PKGP (2013) The Disaster Risk Management Model of Mansehra PDF

The Disaster Risk Management Model of Mansehra
A Process Analysis of Disaster Risk Management
Deutsche Gesellschaft
fur Internationale
Zusammenarbeit (GIZ) GmbH
Imprint
As a federal enterprise, GIZ supports the German Government
in achieving its objectives in the field of international cooperation
for sustainable development.
Published by:
Support to Good Governance in Pakistan Programme
funded by the German Federal Ministry of Economic Cooperation and Development (BMZ)
and implemented through Deutsche Gesellschaft fr Internationale Zusammenarbeit (GIZ) GmbH
Administrative Reform Component
6-D (4), Park Avenue Road, University Town, Peshawar, Pakistan
T (+92 91) 585 2532, 584 2585, 584 2586
F (+92 91) 585 2531
I www.giz.de
Responsible:
Catherine Isabel Froehling, Head of Governance Programme
Dr. Detlef Barth, Principal Advisor, Administrative Reform Component
Author:
Syed Harir Shah, Technical Consultant
Technical Advisor:
Muhammad Khaliq, Adviser Local Governance, Administrative Reform Component
Layout:
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Place and date of publication:
Peshawar, Revised Version September, 2013
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Acknowledgements
I am grateful to German International Cooperation
(GIZ) Administrative Reform, Governance
Programme for giving me the opportunity to prepare
and present this process report on the DRM model,
Mansehra as a case study for the practitioners,
researchers and Local Government officials, and as
a reference document on knowledge management
of best practices, to be up-scaled for replication in
other parts of the country.
mega project in Mansehra.
I wish to express my sincere thanks and gratitude

to District Administration Mansehra, Tehsil
Municipal Administrations, Heads of line
departments, Commissioner Hazara Division, Police
Department, Pakistan Army, Provincial Disaster
Management Authority (PDMA) KP, National
Disaster Management Authority, ERRA, Pakistan
Meteorological Department, Flood Forecasting
Department, Geological Survey of Pakistan, UNDP,
BGR, other international Non-governmental
organisations, national and provincial organisations,
Punjab Emergency Services, University of
Peshawar, University of Hazara, Search and Rescue
Team Mansehra, CBOs, Volunteers, Emergency
Response Teams, and the community of Mansehra
for the reason that all of them have contributed
directly and indirectly in designing, developing and
implementing the DRM Model Mansehra.
Mr. Adnan Zaffar, the then Assistant Coordination

Officer and the first DDMO Mansehra, who
played a vital role in building a strong foundation
of DDMA/DDMU, empowering it for synergy
building among stakeholders, and developing
standard operating guidelines for DDMA/DDMU
and chairing regular coordination meetings of all
stakeholders.
Although it is not possible to mention names of all

those individuals and organisations who contributed
to this Model; however, a few names mentioned
below are the pioneers, without whose exceptional
and outstanding support, implementation and
success of the DRM model Mansehra would not
have been possible.
Mr. Riaz Khan Masood, the then District
Coordination Officer Mansehra, with his patronage
and ownership of DDMA/DDMU activities, made
DDMA/DDMU Mansehra the most powerful entity
in the district during his short tenure. He declared
that DRR is his governments top priority. He
organised regular emergency drills and simulation
in the district. His vision and wisdom led DDMA/
DDMU to establish the Disaster Management
Research Institute in District Mansehra for which 10
kanal land was allotted; a proposal was also shared
with ERRA and NDMA for construction of this

Mr. Yousuf Rahim, the then District Coordination

Officer Mansehra, following in the footprints of
his predecessor Mr. Riaz Khan Masood, provided
exceptional support to DDMA/DDMU in building
capacity of Search and Rescue Team and allocating
Civil Defense Fund to DDMA/DDMU for
operational purposes.
Mr. Tasleem Khan, the then Assistant Coordination

Officer Mansehra, an exceptionally dedicated and
committed officer to the cause of DRR who devoted
his private time for DDMA/DDMU as a volunteer
for the day to day implementing, designing policies
and the DDMA/DDMU activities related to disaster
risk reduction at institutional and community level.
His professional competency in DRM and his
commitments to make Mansehra a resilient district
to disasters made this model a paradigm in DRM. Mr.
Tasleem Khan was the Incident Commander during
the 2010 floods; he activated DEOC, mobilised and
supervised tactical operation section, led planning
section, facilitated logistic and finance sections for
timely receiving flooding prediction/warning, issued
Early Warning for evacuation of vulnerable people,
disseminated EW, and coordinated with other
stakeholders including communities and NGOs. He
also represented and promoted DDMA/DDMU at
many national and international forums.
Mr. Abdul Rasheed Malik, District Officer Social
Welfare Department Mansehra, a real social
worker/volunteer, and a most competent disaster
management practitioner, who remained in the
2nd command of DRM activities in the district.
He offered his services as a volunteer as and when
called for any DDMA/DDMU activity. He played
a vital role in synergy building among NGOs and
Government agencies. He facilitated most of the
coordination meetings of stakeholders, provided

valuable inputs for capacity building of departments,
communities, and organisations.
I wish to express my sincere thanks and profound
gratitude to Mr. Muhammad Khaliq, Local Advisor
on Administrative Reform Governance Programme
GIZ, who guided and supported me in developing
this reference handbook.
At last but not the least, I wish to express my sincere
thanks and gratitude to Mr. Qazi Kabir Ahmed
and Aliya Harir for their continuous support in the
collection and organisation of the information as
well as assistance in compiling, editing, proofreading,
and finalising this report.
Syed Harir Shah

Disaster Risk Management Consultant,
for the Governance Programme, Pakistan.
ii

Preface
The provincial and local governments in Khyber
Pakhtunkhwa committed to initiate disaster
management processes in their respective
jurisdictions. To supplement the efforts of
Government of Pakistan in disaster risk reduction
and management, multilateral and bilateral
development partners extended expertise and
assistance at various levels.
This study is intended to support the linkages

between the operational disaster management plans
and the strategic plans of the district administration
in making government and the communities
resilient to disasters. The DDMU disaster
management system encourages collaborative work
between government agencies and development
organisations.
Resultantly, an MoU was signed between the

Provincial Government of Khyber Pakhtunkhwa
(then North West Frontier Province) and
the Deutsche Gesellschaft fr Internationale
Zusammenarbeit
(GIZ) (former German
Technical Cooperation GTZ) in 2007. Under
the implementation agreement, the project
Disaster Preparedness and Management Project
(DPMP) was launched in pilot districts of Khyber
Pakhtunkhwa, namely Peshawar and Mansehra.
Knowledge management of the achievements and

shortcoming of the DRM model Mansehra seeks to
support similar levels of collaboration within each
district and local governments, non-government
organisations and community planning teams to
develop local arrangements that will support disaster
prevention, preparedness, mitigation and operations
at these levels.
Prior to the launch of DPMP in 2007, GIZ had

already been engaged in Khyber Pakhtunkhwa since
2006, on behalf of the German Federal Ministry
of Economic Cooperation and Development
(BMZ), in a project to support disaster preventive
reconstruction.
By incorporating disaster management into local

governments development plans, a mechanism
had been developed under the concept of disaster
management alliance in collaboration with the
combined efforts of government line departments,
local government entities, emergency response
services and technical specialists in relevant fields.
The DPMP focused on the institutional development

of the Provincial Disaster Management Authority
(PDMA) and District Disaster Management
Authority (DDMA/DDMU) at provincial and
district level in order to improve capacities in
DRM, mitigation and response. The Disaster
Risk Management (DRM) Mansehra experience
has stressed that disaster management remains a
significant area of intervention and improvement
for districts as well as local governments.
Thus, an enabling environment was created, which

harnessed individual responsibilities and collective
actions. A mutual trust and confidence was built
among all partners including district nazim, district
administration, local government agencies, municipal
administration, corresponding government line
departments, law enforcement agencies, scientific
and research institutions, provincial and national
level organisations, international development
partners, non-government outfits and local
communities in District Mansehra.
The ability of District Disaster Management Units

(DDMUs, former DDMA/DDMUs) to develop
and maintain the capacity for disaster management
planning and operation are key factors in ensuring
the safety of local residents as well as maintaining
the resilience of community members. This process
report is intended as an insightful tool to compliment
substantial work that went into the creation of
DDMA/DDMU Mansehra (now DDMU) to
organise informed and prepared communities for
disaster events.
This report attempts to explain the processes,

approaches, methodologies and tools that were
developed, implemented and tested by DDMA/
DDMU/DDMU
Mansehra.
Knowledge
management based on empirical know-how and
innovative learning has been documented in this
report which illustrates continuous commitment of
GIZs assistance to partner institutions representing
the Government of Khyber Pakhtunkhwa for
expansion of skills and capacities towards improved
DRM.

iii
The processes and approaches which have been

explained in this report will be helpful to an array
of stakeholders, especially the District Disaster
Management Units and Municipal Committees for
replication of the DRM model Mansehra in their
respective areas. The process report also discusses
the capacities, strengths and weaknesses of the
institutions, and the behaviours of individuals,
all of whom worked together in establishing and
operationalising DRM system in District Mansehra.
With this, I may conclude by wishing you a useful
and pragmatic learning experience!
Dr. Detlef Barth

Principal Advisor,
Administrative Reform Component,
Governance Programme, Pakistan.
iv

Introduction to GIZ Governance Programme

The Government of Pakistan and Germany
have agreed to implement a programme titled
Support to Good Governance in Pakistan to lay
and strengthen the foundations for just, fair, and
equitable governance at the national and sub-national
levels in Pakistan. The three major components of
the programme are:
Administrative Reform
Purpose of the Administrative Reform Component
is to enhance the capacities and improve
the procedures for raising efficiency in local
administration and elected councils of Khyber
Pakhtunkhwa in order to align them with the the
Local Government Act, Malakand Strategy, and the
Post-Crisis Needs Assessment (PCNA).
Tax Reform
Purpose of the Tax Reform Component is to
strengthen the capacities of the Pakistan Inland
Revenue System for implementing the new
legislation and levying a reformed value-added tax
on goods and services.
The programme is intended to be implemented

until December, 2016 by Deutsche Gesellschaft fr
Internationale Zusammenarbeit (GIZ).
Implementing Counterparts of the Governance
Programme are:

Local Government, Elections and Rural

Development Department (LGE&RDD),
Government of Khyber Pakhtunkhwa
Provincial Disaster Management Authority/

Provincial Reconstruction, Rehabilitation
and Settlement Authority (PDMA/
PaRRSA), Government of
Khyber
Pakhtunkhwa.
Social Welfare, Special Education and

Womens
Development
Department,
Government of Khyber Pkahtunkhwa
Federal Board of Revenue, Government of

Pakistan
Prevention of Violence Against Women

Purpose of the Prevention of Violence Against
Women
in
Khyber
Pakthunkwa/Womens
Protection in Federally Administered Tribal Areas
(FATA) Component is to improve the services of
governmental and non-governmental actors in the
prevention of gender based violence and support
for affected women in Khyber Pakhtunkhwa and in
the FATA.

Contents
Acknowledgments................................................................................................................................................................
Preface........................................................................................................................................................................................ iii
Introduction to GIZ Governance Programme........................................................................................................
List of Abbreviations.......................................................................................................................................................... ix
Chapter 1: Introduction and Objectives of Documenting the DRM Model Mansehra.................... 01
1.1. About the Process Report............................................................................................................... 02
Chapter 2: Explanation About the Background of Mansehra...................................................................... 05
Chapter 3: Background, Process and Methodologies of DRM Systems Analysis............................ 07
3.1 Philosophy and Concept of the DPMP Project................................................................... 07
3.2. Objectives and Approaches........................................................................................................... 07
3.3. Understanding Role of Local Governance in Risk Reduction.................................. 07
3.4. Need to Analyse the Existing DRM System in Mansehra............................................. 08
3.5. Process and Methodology Used for Documenting and
Analysing the DRM Model Mansehra........................................................................................ 08
Chapter 4: Assessment of Institutions Role in Disaster Risk Management..................................... 13
4.1 Role in General...................................................................................................................................... 13
4.2 Role in Specific...................................................................................................................................... 13
4.3 Diagnostic Studies of the System at the National Level
Carried Out by DDMA/DDMU.......................................................................................................... 13
4.4 Diagnostic Studies of Organisations/Institutions
at the District and Local Level.................................................................................................... 14
4.5 Assessment of Disaster Risk Management Systems
at the Community Level.................................................................................................................... 14
4.6 A Brief of the Assessment Findings.......................................................................................... 16
4.7 Suggestions for Disaster Preparedness and Management Project....................... 17
Chapter 5: Detailed Explanation of Step by Step Implementation Process of the DRM Model. 18
5.1 Stages Involved in the Identification of Milestones
and Cut Off Points in the Process............................................................................................ 18
5.2 DDMA/DDMU Notification, Administration and Functional Arrangement
of DDMA/DDMU, and Roles/Responsibilities...................................................................... 19
5.3. Findings/Suggestions by the Assessment Team............................................................. 20
5.4. Existing and Required Capacities of Stakeholders........................................................ 21
5.5. Measures Suggested and Activities Carried Out by DPMP to Enhance
and Strengthen the Capacity of Stakeholders.................................................................... 22

vii
5.6. Obstacles and Measures to Overcome...................................................................................

5.7. Application of Monitoring System During the Development
and Implementation of the DRM Model................................................................................
5.8. Contribution of PDMA/NDMA and Nature of their Involvement..............................
5.9. Financing Costs Associated with the Development and Implementation
of the DRM Model...............................................................................................................................
5.10 Utilisation of Local and External Resources
in Implementation of the DRM Model...................................................................................
5.11 The Form in which DPMP Provided Support
at Provincial and Local Level....................................................................................................
5.12 Alignment of the DRM Model with Provincial Law and Policy..............................
5.13 Standards for Quality Assurance.............................................................................................
5.14 Exchange of Knowledge & Experience
with other DDMUs in Khyber Pakhtunkhwa.......................................................................
5.15 Current Status of DDMU/DRM in Mansehra......................................................................
23
23
25
26
26
28
31
32
33
34
Chapter 6: Role of Tehsil Municipal Administration with Reference to DRM................................... 37

6.1 Role and Responsibilities of Tehsil Authorities Under Clause
7.6 of the NDRMF............................................................................................................................... 37
6.2 Function and Powers of the Tehsil Municipal Administration................................. 37
Chapter 7: Essential Elements in Rolling out the Model in other Districts in KP......................... 39
Chapter 8: Role of TMA/MC in the Context of DRM.......................................................................................... 41
Chapter 9: Lessons Learnt and Recommendations with Reference to Experiences
of the 2005 Earthquake............................................................................................................................ 44
Chapter 10: Salient Features of the Mansehra DRM Model Including Conclusion and
Suggestions for Further Improvement and Replication of the Model....................... 47
10.1 DRM Requires a Comprehensive Approach.............................................................................. 47
10.2 Disaster Risk Reduction - A Shared Responsibility........................................................... 47
viii

List of Abbreviations
ACO
Assistant Coordination Officer
BGR
Federal Institute for Geosciences and Natural Resources (Germany)
CBO
Community Based Organisation
CSSR
Collapse Structure Search & Rescue
DCO
District Coordination Officer
DDMO
District Disaster Management Officer
DDMA
District Disaster Management Authority
DDMU
District Disaster Management Unit
DEOC
District Emergency Operation Centre
DPMP
DDPRC
District Disaster Preparedness and Response Centre
DRM
Disaster Risk Management
DRR
Disaster Risk Reduction
DRU
Disaster Reconstruction Unit
EDO
Executive District Officer
ERS
Emergency Response System
ERRA
Earthquake Rehabilitation and Reconstruction Authority
EWS
Early Warning System
ERT
Emergency Response Team
FATA
Federally Administered Tribal Areas
FFD
Flood Forecasting Division
FF
Fire Fighting
FR
Flood Rescue
GANP
Geological-Hazards Assessment in Northern Pakistan
GIZ
Deutsche Gesellschaft fr Internationale Zusammenarbeit
GSP
Geological Survey of Pakistan
GTZ
German Technical Cooperation
HM
Hazard Mapping
HVCA
Hazard, Vulnerability, Capacity and Risk Assessment

ix
HFA
Hyogo Framework for Action
IDP
Internally Displaced People
IO
International Organisations
INGO
International Non-Governmental Organisations
LFA
Logical Framework Analysis
LG&ERDD
Local Government, Elections and Rural Development Department
MFR
Medical First Response
MGCM
Monthly General Coordination Meeting
MoU
Memorendum of Understnding
MoV
Means of Verification
MR
Mountain Rescue
NDMA
National Disaster Management Authority
NDMO
National Disaster Management Ordinance
NDRMF
National Disaster Risk Management Framework
NGO
Non-Governmental Organisation
PaRRSA
Provincial Reconstruction, Rehabilitation and Settlement Authority
PCNA
Post-Crisis Needs Assessment
PDMA
Provincial Disaster Management Authority
PMD
Pakistan Meteorological Department
PHD
Public Health Department
RA
Road Accident
S&R
Search and Rescue
SoG
Standard Operating Guidelines.
SoP
Standard Operating Procedure
TMA
Tehsil Municipal Administration
TMO
Tehsil Municipal Officer
ToR
Terms of Reference
TWG
Technical Working Group
UNDP
United Nations Development Programme
USAID
United States Agency for International Development

Chapter 1
Introduction and Objectives of Documenting the DRM model Mansehra
The earthquake of 2005 brought many valuable

lessons for national and local government leaders
as well as communities to rethink and reassess their
capacities and weaknesses. The communities in
Pakistan have faced a variety of increased frequency
of disasters. Reducing disaster risk and developing
a resilient community, capable of recovering from
disasters, are increasing concerns of the people
in Pakistan and the global community; therefore,
ensuring the availability and accessibility of accurate
and reliable practices, information, and knowledge
management relating to DRM is of paramount
importance.
An innovative and dynamic process of the disaster

management system, developed and operationalised
by the project, increased the capacities of institutions
and authorities. It widened networking by involving
a large number of actors who continued to unfold
beyond the completion of the project. Protecting
the population and infrastructure against threats
is a key task of the local governments, and could
be performed largely at the municipal level;
however, the project succeeded to develop disaster
preparedness and response capacities of all actors
and enabled them to put in place an effective system
for everyday risk management.
Legal, institutional, and administrative arrangements

were introduced by the Government of Pakistan for
disaster risk reduction/management at national/
provincial and local levels; INGOs/NGOs also
contributed to the cause in terms of technical and
financial support. German Government, a long
term partner of Pakistan in terms of development
interventions and institutional reforms, pioneered
the DRM mechanism in Pakistan through a shortterm Disaster Preparedness and Management
Project (DPMP) implimented through GIZ in
Mansehra (2008-2010).
A disastrous event lasts only for hours, but it affects

the community for years; therefore, risk management
strategies and the mitigation measures, broadly
outlined in each entitys plan, included a methodical
and systematic description of all measures designed
not only to respond, but also to build a communitys
resiliency against these debilitating effects through
long-term prevention and mitigation measures as
well as specific preparedness activities.
The project not only facilitated development and

implementation of DRM at district level, but also
contributed towards visible changes in behaviour
and perception of the stakeholders especially the
district and local governments, NGOs, civil society
organisations, and communities. This DRM Model
is the first example in Pakistan which illustrates
the optimum utilisation of local resources for the
ultimate objective of disaster resiliency of the
people in the district.
The GIZ (former GTZ) supported Disaster
Preparedness and Management Project in Khyber
Pakhtunkhwa made a significant contribution
towards main streaming disaster management at the
institutional level within the province, and turning it
into a living reality. DRM has been recognised and
acknowledged as a key issue by the actors concerned,
who are now in a position to further reduce the
disaster risk and the negative impacts of disasters by
implementing risk management measures.

The people-centered DRM system, developed and

operationalised in Mansehra, was unique in Pakistan
and could be used as a model for further up-scaling
and replication across the country; however, those
best practices, lesson learned, empirical knowledge,
and skills could be lost like a disastrous event, if
not regularly practiced and demonstrated. Like the
effects of disasters on a community, which can be
felt for years, knowledge management of the best
practices, learning, strengths and shortcomings,
and disseminating them can benefit the coming
generations. Hence, it is GIZs commitment to
promote disaster risk reduction/management in the
region.
To summarise, it is evident that civil protection was
improved considerably in the course of the project,
and will continue to develop positively in the future.
Although natural events such as earthquakes cannot
be prevented by DRM, yet it can be assumed that
if an extreme natural event occurs in Khyber
Pakhtunkhwa in the future, many more human lives
will be saved and there will be less damage. The
in Khyber Pakhtunkhwa has thus made a significant
01
contribution toward more sustainable development

in the region.
1.1 About the Process Report
In the 18th Amendment to the constitution

of Pakistan, disaster management is a subject
under the exclusive jurisdiction of the Provincial
Government. The Provincial Assembly
Khyber Pakhtunkhwa (KP) passed Provincial
Disaster Management Act 2012, restructuring
nomenclature of District Disaster Management
Authority to District Disaster Management
Unit, centralising disaster management at the
provincial level. In reality, disaster management
is a localised subject of district/local
governments and it needs to be decentralised by
strengthening and empowering organisations,
at the local level, to deal with localised hazards,
to reduce their emerging threats, and to respond
to emergencies spontaneously.
The Government of Khyber Pakhtunkhwa
established District Disaster Management
Units (DDMUs) across the Province. As of
now, these units are in the process of setting
up working procedures and carrying out their
duties with a diverse range of stakeholders
including governmental and non-governmental
organisations and the communities across the
province.
The Model developed by Disaster Preparedness
and Management Project (DPMP) during
the project life in Mansehra was flexible and
replicable, that could be fixed into any district
with localised scenarios. The PDMA/PaRRSA
and GIZ Governance Programme have
agreed to review the Mansehra experience as a
crucial input for scaling up and rolling out the
functioning DDMUs in the province. In order
to devise a strategy for establishing functional
DDMUs in other parts of the province, it is
important to ensure that these units have the
requisite capacities to replicate the DRM model
Mansehra. The PDMA and GIZ have agreed in
principle to replicate the DRM model in another
district of the Province under Administrative
Reform Component of the Support to Good
Governance Programme in Pakistan.
02
The process documents will be a crucial

instrument to understand the overall processes,
approaches, methodologies, and the tools that
were developed, used, tested to functionalise the
DRM model. The methods and tools proposed
in this report are generic, and can be adapted
according to the characteristics of different
geological and environmental conditions,
natural hazard specific scenarios, institutional
settings, and administrative arrangements. It
will help the DDMOs and Chief Municipal
Officers (CMOs) and other actors in replication
of this model in other parts of the provinces/
country.
This summarised report is an acknowledgement
of the combined efforts made by Multistakeholders
including
Political
Local
Leadership, district and Local Government
agencies, line departments, INGOs, NGOs,
Police Department, Pakistan Army, Federal
and Provincial Government agencies, research
institutions, CBOs, ERTs and the community
for making district Mansehra a pioneering
paradigm in DRM.
The challenges/constraints and bottlenecks
discussed in this report will be helpful especially
for the District and Local Government leaders
and other practitioners/organisations, who
may be interested to design and develop a
comprehensive disaster management system in
any part of the district/Municipal Committee
or Union Council.
The report also discusses the approaches/
processes of data collection, analysing of
data, resource mapping, monitoring system,
communication,
knowledge/information
sharing, management synergy building, and
coordination developing amongst stakeholders
at different levels.
We believe that there is no one-size-fits-all
solution; however, a deeper understanding
of the essence and spirit of this model will
help districts and local government Leaders to
replicate the model in their respective districts.

This report discusses the whole process

including the following core issues about the
DRM model Mansehra:
Provincial law/policy and strategy with

which the DRM Model was linked to
ensure alignment
The stages involved in identification of

milestones and cutoff points in the process,
along with involvement of stakeholders,
their functions, roles and tasks
Standards developed with PDMA to

ensure quality of disaster management
initiatives
Existing and required capacities of these

stakeholders
Measures carried out by PDMP to develop

stakeholders capacities
Experience exchange that took place

between the stakeholders on the DRM
Model and other DDMUs in Khyber
Pakhtunkhwa
Obstacles and measures to overcome them
Application of monitoring system during

the development and implementation of
the DRM Model
Current status and functioning of the

DDMU in Mansehra, two years after the
DPMP concluded
Role of Tehsil Municipal Administration

with reference to DRM
Identification of spoilers and drivers to

develop and implement the model e.g.
incentives, interests, etc
Nature of the involvement, role, and

contribution of PDMA
Elements of the DRM Model which are

relevant for the scaling up and rolling out
the DRM Model in Khyber Pakhtunkhwa
(minimum financial and institutional
conditions)
Financing costs associated with the

development and implementation of the
DRM Model
Utilisation of local and external resources

in the implementation of the model
Level (provincial/local) and the form in

which DPMP provides support
The role of TMAs/MCs in the context of

DRM implementation and mapping out
the effectiveness of TMAs in supporting
DRM activities and also recommending
ways and means of further strengthening
DRM role and competence of the TMAs/
MCs
The report in hand has been divided into ten chapters described as below:
Chapter-01
Introduction and objectives of documenting the DRM model Mansehra
Chapter-02
Explanation about the background of Mansehra
Chapter-03
Background, process and methodologies of DRM systems analysis
Chapter-04
Assessment of institutions role in the DRM Model
Chapter-05
Detailed explanation of step by step implementation process of the DRM model
Chapter-06
Role of Tehsil Municipal Administration with reference to DRM
Chapter-07
Essential elements in rolling out the model in other districts in Khyber Pakhtunkhwa
Chapter-08
Role of TMA/MC in the context of DRM implementation and mapping out the effects of
TMA/MC in supporting DRM activities and also recommending ways and means for the
further strengthening DRM role and competence of TMAs/MCs

03
Chapter-09
Lessons learnt and recommendations with reference to experiences of the 2005

earthquake
Chapter-10
Salient features of the Mansehra DRM Model including conclusion and suggestions for
further improvement and replication of the Model
The District and Local Governments in Mansehra perceive that they do not currently have the capacity to
implement contemporary disaster management effectively in their local government areas. Largely, this is due
to a continuous perception that a range of special emergency service skills is needed to develop response
plans, rather than an understanding that effective emergency management is about building resistant and
resilient communities. The report highlights the vision/wisdom and commitments of the then district and
local governments, policy and decision makers, NGOs and the communities, involved in the entire process,
implementation, and operationalisation of disaster management system, in a way-forward process for making
the communities and system resilient to disasters.
04

Chapter 2
Explanation about the background of Mansehra
Mansehra District of Khyber Pakhtunkhwa consists

of three Tehsils Mansehra, Oghi and Balakot. The
District is located from 34 - 14 to 35 - 11 north
latitudes and 72 - 49 to 74 - 08east longitudes.
Balakot city, which is part of Mansehra District,

located on the fault line, has been declared RED
ZONE and a plan is made to relocate it to a new
place called Bakriyal.
Mansehra makes its boundary on the north to

Kohistan and Battagram districts, on the east to
Muzaffarabad district of Azad Jammu and Kashmir,
on the south to Abbottabad and Haripur districts
and on the west to Shangla and Buner districts.
Education sector faced very heavy damages in

terms of buildings, besides the loss of the lives of
the students and teachers. Around 935 institutions
were recorded as fully damaged and some 624 were
partially damaged in the earthquake. The enormity
of earthquake was very complex as it generated
multiple negative effects and thousands of people
lost their lives and sustained serious injuries.
Thousands of people were rendered shelterless, lost
their life time earnings. The local leadership and the
people of Mansehra acquired rich experience from
national and international organisations that worked
in Mansehra for reconstruction and rehabilitation
programme, along with opening new avenues for
learning and practices.
Mansehra is a large district with a total area of 4,579

sq km. According to the 1998 Census Report, its
total population is 1,152,839 with an average annual
growth rate of 2.4%. The other socioeconomic
indicators were; life expectancy 63 years, household
size 6.7 persons, literacy rate 36.3% i.e. 50.9% of
male and 22.7% for female. Disabled population
1.6%, almost two-third is male and one-third is
female. The literacy rate is much higher in urban
areas as compared to rural areas both for male and
female i.e. 44.3% and 19.9% of urban and rural
areas, respectively. About people 1,091,463 (94.7%)
people are living in rural areas. The male to female
sex ratio in rural and urban areas of the district is
98 and 106, respectively. Most of the population
(84.3%) had their own houses. Only 32.1% of the
population have the facility of drinking water in
their homes. As for the type of construction, 62.6%
rural and 79.8% urban housing units are built with
backing bricks, blocks or stones, whereas 34.5%
rural and 17.8% urban housing units are built with
un-backed bricks. Only 1.4% houses are built with
wood or bamboo.
According to the 1998 District Census Report, there
are 34.4% housing units having one room, 61.4% to
2-4 rooms and 4.2% with five and more rooms. On
average, one housing unit has 2.1 rooms and there
are 6.7 persons per housing unit.
Mansehra District was the worst affected district
of Khyber Pakhtunkhwa in the earthquake in
terms of human losses and destruction of physical
infrastructure. According to district governments
statistics, 15,997 persons died while 9,903 were
injured due to earthquake. Besides the loss of
precious human lives, the number of housing units
destroyed due to disaster was also implacably higher.
As many as 108,283 housing units were completely
destroyed and 34,001 were partially damaged.

The unfortunate event also generated multi-positive

effects on the existing knowledge, skills, learning,
perception, approaches and mindset of local
community, disaster management and development
practitioners, decision and policy makers, political
leadership, academic institutions, NGOs, and
international community. One such an event led to
the development of the Mansehra Model of DRM
that has been implemented and practiced by local
leadership despite hardest challenges the people of
the district suffered due to serious socioeconomic
and cultural vulnerabilities of the 2005 earthquake.
Immediately after the 2005 earthquake, more than
80 national and international non-governmental
organisations rushed to district Mansehra to
provide emergency relief; re-build the shattered
critical infrastructure and structure; enhance
knowledge, skills and understanding about disaster
risk; strengthen the capacity and capabilities of the
institutions and communities to cope with such
events in future.
The Government of Pakistan, under the

administrative, institutional and legal arrangement,
established Earthquake Rehabilitation and
Reconstruction Authority (ERRA) at national
and Provincial Earthquake Rehabilitation and
Reconstruction Authority (PERRA) at the provincial
level to provide technical and professional support
05
to all stakeholders and to facilitate their efforts for

re-building of the wrecked district.
District Administration, Local Government
agencies, line departments, Pakistan Army, lawenforcement and security agencies, national
organisations, and the local community engaged
themselves in physical and nonphysical mitigation
of the ruined district.
The accumulated wealth in the form of money,
knowledge, expertise, technology, and skills crossed
the threshold in the district and contributed to the
rebuilding of the ruined district; however, there was
06
no appropriate system for the proper transformation

of the global contribution that could be used for
long-term sustainability of the district.
The issue always has been the lack of ownership
and where to park this whole investment. Due to
lack of capacity and competency on the part of
district/local governments, it has not been possible
to get as much benefit as expected from the huge
investments made by national and international
organisations for making the communities resilient
to multi-hazard.

Chapter 3
Background, Process and Methodologies of DRM Systems Analysis
3.1 Philosophy and Concept of the DPMP Project

The purpose and objective of the project was
to study the existing DRM system in detail, to
come up with comprehensive DRM strategies,
to promote DRR at the district level, and
to bring a positive change in the perceptions
and disaster management approaches of the
key stakeholders. For this purpose, formal
and informal meetings were held with district
administration and other multi-stakeholders,
and issues related to DRR/DRM system in
the district were discussed. It was agreed to
undertake strengths, weaknesses, opportunities
and threats (SWOT) analyses of the existing
set-up, approaches and system of disaster
management in district Mansehra. It was
suggested that DPMP may have to design and
develop such a strategy that should not duplicate
or overlap the ongoing DRM activities in the
district, rather the project should support and
supplement the existing structure and system
in the district. The project has contributed
to strengthening the existing approaches and
system, comprehensively speaking, integrated
and addressed the gaps in the overall system.
With these guiding principles, the project
initiated its activities with detailed assessment
of the overall disaster management system in
Pakistan with reference to international and
national commitments/protocols including
HFA, NDMO 2006, NDMRF 2007, and other
instruments relating to disaster response and
management.
3.2 Objectives and Approaches of DPMP
The aim of launching DPMP in Mansehra was to

support District Government and supplement
its efforts to reduce disaster risk, by increasing
professional competency of District/Local
Government leaders, the local authorities and
communities. To articulate the vision, GIZ
appointed senior disaster management advisor
having decades of experience of DRR/DRM,
both at the national and international level,
who will take the lead to paradigm shifting
of conventional disaster management into
contemporary and interlinked DRM in the
district.
of DDMA/DDMU Mansehra, different

methodologies, tools and processes were
adapted by the assessment team for undertaking
a detailed study of the DRM system in the
country as well as in the district.
Desk studies and review of national and
international concepts/approaches and best
practices across the world were conducted,
comparing the ground realities of the
aftermaths of earthquakes. The build back
better concept and approach, adopted by
ERRA for earthquake resistant construction,
was also studied to see its short and long term
impacts on the ecosystem and disaster resiliency
of the communities in Mansehra.
Holistic, participatory and needs-based
assessment approaches were adopted by the
assessment team for undertaking detailed
study of disaster management practices
adopted by multi-agencies at multi-level in
the district, and for comparing them with
national and international standards. A
diagnostic investigation of disaster threats
in the district was also suggested, so that
realistic and needs-based strategies/
plans could be developed for mitigating the
anticipated threats.
3.3 Understanding Role of Local Governance in

Risk Reduction
It was revealed during the dialogue and

discussion of the stakeholders that the district/
local Government is the first responder,
responsible for sustainable development of the
community and disaster risk reduction at the
grass roots level.
Keeping in mind the philosophy of the

project and guidelines of Steering Committee

07
The role played by the state institutions i.e.

monitoring and evaluation; acknowledging
management system for the contributions
of CSOs and other actors; enforcing rules
and regulations relating to land use planning;
application regularisation of building codes/
standards, law and order situation; and
regularising safety standards are some of the
key responsibilities of local Governments.
Risk reduction calls for flexibility in
the decision making process and the
empowerment of communities, which in turn
pushes transparency and good governance.
Alignment of local government system with
DRR concepts/approaches and policies,
promotes good governance and creates space
for stakeholders to work together. Due to
lack of trust, confidence, accountability and
transparency in the overall government system,
disaster events are raising more questions on
accountability, transparency, impartiality, and
neutrality of local authorities and humanitarian
organisations; therefore, each District/local or
provincial government should have an explicit
policy and action plan, dedicated professional
staff, and allocated budget for disaster risk
reduction.
3.4 Need to Analyse the

System in Mansehra
Existing
DRM
The purpose of a sound analysis of DRM

systems, available in District Mansehra,
was the visionary decision of district/local
governments to understand how and to what
extent the institutions, organisations, and
NGOs are playing their role; and how legal and
administrative arrangements are supported;
what needs to be improved at the local level?;
what mechanism is in place that ensures effective
coordination amongst multi-stakeholders for
collective risk reductions; what are the threats
and challenges the people of the district are
facing? And what could be done in the light of
Federal and Provincial Governments directives
and efforts for disaster risk reduction?
For enhancing the capacity and capability of
multi-stakeholders and state institutions for
achieving the nine priority areas of national
DRM framework (NDRMF) 2007, these
08
areas were simultaneously considered in

local prospective in context of sustainable
development. The studies highlighted the
strengths and weaknesses of existing DRM
systems, which could favour or threaten the
development of the reconstruction process in
the most affected District. The assessment also
considered many aspects including attitude,
behaviour, and understanding of DRM by
bureaucrats, organisations and the public. The
core questions raised by all stakeholders in the
district were incorporated in the questioneers
developed for detailed DRM system analysis.
NFDRM and HFA directives were principal
guidelines for undertaking the overall system
analysis and linking district government efforts
with national disaster management system in
the country.
3.5 Process and Methodology Used for

Documenting and Analysing the DRM Model
Mansehra
Discussions, meetings and dialogues were held

between different stakeholders including district
administration, local government agencies and
line departments for undertaking a detailed
assessment of DRM systems. It was agreed to
carry out an itemised contemporary diagnostic
investigation of disaster management system
in the country in general and Mansehra in
particular.
The research plan was prepared to study the
existing disaster management system in place
in the district in particular and the country
in general. The research plan planned out
the institutional, legal, and administrative
arrangements of Frontline disaster management
organisations with reference to their mandates,
role and responsibilities; present capacity and
capabilities of these organisations and the
role played in the past at national, provincial,
district, and local levels. The proposed sequence
was followed in a flexible way and adapted to
location-or-study-specific circumstances, as
needed.
A team of eight people consisting of
representatives of district administration,

local government agencies, NGOs and one

community leader, was constituted by the DCO
Mansehra. The assessment team recommended
undertaking institutional assessment and

planned for conducting DRM assessment in
the district in three phases:
Phase 1: Getting started the preparatory phase

A. Initial preparations and literature review
B. Inception meeting and field work planning meetings
C. Consensus of district government obtained for undertaking an assessment
at the district level
Phase 2: Field work
A. Detailed study of National Disaster Risk Management Ordinance 2006 and
NDRMF 2007
B. Diagnostic study about hazards/risks at the district, local levels
C. Linkages and coordination among and between institutions
D. Sector-specific diagnosis
Phase 3: Data analysis
A. Wrap-up meetings with the heads of organisations
B. Consolidation of the report
Phase 1: The Preparatory Process

A. Initial preparations and literature review
Before starting the assessment, the assessment
team was oriented about the objective,
process, tools, methodologies, and key
concepts/terminologies related to DRM, and
the institutional/legal arrangement in place
in Pakistan. Other steps taken before data
collection in the field included:

Desktop research on natural hazard

profiling at district and local levels
Review of hazards profiling developed at

national or provincial levels including risk
and vulnerability maps
Collection and review of background

information on the basis of existing
national/provincial DRM institutional
structures, mandates, policies, laws, and
disaster codes
Collection and review of socioeconomic,

cultural, and traditional/community based
institutional system(s) prevalent in the

vulnerable areas, including information on

local disaster risk coping strategies

Collection of information on national,

regional, and local Frontline organisations
Understanding perception, attitude and

behaviour of stakeholders in respect of
anticipated risks, hazards, vulnerabilities,
and capacities to cope with disasters
B. Inception and field work planning meetings

The first step was to organise an inception
meeting with the key government officials who
were responsible for the overall coordination
of DRM, as well as with officials holding
sectoral responsibilities for DRM activities
at District level. Coordination among national
authorities, provincial authorities, and sectoral
line departments were founded too weak. It was
estimated that the presence of representatives
of the institutions at the inception meeting
might help strengthen this coordination.
Regular coordination meetings and follow-
09
up actions for deeper interaction between the

stakeholders shall further strengthen their own
capacity and enhance their DRM knowledge
and understanding.
i.
The key participants in the inception

meeting included:
The DRM focal points and/or
officials with decision-making power,
related to DRM policies, strategies,
and programmes (e.g. District Nazim,
Tehsil Nazims, District Administration,
Local Government agencies, Disaster
Management
Authority,
Police,
Education, Health, Social Welfare and
Civil Defense Departments)
Representatives of key INGOs,
NGOs, and civil society organizsations
active in DRM and other provincial
and national organiszations based at
Mansehra including Pakistan Army unit
ii. The inception meeting, inter alia, explicitly

discussed:
The key features of the national hazard
context identified major strengths and
weaknesses of the overall DRM policies
and institutional structure that required
in-depth analysis during the assessment.
Participants agreed on the level of
counterpart support and the names of
counterpart officials from the coordinating
and sectoral line departments including their
participation, if possible, in the field work
to allocate financial resources/logistical
supports. A consensus was made by district
Government departments for undertaking
institutional, behavioural, and perceptional
assessment on DRM. The District Nazim
and DCO agreed with the assessment
plans and an assessment team consisting
eight members including District Officer
Social Welfare, TMO Mansehra, Balakot,
Oghi, Civil Defense In-charge, two NGOs
representatives, one community leader
and Project Coordinator DPMP were
appointed for undertaking institutional/
organisational and community assessment
on DRM. The committee was directed
10
to design and develop assessment tools

and methodologies for undertaking
DRM assessment. Terms of reference
of the assessment team, and tools and
methodologies for undertaking assessment
were finalised and approved by DDMA/
DDMU.
iii. The information/data obtained through
products at the district level:
The tools used to obtain assessment data
called products from the district-level
study as inputs for the overall assessment
included:
District hazard profile and multihazard vulnerability map at district
level
Summary chart
(Venn diagram)
of the different organiszations
involved in DRM at the district level,
indicating briefly their mandates,
roles, responsibilities and degree of
interaction.
Strengths and weaknesses diagram
(SWOT chart) of the district-level
DRM systems
Filled-in monitoring sheet
The approaches of the project were
unique, which drew recommendations to
district Government for DRM activities
based on the detailed assessment of DRM
System in the district. As a result, the
District Government agreed to implement
those recommendations through German
Technical Cooperation (GTZ). The Project
Coordinator was appointed as focal person
of DDMA/DDMU to coordinate and
facilitate all activities on behalf of DDMA/
DDMU. Having limited funding available
to the DPMP, the recommendations were
prioritised for implementation. The key
government institutions normally do
not recognise the recommendations of
other agencies; therefore, these could not
be translated into action. It was a wise
decision of DPMP to implement the
recommendations and show the results to

the Government unless key governmental

institutions fully recognise the need for
embarking on such a process of change.
Following PRA, tools and techniques
were applied to collect more relevant
information.
a. Seasonal calendar was used to discuss
and link key livelihood activities
(cropping/livestock/other key incomegenerating activities) with the hazard
risk occurrence/exposure and existing
coping strategies
b. Venn diagram was used to assess
and understand the roles of key
community organiszations and their
relative importance in the villages,
assess their actual views is their
potential role in DRM, discuss and
compare the importance and capacities
of local organiszations for livelihood
development and DRM
c. A simple SWOT analysis chart (preprepared on flip chart paper with leading
questions) assessed the functionality
of the local DRM system.; What
works well? What coping strategies
exist? Where are the perceived gaps?
What could be strengthened? What
opportunities exist? What threatens the
functioning of the local DRM system,
etc. were some of the key indicators

iv. Steps undertaken for data collection at the

community level
a. Selected 23 villages and informed the
village leaders/key informants well
before the scheduled visits to invite
their participation/collaboration, and
agreed on how the time of the visit (1
one day per village) would be spent
b. Prepared, before arrival in the villages,
a list of local institutions relevant to
DRM, drawing on information obtained
from the district-level meetings (the
list was then confirmed or amended
during the community-level work). The
team decided on the tools and methods
for the community profiling and local
institutional assessment
c. Initiated a field visit after making a
brief plan with the village leaders and
representatives of key community
organiszations. The team conducted
a village walk before holding small
focused group discussions using a range
of PRA tools with 2-3 different groups
of community members to understand
the community development situation,
its exposure to hazards, DRM- related
actions and institutional profile.
One stakeholder group exclusively
comprised of women in order to
capture an unbiased gender perspective
on the issues
11
Phase 2: Field work

A. Detailed study of National Disaster Risk Management Ordinance 2006 and NDRMF 2007
B. Diagnostic study about hazards, risks at the district and local level
C. Linkages and coordination among and between institutions
D. Sector-specific diagnosis
Phase 3: Data Analysis, Report Writing and Wrap-up Meeting(s)

A. Data Analysis and Report Writing
The contents and structure of the document
are based on the findings of the assessment
and recommendations proposed to have
a comprehensive action plan and format.
Accordingly, the findings were presented to the
Steering Committee of DDMA/DDMU for
policy approval. On the directives of the Steering
Committee, standard operating guidelines,
detailing the roles and responsibilities of each
and every department and organisation, were
developed and enhanced based on the findings.
12

Chapter 4
Assessment of Institutions Role in Disaster Risk Management
Understanding role and responsibilities of

formal and informal organisations/institutions
4.1 Role in General
Policies and institutions are key factors that

influence different aspects of disaster risk
reduction/management. Livelihood and climate
change adaptation in pre-disaster situation for
prevention, mitigation, and preparedness of
the communities in DRM technology, provision
of coping strategies, skills, competency and
performance in pre/post disasters at the
institutional level will contribute to further
strengthening of the organisation and the
system, and also encourage the communities
to adapt the paradigm shift from reactive to
proactive approach.
Understanding and defining institutions
Institutions in this document refer to
rules/regulation and social norms
as well as to the organisations that
facilitate the coordination of human
actions and play a vital role in disaster
risk management.
The two components of institutions:
Formal organisations: government
institutes, organisations, bureaus,
extension agencies, Cooperatives
and registered groups.
Informal
organisations:
CBOs
and disaster risk management
committee or masjid committee or
any form of committee at village
level.
Political institutions: parliament,
law and order or political parties.
Economic institutions: markets,
private companies, banks, land
rights or the tax system.
Social-cultural institutions: kinship,
village committee, religion or
similar other organisations.
4.2 Role in Specific
With the paradigm shifting from reactive to

proactive approaches in legal and institutional

arrangements under NDRMO 2006, the
importance of disaster preparedness and
mitigation has increased further. The role
of institutions has become more vital in
operationalising different phases of the DRM
spectrum and mediating the link between
development, DRM, and humanitarian actions.
Without institutions, there would be no action
and DRM would remain a concept on paper.
Specialised DRM institutions like NDMA,
PDMAs and DDMA/DDMUs are expected to
play a vital role in policy making, coordination,
facilitation, monitoring in implementation
of the DRM action plan at all levels, and
laying down guidelines for preparing disaster
management plans. In this context, sound
analysis and understanding of the role and
mandates of formal and informal organisations
in DRM, their institutional and technical
capacities (including strengths and weaknesses),
best operational and tactical practices, and
comparative strengths in coordinating and
promoting vertical and horizontal linkages are
required
4.3 Diagnostic Studies of the System at the

National Level was Carried out by DDMA/
DDMU
Disaster management system in the country
was thoroughly reviewed with reference to
2006 and National Disaster Risk Management
Framework 2007. In this context, it was vital to
understand the overall DRM framework, policy
objectives, technologies, institutional structures,
and existing DRM coordination mechanisms. A
series of group-based brainstorming sessions
and interviews on the key issues were held to
assess the support available to district and local
leaders at provincial and national level.
The review of the existing legal framework

highlights that besides NDM Ordinance 2006, a
number of laws and institutions, with their own
diverse set of strategies to address the various
stages of disaster and hazards, are also in place.
The response to earthquake in 2005, floods in
2010 and 2011 has highlighted a number of
gaps in the existing legal framework.
13
information and collaboration of district/

local governments were neither reporting
their activities to authorities, nor were the
authorities bothering to regularisze their
activities
4.4 Diagnostic studies of organisations/

institutions at the district and local level
Joint meetings of all stakeholders including

line departments, local Government Agencies,
political leadership, NGOs, federal and
provincial Government agencies working
in the district, and the community-based
organisations were held. The participants were
given the opportunity to express their own
understanding and the understanding of their
organisations mandate regarding the DRM
system in the country as well as in the district.
The District Government agencies, having been
involved in the recovery and reconstruction
process of the 2005 earthquake, were having a
better idea about the damages of disasters and
their impact. The organisations explained the
process and methodologies of DRM activities
in the district. National and international
organisations including ERRA were working
mostly on structural mitigation, while some
organisations were also working on nonstructural mitigation including DRR awareness;
training, capacity building, and organising
the communities for disaster preparedness.
They also explained their mandate, roles and
responsibilities. Some of the findings were as
under:
14
There was no standardised training manual

on DRM for the practitioners
Training on DRM was done by the

organisations in isolation without any
monitoring system
There were no minimum standards for

conducting community- based DRM
training
No coordination mechanism amongst

service delivery organisations were in place
There was no exit strategy after the end

of the project, that as to who will take
ownership of the projects completed by
the NGOs
There was no monitoring and evaluation

system to check the activities of the
organisations with reference to their
mandate, role and responsibilities, strength
and weakness
Organisations
working
without
the
In most of the cases, neither the

organisations were oriented about the
culture, traditions, and values of the
district, nor were the officials aware about
the activities of district/local governments
and counterpart organisations
Many organisations were undertaking the

same activities in the same locations for
the same beneficiaries in duplication and
most of the community members were
deprived of organisational support
There was no accountability, transparency,

and check and balance system in place
to evaluate the contributions of these
organisations
The purpose of this assessment was to ensure

that proper and appropriate instruments are
being used for disaster risk reduction in an
appropriate way. It determined the cost and
benefits of the investment and dividend to
the district in terms of disaster resiliency. Lot
of activities were found be undertaken by
the NGOs and other organisations without
the information and ownership of district
Government. There was no idea about who
will take the ownership of the assets after the
exit of the organizations; the Government
was having no plan to carry on those activities
after the exit of the projects. Regularisation,
standardisation, coordination, communication,
and shared information were the biggest
challenges for District Government and newly
established DDMA/DDMU.
4.5 Assessment of Disaster Risk Management

Systems at the Community Level
Community organisations and institutions

provide essential goods and services to poor
and vulnerable groups, particularly in the
absence of well-functioning markets, poor
local government and safety nets. When
they function effectively, they can be strong
catalysts for livelihood development, enhancing
prevention and mitigation, providing rapid

assistance during emergencies, and stimulating

and supporting livelihood recovery after a
disaster.
The community institutions can also make
a crucial contribution to the design and
implementation of comprehensive local
DRM plans within the framework of national
DRM programmes through activities such as:
undertaking or participating in local hazard risk
diagnoses and vulnerability assessments; raising
awareness regarding risks and practical and
affordable preventative/mitigation measures;
maintaining public infrastructure, preparing
evacuation plans, setting up rescue and
volunteering committees; providing shelter,
food, water, and other vital assistance during
emergencies; and helping to restore livelihoods
after a disaster.
DRM interventions can be sustainable and
effective only if the intervention is peoplecentered disaster management; if they are
involved in the designing, implementing,
monitoring, and evaluation of the project
and if they take the ownership and work for
strengthening the communitys own coping
strategies. Participation of the communities will
ensure the local communitys ownership of the
DRM processes and the adaptation of DRM
principles and programmes to local needs. The
purpose of the assessment is therefore to:

Obtain a snapshot of the real life risk

situation at the community level, and
to acquire an understanding of what is
actually done for DRM locally as compared
to what could be done
Enable the communities to have the skills

and knowledge of disaster risk reduction
and emergency stockpiling for coping with
disasters
Involve volunteers in disaster management

planning at the community level
Understand and reflect, in the overall

assessment, the local perceptions of
risk and risk coping mechanism, the
institutional requirements for increasing
resilience

Identify the different types of institutions

and organiszations present at the
community level; assess their roles, core
competencies, and capacities for DRM;
and identify possible gaps in addressing
DRM; and
Assess if structures and processes foreseen

in the national DRM planning context
actually exist at the local level, or if they
have been modified by communities in
order to reflect their local requirements
In the process of assessment, the team

visited six union councils, 2 villages in each
TMA jurisdiction. Meetings with community
members were held to review the DRM
understanding and the support provided by
the national and international organisations for
promoting capacity building of the community.
It was revealed that most of the NGOs/INGOs
are directly working with the communities
without the information and consent of the
District Government. The assessment covered
the following questions during the dialogues,
discussion with the communities:

Mapping of local institutions
Community profiling
Understanding community dynamics,

perceptions,
vulnerabilities,
key
socioeconomic parameters including
production and livelihood system
Hazards and historical profiling of

disasters, their magnitude and intensity
Vulnerability profiling and village disaster

management plans
The strength and weakness and

opportunities to improve local coping
mechanism
Indigenous knowledge, forecasting about

anticipated threats, local prediction, early
warning, EW dissemination mechanism,
command and control system, and
emergency stockpile
Skills, knowledge, competencies

commitments of volunteers, etc
and
15
The following participatory methods and tools

were employed in undertaking assessment as
under:
Practical demonstration of response skills,
knowledge, competencies, and organisational
structure; SOPs and ToRs/role and
responsibilities, communication system and
tool, emergency kits/gears, organised mock
drills, simulation and volunteer movement, real
time mobilisation and activation of volunteers,
contact numbers of emergency responding
organisation at local and district levels.
Assessment exercise was carried out in the field
using the following points of discussion as well
as tools and techniques, to assess the capacity
and strength of the community volunteers and
organisations:
a. Hazard, risk and vulnerability mapping of
the village, including areas under hazard
threat. Assessment team used the map to
discuss which assets were under threat by
which hazard; where evacuation routes
or safety platforms are located; which
groups are the most vulnerable and what
mechanisms exist, if any, to help them.
Strengthening coordination and linkages
among multi-stakeholders for disaster
preparedness and emergency response
and linking DRM activities with District
Government DRM system were also
assessed
b. Hazards/risk identification, analyses,
monitoring, and mitigation measures for
vulnerability and risk reduction
c. Main streaming DRR into development
planning at the community level
d. Minimum standards for preparedness at all
levels including a community ERTs level
for disaster response and equipping them
with emergency kits
e. DRM plans developed at village,
community, Union Council, Tehsil
level and linked with multi-sectoral
organisational plans, and incorporated
in the comprehensive District Disaster
Management Plan
16
f.
Developing contingency plans for hazards

specific including evacuation plans at
multiple levels and undertaking drills/
simulations for testing the plans
g. Introducing DRR into a school safety

programme
Other PRA tools were used to obtain
additional
information/details
including
group discussions, ranking exercises to
assess priorities, and seasonal calendars. The
diagnostic studies at community/village level
are different in nature from the studies at
higher levels as they are based on Participatory
Rural Appraisal (PRA) methodologies, and are
interactive and flexible in their methods.
4.6 A Brief of the Assessment Findings
Many analytical steps adopted for this assessment

are not the mandate of this handbook; however,
all the steps, tools, and methodologies could be
used by the practitioners for undertaking similar
assessments in another district for replication
of this Model.
Summary of
hereunder:
the findings is described
a. Strengthening institutional and technical

capacities for DRM at the district and local
level of disaster preparedness, mitigation
and response
b. Integrating DRR into regular development,
emergency response/rehabilitation, and
reconstruction planning
c. Establishing a holistic unified command
system for disaster response with an
enhanced capacity of Search and Rescue
Team, to respond to multi-hazards at
multi-level
d. Introducing school disaster preparedness
and management programme
e. Strengthening coordination, collaboration
and linkages among all stakeholders
f.
Designing and developing minimum

standards for ERTs preparedness
g. Strengthening Early Warning system at

district level and building the capacity of

DEOC.
It is self evident that it is possible to elaborate,
within this report, the whole process of
analysing and presenting all types of findings,
since they will be highly situation and context
specific. The possible recommendation areas
are also numerous and are included in the
implementation plans of the pilot project. The
activities carried out during the project life
and the impact indicators of the pioneering
approaches of the DRM model Mansehra are
numerous. The weaknesses and bottlenecks
have been translated into capacity development,
and the results show positive trends of
reflections by multi-stakeholders, which could
be harvested in other parts of the country.
The issues of coordination, communication,

collaboration and linkages between institutions
and communities were constituted as
crucial topics to be addressed in the overall
assessment. Key questions to identify strengths
and weaknesses of vertical and horizontal
linkages and proposals for improvement were
incorporated into the studies at each level. A
wider gap between the institutions, community
and DRM system was observed. Another gap
was the ownership issue; without the patronage
of Government, the community was unable to
sustain the knowledge and technical support
provided to them by the donor agencies and
NGOs.
4.7 Suggestions for PDMP Project
A series of strategies for ensuring the broader

application of DRM instruments by the
District and local governments were developed.
These strategies include: advocating and raising
awareness among policy/decision-makers;
assessing local governments specific DRM
needs; adapting existing DRM instruments
to specific contexts and needs; strengthening
DRM training and capacity-building for
local governments, NGOs, Community
organisations; and establishing monitoring
and evaluation systems for DRM at the
local government level. Before doing this,
the existing DRM system in the district was
reviewed in the light of legal and institutional
arrangement in the country under NDMO
and NDRMF, to understand the strengths and
weaknesses of the present DRM system in
the district. The DRM system established in
Mansehra has been the pioneering model with
the technical and financial support of GIZ
to the PDMA and DDMA/DDMUs in KP.

Many DRM functions overlap/coincide with

the mandates of sectoral departments and
agencies. The detailed assessment of DRM
system in the district and lesson learned of
the 2005 earthquake were discussed and
explained jointly to the DDMA/DDMU
and other stakeholders. Stakeholders agreed
for implementation of strategies that will
supplement the existing DRM system in the
district and bring it to the requirement of
national and internal agenda of DRR.
17
Chapter 5
Detailed Explanation of Step by Step Implementation Process

of the DRM model
5.1 Stages Involved in the Identification of

Milestones and Cut Off Points in the Process
Initially the project was launched with the

milestones i.e. developing departmental plans
of line agencies, supporting civil defence in
capacity building and introducing school safety
programmes in 30 schools of Mansehra.
Identification of existing DRM system,
practices, concepts and approaches used
by multi-stakeholders in district Mansehra,
capacity and gap assessment of skills;
knowledge, competence, and understanding
of DRR; livelihood challenges with reference
to climate change, global warming, and its
impacts on the lives and livelihood of the
people; and the available, as well as required
resources to develop a comprehensive disaster
management strategy in the district were some
of the milestones and cutoff points. The
Role and responsibilities and mandates of
line departments/local government agencies,
NGOs and the community in general and
Frontline agencies in DRM were discussed.
The primary responsibilities of protection and
safety of local communities, were specifically
discussed in analytical review. Beside a detailed
review, it was agreed to recommend visionary
strategic priorities for comprehensive DRM
system. The milestone determined was how to
develop a comprehensive disaster management
system and strategy in the district to address
multi-level disaster management spectrums
i.e. an institutional mechanism, enhancement
of capacity and competencies of focal point
agencies, effective coordination among all
stakeholders and unified command system
including EWS and 24/7 emergency services to
the community.
The detailed assessment undertaken by
DDMA/DDMU team mainly aimed to give
guidelines and reference about district and
Local Government collaboration with multistakeholders to ensure a culture of prevention.
The assessment raised many questions in the
minds of the people and the decision makers;
a need was felt to overcome the gaps including:
18
Weak government structure
Lack of capacity in DRM
Lack of understanding of root causes

of disasters and DRR connection to
emergencies/humanitarian assistance and
development
The absence of multiple risk assessment,

main streaming in policy and development
process
Lack of natural resources management

and pool land use management plans
Poor or non-professional development

planning
Financial and professional corruption in

service delivery
Lack of accountability and transparency in

overall governance system
Lack of resources, both financial and

human
Lack of Early Warning mechanism,

priority and political will about DRR
Gender discrimination, exclusion, poor

understanding of DRR and climate
changes and
The dynamics of human intervention with

geological, ecological and hydrological
process
Lack of coordination among sectoral

agencies/NGOs and the community
Lack of technical knowledge and skills

among local government leaders
Political influence in posting and transfer

of the Government officials; and
Lack of trust and confidence of the

community on institution and organisations
The assessment explored the needs of holistic

strategies to cope with the emerging threats
and vulnerabilities of the people in the district.
It designed and developed a set of practical
tools and approaches which ensures a dividend
to the people in the long term for sustainable
development by making them multi-resilient to
multi-hazards.

Under Chapter IV of Section 18 (1) of

2006, DDMA/DDMU Mansehra was formed,
and Steering Committee consisting District

District Nazim
Chairman
District Coordination Officer

Vice Chairman and Secretary
Assistant Coordination Officer

DDMO
Members Executive Committee DDMU Mansehra

Representatives of
Law Enforement
Agencies and Others
District/Tehsil Nazims, Secretaries of 59 Union

Councils, more than 40 non-governmental
national and international organisations
working in Mansehra, and 45 community
based organisations were involved in the
discussion and dialogue process for formation
of DDMA/DDMU in Mansehra and in
developing comprehensive, functional, and
operational disaster risk reduction strategies. A
formal, functional, and operational structure of
DDMA/DDMU was suggested.
Administrative and functional structure of

DDMA/DDMU Mansehra
Representatives of
IOs, INGOs, NGOs
and Community
The process of DDMA/DDMUs formation/

notification and administrative arrangement
was initiated in the district by the project.
For this purpose, 13 line departments, 3
Tehsil Municipal Administrations (TMAs),
Police Department, Pakistan Army, Federal
and provincial departments including NHA,
FWO, GSP, Meteorological Department,
Flood Forecasting Department and WAPDA
individually/collectively
discussed
their
mandate and responsibilities through the good
office of DCO and ACO Mansehra.
The DDMA/DDMU steering committee

appointed more members on committees
consisting of 13 EDOs/DOs of line
departments, 3 TMOs, one representative
from each IOs/INGO, and 3 representatives
from CBOs (one each for each TMA
jurisdiction). Three Tehsil Nazims and three
Secretaries (one representative from each
TMA jurisdiction) were nominated as an exofficio member of the steering Committee
of DDMA/DDMU. A Focal person from the
Police Department, Pakistan Army, WAPDA,
the NHA and one representative of national
and provincial organisations was nominated for
the Steering Committee of DDMU. The role
and responsibilities of the Steering Committee
were determined and full power was delegated
to the Committee under Section 19-20 and
section 22 of the NDMO 2006 for making all
administrative and strategic decisions regarding
DRR and DRM activities in the District.
Tehsil Nazims, TMOs

and representatives
from Union Councils
5.2 DDMA/DDMU Notification, Administration

and Functional Arrangement of DDMA/
DDMU, and Role/Responsibilities
Nazim, Chairman DDMA/DDMU, DCO

Vice Chairman and Secretary of Steering
Committee, Assistant Coordination Officer as
DDMO, was constituted.
EDOs and Heads of

Line Departments
The
project
proposed
priority
recommendations and accordingly Standard
Operation Guidelines were developed
defining the role and responsibilities of all
stakeholders. Effective monitoring mechanism
as well as coordination system and linkages
were developed for implementation of the
suggestions of the DPMP project. It explored
the mosaic of interests, the kaleidoscope of
attitudes, and the network of actors which
have been mobilised towards risk reduction
and disaster prevention, rather than assessing
the need for disaster relief. A multi-hazardous,
multi-dynamic and multi-sectoral approach was
adapted for analysing the vulnerabilities of the
communities affected due to earthquake and
expected threats of landslide, flooding, erosion,
environmental land degradation.
19
For further strengthening the functional and

operational capacity of DDMA/DDMU,
meetings/dialogues were held with the members
of the Steering committee of DDMA/DDMU,
line departments, local government agencies
and other stakeholders. Suggestions and ideas
were discussed in line with the guidelines of
National disaster management and HFAs
framework. It was agreed to develop a Standard
Operating Guideline (SoG) for DDMA/
DDMU for setting goals, missions, and guiding
principles for DDMA/DDMU in order to
achieve/accomplish the targeted objectives
within 3-4 years.
In line with functional and operational
responsibilities
of
DDMA/DDMU,
determined in Section 19-20 and 22 of
2006, additional technical and professional
human resources were required to strengthen
DDMA/DDMUs functional and operational
capacities in areas of prevention, mitigation,
preparedness and response to emergencies.
To meet the challenging task under NDMO
2006 and to make DDMA/DDMU functional
and operational, huge financial/human and
technical support was required, which was not
available to DDMA/DDMU. To achieve the
task without technical and financial support
from Provincial and Federal Governments, two
options were discussed.
1. To identify local resources
2. To wait till the availability of funding
and human resources from the provincial
government
The Steering Committee DDMA/DDMU
directed the project staff to go ahead with the
first option i.e. to identify local resources and
develop operational guidelines for DDMA/
DDMU, so that the activities could be started
without waiting for resources from PDMA.
5.3 Findings / Suggestions by the Assessment

Teams
i. All actors centered disaster management

approach; under this arrangement, line
departments, local government agencies,
police departments, law enforcement
20
agencies, provincial and national agencies/

organisations,
NGOs/INGO
and
community organisations were requested to
provide human resources.
a. One focal person of grade 17 and
above and one junior staff between the
ages of 25-40 should be nominated to
DDMA/DDMU by line departments
and local government agencies for
functional and operational support
b. Volunteers from Civil Defense
Department or ERTs should be
recruited for proposed Search and
Rescue Team, to be established under
DDMA/DDMU in spontaneous
response to emergencies
c. Standards Operation Guidelines (SoG)
determining goals, mission, objectives
of DDMA/DDMU, and role/
responsibilities of all Stakeholders in
term of functional and operational
purpose, were developed and shared
with multi-stakeholders
d. District Disaster Preparedness and
Response Centere (DDPRC) was
proposed to be established to provide
technical support. The focal persons
nominated by line departments,
local government agencies and other
organizations will play vital role in
the core team, available to DDMA/
DDMU for professional and technical
support
ii. All
the
above
suggestions
and
recommendations were approved by the
DDMA/DDMUs Steering Committee;
accordingly, the implementation process
was started:
a. 17 officers and 18 officials from
line departments, local government
agencies and other organiszations were
made available to DDMA/DDMU on
need basis.
b. 12 volunteers from Civil Defense were
recruited for Search and Rescue Team
to be established by DDMA/DDMU.
c. Standard
operating
guidelines

determinring role and responsibilities

of partner organiszations and DDMA/
DDMU, with clear goals, mission and
objectives to be achieved during 3-4
years was developed, approved and
operationalised.
d. The DDMA/DDMU Secretariat
established the DDPRC and was made
functional. SoPs and ToRs for the Core
Team members were prepared and
properly oriented to them.
5.4 Existing and Required Capacities of

Stakeholders
The institutional capability assessment on

DRM, conducted by the assessment team in
district Mansehra, was presenting a sunny
picture of DRM understanding. District
Administration, Local government agencies,
line departments, state organisations, INGOs/
NGOs, and community based organisations
remained involved in earthquake reconstruction
and rebuilding activities in Mansehra.
Due to the lack of contemporary knowledge,
capacity/capability, and poor monitoring
system, the organisations were unable to
deliver quality services to the community.
The
conventional
development/disaster
management approaches adopted by the
organisations were unproductive, which rather
created conflicts and misunderstandings
amongst the affected community members.
There was no coordination mechanism in place
to supplement and support the activities of
the organisations at different level; therefore,
it resulted in duplication and overlapping of
activities and resources in most cases.
Due to lack of accountability and transparency
in relief distribution and recovery programmes,
many organisations drew flak and some of them
winded up their activities without completion
of the projects they committed.
Disaster management was a new subject and
there was a serious capacity gap both at the
policy/planning and operational level; most
of the organisations were not following

humanitarian protocol, transparency and

accountability. Due to shortage of technical
and professional human resources, many nontechnical and non-professional people were
hired by NGOs/INGOs to complete their
projects according to the deadlines.
Some of the organisations, working in the
recovery process, were also providing training
and equipment/gears/emergency kits to
community volunteers; however, there were no
minimum standards or checklist or standards
for quality assurance of such training and kits/
gears.
The assessment suggested enhancing capacity
of DRM system in the district as under:
a. Strengthening
institutions
technical
capacities for DRM at the district and local
levels of disaster preparedness, mitigation
and response
b. Integrating DRR into regular development,
emergency response/rehabilitation and
reconstruction planning
c. Establishing a holistic unified command
system, with an enhanced capacity of
Search and Rescue Team, to respond to
multi-hazards at multi-level
d. Strengthening coordination and linkages
among multi-stakeholders for disaster
preparedness and emergency response
and linking DRM activities with District
Government development plans
e. Building the capacity of the community
and community organisations for hazard
identification, analysis, monitoring and
implementation of mitigation measures
for vulnerability and risk reduction
f.
Main streaming DRR into development

planning through all stakeholders including
district and Local governments, multisectoral organisations, INGOs, NGOs,
CBOs and ERTs
g. Introducing minimum standards for

preparedness at all levels including
community ERTs for disaster response
21
prepared by the focal person, were the

outcome of the extensive capacity building
training by the project
and equipping them with emergency kits

h. Developing DRM plans by multi-sectoral
agencies, local, Provincial, and Federal
Government organisations. DRM plans
need to be developed at village, community,
Union Councils and Tehsil level, and
linked with multi-sectoral agencies and the
organisations plans, to be incorporated
in the comprehensive District Disaster
Management Plan
i.
Developing contingency plans for hazards

specific contingency plans, including
evacuation plans at multiple levels and
undertaking drills/simulations for testing
the plans
j.
Introducing DRR into a school safety

programme
k. Strengthening the capacity of Frontline

agencies of DRM including Civil Defense,
local Government agencies and Social
Welfare departments
l.
Operationalising the paradigm shifting

from reactive emergency relief to proactive DRM
5.5 Measures Suggested and Activities Carried

out by DPMP to Enhance and Strengthen
the Capacity of Stakeholders
a. Focal persons from organisations were

provided extensive training by national
and international experts, to enhance their
capacity on all spectrums of DRM and
disaster management including disaster
preparedness, mitigation, planning and
response. It provided technical support
to DDMA/DDMU and also promoted
DRM within the respective department;
technically sound and professionally
competent human resources were made
available to DDMA/DDMU
b. In addition to the trainings conducted
by international experts, local trainings
on intra and inter-departmental basis
were conducted for integrating DRR
into development planning. Hands- on
practical skills, knowledge for developing
departmental disaster management plans,
22
c. For strengthening coordination and

linkages among multi-stakeholders, for
disaster preparedness and emergency
response, regular monthly meeting with
multi-stakeholders
were
conducted.
Agenda and minutes of the meetings were
shared with all stakeholders for feedback
and action planning
d. Capacity building training for the
community volunteers and community
organisations were facilitated with the
support of other organisations for hazard
identification, analysis, monitoring, and
implementation of mitigation; moreover,
different mappings including vulnerability,
capacity and risk were also prepared. The
community volunteers were involved in all
trainings, conducted for the organisations
to bring their level to master trainer
e. Trainings were conducted for ERTS/
CBOs to mainstream DRR into regular
village development plans; NGOs were
coordinated for conducting such training
f.
Minimum standards for community

volunteers preparedness were introduced
and the capacity/capability of all the
volunteers and community organisations,
working on DRM, was tested according to
the minimum preparedness criteria
g. Village development plan, hazards

specific risk plans, contingency plans,
and evacuation plans at local level were
prepared and the community volunteers
were provided training by NGOs to
coordinate the efforts of the project
h. Mock drills/simulation at ERTs and
combined ERTs/DDMA/DDMU here
held in different villages to test responding
skills/knowledge of the volunteers and
back up support of district government
agencies. The gaps and strengths were
documented for further up-scaling
i.
Community volunteers and organisations

were trained in early warning message

dissemination and evacuation orders.

Community volunteers were oriented
about the preparedness and response
system of district Government
j.
More than 3000 school children and

about 100 teachers/instructors were
trained in the school safety programme;
knowledge and skills in disaster prevention
and mitigation were transferred to young
students
k. District/local
government
officials
were trained in contingency planning;
contemporary monsoon contingency
plans were developed, put in operation,
and tested during real time flooding
l.
A Thirty members search and rescue team

was trained in different rescue skills, and
was then equipped and made operational
m. The District Coordination Officer and

Assistant Coordination officer were sent
on international trainings on DRM
5.6 Obstacles and Measures to Overcome
Bringing change in the mindset of the

people and the bureaucracy was the first and
foremost challenge the project encountered.
Understanding
disaster
dynamics
and
characteristics; and current way of managing
disaster;
forecasting,
prediction
and
dissemination of Early Warning on hazards were
also the major challenges for the project. This
challenge, however, was accepted by the project
and all stakeholders were taken into confidence
in bringing change in attitude, behaviour
and thinking of multi-stakeholders. In line
with the MoU signed between the Provincial
Government of KP and German International
Cooperation (GIZ), the perception of public
regarding bureaucracy shifted from reactive
disaster management to proactive disaster risk
reduction approaches; the public undertook
such initiatives that led the project towards
achieving the goals. The major obstacles were
overcome through continuous motivation
and training of partner organisations and the
community. For this purpose, the fundamental
tools of confidence and mutual trust building
were used for ensuring the stakeholders that the
changes are in their interest, rather than to the

project.
5.7 Application of Monitoring System During

the Development and Implementation of
the DRM Model
The aim of the DRM model Mansehra was

to enhance and enforce local capacities and
systems. In the assessment process, it was
pointed out that due to lack of monitoring and
evaluation of the overall system of governance
at district level, the targeted benefits of the
investment at multi-level is not reaching the
community; in other case the cost benefits,
if reaching the people, are not sustainable.
Professional and financial corruption has
ruined the overall ecosystem of the country
including district Mansehra; therefore, it was
the priority of the project to build stronger
monitoring system and build stronger linkages/
synergies with all development practitioners
and service providing organisations, to
ensure transparency and accountability in the
humanitarian and development businesses. It
also aimed at sharing activities/programmes
with other stakeholders to avoid duplication
and overlapping of resources and to provide
maximum benefits to the communities at the
minimum cost.
To ensure implementation of the DRM model,
the following social, motivational, and technical
monitoring tools and systems were developed
and used. The process was regularly monitored
throughout the project life, internally and
externally.
DDPRC, the secretariat of
DDMA/DDMU, was tasked to handle this
very challenging, but very important aspect of
monitoring and evaluation system. The core
team of DDPRC, consisting of highly technical
and dedicated multi-disciplinary professionals,
was made responsible for effectively monitoring
the activities/programmes for development
practitioners, service providing agencies,
Frontline disaster management organisations,
INGOs/NGOs and other human service
providers. The team undertook to ensure that
anthropogenic activities are not generating new
hazards/risk/vulnerabilities to communities;
financial/technical and material supports have
properly been used to generate maximum
productivity. The DDPRC team used different
23
tools and methodologies to ensure monitoring

at the planning and implementation level of
all projects by all partners. Some of the tools,
methodologies, and techniques adopted by
the DDPRC Core team for monitoring are as
under:
a. The collective consensus for DRM
practices: All the stakeholders including
district and Local Governments, NGOs,
federal / provincial agencies and the
community were taken into confidence for
taking stock of DRM related activities
b. Objective oriented actions: The goals,
objectives, mandate, and milestones, were
shared through an action planning process
for implementation and measuring the
achievements/results for planning purposes
c. Logical framework: LFA is one of the
best tools used by the assessment and
monitoring team of DDMA/DDMU for
measuring results. LFA of all organisations
was shared with DDMA/DDMU and its
copy thereof was shared with the concerned
sectoral head. Monthly, quarterly, and yearly
plans were shared with DDMA/DDMU/
concerned head of sectoral department for
regular review and reporting to DDMA/
DDMU on progress
of Sectoral Head of the department was

made responsible to coordinate, facilitate
and monitor the activities of all sectoral
organisations on a monthly basis. Sectoral
Head was made responsible to conduct
regular monthly review meeting on a plan
of action and implementation progress of
activities, detailed in the PoA, with SMART
indicators
g. Monitoring by DDPRC Core Team:
The Core team of 17 members at DDPRC
regularly monitored the progress of
the planned activities according to the
monitoring indicators and results were
shared with all stakeholders in general
coordination meeting of DDMA/DDMU
h. Monitoring by General Coordination
Meetings: The activities and outcomes of
the organisations were shared at the sectorspecific discussion in the monthly general
coordination meeting of stockholders.
The success and failures in implementing
of the activities were shared. Justification/
explanation for failures and future action
to avoid them were presented to the GCM
forum, the highest decision making forum
after DDMA/DDMU steering Committee
i.
Monitoring by Steering Committee of

DDMA/DDMU: Minutes of the General
Coordination Meetings were presented to
the Chairman of Steering Committee on
a regular basis. Responsibilities for failure
at concerned level were fixed and action/
measures were adoapted to implement the
left out aspects of the project activities
j.
The multi-prong approaches adapted

and the tool and methodologies used, for
effective monitoring of the activities of the
organizations organisations at multi-level,
ensured transparency and accountability at
all levels
d. Monitoring at the implementer level:

Implementation of the annual work plan,
monthly and quarterly, was the responsibility
of project implementer and had to be
monitored by the implementing agency/
organisation
e. Monitoring at the beneficiary level:
Community representatives were included
in DDMA/DDMU steering Committee,
DDPRC Core Committee; representation
at the monthly coordination meetings
ensured project implementation progress,
both quantitative and qualitative. The
implementer was made accountable for any
lapses and delays in implementation as well
as for quality assurance
f. Monitoring at Sectoral Cluster level:
Organisations working in specific sectors
were linked to concerned sectoral cluster,
formed at District Level. Concerned head
24
k. Commitment of DDMA/DDMU, to ensure

effective and efficient implementation of the
project activities, made the implementing
agencies/organizations
organisations
fully accountable to the highest level of
administrative set-up at all levels
l.
The
mix
of
contemporary
and

conventional monitoring system, developed

by the project, was simple, practical,
understandable, localised and acceptable to
all stakeholders. It was collectively adapted
with the consensus of all stakeholders
m. Voluntary,
committing,
practical,
demonstrable, and actionable system
adopted by District Government was
highly appreciated by all partners and full
cooperation and support was extended to
the DDMA/DDMU for implementation
Some other characteristics of the comprehensive
monitoring system:
Monitored at multi-stage and at multi-level
Planning stage: During development
planning by incorporating monitoring tools
Including LFA, at all levels
Regular monitoring through monthly activity
plan
Verifying progress through MOVs, by the
implementers themselves.
Monitoring at Sectoral working group
meetings
Monitoring at DDPRC level by technical
working groups
Reviewing and monitoring of General
Coordination Meeting action plans
Ultimately reviewing the monitoring
outcome/results by the DDMA/DDMU
Steering Committee for policy decisions
The monitoring and evaluation system was
introduced in such a way that it gave the
impression of facilitating, learning, and
supplementing the efforts of each other, rather
than the general impression of investigation,
examination, and criticism of the others
activities.
5.8 Contribution of PDMA/NDMA and Nature of

their Involvement
Provincial Disaster Management Authority

(PDMA) Khyber Pakhtunkhwa was officially
notified in October 2008. The administrative

and structural evolution of PDMA, KP was

also supported by the DPMP project. The
major strength of DDMA/DDMU Mansehra
was the availability of the same line of technical
support, which was available to PDMA.
Despite its own evolution process, PDMA
provided Technical Support to DDMA/
DDMU Mansehra, as and when required, and
the project of Mansehra was highly appreciated
by the high-ups of PDMA time and again. The
then DG PDMA, Mr. Shakeel Qadir Khan, in
a high profile provincial Government meeting
said:
After the 2010 floods, Dawn Media
representatives were deployed to Mansehra
by Mr. Shakeel Qadir Khan (the then DG
PMDA) to understand and disseminate
the effective response of DDMA/DDMU
Mansehra. Accordingly, interviews were
conducted with DDMA/DDMU high-ups and
were telecast in Dawn television and print
media, appreciating the efforts of district
administration for effective and efficient
flood response.
DDMA/DDMU Mansehra is a proud pilot project
of PDMA, to be presented to any level and to be
replicated anywhere.
Linkages, coordination, and understanding
between DDMA/DDMU Mansehra, NDMA,
ERRA and other organisations working on
DRM remained excellent. DDMA/DDMU
activities were regularly shared with PDMA.
Regular guidance and support were provided to
DDMA/DDMU Mansehra by PDMA, KP. The
PDMA officials physically participated in drills,
simulations, and training programmes arranged
by DPMP/DDMA/DDMU, Mansehra.
Commissioners Hazara, DCOs, DPOs and
other high-ups of the region also participated
in mock drills/demonstration and simulations
organised by the DDMA/DDMU Mansehra.
National and international exposure visits
for the PDMA officials were organised to
orient them about the role played by DRM
organisations. DRM orientation and capacity
building training for the officials of PDMA,
25
NDMA, and Provincial Government high-ups

were arranged.
trainings of district/local government Leaders,

were borne by the project.
Two track approaches i.e. 1) top down, and

2) bottom up were adopted to involve policy
makers and the end users, the community,
respectively. This strategy not only enhanced the
capacity and understanding of DRM at policy
level, but also transformed the importance
of DRM to implementing agencies and the
community. However, due to its own evolution
process, technical/ financial limitation, high
pressure of IDPs, and heavy floods of 2010,
the PDMA had contributed to DDMA/
DDMU efforts.
An MoU between DPMP and ERRA

Community Based Disaster Risk Management
Programme was signed for integration of
the CBDRM project into district/local
governments disaster response management
system. The UNDP supported DPMP for
provision of equipment and facilitation of
training for Search and Rescue Team. had the
local resources not been used wisely, the cost of
the project for undertaking the activities might
have been 7 to 10 times higher than the actual
budget.
5.9 Financing Costs Associated with the

Development and Implementation of the
DRM Model
5.10 Utilisation of Local and External Resources

in Implementation of the Model
Cost Effective the DRM model

DPMP project Mansehra was a cost effective
and result oriented project. Administrative and
operational cost of the project had been just 15
% while the programmatic cost was 85%.
A very small but smart team of professionally
competent and dedicated members, comprising
Project Coordinator, Admin and Finance
Officer and a driver, was engaged with the
project. The total estimated cost of the project
was 40 million PKR or 0.4 million US dollars.
The efficiency and effectiveness of the project
were well inspiring for the stakeholders. The
stakeholders, who were directly or indirectly
involved in the projects planning and
implementation process, highly appreciated the
achievement of DDMA/DDMU. The project
was aimed at optimum utilisation of local
resources for maximum productivity/ outcome.
Human resource mobilisation at the local level
for emergency response, assessment, localised
trainings, drills, simulations, and general
coordination meetings cost nothing to the
project or to DDMA/DDMU. The participating
partner organisations shared the cost of the
above activities on rotation basis. Only the cost
for specialised training of Search and Rescue
team, Focal Persons training on disaster risk
reduction, integration and mainstreaming of
DRR into development planning, international
26
Disaster risk reduction is a crosscutting and

a complex issue which requires political
commitment, public understanding, scientific
knowledge, responsible development, planning
and practice, a people-centered early warning
system, and disaster response mechanism. A
multi-stakeholder platform, under DDMA/
DDMU, is needed which must be committed
to consolidate and pool knowledge, skills, and
resources required for disaster risk reduction
for incorporating it into development work at
the local governments level.
The DRM is a complex, complicated,
interlinked and interconnected discipline. It
requires a multi-prong approach, a huge number
of expert human resources, and technology
and resource management. District and local
Governments having lack of both technical
human and financial resources, are unable to
deliver services to the community according
to the mandate of the local governments.
The DPMP Project, realising the needs and
gaps in resources, decided to adopt innovative
approaches, called optimum utilisations
of existing local resources to minimise
dependency on external resources. Accordingly
DDMA/DDMU Mansehra was enabled to
generate human and technical resources, as
summarised below:
a. Leadership- in Policy/decision making:

A 30- members delegation of high profile
officers
of district/local government,

heads of line departments, and other

organisations voluntarily
offered their
services to DDMA/DDMUs and strategic
planning and policy/decision making
authorities including district Nazim, DCO,
ACO, heads of NGOs, etc.
b. Focal Persons: No organisation or system
without human resources can be made
functional. Services of 30 senior officers
from different agencies/organisations
were acquired by DDMA/DDMU at no
cost. The team included 17 officers from
government organisations and 13 from
INGO/NGOs and other organisation
c. Search and Rescue Team: The 30 team
members, 18 Government employees from
different departments and 12 volunteers
from the Civil Defense Department were
included in the squadron of Emergency
Service provided at no cost of DDMA/
DDMU
d. Technical Support: The services of 6
officials of the Civil Defense Department
were placed under DDMA/DDMU
Mansehra under the administrative
arrangement by District Government
e. Trainers and Educators: Services of
94 Teachers/Trainers (60 teachers from
Mansehra high schools and 34 Teacher
educators from different parts of the
province) were provided to DDMA/
DDMU for school disaster preparedness
and management training
f. Local support change agents: More than
10 representatives from Union Councils
and CBOs/ERTs were directly involved in
decision making and planning process on
DRR/DRM
g. Technical and professional human
resources: In this way, over 200 hightech professionals, multi-sectoral experts,
technical and skillful manpower, and
dedicated volunteers made themselves
available to DDMA/DDMU at no
additional cost of public exchequers
h. Local responders/trained community
volunteers: Over 3,000 community
volunteers, trained by ERRA and NGOs,
were added in the human resource profile
of DDMA/DDMU, to be used both for

DRR and emergency response
i.
Union Councils in DRM: Secretaries

of 59 Union Councils, throughout the
District, were made active partners of
DDMA/DDMU and were assigned with
the responsibilities of DRRs emergency
stockpiling,
spontaneous
emergency
response, disaster needs assessments, and
disaster recovery assignment
j.
Advocacy and influence: Over 2000

officials from INGOs, NGOs and CBOs
were comprehended about the vision,
approaches, and activities of DDMA/
DDMU Mansehra. These officials
participated in general coordination
meetings, trainings, and workshops
conducted by DDMA/DDMU and other
organiszations for the promotion of DRR
in the district
k. School Children centered DRM: 60

students representing 30 schools of
Mansehra have graduated in disaster
preparedness and management in a
school course conducted by the project
in collaboration with the Education
Department of KP
l.
Public awareness and DRR promotion:

Over 20,000 people directly/indirectly
participated in DRM activities like
simulation, drills, walks, real time disaster
responses,
disaster
needs,
damage
assessment and relief distribution
m. National Disaster Day Commemoration:

National disaster day was commemorated
on an annual basis. In each event, over
20,000 people including senior citizens,
children, women, professionals, educators,
practitioners, researchers and all sorts of
people participated
n. External resources: For training of
search and rescue team; capacity building
training of Civil Defense instructors, school
teachers/instructors; training of focal
persons; project staff cost, national and
international exposure visit cost of Govt
officials and cost of gears/equipments/
vehicles for search and rescue team, funding
was provided by the project. The rest of the
resources, including human and financial,
27
Resources locally made available to DDMA/DDMU Mansehra

Sr.
#
Resources
Source
Local
QTY
External
QTY
Human/administrative/ District/local Govt. NGOs/

technical
Community
Leadership in Policy/
decision making
30
Human/ advisory/
technical
District/Local government/
organisations
Focal persons for

technical support to
DDMA/DDMU
30
Human/technical
Line departments/ local govt Search and Rescue

agencies and community
Team
30
Human/technical
Civil Defense Department
Technical Support
06
Human/technical
Education Department
KPP
Education Department KPP
Trainer/educators
94
Human/change agent
Community/Union Councils.
Local support change

agent
10
Human / technical
support
Community
Trained volunteers
3000
Human / admin
support
Union Council
Union Councils in
DRM
59
Human/technical/
advocacy
INGOs/NGOs/Others
Advocacy/influence
2000
10
Human/awareness
30 schools of Mansehra
School children
centered DRM
3000
11
Awareness
The public participated

in drills/simulation and
publicity programmes
Public awareness
raising programme
20,000
12
Awareness/promotion
and advocacy
Public participation in
national disaster day events
National disaster day

events
40,000
13
Financial and technical DPMP (GIZ)

resources
Around
40 million
PKR
had been generated locally e.g. funds for

coordination meetings, simulations/drills,
national day events, trainings, assessment,
volunteers mobilisation expenses, etc. were
contributed by partner organisations. Some
part of the search and Rescue training
expenses and equipments/gears costs were
covered by UNDP.
With this arrangement, over 200 highly
professional and technical human resources
were made available to DDMA/DDMU; over
one hundred thousand people directly and
28
Purpose
Capacity building
and institutional
strengthening
indirectly involved themselves in the DDMA/

DDMU activities in disaster risk reduction.
5.11 The Form in which DPMP Provided Support

at Provincial and Local Level
The objective of the DPMP project in Khyber

Pakhtunkhwa was to strengthen the institutions
and organisations, in charge of disaster
management, so that they could prepare
themselves for disasters; and, if a disaster
occurs, they could mobilise and coordinate the
available resources efficiently. This includes

supporting the capacity development of

the emergency services and promoting the
participation of the population in DRM and
disaster response. The project, therefore,
supported provincial and district Governments
in delivering advisory services on various levels:
a. Institutional development:
Advisory services to support PDMA in
developing and establishing Local level
institutions as well as capacity building and
operationalising were the key interventions
of DPMP. The project supported
institutions, including DDMA/DDMU
Mansehra and affiliated organisations,
responsible for disaster risk reduction at
multi-level in prevention, preparedness,
mitigation and response. The project also
supported Centre for Disaster Preparedness
and Management at Peshawar University.
b. Capacity Development of Civil Defence
Department and the emergency
Services:
Capacity development support was provided
to the Civil Defense Department and its
voluntary units in Peshawar and Mansehra.
Capacity building trainings, to the officials
of Civil Defence, were provided at multilevel; up-gradation of the officials of the
civil defence department was also facilitated;
training and re-training for trainers and
volunteers was arranged. The department
was fully engaged in all activities of DPMP
for the development of professional rescue
services with Search and Rescue and
Medical Rescue Units, fire brigade, and
control centre. Civil Defence Mansehra
was fully equipped with emergency kits; a
30 members search and rescue team were
established under the command and control
of Civil Defense. The team responded to
many localised disasters and over 18 lives
were saved besides millions of worth of
properties.
A Convocation was arranged in Peshawar
for the civil Defense volunteers, first time
in the history of Civil Defense, where
about 800 volunteers from the Province
participated. The convocation was chaired
by Chief Minister of KP; incentives

announced by the CM for the officials as

well as the volunteers were highly morale
building for the volunteer networks across
the province.
c. Training and research:
Postgraduate course in DRM was initiated
at the University of Peshawar and an
academic training for the teachers of Centre
for Disaster Preparedness and Management
(CDPM), was conducted. The Peshawar
University is the only University in the
country offering Master degree programme
in DRM; it has been the most valuable
contribution of DPMP. It facilitated DRM
related national and international trainings
for the officials of Federal, Provincial
and District Governments. The CDPM,
University of Peshawar undertook studies
of the PDPM project on a regular basis.
The findings ensured the quality as well as
the productivity of the DPMP programme
deliveries in Mansehra and Peshawar.
About hundred teachers and RITE
educators got trained in school for DRM.
Line Departments, and local Government
agencies, and NGOs were provided
extensive training on DRR/DRM. Some
of the outcome of the DPMP project in
Mansehra can be briefed as under:
i. Intervention with district and local
government agencies:
To generate human resources for DDMA/
DDMU, the Line departments and local
government agencies nominated one senior
officer and one emergency responder
to represent concerned institutions/
departments for DRM related activities.
ii. Intervention with INGOs/NGOs:
Adopted participatory approaches to
facilitate and coordinate with NGOs and
to bring them in the main streaming of
the district development DRM system
Provided opportunities to INGOs/
NGOs and the community based
organisation on the platform of
DDPRC/DDMA/DDMU
Provided opportunities all actors at
general coordination meetings to present
their programme and record their sayings
29
Improved the two- way communication

systems
to emergencies.
Introduced
system
Volunteers-based cost effective Search and

Rescue Team was established; medium
level training provided, equipped with
gear/ equipment, was provided. Team of
30 members was trained in CSSR, MFR,
FF, MR, and FR. The team members
were equipped with scientific search and
rescue equipment and with state of the art
Technology Rescue vehicle. The capacity
of Search and Rescue team was brought to
national standards.
an
effective
monitoring
d. Technical, professional and moral

support provided to community
organisations:
The contribution made by community
organizations was acknowledged by
DDMA/DDMU
Access to the higher level representation
for community organizations was made
possible
Trained community volunteers were
registered with DDMA/DDMU for
all sorts of technical and professional
support
Stronger
working
relation
with
community volunteers and organization
established
e. Search and Rescue team was established,
trained, equipped and operationalised:
During the Earthquake 2005, serious
weaknesses in the overall response system
demonstrated panic and inability of local
governments to respond to a disaster that
caused huge causalities of over 9000 people

and large number of injuries. This forced the
district government to establish competent
and well equipped Search and Rescue team
at the local level of spontaneous response
30
f. Incident command system (ICS)

established and operationalised:
Emergencies are becoming more complex
in the world with the changed dynamics
of hazards, and scientific/institutional
advancement in dealing with them. At
times of emergencies, many agencies
will have to work with each other, but
these organisations and their staff are not
used to each others command system,
behaviour, technology and terminologies.
Working in one location with a diversified
team of rescuers; skills, knowledge, and
competencies; under one command system,
is a common challenge. To overcome this
challenge, universally accepted, a common
system has been adopted, called the
INCIDEND COMMAND SYSTEM
(ICS). This system, with necessary changes,
was made functional/operational and was
tested in a few real time situations including
flooding of 2010.
A comprehensive response system at district
level, which provided 24/7 emergency
services on one-window basis, was made
functional and operational. Emergency
Helpline i.e. 1122 was made functional for
the first time in KP at Mansehra. Toll free
service was made available on 24/7 basis to
the public; dedicated Government officials
were posted on shift basis in the control
room. Fire brigade and ambulance services
were linked to Helpline services for one
window operation. Although these services
have been at the very initial stage, yet this
ideal system was super surprising for the

people and system of district Mansehra.

g. Disaster Preparedness and Management
in School:
Too many children are dying because they
are not educated to live with disasters or
because they are attending classes in unsafe
buildings. Making schools safer must be the
priority of every government in a disasterprone country. Disaster risk reduction

has no cost compared to the loss of a school
full of children buried alive in a mudslide
or crushed by a falling building (Slvano
Briceo, Director of the UN International
Strategy for Disaster Reduction).
The unforgettable event of the October 05,
2005 earthquake, which killed over 18,000
students in schools in Pakistan, is still alive
in the minds of the young generation. The
GIZ DPMP project initiated non-structural
mitigation components to enhance the
understanding, skills and learning of
students to plan for school safety. Over
1800 students were trained under the school
disaster preparedness and management

project. Thirty schools and 17 regional
institutes for teacher educators throughout
the province were equipped with training
and emergency gears/kits. The provincial
governments KP approved this project
for replication throughout the province.
The Education Department allocated 500
million PKR funding for replication of the
model.
h. Raising the Social Awareness:
Media information campaigns on DRM
were initiated and two day workshop for
journalists covering disaster reporting and
fundamental of DRM was organised. With
support of PDMA, a major TV campaign
was launched and popular TV celebrities
were involved in the campaign that was
broadcasted in Khyber Pakhtunkhwa on
several channels at peak viewing time.
Over 55 articles on natural risks and
current deficits in disaster management
were published in the regional and national
press. This public awareness raising work
generated interest among the population,
thus supporting the call for effective disaster
management structure in the presence of
emergency services. The media campaign
helped directly to improve civil protection by
providing the population with information
on what to do in an emergency and the
need to integrate this issue into curricula.
In addition to the regular programmatic
activities of DPMP, the stakeholders, to
get sensitised, were exposed to different
trainings, awareness raising programmes,
hazards, and vulnerability and risk
susceptibility mappings. The earthquake
and landslide susceptibility/vulnerability
maps developed by the UNDP and BGR
were explained to the stakeholders; detailed
orientations, on map reading and use of
technical maps for spatial planning purpose,
were arranged.
5.12 Alignment of the DRM Model with

Provincial Law and Policy
The DRM model Mansehra was drawn in

line with section 20 of National Disaster
Management Ordinance 2006 and in

31
conformity of NDRMF 2007. The nine-point

priorities of NDRMF were embedded in the
strategic plan of DDMA/DDMU Mansehra
for implementation. Standard Operating
Guidelines (SoGs) were developed, based on
the guiding principles, in National Disaster Risk
Management Framework:
1. Institutional and legal arrangements for
DRM
2. Hazard and vulnerability assessment
3. Training, education and awareness
4. Disaster risk management planning
5. Community and local level programming
6. Multi-hazard early warning system
7. Mainstreaming disaster risk reduction into
development
8. Emergency response system; and
9. Capacity development of post -disaster
recovery
Strengthen disaster preparedness

effective response at all levels
for
The roles and responsibilities of the stakeholders

at local level were identified and agreed upon
according to the national and international
framework of DRM. The dynamic approach of
DDMA/DDMU Mansehra enabled district and
local Governments to align their DRM policies
and plans, according to the provincial laws/
policies, from time to time. The PDMA was
kept in full picture about the ongoing activities
of DDMA/DDMU Mansehra; however,
for administrative and operational purpose
DDMA/DDMU was quite independent and
flexible.
The DDMA/DDMU Mansehra also built
up close collaboration and coordination with
Divisional Government at Hazara level and
offered technical and professional services to
Divisional Government, as and when required.
The Commissioner Hazara and DCOs of four
The DDMA/DDMUs functional and

administrative structure, strategic policies/
plans songs, SOPs/ToRs were designed in line
with the provincial and national laws/policies
and guidelines. The five priority areas of HFA
were also considered, in alignment, with the
local policies and operational plan:
1. Build institutional capacity:
Ensure that disaster risk reduction is a
national and local priority with a strong
institutional basis for implementation
2. Know your risks:
Identify, assess and monitor disaster risks
and enhance early warning
3. Build understanding and awareness:
Use knowledge, innovation and education
to build a culture of safety and resilience at
all levels
4. Reduce risk:
Reduce the underlying risk factors through
land-use planning as well as environmental,
social, and economic measures
5. Be prepared and ready to act:
32
other districts of Hazara Division participated

in DRM activities of Mansehra, which highly
built up the morale of local Government and
the volunteers. One of the effective tools for
motivation for all the stakeholders was the
commitment of the commissioner Hazara
Division.
5.13 Standards for Quality Assurance
The already precarious situation worsened

when local inhabitants of Malakand division
left their houses in anticipation of the Pakistan
Armys military action, against Tehrik-e-Taliban
Pakistan in 2009.

The recovery and reconstruction process had

been tasked to PDMA. Managing the resulting
humanitarian crisis became a priority of the
Provincial Government. Hence the provincial
government tied up many of its resources.
Dealing with over 3 million IDPs, the largest
in the world, created major challenges for the
recently established PDMA.
Technical and financial inputs from PDMA
were not made available, as expected; however,
PDMA was constantly kept in the loop about
all activities of DDMA/DDMU and guidelines
were sought from time to time to ensure
quality of disaster management initiatives. The
DDMA/DDMU and project officials regularly
attended meetings; trainings were arranged
by PDMA and presentations were also made
to PDMA about the ongoing activities of
DDMA/DDMU. Suggestions and guidelines
from PDMA were incorporated in the regular
plan of DDMA/DDMU.
For monitoring and evaluation purpose,
the officials of PDMA also attended drills,
simulations, and trainings arranged by DPMP
at District Mansehra. Accordingly, all activities
of DDMA/DDMU were aligned with the
PDMA standards and policies on disaster risk
reduction/management. To ensure community
disaster preparedness minimum standards
for community level emergency response
team were developed and implemented in
the district. All the 59 Union Councils ERTs
participated in a competition arranged by the
Project; incentives were offered to the best
teams of Tehsil and District. Cash prizes and
other awards were given to the participants and
the winning team.
5.14 Exchange of Knowledge & Experience with

other DDMUs in Khyber Pakhtunkhwa
Unfortunately, none of the DDMA/DDMUs

were functional in KP during the project life of
DPMP, so exchange visits between DDMA/
DDMU Mansehra and other DDMA/DDMUs
could not be arranged. However, knowledge
exchange and experience sharing sessions
between the major stakeholders including the
DCOs, DPOs and heads of line departments
from different districts of Hazara Division
were held from time to time. Demonstration/
drills and simulations were held on a regular
basis by DDMA/DDMU Mansehra and were
chaired by Commissioner Hazara Division,
where head of districts from Hazara Division
participated and exchanged their knowledge,
experience and learning. Multi-disaster drills
were organised by DDMA/DDMU, where
the head of sectoral agencies, INGO/NGOs
technical expertise were invited and suggestions
for up-scaling of Search and Rescue team/
volunteer trainings and disaster preparedness
were sought and incorporated in the action
plans of DDMA/DDMU.
Policy and administrative decision makers
conducted study trips and exposure visit to
disaster management institutions. Exchange
of professional knowledge at the national and
international levels enhanced their awareness
and understanding about comprehensive DRM
and raised their motivation to implement it
within their own spheres of responsibility.
As a result, much importance was attached to
DRM and the process of institutionalisation
developed a strong momentum. The
continuous lobbying work performed by the
project was also partially responsible for the
fact that the engagement of the district/local
Governments and Provincial Government
went on to exceed their initial expectations of
the project.
Knowledge and experience sharing between
multi-stakeholders and multi-agencies at
multi-level enhanced the horizon of DDMA/
DDMU. Practical demonstrations, hands on
training, exposure to national and international
conferences, facilitation of exchange visits
and orientations to
line departments,

33
local Government agencies, national and

international organizations, NGOs, community
organizations and volunteers and citizens
enhanced the capacity of DDMA/DDMU.
The activities and plans were also shared with
NDMA and ERRA, the federal organizations
for DRM and reconstruction, for seeking
guidance on disaster management policies
and plans. The professional competencies
of DPMP and DDMA/DDMU Mansehra
strengthened, through the exchange of
knowledge and sharing of experiences, by
working with UNDP, University of Peshawar,
BGR, GSP, Humanitarian groups, Red Cross
movements and other international and
national organisation. A huge wealth of
knowledge and experiences, acquired and
accumulated through this project, contributed
to the sustainability of the results beyond the
completion of the project.
5.15 Current Status of DDMU/DRM in Mansehra
Mr. Anwar Sherani,

DDMO Mansehra, shared the present status
of the DRM model Mansehra after the exit of
GIZ support from the District, and said that
he highly appreciates the efforts made by GIZ
for building the capacity of District Disaster
Management Unit Mansehra. He further added
that:
The exit of GIZ from the district was
premature. It was too challenging for district
Government to fill the gap of GIZ exit at a
stage when the efforts made by GIZ were
rapidly flourishing. The status of the DRM
model Mansehra is not as good as it was in
August 2010, when DPMP was withdrawing
its support from the district. Being aware of
the District governments strong reservations,
District government Mansehra took up the
matter with GIZ Management to extend its
support till Governance programme fully
takes over the DRM model of Mansehra for
sustainable transformation into reality. DDMU
Mansehra has been facing the challenges of
capacity and capabilities for maintaining this
unique the DRM model. The DDMO is preoccupied with many other assignments having
no time for DRM related activities; even a
34
young baby who lost the feeding mother,

having no feeding intakes, is surviving for
last two years. I appreciate the voluntary
commitments of Search and Rescue Team
members who upheld the team spirit without
district governments support. Having no
provision for fuel to be used in rescue vehicle
and movement of the rescue team, how this
model could be maintained?
Other comments shared by different stakeholders
Dr. Munir Qurashi,
President Rural Development Organisation,
Ghari Habibulla, Mansehra said:
Working with GIZ project was the best
experience of my life. The project brought
all partners organisation on a single agenda
of DRM; strengthened our linkages with
Govt system; empowered us with vision and
wisdom; equipped us with technical skills,
knowledge and emergency kits; involved us
in regular monthly coordination meetings with
district Govt and other partner organisations;
involved us in mock drills/simulations jointly
organised by DDMA/DDMU and our
volunteers; developed minimum preparedness
standards for community volunteers; tested
our capacity and capability according to the
standards; provided us opportunity to stay
at the highest platform of DDMA/DDMU;
created an enabling environment to work
together; supported us in our endeavor in
preparedness and response to emergencies;
and recognised our littlest contribution at every
level. The project influenced and encouraged
us to stand on our feet on self-help basis; it
also consolidated our local efforts for more
productive contribution and accordingly we,
five different ERTs from three Union Councils
of Ghari, have established a local support
organisation to consolidate our strengths in
getting ready for any eventuality. The ERTs
contribution to flooding 2010 was remarkable.
Our system spontaneously activated upon
receipt of Early Warning from DDMA/
DDMU Mansehra and over 250 volunteers
were mobilised for evacuation of people living
in low-lying areas in flood plains. Hundreds of
people were evacuated before flood destruction
of their homes and shifted to safer places

identified during flood contingency planning

with DDMA/DDMU. Over 10 precious lives
were saved by our Rescue Team members by
using the techniques and skills learned during
our training from different organisations. Our
volunteers remained busy with evacuating
the people, from the flooding side, who were
trying to bring out timbers from the roaring
flooding. Volunteers were supported by the
officials of the TMO and DSP Police Balakot
for restricting the people from going to this
dirty business at the cost of their lives. An
announcement was made in mosques to avoid
going close to flooding and to move to safer
places, especially those who were identified at
risk. The GIZ project played a pivotal role in
influencing governments policies by increasing
community awareness of hazards and building
their capacity to prepare for, respond to and
recover from prevailing hazards. The project
has resulted in stronger and more resilient
communities across the district. The project
left behind such footprints that would be
remembered for many years. After the exit
of GIZs patronage from the District, the
Government and DDMA/DDMU are not
available. For the last two years, we have not
been contacted by any officer of District
Government, nor have we been invited to any
DRR activity. We feel ignored and wish for
those moments when we will be involved in
decision making. We feel we lost a lot and wish
to bring back the moment. We understand that
GIZ project was an innovation with a vision
that linked us with huge networks of individuals
interacting socially with communities and
Government system in connecting all together
across the district
Mr. Nazar Khan Swati,
Team Leader of Al-Khair
Response Team:
Emergency
Criticising the attitude and behaviour of

District Government of Mansehra, he said
that after the exit of GIZ Project, there is no
coordination and recognition of the volunteer
services they are offering to the communities.
He narrated in detail the voluntary services his
team has provided to the affected communities
in localised disasters almost on a daily basis. He
further said that the tools and equipments they

received from organisations in the past had

been used during response time and those tools
are no more in useable condition. He said that
the stock pre-positioned in the Union Council
is not available for emergency use. He asked
the district administration that who will come
to their rescue for provision or replacement
of the tools and equipment, which have been
spoiled after use of three years. Criticising the
District Administrations decision for allowing
the exit of the GIZ project from district
at this time, he said that District Mansehra
has seen many unforgettable memories of
casualties and damages due to negligence of
the Government; now the people will not allow
the Government to continue this irresponsible
attitude towards the community challenges.
The disaster risk reduction is the priority of the
people of Balakot Tehsil and the Government
has to respect this priority. He appealed the
GIZ management for re-invention of the
project to articulate the vision and wisdom they
had seen two years back.
Other participants said that in normal
condition constraints of resources are always
a challenge for the project outcome; however,
Mansehra Model craftsmanship is inspiring,
where resources have never been a challenge
for the project implementer. Nonetheless,
the exit strategy was not timely or properly
planned. The District Administration, with
limited resources, was unable to follow the
wisdom and approaches of the project after
the exit of GIZ; thus, the effectiveness of
DDMU Mansehra is still in question.
Mr. Arif Baluch,
TMO Balakot, shared his learning and
experience of working with DPMP as:
Local Government nominated me as focal
person for the project from TMA Oghi and
I remained an active member of DRPRC
for all technical and professional inputs
to DDMA/DDMU Mansehra. We were
provided extensive training in the project
by national and international experts for
developing departmental disaster management
plans and also integrating DDR into regular
development plans. DRM training in other
spectrum of DRR/DRM was provided.
35
Initially this process and approach seemed to

be very difficult as it was a new discipline for
us. However, due to continuous pushing and
the support of the then Project Coordinator,
we were enabled to develop departmental
disaster plans. Our capacity was enhanced and
we were empowered to ensure transparent and
accountable service delivery to the community.
All focal persons of line departments, local
Government agencies, community volunteers,
and NGOs representatives worked as a team
and our suggestions were given high value by
DDMA/DDMU and the district administration
for implementation. We were highly motivated
with the outcome/result of the project.
He said that he himself got an opportunity of
common learning as a team and affirmed that
it was due to the contribution of DPMP that
different partners were brought together on a
single platform and all resources were optimally
utilised for effective service delivery in disaster
preparedness and management. He, however,
stated that DRM activities slowed down
considerably with the phase-out of DPMP. He
said that District Government requested GIZ
many times for extension of the project, and
it was a premature decision of GIZ to leave
the huge investment without supporting or
properly handing it over to properly trained
and qualified system. Nonetheless, he is still
highly motivated that little efforts will bring
them back on the right track.
Mr. Bashir Ahmad Swati,
Team Leader Search and Rescue Team,
Mansehra:
Mr. Bashir Ahmed, Dy. Team leader Search
and Rescue Team, explained the capacity
development measures carried out for the S&R
team. Experts during the project life of DPMP.
In Mansehra, GIZ ensured the provision of
latest equipment to the S&R team and further
augmented their ability by inviting international
rescue experts to train them in improving skills
and utilising tools. He said that the team is at
par with any nations team in terms of skills/
36
knowledge and equipment; however, for the

last more than two years, no technical and
administrative support has been provided by
District Administration. Our volunteer team
members are highly motivated and committed
to the noble cause of saving lives. We have
neither been provided refresher training, nor
has our training been up-scaled over two years.
The uniform provided by the project is nonusable; first Aids medicines in our Rescue
vehicle have expired; fuel is not available to
our vehicles; the double door cab provided by
the project for movement and transportation
of Search and Rescue team is in use of
DDMO. He informed that over 6-7 localised
events were responded by the team at their
personal resources. The team once deployed to
Khaghan and Naran valleys on the occasion of
a tourism festival was neither provided lodging
and boarding nor any fuel was provided to the
vehicles; the volunteers contributed out of
their pockets for food and logistics for more
than three days. He bragged that even then the
team members are available on a single call for
emergencies. He concluded that the present
status of DDMA/DDMU is not encouraging.
This is again a lesson for us to understand
how a single push on the part of District
Government will bring positive changes in the
overall system. Evidence-based learning, in
case of DDMA/DDMU Mansehra, indicates
that the entire contributions and efforts made
by previous District/Local Governments and
hundreds of actors during 2008-2010 are
rapidly diminishing and nobody tends to care
about them. It is a matter of accountability,
transparency and responsibility that will ensure
sustainable development as well as disaster
resiliency in the community. If the same
attitude continues in the government system,
none of the investment could be productive
and sustainable at any level in the country.

Chapter 6
Role of Tehsil Municipal Administration with Reference to DRM
Under the legal and administrative arrangementsection 25 of National Disaster Management Act
2010, it is the responsibility of local authorities to
take all other measures [in addition to sub-section
1 (a) (b) (c) and (d)] as may be necessary for the
disaster management.
Section 20 of National Disaster Management
Act 2010 empowers district authorities to take all
necessary measures for disaster risk reduction and
management in the district with the support of
Local Government institutions.
6.1 Role and Responsibilities of Tehsil

Authorities Under Clause 7.6 of the NDRMF
Tehsil and Union Councils are the lowest level

of administrative structure of the Government;
they interface directly with communities
for civic service delivery, regularisation of
habitations and intervention by government
structure. Extension workers of these agencies
can play a significant role in promoting risk
reduction. Tehsil Authorities have an important
role in organising emergency response, EW
information dissemination, evacuation, camp
management, relief distribution, damage and
loss assessment, and recovery need assessment.
Tehsil and town authorities can lead the risk
reduction and response operations under the
command of Tehsil or Town Municipal Officer
in consultation with the DDMA/DDMU.
6.2 Function and Powers of the Tehsil Municipal

Administration
Under section 54 of the LGO functions and
powers, Tehsil Municipal administrations are
responsible for:
a. Prepare spatial plans for the Tehsil in

collaboration with Union Councils,
including planning for Land use
management, zonation, and other
functions for which Tehsil authorities are
responsible.
c. Execute and manage development plans.

d. Exercise control over land-use, land
subdivision, land development and zoning
by public and private sectors for any
purpose, including for agriculture, industry,
commerce markets, shopping and other
employment centerscentres, residential,
recreation, parks, entertainment, passenger
and transport freight and transit stations.
e. Enforce all municipal laws, rules and
bylaws governing its function.
f.
Prevent encroachments.
g. Regulate affixing of
advertisements.
signboards and
h. Provide, manage, operate, maintain, and

improve the municipal infrastructure and
services, including;
i.
Water supply and control and

development of water resources,
other than system maintained by the
Union and Village Councils.
ii.
Sewage treatments and disposal,
iii. Storm water drainage.

iv. Sanitation and solid waste collection
and sanitary disposal of solid, liquid,
industrial, and hospital wastes.
v. Roads and streets, other than roads
falling under the jurisdiction of,
and maintained by, the District
Government or Government and
streets, maintained by the Union
Administration or Village Council.
vi. Traffic plansplanning, engineeringed
and management including traffic
signaling system, signs on roads, street
markings, parking places, transport
stations, stops, stands and terminals.
b. Seek approval of the Tehsil Council to

the spatial plans prepared by it after due
process of dissemination and public
inquiry, incorporating modifications on
the basis of such inquiry.

37
Responsibilities of TMA under NDMA 2010

Chapter VI
National Disaster Management Act 2010
Section-25: Functions of the Local Authority
1. Subject to the direction of the District Authority, a Local authority shall
a. Ensure that its officers and employees are trained for disaster management
b. Ensure that resources relating to disaster management are so maintained as to be readily
available for use in the event of any threatening disaster situation or disaster
c. Ensure that all construction projects under it or within its jurisdiction conform to the
standards and specifications laid down for prevention of disasters and mitigation by the
National Authority, Provincial Authority and the District Authority
d. Carry out relief, rehabilitation and reconstruction activities in the affected area in accordance
with the Provincial Plans and the district plan
2. The local authority may take such other measures as may be necessary for the disaster
management
38

Chapter 7
Essential Elements in Rolling out the Model in Other Districts in KP
Local government, especially the TMAs, line

departments, NGOs, and communities represented
through organised groups are the key players of
a successful DRM model. The following are the
elements which are relevant for the scaling up
and rolling out of the DRM Model in Khyber
Pakhtunkhwa (with minimum financial and
institutional conditions).
a. Dynamic Leadership is the major and vital
element for effective disaster risk reduction/
management. The one, who can lead the
process of rolling out the MODEL in
other parts of Khyber Pakhtunkhwa, must
be hard working, dedicated, committed
to the cause, sincere to the mission, and
have professional competency in DRM.
This simple characteristic and formula, as a
universal truth, has worked in many cases and
will continue to work anywhere in the world
in any discipline/system
b. A leader as discussed above will be able to bring
together the high-tech inter-disciplinarians,
multi-agency interdepartmental and INGO/
NGO professionals, bureaucracy, and the
communities on a single agenda/platform for
disaster risk reduction
c. Another factor to get the work done with
consensus and participation of all stakeholders
is rousing and stimulating efforts, thrives,
and fortitude for disaster risk reduction and
multi-resiliency of the communities
d. One important area in DRM is the application
of top-down and bottom-up approaches
simultaneously and concurrently at all levels
of intervention. This will influence the
district leadership to take the ownership
of the project and hearten the high- ups at
provincial level
e. The tips used in Mansehra, for the exposure
and study tours of provincial and district
heads to national and international events,
have also worked well, which can be practiced
in other districts
f. The Model is very dynamic and flexible and
could be updated with the close guidance and
priorities of the PDMA and in context of

changing scenarios and area specification

g. Design DRM policy strategies that reflect the
differential vulnerabilities amongst concerned
stakeholders
h. Translate national and provincial government
policies and regulations to local contextspecific and evidence-based regulations
through inclusive mechanism for public
policy implementation and institutional
development
i. District and Local Government agencies must
promote and strengthen multi-stakeholder
partnerships and alliances building across
sectors and disciplines at all levels for
strengthening community resilience
j. District/Local Governments ensure that
the ways and means for communities to
participate in DRM decision making, planning
and implementation are clearly defined
k. A multi-stakeholders SWOT analysis, taking
account of resources including capacities/
capabilities of district/local Governments
and other actors, will supplement the efforts
of DDMU in the district. A consolidated
resource mapping will further strengthen the
capacity and capability of DRM organisations
l. Assessment of
hazards/threats
and
vulnerabilities will indicate the gaps to be
filled through the model. The strength
of existing resources (physical, social,
intellectual, material, financial psychological,
cultural and behavioural) will be compared
with the existing and anticipating natural and
human induced hazards, anticipated risks, and
vulnerabilities (physical, social, traditional,
religious, geopolitical, cultural, geological,
ecological, hydro-meteorological, behavioural
and attitudinal) to understand and plan for
short and long- term intervention and to
enhance good governance programme in the
area concerned
m. Replication, of this cost effective model
in the conflict area will articulate the vision
of PDMA to achieve sustainable social,
economic and environmental development
in the targeted areas through reducing risks
39
and vulnerabilities, particularly those of the

poor and marginalised groups, by effectively
responding to and recovering from disaster
impact
n. Strategies encompassing Low-cost solutions
reflect the degree of sustained budgetary
commitment that can realistically be afforded
by District Administration, PDMA and
NDMA after the exit of GIZ. This will
equally promote and advocate the integration
of DRR into the development policy at all
levels of intervention (community, local
government and district)
40

Chapter 8
Role of TMA/MC in the Context of DRM
Legally and administratively, the role of Tehsil

Municipal Administration/Municipal Committees
has been defined and determined in the National
Disaster Management Act, National Disaster Risk
Management Framework, and Local Government
System/Acts.
The mandate of TMA/MC in context of disaster
risk reduction, disaster management planning,
preparedness, mitigation, response and recovery
is very crucial because TMA/MC is the lowest
level of administration who interface directly with
communities for the development and maintenance
of civic facilities and taking responsibility for
protection and safety of the assets and lives of the
people in the jurisdiction of TMA/MC. The best
implementer, especially for DRM at local level, is
TMA/MC in the context of the responsibilities
discussed hereunder:
TMA/MC knows the communities dynamics,
perception of risks, socioeconomic scenarios,
cultural constraints, local hazards which cause
everyday disasters to the community. The
perceptions of community in the context of climate
change and global warming and their emerging
threats to the lives and livelihood of the community
at local level, if understood in local prospective, and
TMA is the best structure for application of both
the combined indigenous mitigation and scientific
measures, for sustainable development.
The TMA/MC is the lowest level of administrative
setup involved in day to day affairs of the community.
TMA/MC knows most of the habitants in the
jurisdiction, the resourceful and resourceless people,
the most vulnerable member of the community, and
at the time of disaster access to most affected people
is only possible through TMAs/MC intervention.
The best source of disaster needs and damage
assessment, identification of needs and distribution
of relief can be done through TMA/MC. TMA is
easily accessible, approachable, and accountable to
the local community on a daily basis. In most of
the cases, the officials of TMAs/MCs belong to the
local community.

Transparency, accountability, efficiency and

effectiveness of DRR could be best implemented
through MC/TMAs institutional arrangements.
MCs, under the Local Government Ordinance Act
2012, are responsible for delivery of civic services,
as detailed hereunder, to the community:
Key Functions of TMAs
Land use management planning and safe built
environment
Land use zoning determining residential,
commercial, educational, recreation and
conservation areas
Fire fighting and rescue services to affected
communities
Issuing and dissemination of early warning to
people at hazard zones
Evacuation of people and camp management
to affected communities
Provision of essential services including
drinking water, sanitation and waste
management in the camps
De- watering of stagnant flood water and
decomposing of dead bodies
Enforcement of rules and regulation
relating to encroachment at restricted zones,
identification of risk zones in respect of
natural hazards
Coordination with technical institution for
developing and implementing building codes
Traffic control and management
Enforcement of building codes, regulation
and bye laws
Issuance of habitation and infrastructure
development No Objection Certificate
Road construction and maintenance
Development and maintenance of critical
infrastructure including water supply,
41
sanitation, sewage and sewage maintenance,

waste management, hygiene and health
management
Development and maintenance of safety
standards
Assurance of safe drinking water, hygienic
food, and nutrition to public
With the above mandate, the MC is primarily
responsible for assurance of safer built environment
for the inhabitants in their jurisdiction. It is again the
responsibility of TMA that no construction, private
or public, should be made in the flood plain zone
and landslide risk areas. In addition, no habitation
certificate to be issued for construction in hazard
prone areas, holistically identified by scientific
agencies.
Ms. Shabana,
Sungi Development Foundation:
My experience while working with DDMA/
DDMU during the super flooding in Mansehra:
the way Early Warning issued, disseminated
and actions taken by TMA Balakot, Police
and local Govt leaders for evacuation of
community from the pre-identified flood
prone areas, mobilisation of volunteers,
NGOs and Government Officials, is all well
organised and so well managed that I have
ever seen in my 20 years professional life.
Motivation, mobilisations and coordination
among all the partners was commendable,
which was essential to face disaster of
such magnitude. I worked day and night
with volunteers and felt proud to evacuate
hundreds of people to safer places. DDMA/
DDMU approach for conducting workshops,
introduction of minimum standards for
community organisations were excellent.
The impact and roles played by local
NGOs and the coordination facilitated by
DDMA/DDMU during the 2010 massive
disaster is a practical form of DRM we had
experienced.
In respect of the DRM model, the TMAs/MCs
in District Mansehra have played a vital role in
developing and implementing the model. Two
officials from each TMAs/MCs of Mansehra
42
were placed at the disposal of DDMA/DDMU

Mansehra (one each: focal person and rescuer).
Extensive training in fire fighting, search and rescue
were imparted to them to bring their capacity to
the level of trainers. The trainees further delivered
training to firemen in their respective jurisdiction
on firefighting, MFR, CSSR and other rescue
techniques. Through this process, knowledge and
skills were transferred to other TMA/MC staff.
The technical capacity of firefighters in TMA/
MC Mansehra brought two new state-of-the-art fire
fighting vehicles, adding to the existing fire engines.
Uniforms and safety kits were provided to the
firefighters and, gladly reporting that, the TMA/MC
Mansehra responded to many emergencies within
10-15 minutes.
One driver and firefighter was specially placed at
the disposal of DDMA/DDMU for the operation
and maintenance of the state-of-the-art Rescue
vehicle. After the exit of the GIZ project from
Mansehra, this arrangement is still in operation.
It has been reported that the TMA Mansehra
supported the DDMA/DDMU rescue vehicle
operation by providing fuel and maintenance, as and
when required by DDMA/DDMU or the District
Government for emergency response.
The TMAs/MCs developed disaster management
plans for their respective jurisdiction and also
designed building bylaws. The concerned interdepartment Engineers were oriented about the land
use management planning, building code, and other
safety standards in respect of building environments
as well as protecting the assets of nation by ensuring
enforcement of building rule and regulations. The
TMA Mansehra could be used as a model TMA
for their enhanced capacity, commitment and civic
service delivery to the public.
In view of the critical role of TMAs/MCs, the
things which are highly recommended are: further
enhanced capacity building of the staff and induction
of more dedicated staff, posting of honest officials in
TMA/MC planning, implementation and response
sectors for effective and efficient service delivery
to the communities. With the adoption of the new
local Government Act of KP, the jurisdiction of
TMAs/MCs has been reduced to Municipality only;
however, by doing the campaign towards safer cities
and urban risk reduction, many lives could be saved.

It will be the first step to lead towards national and

global objectives of safer world, protect natural
resources, heritage and economic activities. Despite
the limited jurisdiction determined for the MCs in
the new local Government Act promulgated by the
KP Government, half of the population is living in
the jurisdiction of MCs. Urban settlements are the
lifelines of todays society; they serve as economic
engines, centres of technology and innovation
and function as living examples of our cultural
heritage, traditions and values.
The un-planned activities within the cities also
generate new risks, which is a serious issue to be
addressed by MC. Particularly at risk are increasing
number of informal settlements, without following
any regulation and safety measure, in respect of built
environment. Making cities resilient to disasters
could be enhanced through awareness about the
benefits of focusing on sustainable urbanisation
to reduce disaster risks.
The MCs are the vital organs of a campaign to
engage and convince local government system
and the communities to be committed to a
checklist of minimum safety standards in providing
civic services by working together with local
organisations, grassroots networks, private sector
and national authorities for making the cities
resilient to disasters.

43
Chapter 9
Lessons Learnt and Recommendations with Reference to Experiences

of the 2005 Earthquake
The earthquake event in 2005 presented a

number of key lessons on how to coordinate
an emergency better and how necessary it is to
integrate prevention, mitigation, preparedness,
relief assistance, and rehabilitation into longterm risk reduction programmes. In this process
handbook, these lessons are presented, followed by
some recommendations based on observations in
the field. In some cases, the recommendations are
drawn from reports and literature reviews about
Mansehra earthquake and subsequent supper flood
experience of 2010, which was a major disaster
after earthquake. How much DPMP contributed
to enhance/strengthen the capacity of governance
system in the district, especially with reference
to DRR/DRM is considered in the assessment;
however, the project was winded up much before its
maturity to fully adopt sustainability:
Lessons learnt from the 2005 earthquake
event
The 2005 earthquake exposed District/local
Governments preparedness and response
capacities/capabilities and also uncovered
lassitude of institutional weaknesses in system
development and management. At the onset of
the event, neither were there clear programmes
or plans for responding to the emergency or
understanding the magnitude of the event, nor
was any EWI/early action planning system
or rescue, evacuation and recovery plans. The
system was based on the traditional system of
relief distribution and inherited conventional
disaster assessment, having no accountability
and transparency in assessment and relief
distribution. The strength and capacities of
the institutions and the system exhibited poor
preparedness on the part of the community.
A main argument presented both by the
Government and the community is that the
magnitude of the event was unexpected and the
system was not ready to cope with this type of
devastation.
The sad event of 2005 provided an opportunity
for the government to understand its institutional
and system limitation briefly discussed hereunder
Lack of awareness, knowledge and
understanding of earthquake dynamic, causes,
44
a effects and anticipated threats of risk to

lives/livelihood and environments and the
weakness of the ecosystem to absorb the
shocks of that magnitude
Lack of skills and competencies to prevent/
mitigate the impacts of the disasters
Lack of understanding multi-dimension
impacts of earthquake coping mechanism to
respond effectively and efficiently
Weak coordination and communication system
between different levels of the administrative
structure and involved stakeholders
The coordination gap between scientific/
research institutions, district administration,
development institutions and forefront
organisations in disaster management in
Eearly warning generation, information
sharing and dissemination to end users
Lack of seriousness, sincerity, creativity, and
adaptation adoption of mitigation measures,
and preparedness at multiple levels among
multi-stakeholder
about
natural/human
induced disasters
Lack of planning system for disaster
prevention, mitigation, preparedness, and
Incident Command System, with the inability
of tactical operation, having no defined role
and responsibilities, and SOPs
Misconception and misunderstanding of the
community that disaster management and
relief is the responsibility of Government
only. Due to this dependency syndrome of the
community, Government alone is unable to
fulfill the increasing demand of the community
and to manage disaster trends
Conventional centralised decision-making
culture at national level has discouraged
participation of the end users in policy making
and ownership. People are the best judges; they
understand their problems and the solution.
Their involvement in development planning
will contribute to sustainable development
The roles and responsibilities of stakeholders
regarding disaster risk reduction at national/
provincial and local levels are not defined and

clear. The power game at different level creates

conflict of interest and also creates a negative
effect on the performance of institutions in
effective service delivery
Another major obstacle and cause of poor
performance of DRM was lack of knowledge
and capacity of the decision makers in disaster
risk reduction/management at all levels of
Governments
Lack of a unified command system at the
district and local level, lack of action planning
and situation analyses, non- availability
of authentic and accurate information
management and documentation system,
lack of coordination among multi-agencies
at multi-level, and breach of trust and
confidence of the community on the part of
the Government were found to be some of
serious gaps in the governance system in DRM
The 2005 earthquake provided the means to
evaluate infrastructure vulnerability, especially
of critical public infrastructures (roads, bridges,
health and educational facilities, power supply
and communication system, social infrastructures
including water supply, sanitation and sewerage),
out of which some are still in a state of disrepair.
The country suffered over $ 5 billion deficit in the
economy; however, the psychological and social
cost on the ground has not reflected probably in the
disaster assessment due to an inefficient capacity,
mechanism, monitoring/assessment on the part of
district/provincial/federal Governments, NGOs
and INGOs. Lack of capacities and capabilities
of responding agencies, non-availability of
professional and technical staff on DRM, and the
poor performance of the NGOs and Governments
machinery raised many questions of accountability
and transparency in the relief distribution system; it
further accelerated breach of trust and confidence
in institutions and the system. In other cases, the
government finds itself incapable of challenging
donors imposition of conditions for the application
of the funds provided. Donors, in many cases,
decide what to give or to build, in which community
or area, when and how, without coordinating with
government authorities or even the local authorities
of the beneficiary communities. As a result, in some
cases their initiatives or projects fail to reach their
goal.

In a similar situation, without coordination of

local authorities, some organisations discussed
their activities directly with the communities and
initiated their programme without coordination of
district and local Governments and other actors
that resulted in duplication and overlapping. In
many cases, development intervention became
counterproductive. One example is a beautiful
multi-million rupees hospital constructed at Gharhi
Habibullah by a donor agency without consultation
of the health department, lying idle without
ownership of the health department.
This way some people were able to get support
One example is a beautiful hospital complex
constructed at Ghari-Balakot at the cost
of million rupees, without consultation of
health department, for which no provision
of staffing, administration and operations
were made in the regular budget of the
Govt. This multi-million rupees project is
in a deteriorating condition without any
ownership and maintenance.
from many organisations, while many real affectees
remained unable to get relief and support from
the NGOs/organisations. This was a serious gap
in relief distribution, which created law and order
situation in many earthquake-affected areas. The
government had to intervene to stop this process at
this particular point.
The lesson here is that the government should
strengthen local institutions and establish
mechanisms for facilitating the emergence and
maintenance of grassroots organisations for building
their capacity to become valid coordinating partners
with national and international agencies in case of
an emergency. Nationally and internationally, the
earthquake relief distribution was considered as one
of the successful events in terms of coordination
and distribution of assistance, but at local levels this
was not always the case. Again, recovery activities
were carried out in isolation and needs were never
discussed with local authorities.
In terms of disaster prevention and mitigation,
the government recognised that the strategies and
programmes for addressing these issues are still
far from reaching the necessary efficiency, and the
policies and programmes for addressing extreme
45
poverty are still inadequate. The extent of the impact

was not only due to the intensity and magnitude
of the event, but also due to the high levels of
inefficiency, poor knowledge, skills, corruption in
the overall Government system, high vulnerability
within rural communities, continuous impact of
landsliding and chronic food insecurity due to loss
of livelihood.
The negative multi-dimensional impacts of
earthquake disaster and highest levels of
vulnerability within district Mansehra presents a
challenge in reducing the risk of natural hazards or
poorly managed natural resources.
For undertaking any project on disaster risk reduction,
the priorities should be prevention, mitigation
and preparedness strategies to focus closely on
capacity building, knowledge and skills transfer,
risk identification, comprehensive coordination
mechanism among all stakeholders, enhancing their
capacities at multi-level, standardising response
mechanism at community level, building advance
search and rescue services at district level for
spontaneous response and designing/developing
plans for reducing vulnerabilities through sustainable
development initiatives.
46
The role of the local government in disaster

management and risk reduction (prevention,
mitigation and relief coordination and recovery)
is vital. Understanding the dynamic of localised
hazards and vulnerabilities and their impacts on
the livelihood of the communities will enable
all actors to design strategies to cope with
appropriate skills, knowledge and competencies.
Within the government departments, emphasis
needs to be placed on understanding the role in
disaster management, and the mechanisms for
coordination with provincial authorities on risk
reduction. Exploring the current vulnerability and
risk reduction initiatives with local communities is
also very important.
SWOT analysis of institutional capacity and ongoing
practices in the district will enable the system to
understand the present capacity and future need;
accordingly strategy will be adopted to change
the attitude, behaviour and system of DRM from
conventional reactive approach to contemporary
proactive approach by designing and developing
such a project that supports to overcome the gaps
and un-addressed issues of capacity, coordination,
integration, planning and leadership role in
DRM through a holistic system to cope with all
emergencies in future.

Chapter 10
Salient Features of the Mansehra DRM Model Including Conclusion and

Suggestions for Further Improvement and Replication of the Model
It is a matter of concern that the magnificent

contribution and efforts made by all actors during
the project life are vanishing due to apathy of DC
and DDMO. The empirical learning of pre and
post DPMP project Mansehra illustrate the vital
and important role played by Local Administration,
in promoting disaster risk reduction and in making
the district resilient to disasters. The lesson learnt
will enhance the horizon of the Policy and decision
makers at multi-level that a paradigm shifting in
disaster management could only be sustainable
through a system driven approach, rather than
through a personality driven approach. It is a matter
of concern that magnificent efforts go into drain
due to lethargy of district administration, while
much more can be done with meagre resources
if there is a will to do. The position of Deputy
Commissioner can bring a big positive and negative
change in the overall system at local level. The
role played by district administration during the
project life efficiently facilitated DDMA/DDMU
to integrate DRM into development planning to
build coordination among multi-stakeholders at
multi-level, to identify, analyze, and monitor risks/
hazards, to reduce vulnerabilities and to enhance
the capacities of the stakeholders. After two years
of the exit of the project, however, no progress
has been seen on the subject; rather, the investment
made is vanishing.
10.1 DRM Requires a Comprehensive Approach
Disaster reduction is based on a continuous

contribution of many actors including district
and local governments, technical and educational
institutions, professionals, non-governmental
organisations, commercial entrepreneurs and
local communities. Regular monitoring of
hazards dynamics and vulnerabilities needs to
be incorporated into regular development/
DRM planning. The changes and development
need to be integrated into planning and
development strategies to enable and encourage
the widespread exchange of information. New
multidisciplinary working relationships are
essential, if disaster reduction is to be both
comprehensive and sustainable. Vulnerability
to disasters needs to be considered in a broader
context encompassing specific human, social/
cultural, economic, environmental and political
dimensions that relate to inequalities, poverty,

gender relations and ethical and racial divisions.

This requires the participation of all relevant
sector specialists, technocrats, professionals,
and policy/decision makers of multi-agencies
at multi-level. It also requires different forms of
management including emergency or disaster
management.
10.2 Disaster Risk Reduction - A Shared

Responsibility
District/Local governments and communities

should understand that disaster reduction
is a shared and collective responsibility of
all the people in the district. Policy and
decision makers in Government and public/
private organisation of multi-level should
also agree to discharge their individual and
collective responsibilities. In fulfilling their
responsibilities, district authorities and the
community expect direction and resource
allocations that need to be provided by the
higher authorities. The conviction of public
responsibility, the changed attitude/behaviour
of bureaucracy at multi-level, the sense of
self culture of donors/non-governmental
organisations and participation of dispossessed
communities in decision making are the vital
factors of paradigm shifting in disaster risk
reduction/management in Pakistan.
Some specific recommendations:
Transparency, accountability, simplicity and
commitment are some of the best tools for
community motivation, mobilisation and
acceptance of a programme
People are flexible to accept changes. This
strength could be used for multi-dimensional
interventions with the communities to bring
sweeping changes in their social-economical
boost up, which ultimately makes them
resilient to disasters
Going to the communities, living in
the communities, understanding their
socioeconomic
disparities,
cultural
constraints, and dynamics and working with
them for their long- terms and sustainable
development were some of the best
practices/learning for our team during the
47
projects interventions in Mansehra

Disasters are no longer viewed as extreme
events, created entirely by natural forces, but
as unresolved problems of development. It
is now recognised that risks unmanaged for
a long time lead to occurrence of disasters
Volunteers without Government structure
support will not be effective and sustainable.
Building trust, confidence, respect and
commitments with all partners will lead
towards sustainable resiliency of the
community to disasters
DRM needs to be based within Government
authority, but it will be successful with the
benefits of widespread participation of
many others
Ownership and commitment of District
Government for DRR/DRM activities is
the vital organ for the implementation of
national and global commitments at the
local and regional levels. Without practical
involvement, guidance, encouragement and
support of Dy. Deputy Commissioner/
Assistant Commissioners, DDMU may not
be effectively functional and productive
The District Governments patronage
is critical for raising awareness for
building capacities of communities and
organisations; maintaining stockpiles; upscaling the existing capacities in DRR;
regularly monitoring and coordinating
disaster response; institutionalising ERTs;
adopting minimum standards for response
and preparedness; exchanging knowledge
and experience; avoiding duplication and
overlapping; providing backup support to
community volunteers/search and rescue
team; and organising essentially tell till the
approaches and system gets matured
Without professional competency, dedication
and commitments of DDMO, DDMUs
may not be able to deliver the critical
DRR/DRM services to the community.
DDMO once posted for the position must
stay for minimum 3 three years and in the
meantime, 2nd leadership or alternative
command should be developed from his/her
replacement
48
The PDMA, while adapting adopting DRM

Mansehra as a Model for replication in other
parts of the province, should re-initiate and
re-activate the activities of DDMU Mansehra
in the way as it was functional two years
back. The learning should also be used to
support district Mansehra to up-scale it with
rectifying the gaps in the project planning
and implementation
Policy direction as a crucial and legal
foundation is must for assuring a continuous
legitimacy. Building linkage, synergy,
collaboration and coordination among the
line departments, local Government agencies,
Police department, Pakistan Army, NGOs
and community volunteer networks will play
effective role in the common understanding
of DRM terminologies, jargons of disaster
risk mitigation, climate change impact and
adaptation. This can be done by translating
disaster learning into comprehensive local
action planning
Search and Rescue Team and ERTs should be
linked strongly to roll -out disasters impacts
in the district and to ensure the conductance
of refresher and regular training
While the government is committed and work
has begun on integrated policy formulation,
the road ahead is long and arduous. A serious
united effort by all stakeholders should take
place in order to achieve real progress in the
Disaster Risk Reduction
Isolated pockets of effort must be mainstream
for scaling up and massive impact
A core group including the sectoral
departments, Local Government agencies,
Civil Society Organisations, Private Sector,
NGOs, INGO, PDMA, NDMA, Ministry
of IT, Higher Education Commission and
UN Agencies must lay out a long-term
road map and serve as monitoring agents to
ensure its implementation
Without a cohesive and integrated effort, the
small pockets of activities and the lessons
learnt will never be able to benefit the district
and the people of Pakistan at a larger scale
The government must generate the capacity

of its institutions, organisations and citizens

to embrace and engage knowledge and
technology and employ their uses in various
avenues of life. Once this has been achieved,
a culture of safety becomes the driving
force for future disaster risk reduction and
promotion of risk perception. The impact
of such an approach and action has both
socioeconomic and environmental effects,
because the risk reduction becomes a daily
life tool rather than simply a gadget-based
fascination for the people
Pakistan has neither had a strategy nor
comprehensive policy that focused on
creating risk reduction and resiliency culture
and increasing capacity on an ongoing basis
in line with the changing socioeconomic,
ecological, technological, geological and
environment scenarios. This needs to be
taken up by all the stakeholders as critical
area of interest
For promotion of DRR/DRM, perhaps
more incentives for climate change
adaptation and safety culture could be given
to the community
Awareness raising, knowledge and capacity
enhancement on DRR, and every day
disaster risk reduction should be given to
the community. Local Government Leaders
who are primarily responsible for the safety
and protection of the people of Pakistan are
adept at creating innovative platforms which
can be shared by larger groups to inspire,
discourse, and instigate discussion for change
in risk perception
The change is already happening; it is only a
matter of time for the government to adopt
such strategy that will ensure resiliency of the
people of the district
The importance of community- based disaster
risk reduction adaptation and measures must
be incorporated in sectoral and district level
disaster management planning. Scientific
findings must be compared with indigenous
knowledge and with people- centered DRR

perception in order to find out workable

solutions
It should also be realised that an innovative
and knowledge-based disaster risk reduction
paradigm can only be achieved by cultivating,
nurturing, and retaining the top talent in the
bureaucracy, Civil Society Organisations, and
the community youth/volunteers
The youth, scientists, engineers, designers,
writers, and businessmen and women
serve as the source of risk reduction and
sustainable development. Enhanced capacity
and knowledge of these actors on DRM
will highly contribute for in their area of
expertise for sustainable development and a
safer environment to live
Whether a disaster is a major or minor, locally
adapted adopted strategies to cope and
survive enable the community to respond to
the situation long before outside help arrives
The burden of the DRM model was too large
for district Government due to its scare scarce
resources; however, District Government
Mansehra considered supporting such
initiatives to be its social responsibility. The
District Government has taken the initial
challenge to make such initiatives successful,
but DDMU cant cannot do it alone, without
the support and contribution of PDMA for
up-scaling the district Government efforts in
DRM
One challenge in the future will be to further
improve disaster management cooperation between
the province and the districts. The project, described
in the present publication, can therefore be seen as
a pioneering contribution. From this point on, it
will be possible to continue utilising and further
developing the existing contacts and the trust
established between the relevant institutions and the
provincial government on the one hand and GIZ
on the other.
49
Deutsche Gesellschaft fr
Internationale Zusammenarbeit (GIZ) GmbH
Administrative Reform Component
6-D (4), Park Avenue, University Town,
Peshawar, Pakistan
T (+92 91) 585 2532
F (+92 91) 585 2531
I www.giz.de/pakistan

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The Disaster Risk Management Model of Mansehra

A Process Analysis of Disaster Risk Management

mega project in Mansehra.

I wish to express my sincere thanks and gratitude

Mr. Adnan Zaffar, the then Assistant Coordination

Although it is not possible to mention names of all

The Disaster Risk Management Model of Mansehra

Mr. Yousuf Rahim, the then District Coordination

Mr. Tasleem Khan, the then Assistant Coordination

coordination meetings of stakeholders, provided

Syed Harir Shah

The Disaster Risk Management Model of Mansehra

This study is intended to support the linkages

Resultantly, an MoU was signed between the

Knowledge management of the achievements and

Prior to the launch of DPMP in 2007, GIZ had

By incorporating disaster management into local

The DPMP focused on the institutional development

Thus, an enabling environment was created, which

The ability of District Disaster Management Units

This report attempts to explain the processes,

The Disaster Risk Management Model of Mansehra

The processes and approaches which have been

Dr. Detlef Barth

The Disaster Risk Management Model of Mansehra

Introduction to GIZ Governance Programme

The programme is intended to be implemented

Local Government, Elections and Rural

Provincial Disaster Management Authority/

Social Welfare, Special Education and

Federal Board of Revenue, Government of

Prevention of Violence Against Women

The Disaster Risk Management Model of Mansehra

The Disaster Risk Management Model of Mansehra

5.6. Obstacles and Measures to Overcome...................................................................................

Chapter 6: Role of Tehsil Municipal Administration with Reference to DRM................................... 37

The Disaster Risk Management Model of Mansehra

Assistant Coordination Officer

Federal Institute for Geosciences and Natural Resources (Germany)

Community Based Organisation

Collapse Structure Search & Rescue

District Coordination Officer

District Disaster Management Officer

District Disaster Management Authority

District Disaster Management Unit

District Emergency Operation Centre

Disaster Preparedness and Management Project

District Disaster Preparedness and Response Centre

Disaster Risk Management

Disaster Risk Reduction

Disaster Reconstruction Unit

Executive District Officer

Emergency Response System

Earthquake Rehabilitation and Reconstruction Authority

Early Warning System

Emergency Response Team

Federally Administered Tribal Areas

Flood Forecasting Division

Geological-Hazards Assessment in Northern Pakistan

Deutsche Gesellschaft fr Internationale Zusammenarbeit

Geological Survey of Pakistan

German Technical Cooperation

Hazard, Vulnerability, Capacity and Risk Assessment