27 Post Disaster Needs Assessment

Objectives

• To understand the process of Post Disaster Needs Assessment
• To comprehend the necessity and implications of Post Disaster Needs Assessment
• To understand the process of Post Disaster Needs Assessment in India

Rationale – Post Disaster Needs Assessment is the process of assessing the intensity and impacts of disaster and the need of disaster recovery. It is essential to understand the process and methodology associated to develop an effective PDNA document. The chapter elaborates on the process of post disaster needs assessment, its necessity and implications. The chapter also reflects on the process of Post disaster needs assessment adapted in India.

Unit 1 –Post Disaster Needs Assessment

Definition – A Post-Disaster Needs Assessment (PDNA) is a comprehensive exercise to collect information on the social, economic and environmental impacts of disasters on key sectors. Based on the detailed assessment, the recovery needs of the affected population are identified. A single consolidated report of the assessment serves as the primary document for developing a comprehensive recovery framework. It consists of the long term and short term recovery strategies and outlines the design and implementation plans. This document serves as the backbone to identify how to build back what is lost while incorporating ‘build back better’ principles. The document also serves as the baseline for engaging in discussions with international developmental agencies to secure external assistance. World Bank or other donors can also be approached leveraging the document to provide assistance in targeted sectors or to request for additional assistance. It minimizes replication of efforts and partial information by putting forth a comprehensive document collecting multi-sectorial inputs. Thus PDNA provides a comprehensive and dependable basis to plan recovery and reconstruction and provides systematic guidelines to link disaster recovery and reconstruction efforts to sustainable development.

History of Evolution

Till mid-twentieth century, due to the infrequent occurrence of disasters, the loss and damages were estimated by the government based on reconstruction costs of physical assets like buildings, highways etc. Little or no attention was paid to the social and human development aspect in these estimations. In 1965, the UN General Assembly adopted the decision to help disaster stricken people and by 1970s the worldwide concern to assist disaster affected population increased. The UNDRO (United Nations Disaster Relief Organization) defined the broad conceptual framework for assessing disaster impacts and effects. After the 1972 earthquake in Nicaragua, the UN-ECLAC (United Nations Economic Commission for Latin America) conducted the first comprehensive assessment of disaster impact which estimated economic value of lost assets and indirect economic damages. It also helped the Nicaraguan government in preparing an economic recovery and reconstruction plan. This methodology was thus standardized and first published in 1991 as the DaLA methodology. It was further modified to include disaster impact in the environment. This extended methodology was published in 2003. In 2006, the decision to adopt UN-ECLAC along with a needs assessment effort to identify the household/personal level impacts was taken internationally for standardization. Also, the requirement to quantify the estimation of financial requirements for recovery and reconstruction across various sectors of socio-economic activities was identified. Additional mechanisms to enable systematic estimation of recovery needs were identified. “Recovery needs were to be systematically estimated to ensure restoration of personal income, availability of minimum levels of basic services (including education, health and nutrition, transport, water and sanitation, electricity, etcetera) and the very important recovery of production levels (in agriculture, livestock, fishery, manufacturing, commerce, tourism, mining, etcetera).” (ADPC, 2015) The GFDRR produced the Guidance note on the application of the expanded UNECLAC methodology and the Recovery Needs Framework.

Under the Hyogo framework for action, the scope of assessments to identify disaster impacts and effects to estimate the financial requirements of post disaster recovery and reconstruction was agreed after signing the 2008 tripartite agreement between heads of the European Commission (EC), the World Bank and the United Nations’ Development Group (UNDG).

Apart from this, many countries have on their own developed and followed a methodology to conduct their loss and damage assessments.

After the year 2007 , the process of PDNA gained momentum and popularity across the world . Many of the affected nations started utilizing PDNA. The countriesincludeIndia, Bangladesh, Cambodia, Indonesia, Myanmar, Nepal, Burkina Faso, Cambodia, El Salvador, Haiti, Yemen, Senegal, Namibia, Philippines etc.

In India, after 2001 Gujarat earthquake, the World Bank and other international agencies assisted in conducting disaster impact, recovery and reconstruction assessment which partially adopted the UN-ECLAC methodology. During the Indian Ocean tsunami and cyclone in Odisha, the PDNA was developed and applied .

Necessity of PDNA

To identify the human and socio economic impacts of a disaster, the assessment of the following sectors may be carried out :

o  Human life loss

o  Injured and other affected including displacement

o  Infrastructure loss (transport, electricity, communication etc.)

o  Social sector impact (food security and nutrition, health, education etc.)

o Cross cutting issues like livelihood security, access to social benefit schemes/services

To determine the recovery and reconstruction needs

To develop the recovery framework by prioritizing recovery and reconstruction needs

Sendai Framework for Disaster Risk Reduction and PDNA

The SFDRR adopted in 2015 consists of seven global targets and four priorities of action. The first four targets are:

a) “Substantially reduce global disaster mortality by 2030, aiming to lower average per 100,000 global mortality rate in the decade 2020-2030 compared to the period 2005-2015.

b) Substantially reduce the number of affected people globally by 2030, aiming to lower average global figure per 100,000 in the decade 2020 -2030 compared to the period 2005-2015.

c) Reduce direct disaster economic loss in relation to global gross domestic product (GDP) by 2030.

d) Substantially reduce disaster damage to critical infrastructure and disruption of basic services, among them health and educational facilities, including through developing their resilience by 2030.” (SFDRR, 2015)

All the above mentioned targets aim at minimizing global disasters impacts. To understand the current status and identify the progress, the first necessity is to identify the losses and damages in the form of mortality, morbidity, economic loss and loss of critical infrastructure and disruption to basic services that is presently occurring. PDNA provides a consolidated platform to identify the damage and losses. It also helps developing the recovery framework, which prioritizes and guides the recovery and reconstruction needs incorporating DRR principles. It helps in taking a risk conscious decision while recovery process is undertaken. Additionally, the PDNA process takes into account the three key issues highlighted in the

SFDRR:

1. Incorporation of the idea of build back better
2. A step away from working on silos to collaborating in an integrated form based on the comprehensive recovery model – giving due importance to various stakeholders and assigning particular emphasis on the communities
3. Focus on economic aspects, it takes into account the underlying vulnerabilities, environmental factors and community knowledge

Thus PDNA is an essential instrument which can be utilized to achieve the SFDRR priorities.

Methodology followed for Post Disaster Needs Assessment

Multiple organizations have issued guidelines for conducting PDNA process. It includes guidelines by GFDRR, UNDP and ILO.

Initiation of PDNA process:

The PDNA process is initiated after the government requests for assistance in conducting the impact assessment of the disaster. The request can come through the IAGs as well. Multiple stakeholders at national and global level are informed of the request. A necessary commitment to financially facilitate the PDNA process is made. Often funding request to international agencieslike World Bank or GFDRR is made. The PDNA planning mission sets the goals and identifies the process through whichPDNA will be conducted. The local and international experts to conduct the assessment are identified and led by the government staff to conduct the assessment. The assessment team is formed based on sectoral experience. The organization and management framework to conduct the process is set up.

Actors in PDNA process

Fig 1 – Actors involved in PDNA process

Source – GFDRR, 2012

As depicted in the figure, the different sectors participating in the PDNA process include:

  a. PDNA Secretariat which consists of senior management officials in charge of coordinating the PDNA process

b. The Line ministries and Disaster Management Authorities (DMAs) of the government involved in the PDNA process

c. The regional and global development banks, donors and agencies which in some cases are also the financing organization

d. Civil society, technical and academic institutions and private sector

a. PDNA secretariat –The secretariat consists of the government as the leading agency and is assisted by the developmental agencies and financial institutions involved. It collaborates and coordinates the team of experts and conducts the following tasks:

i. Identification and confirmation of the experts on the PDNA team

ii. Facilitation of the logistical arrangements and the mission activities

iii. Compilation of the baseline data for the PDNA from the different ministries and sectors which have been affected or in which the assessment will be carried out

iv. Compilation of the background data required to conduct the PDNA which includes existing assessment reports, maps, flash appeals etc.

v. Development of standard field data sheets and other documents in consultation with the experts and team heads and divided into sub sectors specific to the different sectoral team requirements

vi. Review of output of sectoral assessments and provide guidance on the compilation of the assessment report

vii. Facilitation of the high level meeting to present the PDNA report outcomes

b. Technical Expert’s group – This is the international, national, regional and local group of expert who carry out the on field activity of the assessment.

Tools to conduct PDNA

1. DaLA (Damage and Loss Assessment) Methodology: This methodology was developed by the UN Economic Commission for Latin America and the Caribbean (UN-ECLAC) in 1972. Since then, it has been improved and modified with participation of organizations like WHO, PAHO, World Bank, Inter-American Development Bank, UNESCO, ILO etc. to capture the best approximation ofloss and damage in disaster events. It provides a standardized tool for evaluating disaster damage (to physical assets, infrastructure, social sector, capital stock etc.) and losses (that arise as a result of the temporary absence of services and assets).

The methodology is based on the economic context of the affected country. DaLa follows a quantitative process. It is used to assign a value figure to the damages arising from hazard events and disasters. Then it computes the subsequent economic losses and damages caused by the event. The possible consequences on national economic growth as well as impact on individuals due to livelihood and asset loss are highlighted in Dala.

It follows the mechanism stated below:

The damage is considered as the value of physical assets which are totally or partially destroyed

Quantifying the losses in the economy due to that happens due to the absence or damage of the assets

Identification of the impact on macroeconomic performance with a focus on the national GDP

2. The CBA (Cost-Benefit Analysis) Methodology: The CBA technique is based on economic principles and is used to “organize, appraise and present” the cost benefit analysis and trade-offs. Based on this analysis it identifies the governmental policies and schemes that must be developed keeping the trade-offs as deciding factors.

3. HAZUS (Hazards in the USA) Methodology: HAZUS is an effort by the National Institute of Building Sciences (NIBS) to assist FEMA in identifying earthquake loss estimates. It is based on vulnerability assessment approach.

4. The ACM (Advanced Component Method): The ACM methodology was developed by the AIR Worldwide Corporation (AIR) which followed an objective and scientific methodology to assess damages by earthquake.

5. CatSim (Catastrophe Simulation) Model: CatSim Model was developed to illustrate the cost benefit analysis and tradeoff that must be taken to manage economic risks in anticipation of disasters. It was developed by Internationals Institute for Applied System Analysis (IIASA).

6. HRNA (Human Recovery Needs Assessment)–The HRNA is focused on the social impacts of the disaster. It analyses the impact of disasters on local lifestyle, changes induced in lifestyle patterns, institutions and social structures.It focusses on the household or other unit of analysis and considers the data collected at the unit level as primary data. It is based on the perspective developed by the analysis; it generates a roadmap for recovery and reconstruction. The roadmap is largely developed using the lens of the affected community and is based on the perspective of the affected community. The key objectives of conducting the HRNA include,

Revival of livelihoods

Restoration of local governance systems

Re-establishing community infrastructure and restoring access to schools and hospitals

Cleaning the local environment

Providing special assistance to the minority and excluded community

The methodology to conduct the HRNA process is as follows:

It is based on participatory and consultative process and requires an understanding of the baseline socio economic context of the surveyed area.

Collection of primary data from the field by conducting household/ individual/ administrative unit level household survey based on pre-defined questionnaire. It also incorporates interviews with key informants and focused group discussion with the affected community.

PDNA methodology

Based on the different tools available for assessment, different organizations developed multiple frameworks and strategies for assessments. The methodology utilized by GFDRR to develop the PDNA is presented below:

Traditionally the World Bank and IFIs focus on the damage and loss assessments from an economic perspective. The UN and humanitarian agencies focus on the identification and redressal of human impacts and needs. Based on the assessment of damage loss and needs the PDNA process is developed. The process mentioned by GFDRR consists of the Damage and Loss Assessments (DaLa), the Human Recovery Needs Assessment (HRNA) and the ‘Recovery Framework. Based on the outcomes of the DaLa and the HRNA, the recovery framework is developed. The recovery frameworkguides the process of recovery and identifies the macro level recovery goals. It summarizes the recovery recommendations from sectoral assessments and sets the short, medium and long term recovery goals at the national level.

Output

The PDNA report generally consists of:

a. A government led assessment report which summarizes the socio-economic impact across different sectors and geographic unit.

b. The recovery and reconstruction needs across all sectors identified and prioritized and the design of the recovery and reconstruction strategy

c. A policy dialogue between the government and developmental agencies to initiate the recovery and reconstruction process on a common platform

An instance of PDNA conducted following the pre-decided timelines was from the Haiti earthquake. The exercise was conducted during a period of six weeks. The disaster occurred on 12th January, 2010. The request from government to conduct PDNA was raised one-weekpost the event. The draft Terms of Reference (ToR) was prepared within two weeks of the disaster. The Assessment was conducted within third to fifth weeks. By the sixth week, the draft PDNA report was generated. On 31st march, 2010, the report was presented at the donor conference. As an outcome, the total pledged amount for “2010 to 2013 and beyond added up to $9.9 billion from 59 countries and international organizations.” (GFDRR, 2012)

Case study – Nepal PDNA report

In the earthquake that struck Nepal on 25th April and 12th May , 2015, nearly 9000 lives were lost, half a million homes were destroyed, sites of important cultural heritage collapsed and the economic infrastructure of the nation broke down resulting in colossal losses. The PDNA conducted in Nepal after the devastating 2015 earthquake was the outcome of exhaustive exercise conducted by National Planning Commission with the assistance from national and international experts and developmental partners in a participatory model. The PDNA was launched to take a stock of the magnitude of devastation, needs and the recovery strategy. It paid specific attention to the inclusion of the marginalized and vulnerable groups while identifying the losses and needs.

The sectors reviewed in the PDNA were divided in four key sectors- Social, Productive, Infra-structural and Cross cutting. Each sector included the following subsectors as under –

Social Sector

Housing and Human Settlements Health and Population

Nutrition Education

Cultural Heritage

Agriculture Irrigation

Commerce and Industry Tourism

Financial Sector

Infrastructure Sector

Electricity

Communications

Community Infrastructure Transport

Water, Sanitation, and Hygiene

Cross Cutting Sectors

Environment and Forestry

Employment and Livelihoods Gender and Social Inclusion Social Protection

Governance

Disaster Risk Reduction

The macro economic impacts of the disaster were also identified.

Process followed:

Within three days of the second earthquake which occurred on 12th May, 2015, Govt. of Nepal convened meeting with the national and local developmental partners and proposed a PDNA to be undertaken under the leadership of the National Planning Commission (NPC). The objective was not only to assess the disaster impacts and identify the recovery strategy, but also the identification of funding constraints. The PDNA undertaken followed the methodology developed by EU, the World Bank and the UN system.

The assessment built on the initial and detailed sectoral damage assessments conducted by the local and central government with help of the developmental partners. The NPC set up the high level oversight mechanism under the leadership of the Vice Chairman and assisted by the cope NPC group. Other sectoral Heads assumed the lead role in coordinating and guiding the assessments. A distinguished set of advisors were also invited by the NPC from Nepal and abroad. The Core Coordination Team consisted of the heads of donor agencies which included ADB, EU, the World Bank, JICA and UN/UNDP and was led by the NPC. The core PDNA Secretariat was formed by these agencies and they were providing the daily guidance to the assessment teams. A two day workshop was conducted to illustrate the methodology and scope of the PDNA to over 250 governmental officials and experts and representatives from 30 developmental agencies. 23 thematic groups were formed. A dedicated Joint Secretary from the relevant line department and the NPC was assigned to each of the groups. These teams conducted an extensive process involving data collection, field visits and report development in three weeks from 22nd May to 10th of June.

The assessments were conducted through

“the collection of pre-disaster baseline data to compare with post-disaster conditions

the evaluation of disaster effects and impacts in each sector to determine the overall recovery needs

the prioritization of these recovery needs by way of a recovery strategy

a recovery strategy that suggests appropriate interventions to meet priority recovery”

(NPC, 2015)

The key findings were presented in the International Conference on Nepal’s Reconstruction (ICNR).Based on the outcome of the study, the following priorities were identified for DRR: Short-term priorities:

Reconstruction of the damaged assets on Build Back Better principle

Steps to improve the preparedness, response and relief logistics system, measures to strengthen information and communication capacities

 Measures to enhance multi hazard risk monitoring, vulnerability assessment and risk information dissemination and awareness

Medium to long term priorities:

Improvements in legal and institutional arrangements to better address DRR goals

To mainstream DRR activities into the developmental sector, particularly the housing, private and public infrastructure, livelihood and social sectors

Means to improve climate change adaptation

Unit 2 –PDNA in India

Currently there is no official guideline on the process to conduct PDNA in India. An extensive study by ADPC on PDNA process in India highlights that in India , currently the two main types of assessments are conducted:

1. Disaster-Response type of assessment:

It is developed to estimate the relief amounts that need to be provided to the disaster affected people based on the SDRF/NDRF guidelines. Though it is often considered as the loss assessment, it is primarily the relief assessment conducted by central or state government in the aftermath of a disaster.In state level calamities, the loss and damages assessed by the administrative unit level staff are collated and the affected are provided the relief. The Office of the Relief Commissioner in the Revenue Department leads the assessment assisted by the line departments. In case of national level disasters, the relief memorandum is prepared by the Relief Commissioner to the Central Government and is submitted to the Nodal Ministry for evaluation and grant of financial assistance. The content of the Relief memorandum varies from state to state and disaster to disaster, but it generally provides the detailed analysis of estimated losses and degree of damage sustained in the disaster.

2. Post Disaster assessment:

In case of severe events, the state authorities often receive support from the developmental agencies like the ADB, World Bank, UN to conduct the broader post disaster needs assessment. It aims at estimating the losses beyond the relief assistance and outlines the scope and needs of the reconstruction and recovery. This follows the PDNA mechanism elaborated above.

Sectors involved in the PDNA process in Indiaincludes the following :

Agriculture, forestry and fishing Mining and quarrying

Manufacturing

Electricity, gas and water resources

Water supply, sewerage and waste management Trade, hotels and restaurants

Transportation and communications

Financing, insurance, real estate and business services Community, social and personal services

The mandate for PRIs and ULBs according to NDMA ‘Capacity Building in disaster management for government officials and representatives of Panchayati Raj Institutions (PRIs) and Urban Local Bodies (ULBs) at District Level’ guidelines is as follows:

Preparing immediate agricultural assessment report

Assessing damage to small check dams, surveying blocked waterways Assessing damage to boats, nets, fish ponds etc.

Assessing damage to crops and trees in social forestry land areas

Assessing damages to industrial production, and to rural and cottage industries Assessing damages to houses

Assessing damages to drinking water sources and infrastructure Assessing damage to livestock and fodder

Assessing damage to roads and other networks

    Assessing damages to rural electrification and distribution of electricity, electric lines and wires

Assessing damages to energy sources

Assessing damages to critical infrastructure like schools, health centers, hospitals, libraries etc.

Assessing damages to markets, public spaces and community assets Conducting rapid needs assessment of PDS needs

ULBs

Assessing damages to social structures like schools, health centers and hospitals, anganwadis etc.

Assessing damages to the urban biosphere Assessing the mortality and morbidity data

Challenges:

A national level guideline or the standard on the methodology and process to conduct PDNA after a disaster is not currently available. It largely varies according to the methodology undertaken by the respective nodal departments.

Capacity building and training of officials to understand the significance of PDNA and conduct comprehensive PDNA is still missing.

Political will and financial support is lackingthereby PDNA is still not a formal part of post-disaster response/ recovery frameworks

PDNA is conducted only in case of severe disasters where external financial aid is received.

In the relief assessment mechanism which is currently prevalent in India,

o Not everyone affected is included to receive assistance. o Every sector is often not included in the assessments.

  o Indirect impacts of the disasters are often ignored or partially conducted in the assessments.

o The assessment is largely focused on relief assistance, and the focus on recovery or reconstruction assistance is missing. Often the disaster recovery framework (if developed) is not developed based on the PDNA.

References

• Asian Disaster Preparedness Center. (2014). Post Disaster Needs Assessment Study For India: National Cyclone Risk Mitigation Project. Bangkok. Retrieved from http://nidm.gov.in/pdf/ncrmp/PDNA-1.pdf
• Asian Disaster Preparedness Center. (2015). Post-Disaster Needs Assesments in India: Current Practices and Future Recomendations. Bangkok. Retrieved from http://nidm.gov.in/pdf/ncrmp/PDNA-3.pdf
• GFDRR. (2012). Introduction: What is a PDNA. Disaster and Crisis Recovery Operations for Increased Resilience. Retrieved from http://www.gfdrr.org/sites/gfdrr.org/files/2.PPT1-What_is_a_PDNA.pdf
• GFDRR. (n.d.). PDNA At A Glance. Retrieved from http://www.gfdrr.org/sites/gfdrr/files/Lesotho_PDNAataGlance.pdf
• GFDRR. (n.d.). Post Disaster Needs Assessments. Retrieved from GFDRR: https://www.gfdrr.org/post-disaster-needs-assessments
• GFDRR. (n.d.). What is a Post Disaster Needs Assessment – PDNA. Retrieved from http://www.gfdrr.org/sites/gfdrr.org/files/What_is_PDNA.pdf
• Government of Nepal: National Planning Commission. (2015). Nepal E arthquake 2015: Post Disaster Needs Assessment. Vol. B: Sector Reports. Retrieved from http://www.npc.gov.np/images/category/PDNA_volume_BFinalVersion.pdf
• The World Bank Group. (2010, June 1). Damage and Loss Assessments. Retrieved from The World Bank: http://web.worldbank.org/WBSITE/EXTERNAL/TOPICS/EXTURBANDEVELOPMENT/EXTDISMGMT /0,,contentMDK:20196047~menuPK:1415429~pagePK:210058~piPK:210062~theSitePK:341015, 00.html
• UNISDR. (n.d.). Sendai Framework for Disaster Risk Reduction. Retrieved from UNISDR: http://www.unisdr.org/we/coordinate/sendai-framework