Training Bible Study

HAZARD AND RISK ASSESSMENT Chapter Four

31

Case Study Tool Sheets Further Resources

Chapter Four: Hazard and Risk Assessment Learning in This Chapter: This chapter looks more closely at the various risks associated with hazards. You should finish the chapter knowing how to analyse your particular context to determine what hazards and risks pose the biggest threats in your setting.

Bible Study Luke 14:25-33 Tool Sheets Mind map of risks Disaster Maths Risk Quadrant Risk Mapping Hazard Frameworks Chutes and Ladders Case Study Japan Tsunami

SALVATION ARMY CONTEXT ‘Natural hazard events cannot be prevented from occurring, but their impacts on people and property can be reduced if advance action is taken to mitigate risks 16 and minimize vulnerability to natural disasters.’

A recent internal baseline survey and review of Salvation Army approved projects highlighted that while it is strong in several areas of implementation, The Salvation Army often struggles to adequately assess risk and then address that risk by including mitigating actions in its 17 plans. This affects our ability to have a long-term, positive impact in a community, because it is likely that at least some things will go wrong during project implementation or even after the project has completed, and we are not adequately prepared for that. As Tearfund notes in its guide Managing Everyday Risk, ‘From the moment we wake up each morning we are faced with a variety of risks – when we travel, when we eat, and in our relationships. Some of the risks we face are more serious than others. It is not possible to live our lives without facing risks and deciding how to manage 18 them.’

Bible Study Luke 14:25-33

How do we need to spiritually prepare ourselves for being disciples? (v 26-27) Reflect on the two examples Jesus gives on not planning properly (v 27-32). What risks are you facing, and what advice does this give you, in your own context?

Whatever the risks we face, it is necessary to assess and manage them fully in all projects, not just DRR projects or areas that are prone to disaster or conflict. Whether we are building a new corps or centre, engaging in a community, initiative or development project, or responding to a disaster, we 16

Godschalk et al, Natural Hazard Mitigation, p.4, Island Press, Washington, D.C., 1999.

CP0745 Community-based Disaster Risk Reduction, Baseline Survey, 2014.

18 ‘Managing Everyday Risk’, found in Footsteps no.79, Tearfund, June 2009. http://tilz.tearfund.org/en/resources/publications/footsteps/footsteps_71-80/footsteps_79/ 17

32

always consider the risks involved in order to mitigate them and ensure the best possible results of our work.

UNDERSTANDING KEY THEMES/TRAINING A risk is both the possibility of an event (in this case a hazard) and its negative consequences. As explained in the Glossary, a hazard by itself is not necessarily a disaster: disaster status is based on the impact and outcome of the hazard on the community or location. The impact of a hazard is determined by a combination of things: the nature of the risks associated with that particular hazard (i.e. the possible negative consequences that could come as a result of the hazard occurring) and the ability of a given area or community to cope with those negative consequences (i.e. a community’s resilience, which is about both its capacity and vulnerabilities). Chapter Three looked at how to assess a community’s vulnerabilities, capacity and overall resilience; this chapter will focus on how to determine the risks a community may face as a result of certain hazards.

Obviously life is full of risk, but we know how to manage most events that occur and the majority of them will not have a significant and/or negative impact on us. These are known as ‘acceptable risks’. However, other, less ordinary hazards and risks are much more concerning, as they are difficult to predict or manage. (A full list of the various types of hazard can be found in Chapter Six.) To manage these more dangerous hazards and improve our resilience towards them, we must first have a clear understanding of the risks they pose. We do this by performing a risk assessment.

Risk assessment is the process of understanding a) the context we are in, b) how likely the risk may be, and c) how much damage it will cause when it is realised.

(a) Risk

(b) Likelihood

TOOL SHEETS Mind map of Risk Disaster Maths Risk Quadrant Risk Mapping Hazard Framework Chutes and Ladders

(c) Effect project

on

(d) Mitigation

It is vital to note how important that first step is for discovering answers to the following two steps – there is no definitive list of the risks posed by any type of hazard; it is always specific to a particular situation. For example, the risks of a given hazard are often increased by human factors such as poverty, population growth, transition in cultural practices, environmental degradation, lack of awareness and civil strife. The World Risk Report 2014 gives an example of this: the report notes that our planet is facing increasing levels of exposure to natural hazards at the same time as many countries are experiencing rapid urban growth. In fast-growing cities, there is a danger that the enormous influx of people will lead to the development of informal settlements and slums – often in 19 areas that are particularly exposed to natural hazards, such as on riverbanks or steep slopes. The risks might not be the same in a more rural area or in an urban area that is less densely populated.

When we have highlighted risks, likelihood and their possible effect on a project, it is key to then list mitigation activities or techniques that need to be considered in order to minimise risks (d).

19

2014 World Risk Report, p.14, United Nations University, Institute for Environment and Human Security (UNU-EHS), 2014. (https://i.unu.edu/media/ehs.unu.edu/news/4070/11895.pdf)

33

CASE STUDY Japan When a tsunami hit Japan’s shores in 2011, one badly affected area had both a preschool and nursery lying at sea level. The only way for the babies and young children (aged 0-6) to escape the swirling waters was to scramble up a nearby hill. It was hard work on the steep, wet banks and many of them struggled until thankfully some secondary school children carefully moved down the hill to help them back up to safety. So The Salvation Army has been working with local communities to find ways to mitigate risks like this if another tsunami or similar weather-related hazard should occur.

In the case of one nursery (pictured below) which is next to a hill (a useful safe location if evacuation is necessary), a ramp has been provided by The Salvation Army so that it is easier to climb the hill.

The ramp is even accessible for pushchairs and wheelchairs. This has created a simple, yet safe, route out of danger, meaning that another hazard such as an earthquake, flood or tsunami does not need to become a disaster. Ninety children and 24 staff benefit directly from this project and the parents of the children attending are indirect beneficiaries too – now they are reassured that in case of a disaster a safe escape route has been provided for their children.

34

FURTHER RESOURCES ‘Managing Everyday Risk’, found in Footsteps no.79, June 2009, Tearfund. http://tilz.tearfund.org/~/media/files/tilz/publications/footsteps/footsteps%207180/79/fs79.pdf Defining Disaster Resilience: a DFID Approach Paper, DFID, 2011. https://www.gov.uk/government/publications/defining-disaster-resilience-a-dfidapproach-paper 2014 World Risk Report, UNU-EHS, 2014. http://ehs.unu.edu/news/news/world-risk-report-2014.html#info A Framework for Community Safety and Resilience in the Face of Disaster Risk, IFRC, 2008. http://www.ifrc.org/Global/Case%20studies/Disasters/cs-framework-community-en.pdf Risk Analysis – a Basis for Disaster Risk Management, Geselleschaft für Technische Zusammenarbeit (GTZ), 2004. http://www.preventionweb.net/files/1085_enriskanalysischs16.pdf Reducing Risk of Disaster in our Communities (2nd edition), Tearfund, 2011. http://tilz.tearfund.org/en/resources/publications/roots/reducing_risk_of_disaster_in_our_communities/ Community-Based Disaster Risk Management for Local Authorities, Asian Disaster Preparedness Center (ADPC), 2006. http://www.unisdr.org/files/3366_3366CBDRMShesh.pdf Benson, Charlotte and Twigg, John, Tools for Mainstreaming Disaster Risk Reduction, Provention Consortium, Geneva, Switzerland, 2007. http://www.preventionweb.net/files/1066_toolsformainstreamingDRR.pdf

35

Salvation Army Context Understanding Key Themes/Training

DISASTER MANAGEMENT PLANS AND MITIGATION ACTIONS

BibleStudy Case Study Tool Sheets Further Resources

Chapter Five

36

Chapter Five: Disaster Management Plans and Mitigation Actions Learning in This Chapter: This chapter demonstrates how to combine the learning from the previous four chapters to develop a clear disaster management strategy. You should finish the chapter with a good understanding of the key elements of a disaster management plan, as well as feeling able to work with others to develop a set of DRR action plans for your own context.

Bible Study Nehemiah Chapters 1, 4, 6 and 12 Tool Sheets Checklist for DRR Actions to Consider in Planning Divisional Disaster Plan Territorial Disaster Management Plan Case Study The Philippines Typhoon

Bible Study

SALVATION ARMY CONTEXT

Nehemiah Chapters 1, 4, 6 and 12

Whether it is a local incident impacting a corps or a major disaster requiring additional resources, Salvation Army staff and volunteers are often quick on the scenes of disasters – serving those in need, at the time of need and 20 at the point of need. Recognising that every disaster is local, The Salvation Army needs to have corps, divisional and territorial plans in place as to how it should respond to a disaster.

After consultation with others in your community or context in the areas outlined in previous chapters, you are ready to begin the final phase of DRR: planning. This is a vital step in delivering changes within a community. Whether implementing corps programmes, preaching a sermon or facilitating a community meeting, it is necessary and important to plan. Not only will plans guide us and help us know what actions to take, they will also give us a clear way of measuring progress and success.

Nehemiah listens to God and builds a wall. How does he: Catch the vision and respond to need? (Chapter 1) Plan and rebuild? (Chapters 2 and 3) Respond to change? (Chapter 4) Celebrate achievements?

(Chapters 6 and 12)

Whatever you do, remember some key Salvation Army principles that should be present in all our work, ministry and service: • • •

• •

20

We are impartial and inclusive and do not discriminate or favour some people over others We aim to ‘Do No Harm’ and need to carefully consider the impact of our actions on everyone who directly or indirectly benefits from them, as well as those who do appear to benefit The community is at the centre of all we do and should be involved in the planning process, as well as other activities. With guidance and input from the community we will achieve more than we could plan for on our own We need to be transparent in our decisions and accountable for our resources and to the people we work with The values of love, trust and faith, hope, dignity and grace should always be shown.

Disaster/Emergency Management Plan, p.1, The Salvation Army, The Philippines, 2014.

37

UNDERSTANDING KEY THEMES/TRAINING Disaster Management Plans allow us to present the information collected in the vulnerability and capacity assessment phase (Chapter Three) together with what we have discerned to be hazards and risks (Chapter Four), followed by the key actions we then determine are necessary to undertake.

21

There are five main areas to focus on when making plans to prepare for or respond to disasters are made, considering how they will be affected in a disaster (to better prepare) or how we can utilise them at various stages (to better prepare, respond and recover): 1. Economic (for example, jobs lost or access to markets/livelihood options hindered so the usual way of life is disrupted) 2. Social (for example, communities displaced, no longer able to access education, change in social networks/assets) 3. Individual (for example, lives lost, injuries and health affected, family separation, memories/keepsakes lost, loss of documents, trauma) 4. Natural (for example, water sources destroyed, damaged or contaminated) 5. Constructed (for example, houses, hospitals, schools and public buildings damaged or destroyed).

As you develop your plan, take time to prioritise actions. This could be something simple and relatively easy to achieve, so that people can be encouraged and further engaged by an immediate visible change, or perhaps you need to focus on one pressing risk that is affecting community life. After prioritising, you can then make your action plan. There are several tools in the resource pack that will help you as you do this, but note that the key pieces of information that TOOL SHEETS need to be included in any action plan are:

• • • • • •

Checklist for DRR Actions to consider in planning Divisional Disaster Plan Territorial Disaster Management Plan

What will you do?

Who is responsible?

What is the time frame?

What local resources are needed?

What external resources are needed?

What is the budget?

It is also very important to monitor progress and evaluate results, not only once the project is completed but even as you begin implementing it. This will help you see what actions are successful and what can be improved. These are the type of questions it is helpful to consider when carrying out monitoring and evaluation work: • • • • •

21

What indicators or information show us that something has been achieved?

How will we verify that this indicator has given us the desired change?

What initial results (outputs) do we expect to see and when?

What long-term results (outcomes) do we expect to see and when?

Who will be responsible for collecting this type of information, how will they do it and who will they communicate with if actions need to change?

Reducing Risk of Disaster in our Communities (2nd edition), p.19, Tearfund, 2011.

38

Draft Disaster Management Plan CONTENT 1.

Introduction

2.

Most common hazards and their effects

TOOLS Hazard Mapping; Hazard Impact and Frequency

2.1. Natural hazards 2.1.1. Weather-related hazards 2.1.2. Earth-related hazards 2.2. Man-made hazards 2.2.1. Conflict-related hazards 2.2.2. Major accidents 2.3. Biological hazards 3.

Phases of disaster management plan 3.1.

3.2.

3.3.

3.4.

4.

Brainstorm; Discussion

Focus

Group

Prevention/mitigation Preparedness Response Recovery/transition

The Salvation Army structure

Focus Group Checklists

4.1. Roles and responsibilities 4.1.1. THQ level 4.1.1.1. Checklist for THQ 4.1.2. Emergency/Projects Officer 4.1.2.1. Checklist for Emergency Officer 4.1.3. Divisional level 4.1.3.1. Checklist for divisional level 4.1.4. Field/social level 4.1.4.1. Checklist for field/social level 5.

Capacity and vulnerability assessment 5.1. Within The Salvation Army 5.1.1. People (staff and volunteers) 5.1.2. Territorial financial disaster reserves 5.1.3. Storage/warehouse 5.1.4. Equipment 5.1.5. Vehicles 5.2. Community level 5.2.1. People (influential people in a community) 5.2.2. Livelihoods (agriculture, livestock, etc.)

5.2.3. Assets (physical, natural and skills)

6.

IES resources and how to access them 6.1. Project proposal templates and procedures 6.2. Training opportunities

7.

Coordination – important organisations and contacts 7.1. Government offices 7.2. NGOs and other groups 7.3. Suppliers

8.

To do 8.1. Within the next three months 8.1.1. Disaster-preparedness activities (getting ready) 8.2. Within the next one year 8.2.1. Disaster-preparedness activities (getting ready) 8.2.2. Disaster mitigation (prevent the hazard or the impact) 8.2.3. Disaster response (when disaster strikes) 8.2.4. Disaster recovery (getting back to normal)

39

CVN Analysis

Brainstorm

Discussion;

CASE STUDY The Philippines After Pacific countries Tonga and Vanuatu, The Philippines ranks as the third most disaster-prone country in the world because of its high exposure to natural hazards.

Typhoon Haiyan, which hit in 2013, was one of the strongest tropical cyclones ever recorded and devastated portions of south-east Asia, particularly The Philippines.

The Salvation Army in The Philippines, in coordination with many other agencies, responded with a range of relief and recovery activities. The territory soon realised that whilst it was familiar with responding to smaller-scale disasters, it didn’t have an appropriate disaster management plan or strategy to cope with a hazard on this scale.

Therefore IES was invited to run a disaster management planning workshop in April 2014 and facilitate discussions with key people from the territory. Topics addressed included: typical hazards and their frequency and impact; Salvation Army structure, roles and responsibilities; and local capacities and vulnerabilities. Based on these discussions and their outcomes, the territory created a Disaster Management Plan which enables it to better prepare for and respond to disasters.

FURTHER RESOURCES Reducing Risk of Disaster in our Communities (2nd edition). Tearfund, 2011. http://tilz.tearfund.org/~/media/files/tilz/publications/footsteps/footsteps%207180/79/fs79.pdf

40

Index of Types of Hazard Index of Other Issues

THEMATIC RESOURCES Chapter Six

41

Figure 7: Index of Types of Hazard (Further resources are filed in the categories below at International Headquarters) Disaster Subgroup

Description

Disaster Main Type

A hazard originating from solid earth. This term is used interchangeably with the term ‘geological hazard’.

Earthquake

Disaster Type

Sub-

Disaster Sub-Sub Type

Ground shaking

Geophysical

Tsunami Landslide Volcanic activity Cold wave Extreme temperature

Weatherrelated

A hazard caused by shortlived, micro- to mesoscale extreme weather and atmospheric conditions that last from minutes to days.

Heatwave Severe winter conditions

Snow/ice Frost/freeze Hurricane

Tropical storms

Typhoon

Storm Cyclone

A hazard caused by the occurrence, movement or distribution of surface and subsurface freshwater and saltwater.

Other storms/tornado Coastal flood Flood

River flood Flash flood

Landslide Wave action Drought Wildfire

Biological

Industrial

A hazard caused by the exposure to living organisms and their toxic substances (e.g. venom, mould) or vector-borne diseases that they may carry.

Examples are venomous wildlife and insects, poisonous plants and mosquitoes carrying disease-causing agents such as parasites, bacteria, or viruses (e.g. malaria).

Epidemic

Insect infestation

Animal accident

Gas leak

42

accident

Poisoning Radiation Chemical spill Collapse Explosion Fire Other Rail Water

Transport accident

Air Road Fire Collapse

Miscellaneous accident

Explosion Other

Index of Other Issues to Consider: Disaster subgroup

Description

Disaster main type Shelter and relocation

Urban

Vulnerable groups Cross-cutting issues WASH (water, sanitation and hygiene)

Climate adaptation War conflict

Conflict

Civil disturbance

43

Bibliography Books: Corbett, Steve and Fikkert, Brian, When Helping Hurts, Moody Publishers, Chicago, IL, 2009.

Godschalk et al. Natural Hazard Mitigation. Washington, D.C.: Island Press, 1999. p.4.

PDFs/Online Articles: Buckle, Philip, Marsh, Graham and Smale, Sydney, Assessment of Personal & Community Resilience & Vulnerability Report: EMA Project 15/2000, 2001. http://citeseerx.ist.psu.edu/viewdoc/download?doi=10.1.1.113.9547&rep=rep1&type=pdf Vernon, Phil, Climate Conversations – Is Resilience in Hibernation? 2013. http://www.international-alert.org/blog/resilience-too-accurate-be-useful Defining Disaster Resilience: a DFID Approach Paper, DFID, 2011. https://www.gov.uk/government/publications/defining-disaster-resilience-a-dfid-approach-paper Reducing Risks, Saving Lives, Save the Children, 2011. http://www.savethechildren.org.uk/resources/online-library/reducing-risks-saving-lives-our-approachdisaster-risk-reduction ‘Managing Everyday Risk’, found in Footsteps no.79, Tearfund, 2009. http://tilz.tearfund.org/~/media/files/tilz/publications/footsteps/footsteps%2071-80/79/fs79.pdf Reducing Risk of Disaster in our Communities (2nd edition), Tearfund, 2011. http://tilz.tearfund.org/en/resources/publications/roots/reducing_risk_of_disaster_in_our_communities/ Salvation Army Impact Statement, The Salvation Army, 2014.

Disaster/Emergency Management Plan, The Salvation Army, The Philippines, 2014.

Twigg, John, Characteristics of a Disaster Resilient Community, 2009. http://community.eldis.org/.59e907ee/Characteristics2EDITION.pdf Hyogo Framework for Action 2005-2015: Building the Resilience of Nations and Communities to Disasters, Hyogo, Japan: World Conference on Disaster Reduction, UNISDR, 2005. http://www.unisdr.org/2005/wcdr/intergover/official-doc/L-docs/Hyogo-framework-for-actionenglish.pdf Sendai Framework for Disaster Risk Reduction 2015-2030, UN, 2015. http://www.unisdr.org/files/43291_sendaiframeworkfordrren.pdf 2014 World Risk Report, UNU-EHS, 2014. http://ehs.unu.edu/news/news/world-risk-report-2014.html#info

44

Further Resources PDFs/Online Articles:

Sanderson, David, ‘Cities, Disasters, and Livelihoods’, http://eau.sagepub.com/content/12/2/93.full.pdf+html

Sage

Journals,

October

2000.

Bailey, Sarah, Fan, Lilianne, Levine, Simon and Pain, Adam, The relevance of ‘resilience’?, Humanitarian Policy Group, 2012. http://www.odi.org/sites/odi.org.uk/files/odi-assets/publications-opinion-files/7818.pdf Baklanov, Alexander and Ruth, Matthias Ruth (eds), ‘What is the Purpose of Urban Climate Resilience? Implications for Addressing Poverty and Vulnerability’, found in Urban Climate 6 (2013) pp.98-113. http://www.journals.elsevier.com/urban-climate Pasteur. K., ‘From Vulnerability to Resilience’, Practical Action, 2011. http://practicalaction.org/from-vulnerability-to-resilience Shah, Fatima and Ranghieri, Federica, A Workbook on Planning for Resilience for Urban Areas in the Face of Disasters, The World Bank, Washington D.C., 2012. https://openknowledge.worldbank.org/bitstream/handle/10986/2235/665200PUB0EPI00rkbook097808 21388785.pdf?sequence=1_

45