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DISASTER RESPONSE
PREPAREDNESS PLAN
PREPAREDNESS
PART I
The destruction from the 1934 earthquake to Durbar Square around the Taleju bell.
DISASTER RESPONSE
PREPAREDNESS PLAN
PREPAREDNESS
PART I
UN Nepal recognises that the magnitude of a disaster is greatly influenced by the vulnerability and coping
capacity of humans and societies affected by it. It is worth remembering that it is not earthquakes them-
selves that injure people but collapsing structures. Insufficient emergency response capability and lack of
emergency medical care facilities further aggravate the consequences of disasters. Since emergency pre-
paredness is much more effective and efficient than disaster response, UN Nepal gives the highest
priority to developing and implementing action plans/projects which will support measures for vulnerabil-
ity reduction and to capacity building, such as the preparation of this disaster response preparedness plan.
This follows the widely accepted principle that in any disaster prone country, emergency preparedness is
a precondition for sustainable development.
In order to effectively counter the risks of a major disaster, UN agencies have initiated, in 1999, an inter-
agency emergency planning process involving all UN agencies represented in Nepal and their respective
staff. A leading role was played by the UN Disaster Management Team and eight inter-agency disaster
preparedness clusters that operate under its umbrella. This Disaster Response Preparedness Plan is com-
posed of three parts. This document constitutes Part I, while Parts II and III are compiled separately. Part
I provides an analysis of experienced and anticipated hazards and their effects on humans as well as a
response guideline to major disasters, particularly a large-scale earthquake affecting the Kathmandu Valley.
Part II presents the action plans prepared by the inter-agency clusters that are expected to play a crucial
role in the internal disaster response operation. Part III is the collection of agency-specific disaster re-
sponse plans of UN agencies represented in Nepal that are expected to play a key role in the external
disaster response operation.
In preparing this plan, UN Nepal recognised that His Majesty’s Government has overall responsibility for
disaster management in Nepal. However, it was also realised that disasters are not only a national respon-
sibility but also universal concerns. In case of a large-scale earthquake, UN Nepal assumes that interna-
tional support will be required and provided. This assistance must be designed and provided in a manner
that compliments measures applied by HMG and its national partners. By distributing this report we trust
that potential partners, both within and outside His Majesty’s Government, will begin to understand the
support that would be needed and the contributions they could make both prior to and in the event of any
catastrophe.
In the process of formulating UN Nepal’s Inter-Agency Disaster Response Preparedness Plan we received
invaluable support, guidance and recommendations from several organisations and individuals. Without
these inputs we would not have been able to reach this final stage. We would like to take this opportunity
to thank all who have been involved in the process for their support and contributions.
In particular we would like to thank Mr. Evertt Ressler (UNICEF EMOPS in Geneva) for providing the
overall format and some of the key statements of this plan, Ms. Feng Min Kan (OCHA’s Regional Office
in Kobe) for her pragmatic suggestions regarding the planning process and the plan itself, and Mr. Amod
Dixit (NSET-Nepal) for his background information regarding the seismic hazards facing this country.
Whilst the production of the plan has been a collective undertaking, Mr. Erik Kjaergaard, Technical Officer
in WHO’s Emergency & Humanitarian Action Programme, Mr. Man B. Thapa, National Programme Man-
ager in UNDP’s Disaster Management Programme, and Mr. Neil Reece-Evans, former Deputy Resident
Representative in UNDP, have contributed significantly to the planning process, ensuring that we obtained
feedback from appropriate sources, and, ultimately, drafting this final version of the document. We would
also like to give recognition to the Heads of the UN Disaster Management Team Clusters for organising
their respective cluster teams and ensuring continual readiness for an emergency situation. They are: Man
B. Thapa, Assessment cluster; Simon Forrester, Awareness & Training cluster; Douglas C. Coutts, Commu-
nications cluster; Hans Spruijt, Food & Water cluster; Prithi Panditharatne, Health cluster; John Prout,
Logistics cluster; J. Bill Musoke, Search & Rescue cluster; Winston R. Rudder, Warden cluster.
Finally we would like to re-affirm that planning for disaster preparedness is an ever-evolving process. UN
Nepal wishes to share this plan with its partners in order to obtain feedback and seek their active collabo-
ration. Any comments or suggestions on how we can continue to develop our awareness and prepared-
ness will be highly appreciated and reflected in future versions of this document, which will be re-
published every year.
Henning Karcher
UN Resident Co-ordinator & Bill Musoke Leyla Tegmo-Reddy
Resident Representative, UNDP Representative, UNFPA Director, ILO
LIST OF ABBREVIATIONS
1. INTRODUCTION 1
1.1 Objectives 2
1.2 Definitions 2
1.3 Focus 3
1.4 Two Disaster Response Approaches 4
1.5 Plan in Three Parts 4
Figure 1: The Response Plan and the Institutional Levels 4
The UN response to emergencies is not only expected to be effective and timely, but
also coherent and co-ordinated. To this end, drafting contingency plans is a necessary
prerequisite1 . However, preparedness requires planning, not just writing a plan; in particular
defining anticipated hazards and elements at risk and agreeing on actions required and
how they will be addressed through collective and separate organisational efforts. It is
thus not the content of the plan itself that is critical, but rather the process it represents.
Still, recording plans helps to preserve the decision-making over time and over staff
changes. In addition, plans provide guidelines for future emergency preparedness efforts
and help other agencies understand how UN agencies will work together during
emergencies. It is important to emphasise that effective planning implies commitment to
action and carries with it responsibility and accountability.
1.1 Objectives
The overall objective of the UN Nepal’s disaster response plan is to ensure that human
survival and well-being, particularly of the most vulnerable groups, is assured in whatever
emergencies develop.
The specific objectives of this disaster response plan are to ensure that UN Nepal has
the capacity to provide adequate relief to its own staff and their dependants in an effective
and timely manner and to provide effective and timely humanitarian assistance to people
in need in a way that facilitates mitigation, rehabilitation, reconstruction and development.
UN Nepal recognises that disasters should not only be evaluated in terms of their immediate
destructive effects but also in terms of their potentials as windows of opportunity for
future development.
1.2 Definitions
There is no unambiguous way to define key concepts in the field of emergency preparedness
and disaster management. UN Nepal may therefore categorise situations as disasters that
others would not, and vice versa. In accordance with the above objectives of this plan, UN
Nepal primarily defines situations as emergencies when the survival and well-being of people
are at risk.
The working definition of a disaster that underpins this plan is: A serious disruption of the
functioning of a society, causing widespread human, material or environmental loss, which
exceeds the ability of the affected society to cope within its own resources. The word
disaster is sometimes also used to describe a catastrophic situation in which the normal
patterns of life have been disrupted and extraordinary emergency interventions are required
to save and preserve human lives. The trigger event of a disaster is a hazard, which means a
rare or extreme natural or man-made event that threatens to adversely affect human life,
property or activity to the extent of causing a disaster. A natural disaster is thus a misleading
concept, as only the hazard may be of a natural nature. The destructive potential of a disaster
2
Introduction
UN Nepal has found it useful to distinguish between emergency preparedness and disaster
response. Whereas emergency preparedness focuses on various measures before a
disaster happens, such as vulnerability reduction and capacity building, disaster response
focuses on the rescue and relief operation after the occurrence of a disaster.
The objectives of this plan indicate that UN Nepal is not only concerned about the safety
of its own staff and their dependants but also about the survival and well-being of the
population at large. This distinction between internal and external aspects of disaster
management is important to keep in mind while reading this plan as it structures the
complexity of the subject matter.
Another distinction that helps to understand the planning approach is between a top-down and
bottom-up approach. The planning process has taken place within a vision of what UN Nepal
ought to do (as defined by policymakers and disaster managers) and what individual clusters
and agencies are capable of doing (as defined by implementers).
1.3 Focus
The title of UN Nepal’s Inter-Agency Disaster Response Preparedness Plan reveals the exact
focus of the plan. Whereas the planning process represents a substantial part of UN Nepal’s
emergency preparedness effort, the plan itself pays more attention to outlining an appropriate
disaster response. The standing capacity that UN Nepal and its partners maintain to initially
respond to the sudden development of an emergency is of particular interest.
Many situations may be considered disasters, from a plane crash involving a few casualties to
a major flood involving many victims. Although UN Nepal strives to ensure the survival and
well-being of people in all types of emergencies, the primary focus of this plan is on natural
hazards in general and on earthquakes in particular. This is partly due to the anticipated
hazards and their consequences (as described in chapter 3) and partly due to the division of
labour between the United Nations Disaster Management Team (UNDMT) and the United
Nations Security Management Team (UNSMT).
3
Introduction
Regarding scale, the emergency procedures described in this plan will only come into
action if the disaster is of such a magnitude that the usual programmes cannot deal with
the affected population. This is typically the case if casualties are counted in three or four
digit numbers or if UN staff are injured.
1) For frequent and somewhat manageable emergencies - a severity that the agencies
can respond to without significant international support - UN Nepal aims at responding
through contingency plans and programmes regularly updated by UN agencies and the
UNDMT. It is thus necessary to incorporate emergency preparedness and disaster
management as an integral part of UN’s development initiatives through a strategy of
collaboration and integration. However, UN Nepal may choose to reorient its programmes
to incorporate mitigation and rehabilitation as disasters unfold.
The following figure may help to clarify how the three parts of this plan are related to the
various institutional levels of the emergency preparedness and disaster management
system:
4
Introduction
While Part I deals with the entire disaster management system, Part II focuses on inter-
agency co-ordination of the planned internal disaster response and Part III focuses on
the agency-specific external disaster response plans. Part II targets UN staff and their
dependants whereas Part III concerns the population at large1 . This division of labour
between inter-agency clusters and separate UN agencies has been established as a
means of giving initial priority to staff safety through a high degree of internal collaboration
while at the same time allowing each UN agency to respond externally in accordance with
its own priorities and concerns.
UN Nepal recognises that a coherent and co-ordinated disaster response is obtained by first
giving priority to Parts I and II of this plan. At a later time, separate agencies can draw on the
resources and efforts of Parts I and II in designing or improving their own external disaster
response plans as outlined in Part III.
1
Contingency planning is a forward planning process in which response systems are put in place in order to
mitigate the impacts of disasters by better responding to emergencies.
2
Due to its mandate, the Assessment Cluster is bound to be concerned with external matters. 5
2. HAZARDS EXPERIENCED &
HUMAN EFFECTS
In order to assess anticipated disasters and their human effects realistically, it is necessary to
analyse the consequences of previous natural hazards experienced during recent years.
2.1 Loss of Life in Recent Years Table 1: Number of Deaths due to Natural Hazards
Table 1 gives an overview of the loss of life in Nepal 1996-2000
Type of Hazard 1996 1997 1998 1999 2000
due to various natural hazards during the last five years. Windstorms & Hailstorms 47 - 6 6 3
Thunderbolts 28 49 17 16 23
The categorisation and data originates from the Ministry Floods & Landslides 258 83 273 193 173
of Home Affairs. It is worth noting that mortality rates Fires 61 65 54 39 38
Epidemics1 494 951 840 1,207 141
are the most reliable disaster statistics in Nepal as they Earthquakes 3 - - - -
Avalanches 4 12 - 5 -
are compiled from police reports. TOTAL 895 1,160 1,190 1,466 378
Floods &
1000 Landslides
800 Fires
Earthquakes
Years
400
200 Avalanches
Figure 3: Number of Families Affected by Natural earthquakes and avalanches have only affected a small number
Hazards 1996-2000 of families in recent years.
70000
Windstorms &
Hailstorms
60000
Annual variation is significant, both in terms of lives lost
Thunderbolts
50000
40000
Floods &
and number of families affected. While the number of families
Landslides
Fires
30000
affected decreased from 1996 to 1999, the number of deaths
Epidemics
10000
trend hints at a smaller number but more severe disasters.
Avalanches
0
1996 1997 1998 1999 2000 However, the data for 2000 contradicts this trend. In any
case, uncertainty regarding definitions, validity of data, the
limited amount of data available and the annual variation make it difficult to draw any firm
conclusions.
On Indian Republic Day, 2001, at 8:46 am local time, the second largest earthquake in the recorded
history of India occurred; the tremors were felt in neighbouring countries and in the Kathmandu Valley.
The recent earthquake in Gujarat on 26 January may help us get an overview of the anticipated
consequences of a major earthquake in Nepal.
The magnitude of the disaster was so great that it will take time to develop a complete and comprehensive
picture of the damage caused. The official death toll on 1 June was 17,110, but up to 25,000 deaths
may have occurred. More than 166,812 people were reported injured and more than one million
houses were either destroyed or damaged. In some villages and towns more than 90% of the buildings
were levelled to the ground. Approximately 16 million people were affected by the earthquake, which
caused an estimated loss of property equivalent to nearly US$ 5 billion.
It is worth noting that the earthquake had a magnitude of 7.7 on the Richter scale and that the epicentre
of the quake was located in the sparsely populated Katch District of Gujarat. It is also worth noting that
the infrastructure of Gujarat was excellent in terms of roads and airports and that the Indian Defence
Services provided an impressive first response to the emergency.
8
Hazards Experienced & Human Effects
were wounded, 20% of the Valley’s buildings were destroyed and 40% were damaged,
including a large number of temples and monuments. In 1988, an earthquake of magnitude
6.6 on the Richter scale hit eastern Nepal, with the epicentre in Udayapur. More than 700
people were killed, about 6,500 were injured, 22,000 houses collapsed and approximately
56,000 houses were damaged.
An earthquake of the 1934 magnitude affecting the densely populated Kathmandu Valley is
likely to result in more deaths and casualties than the Gujarat earthquake. Furthermore, the
current infrastructure of the valley will not allow a similar response operation. It also remains
questionable whether Nepal would be capable of responding as India did. Only systematic
emergency preparedness efforts and a institutionalised disaster management system can
mitigate the effects of a devastating earthquake in Nepal.
Humla
Darchula
Bajhang
Mugu Floods 1993
Baitadi
Bajura
Earthquake 1988
Jumla
Mustang
Kalikot Dolpa
Dadel Achham
Dhura Doti
Manang
Dailekh Jajarkot
Rukum
Kanchanpur Gorkha
Myagdi
Kailali Kaski Rasuwa
Lamjung
Surkhet Baglung Parbat
Salyan Rolpa Sindhu Taplejung
Planchok Dolakha Sankhuwa
Nuwakot Sabha
Bardiya
Pyuthan Gulmi Syanja Tanahu Solukhombu
Dhading Balaju
Banke Arghakhanchi Rame Chap
Earthquake 1980 Dang Palpa
Nawalparasi Chitawan
Hetauda Kathmandu
Makawanpur
Okhal
Dhunga Bhojpur
Terha Panchthar
Thum
Khotang
Kapilbastu Sindhuli
Rupandehi
Parsa Dhanuta Ilam
Earthquakes Floods
1
The current statistics on epidemics are field based and not hospital based.
2
The strength of an earthquake can be measured by magnitude and intensity. Magnitude is a measure of the
physical energy released by the earthquake at the hypocentre and it is commonly measured on the open-
ended logarithmic Richter scale. Intensity is the effect of an earthquake at a particular place on the earth’s
surface and it is commonly measured on the Modified Mercalli Intensity Scale. 9
3. ANTICIPATED HAZARDS &
HUMAN EFFECTS
The previous chapter shows that Nepal is a disaster prone country exposed to most types of
natural hazards such as avalanches, earthquakes, epidemics, fires, floods, hailstorms,
thunderbolts and windstorms. The chapter reveals that it is worth paying special attention to
earthquakes and floods & landslides due to their human effects1 . However, since a future
disaster could easily change existing disaster statistics, it is insufficient to exclusively use past
events as a foundation for predicting future emergencies. This chapter discusses the anticipated
hazards and the human effects that UN Nepal foresees as potential scenarios in the near
future. Both chapters serve as a foundation for planning an appropriate disaster response.
3.1 Earthquakes
Nepal is situated in the seismically active Himalayan mountain belt dominated by the northward
movement of the Indian tectonic plate towards and below the Eurasian tectonic plate. The
role of earthquakes is essentially to catch up with the rate of convergence of these plates.
Every year, more than a thousand earthquakes of various magnitudes ranging from 2 to 5 on
the Richter scale occur in the country. Even this high number of earthquakes cannot release
the accumulated energy underground. According to many geologists, only major earthquakes
can compensate for the movements of the plates.
UNDP and UNCHS have produced a seismic risk map of Nepal based on geological data.
The seismic zoning of the country is shown on map 2, where z=1.1 and z=1.0 represent
the highest earthquake risk zones. The map indicates that the middle part of the country is
more vulnerable to earthquakes than the northern and southern parts. Likewise, the western
and central parts of Nepal are more exposed than the far-eastern part. Unfortunately, the
middle part of the country consists of valleys where a large percentage of the population and
vulnerable infrastructure is concentrated.
The amount of damage is strongly influenced by the composition of the underground. The
Kathmandu Valley is a lake basin consisting of soft sediments such as clay-silt and sand.
According to most experts, a large part of the valley is susceptible to liquefaction2 due to the
presence of fine sand and a high water table. Due to the basin effect, seismic waves are
amplified and thereby likely to increase the level of destruction.
11
Anticipated Hazards & Human Effects
Box 2: The Global Earthquake Safety Initiative and Kathmandu’s Earthquake Vulnerability
The Global Earthquake Safety Initiative (GESI), organised by GeoHazards International and UNCRD, focuses on
helping cities around the world to recognise and reduce their risk of loss of life in earthquakes. This initiative
builds on the work of RADIUS and is targeted to decision-makers and disaster managers in earthquake
threatened cities world-wide.
The study undertaken demonstrates that urban earthquake risk is greatest and most rapidly growing in developing
countries and that the proportion of the world’s expenditures on earthquake research aimed at the needs of
developing countries remains small. While the average lethality of earthquakes in developed countries has
decreased significantly over the last century, the average lethality in developing countries remains high.
Data on a wide range of topics affecting loss of life in earthquakes has been collected from 21 highly vulnerable
cities around the world, including Kathmandu. The preliminary results suggest that Kathmandu has the lowest
performance among all 21 major cities. It not only poses the highest risk of casualties in absolute numbers but
also the highest per capita risk.
The lethality of buildings in Kathmandu is considered extremely high. The evaluation of fire fighting preparedness,
medical care preparedness and general preparedness reveals serious problems in the current disaster response
capability. The study suggests that the best mitigation options in Kathmandu are to increase the quality of
buildings, improve medical preparedness and strengthen the level of emergency preparedness.
12
Anticipated Hazards & Human Effects
Among all disaster scenarios in Nepal, none is as frightening as the prospect of a major
earthquake affecting the Kathmandu Valley. Due to the collaborative efforts of NSET-Nepal
and GeoHazards International, a thorough description of this scenario has been publicly
available since the last few years. As it remains the best description of the anticipated
consequences, UN Nepal has adopted it in its contingency planning process.
The Kathmandu Valley Earthquake Risk Management Project has estimated what would
happen if the shaking of The Great Bihar Earthquake was repeated in the Kathmandu
Valley at this point in time. Even though the next great earthquake is unlikely to have the
same magnitude and location as the 1934 event, it is reasonable to assume that due to
the soft subsurface of the valley the shaking pattern will not differ radically.
A frightening estimate would count approximately 40,000 deaths and 95,000 injured. More
than 60% of the existing buildings would be destroyed, many beyond repair, leaving
600,000 to 900,000 residents homeless. In Bhaktapur alone, more than 75% of the housing
stock would be heavily damaged. Moreover, 95% of the water pipes and 50% of the
pumping stations, treatment plants etc. could be seriously affected, hampering water
supplies for several months. Furthermore, almost all telephone exchange buildings and 60%
of the telephone lines are likely to remain defunct for at least one month, as well as
approximately 40% of the electric lines and all electricity substations. In addition, it is
estimated that almost half of the bridges and many narrow roads in the valley could be
impassable due to damage or debris. Although liquefaction susceptibility is very low around
Tribhuvan International Airport, the airport is likely to be isolated due to destroyed bridges
and roads in its proximity. One serious consequence would be that the arrival of international
relief teams and assistance by air would be delayed and complicated due to collapsed
structures.
Source: The Kathmandu Valley Earthquake Risk Management Action Plan. NSET-Nepal &
GeoHazards International, Kathmandu, 1999
Any earthquake scenario is open for discussion. On the one hand the recent earthquake in
Gujarat on 26 January 2001 confirms that the above estimates are not taken from out of the
blue. Rather than sensationalism, the predicted disaster statistics could be conservative. On
the other hand another earthquake risk study carried out recently ended up with a slightly 13
Anticipated Hazards & Human Effects
lower estimate of the death toll and building damage. It is worth noting that neither scenario
deals with long-term consequences, which are likely to hamper the development of the
country.
The JICA study team presented the preliminary results of their hazard & risk analysis at
the 1st seminar on Earthquake Disaster Mitigation in Kathmandu Valley on 10 August
2001. The seminar, which was organised in collaboration with the Ministry of Home
Affairs, Department of Drug Control & Disaster Management, qualified the findings of
the Kathmandu Valley Earthquake Scenario. According to the study team, a repetition of
the 1934 earthquake would result in 19,523 deaths and 136,474 damaged buildings. The
study team has also considerably downscaled the potential of liquefaction in Kathmandu
Valley. A description of the study and the preliminary results can be found on the website
http://www.jica-eqdm-ktm.org.np.
Floods and landslides are the most regularly occurring and most threatening water-induced
hazards in Nepal. Light floods and local landslides occur annually and are part of life in the
Terai and the Mid Hills. Landslides frequently dam rivers which, when breached, create
massive surges downstream. During the last decade, severe floods affected the country in
1993 and 2000. The cumulative effects of floods and landslides is higher than from any other
disaster as it directly affects the majority of the population and agricultural production in the
Terai – the so-called breadbasket of the country.
facilities. The situation is more critical regarding earthquakes. The risk of a major earthquake
with frightening humanitarian implications is so big that a high level of emergency preparedness
and standing readiness must be maintained.
Table 3 summarises how UN Nepal evaluates the anticipated large-scale disasters of the near
future. For each hazard, it analyses the potential scale, the likelihood of occurrence, the
possibilities of early warning and the human effects of a consequent disaster. The likelihood
of occurrence in the near future is rated by the following criteria: 5 suggests the disaster is
very likely to happen, 4 suggests it is likely to happen, 3 suggests it may happen and 1
suggests it is unlikely to occur.
Floods & Landslides Small to medium 4-5 Yes Up to 1,000 deaths, 10-
20,000 homeless
1
Mainly due to the fact that the Ministry of Health and the Disaster Health Working Group are occupied with
the health aspects of emergencies, epidemics are deliberately downplayed in this disaster response plan.
2
Liquefaction is a process by which water-saturated soil changes from a firm substance to a semi-liquid
material when shaken and thereby loses its ability to support structures. 15
4. RESPONSE GUIDELINES
1) Different types of disasters are to be expected any time. Worst among them is a severe
earthquake affecting the Kathmandu Valley. It is considered an eminent possibility, serious
enough to warrant continuous readiness. A large-scale earthquake is likely to be followed by
many aftershocks and the potential of subsequent quakes. It would impact both urban and
rural settlements across the entire country, and very likely parts of neighbouring India.
3) UNDMT monitors hazards and potential emergencies in order to issue early warnings and
ensure a rapid response. In relation to epidemics and floods, UN Nepal aims to be among
the first agencies to trace early warnings and take necessary action. When disasters occur,
UN Nepal aims to participate in rapid field assessments within 24 hours of reported incidents.
4) UN Nepal recognises His Majesty’s Government (HMG) as holding the overall responsibility
of disaster management in Nepal. The Government is thus the co-ordinator of all activities
relating to prevention, preparedness, response, mitigation, recovery and rehabilitation. HMG
should give high priority to the preparation of its own personnel to respond to the emergency
needs of the affected population. It is assumed that basic emergency needs will be met by
the affected families themselves, NGOs and local and national authorities.
17
Response Guidelines
5) In the case of large-scale disasters, international support will be required. This assistance
must be designed and provided in a manner that compliments, not duplicates, measures
taken by HMG and its partners.
6) UN Nepal will typically respond to larger and more severe emergencies. As a general
principle, UN Nepal responds whenever the scale or severity is such that UN assistance is
needed to help local or national efforts meet the survival and basic needs of the victims.
8) In view of the threatening earthquake scenario, all UN agency heads and cluster leaders
have decided to give high priority to the emergency planning process in order to ensure that
UN Nepal will be able to meet the above core commitments in the near future. All UN
agency heads have further decided to appoint an emergency focal point in order to simplify
and optimise the lines of communication and command.
1) In recognition of the fact that emergency preparedness is a much more effective and
efficient undertaking than disaster response, UN Nepal gives highest priority to vulnerability
reduction and capacity building, including drafting this disaster response preparedness plan.
Addressing the issues of structural and non-structural assessment and reinforcement of UN
residences and offices is the only effective means of ensuring the safety of UN staff and the
operational capacity of the UN.
3) A sectoral approach is applied during the emergency planning process in order to avoid
duplication of efforts and maximise utilisation of existing resources.
18
Response Guidelines
4) The disaster response plan is based on the worst case scenario presented in section 3.1.1,
i.e. a major earthquake affecting the Kathmandu Valley. In addition, experiences from the
flood disaster of 1993 and the Gujarat earthquake of 2001 have played an important role in
terms of lessons learned.
5) The disaster response plan operates at two integrated levels, in terms of assistance to UN
Nepal’s own staff and their dependants (internal disaster management), and to the country
at large (external disaster management).
6) The disaster response plan corresponds to existing Government rules and regulations and
to UN programmes and plans, paying special attention to the most vulnerable groups.
7) The disaster response operation must reflect fixed priorities and programmes agreed upon
during the emergency planning process in order to maximise the impact of the response.
8) Foreign relief assistance should be given only in consultation with officials designated by
the Ministry of Home Affairs and, whenever relevant, the Ministry of Health to co-ordinate
such assistance. Priorities should be clearly stated, making a distinction between immediate
needs and those of rehabilitation and reconstruction.
9) The disaster response operation must be transparent in relation to beneficiaries and partners.
10) The disaster response operation must facilitate mitigation, rehabilitation, reconstruction
and eventually, sustainable development.
2) Voluntarism should be the basic principle of the UN’s internal emergency planning process
in order to ensure full commitment from staff, which is a precondition for a participatory
approach. A system of recognition and reward should be institutionalised in order to formalise
the voluntarism and encourage emergency planners to carry out their duties.
3) The disaster response operation will be directed from the Emergency Operations Centre
located on the UN premises in Pulchowk. This Emergency Operations Centre will work in
close collaboration with the Government’s Emergency Control Room at the Ministry of Home
Affairs in Singha Durbar.
disaster response, and thereby ensure internal collaboration, eight inter-agency clusters which
have already been established covering the areas of awareness raising & training, warden
system, assessment, communications, logistics, search & rescue, health, and food & water
will be activated. To co-ordinate the national disaster response, and thereby ensure external
collaboration, three sectoral working groups which have already been established, covering
the areas of food & agriculture, health, and logistics, will be activated. Figure 4 shows an
organogram of UN Nepal’s disaster management system.
5) Because resources are limited, UN Nepal gives priority to the following six types of response:
assessment, relief, leadership, co-ordination, communication and fundraising.
6) Donors should be discouraged from competing with each other to meet the most visible
needs of the affected population. The quality and appropriateness of assistance is more
critical than its magnitude, monetary value or speed with which it arrives.
7) Donors should be informed of what is not wanted or needed. This is as critical as giving
specifications for requirements. Guidelines should be circulated to all potential suppliers of
assistance and to diplomatic and consular representatives abroad to prevent ineffective
contributions.
20
21
Central Disaster Relief Committee
UNICEF
Food and Water Cluster
Health Cluster UNHCR
UN Heads of Agencies
UN Designated Official
UNFPA
UNESCOORD
UN HQs
OCHA
Awareness & Training Cluster
FAO
5. EMERGENCY MANAGEMENT
SYSTEMS
The name of the Designated Official: Henning Karcher (UNDP). In the absence of the
Designated Official, the Deputy Designated Official will assume the above responsibilities.
The name of the Deputy Designated Official: Stewart McNab (UNICEF). In the absence of
the Designated Official and Deputy Designated Official, a third person will be nominated as
Deputy. This will be advised by general circular to all staff as and when the situation arises.
Box 5: Standing Orders for the Designated Official in the First Hours of an Emergency
1. Contact the Deputy Designated Official and Field Security Officer (if either or both are unavailable,
contact the heads of the Warden Cluster and Communications Cluster). Establish individual status and
gather information available to them. Advise UNDMT to relocate to the Emergency Operations Centre as
soon as possible and instruct them to implement the disaster response plan according to their roles, giving
highest priority to the internal response operation among UN agencies.
2. Report the emergency immediately to UN Headquarters, OCHA and UNSECOORD. The first report
should provide available information about the emergency situation, indicate next steps, advise what assistance
is urgently needed, define how to maintain contact, and decide when the next anticipated report is to be
expected.
3. Contact government officials, establish status and gather information available to them. Inform them that
the UN has initiated the disaster response plan and intends to relocate to the Emergency Operations Centre
as soon as possible. Advise them to implement counterpart elements of the plan, such as activating the
three sectoral working groups in order to facilitate co-ordination and collaboration.
4. Ensure own residence is secure, gas and electricity switched off. Relocate to the Emergency Operations
Centre, bring satellite phone, UN Nepal’s Earthquake Survival Kit and other necessary items as per personal
requirements.
5. Establish the Emergency Operations Centre and give priority to ensuring security at the UN House.
Establish UNDMT; if actual members are not present, instruct available alternative staff to complete necessary
functions as identified in the disaster response plan. Call the first UNDMT meeting and make a schedule for
subsequent meetings. Meet briefly with all staff, advise of the emergency situation and of next steps as well
as roles they can assume to support the response operation.
6. Conduct the first UNDMT meeting in order to advise actions taken, share information on action plan
implementation, clarify roles, address immediate priorities and concerns for each cluster/agency, allocate
resources as necessary and available, and prepare press briefings. Make a plan for regular cluster meetings
and invite representatives from the Government, sectoral working groups and NGOs.
7. Contact the Dean of the Diplomatic Corps, senior donor representatives, NGOs and other key responders.
Ascertain immediate emergency situation and known issues/needs.
8. Re-contact UN Headquarters, OCHA and UNSECOORD. Confirm disaster response plan initiated, advise
24
Emergency Management Systems
of immediate situation based on knowledge as above, including initial damage and needs assessment and
concerns as known. Provide information on the general status of staff and the UN offices.
9. Re-contact government officials and obtain update on current situation and known hazards, most severely
affected areas (airport, roads, bridges, communications infrastructure, hospitals), urgent needs and status of
disaster response implementation. Advise/inform of the UN position and any key needs such as logistical
support to conduct a rapid damage assessment.
10. Contact OCHA, appraise of emergency situation, request they co-ordinate with the donor community
outside Nepal and liase with all the UN Headquarters and UNSECOORD in order to design and implement
an international emergency relief operation.
11. Monitor the disaster response operation, maintain contact with the Government, donors, NGOs, UN
Headquarters, OCHA and UNSECOORD as necessary.
12. Ensure staff at the UN House and other congregation points are briefed in full; broadcast supportive
messages to wardens and others, to be relayed to all staff.
5.2.1 UNSMT
UNSMT is the inter-agency body responsible for the security of all UN staff, particularly in
relation to complex emergencies and man-made disasters. UNSMT consists of heads of
agencies and senior staff. Depending on the type of emergency, UNSMT may or may not
play a crucial role in disaster response operations. However, UNSMT must meet in any
emergency, even if briefly, to assess security issues or concerns and feed these directly to the
Designated Official and UNDMT. Its responsibility is to:
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Emergency Management Systems
5.2.2 UNDMT
UNDMT is responsible for UN Nepal’s emergency preparedness efforts and disaster response
operation, particularly in relation to natural hazards. UNDMT consists of heads of agencies,
heads of clusters, emergency planners and staff with related responsibilities. Its duty is to
cover the following areas of responsibility:
10) Design and implement a major simulation exercise in collaboration 10) Maintain objectivity, transparency, and democracy in co-ordination
with OCHA, UN Headquarters, donors, the Government and NGOs. meetings; ensure that information sharing continues. Pay special
attention to the sector working groups.
11) Share this disaster response preparedness plan with international 11) Liase closely with the Government, UN Headquarters, international
partners such as OCHA and UN India, which are likely to be involved agencies, donor communities, sectoral working groups and civil society
in a disaster response operation. on progress and bottlenecks. 27
12) To be continued. 12) To be continued.
Emergency Management Systems
5.2.3 Clusters
The mutual responsibility of the eight inter-agency clusters is to ensure a co-ordinated emergency
planning process and disaster response operation among all UN agencies in Nepal. The
clusters are responsible for the internal and operational aspects of the disaster management
system, i.e. providing rescue and relief services to UN staff and their dependants. The action
plans of each cluster are included in Part II of this disaster response preparedness plan (in a
separate volume). For the sake of co-ordination, the general objective of each cluster is
indicated below:
8) The responsibility of the Food & Water Cluster is to ensure that 8) The responsibility of the Food & Water Cluster is to collect,
UN families are informed and prepared regarding immediate and con- store and distribute food and water supplies in a timely and effective
tinued access to adequate food and water, sanitation and hygiene. manner.
3) Upon approval of agency heads, a 64 kbps project will be imple- 3) To avoid overcrowding, the centre and its facilities will only be acces-
mented, providing an independent communications facility affording sible to the UNDMT and other necessary staff. The UNSMT will
guaranteed high-speed, low cost internet, telephone, fax and video authorise the Warden Cluster to implement its security procedures for
conferencing facilities. crowd management.
4) An on-site generator will supply power and water. Large quantities of 4) Work rosters will immediately be established to allow for 24-hour
fuel and basic supplies including food, tents, camp beds, sleeping staffing, involving 10 hours on duty and 7 off on a rotational basis for
bags, medical and toiletry items will be stored at the centre. the Designated Official and Deputy Designated Official. Other staff,
including cluster heads, will work in a similar routine always allowing
for overlap at the beginning and end of each shift.
5) To be continued. 5) To be continued.
5.2.6 UN Staff
Emergency preparedness and disaster response is the responsibility of all UN staff, not only
of emergency officers, agency heads, UNDMT, UNSMT and the Designated Official. Unless
subject to other instructions as a consequence of membership in one of the clusters, the
UNDMT or UNSMT, it is everyone’s responsibility to:
5) Maintain regular contact with the warden, always immediately advis- 5) Accurately notify the warden of your family situation and await further
ing of changes of personal circumstances, family members or ad- instructions.
dress.
6) Utilise the warden to objectively assess the current level of emer- 6) Use water and other supplies sparingly and be prepared for discomfort
gency preparedness, including household preparedness and dam- and possibly over-crowding for a few days.
age mitigation techniques.
7) To be continued. 7) If you have major concerns about relatives or medical issues advise
the warden or location supervisor and they will try to address your
needs as soon as possible.
8) Watch for colleagues, neighbours and friends showing signs of stress,
e.g. in the form of unusual, erratic behaviour or total quietness and
withdrawal. Advise medical authorities immediately if signs are no-
ticed.
9) To be continued.
Do not attempt to assemble at an alternative congregation point unless you are advised to do so by your
warden. You will be expected at the appropriate location and failure to show up will cause concern. It may
even endanger the well-being of other staff by causing them to mount a search and rescue for you. In
addition, try to assemble only your immediate family at the pre-arranged congregation points: UN House,
UNICEF ROSA, UNHCR, ILO, IDRB or other locations advised by your warden. Only immediate family will
be allowed access to the congregation points as space and supplies are very limited. This point is not negotiable
under any circumstance.
If you wish and are able to offer assistance and support please do so, but only after taking advice and
instruction from the location supervisor. Do not undertake actions without consulting and being given clearance,
as it may cause confusion and duplication of efforts. If you are asked to assist in any way, please ensure you
focus on the task allocated. Do not get distracted or become involved in other activities unless instructed to
do so. If you are advised that your assistance is not currently needed please accept that position quietly and
patiently; requests for additional resources will soon be forthcoming from one or the other of the clusters.
Please do your best to comfort others and pay particular attention to the needs of children. To distract them
is critical because earthquakes can have very traumatic effects on children. Also be prepared for aftershocks
and remain as calm as possible through them. This will have a very positive effect on the more nervous
people and young children.
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6. SUMMARY OF CO-
ORDINATION AND
PARTNERSHIP ARRANGEMENTS
UN Nepal recognises that the Government has the overall responsibility of implementing
and co-ordinating emergency preparedness and disaster response programmes covering the
whole of Nepal. The role of the international community is therefore subsidiary to that of the
Government. However, if requested to do so, the UN can choose to come forward in order
to strengthen the Government’s capacity for delivering an appropriate disaster response.
The following chapter summarises the existing mechanisms for ensuring co-ordination between
UN Nepal, the Government, donors and NGOs together with national disaster response
arrangements.
The Royal Nepal Army and Nepal Police play important roles in rescue operations. Police
officials collect first-hand information of the event and inform concerned officials. In the
event of a catastrophic disaster, Nepal Police establishes command posts to facilitate rescue
operations. Moreover, Nepal Police collects most of the disaster data and information.
The Government has formulated a number of natural disaster preparedness plans, programmes
and acts over the last 20 years. Most prominent among them is the Natural Calamity (Relief)
Act, 1982. This Act defines the official disaster management system at central, regional,
district and local levels. The system is summarised in the following section.
31
Summary of Co-ordination and Partnership Arrangements
At the district level, the District Disaster Relief Committee (DDRC) is the active agency for
co-ordinating relief support. This committee, chaired by the Chief District Officer, consists of
representatives from public sector organisations such as the District Health Office, the Nepal
Red Cross Society and similar agencies. DDRC is responsible for co-ordinating the district-
level relief efforts including the provision of medical support and the distribution of food and
other essential supplies.
The Natural Calamity (Relief) Act, 1982 also accommodates the provision for the establishment
of regional and local disaster relief committees as and when required.
1) Donor co-ordination, in collaboration with the Ministry of Home Affairs and the sectoral
working groups, in order to ensure efficient and effective international assistance.
2) Technical support by skilled professionals who will provide assistance to various institutions
belonging to different sectors.
3) Grassroots field level support by project staff who will provide specific on-site assistance
and monitoring.
It is important to note that all of these activities will be carried out under the direct guidance
and supervision of the Ministry of Home Affairs. One of the most important rationales for a
workable co-ordination mechanism between the international community and the Government
is that it allows the Government to channel international assistance in such a way that it will
be complementary to its own on-going activities.
There are three main areas of activity where the international community can support the
Government’s own disaster management efforts in order to improve the overall disaster
32 response. These areas of activity include:
Summary of Co-ordination and Partnership Arrangements
1) Assessment of the extent of damage, the immediate and long-term needs of the affected
populations, and the necessary programmes and resources for rehabilitation and reconstruction.
Upon request from the Government, the early fielding of assessment teams comprised of
government officials and members of the international community can help to strengthen
the confidence in rapid assessments upon which the requests for aid from the international
community are based.
3) Monitoring of the response efforts upon the request of the Government. The international
community provided this assistance to the Government during the 1993 floods, which allowed
for an objective assessment of the relief efforts and helped to ensure an equitable distribution
of aid.
For that reason, in 1994 the Government requested the international community’s help to
re-focus the three sectoral working groups established during the flood response of 1993 in
order to prepare sectoral contingency plans for future disasters. The responsibility of the
sectoral working groups, which include representatives from the Government, the UN, donors
and NGOs, is to provide complementary support to the Government’s own on-going relief
efforts in the sectors of food & agriculture, health, and logistics.
In 1995 the sectoral working groups produced three manuals that were revised in 1999.
These manuals, intended to be rolling plans, have not yet been published. The meeting
schedules and activities of the Working Groups have been decreasing over the years. However,
at the end of 2000, the Epidemiology and Disease Control Division, Department of Health
Services, Ministry of Health, and WHO decided to revitalise the Disaster Health Working
Group. The Disaster Health Working Group is currently preparing a health sector emergency
preparedness and disaster response plan in accordance with UN Nepal’s disaster response
preparedness plan. This is a promising initiative that responds to the necessity of a mutual
understanding and planning exercise among potential disaster responders. If all sectoral working
groups apply the same methodology, a major improvement in the current disaster management
system will be achieved.
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