Disaster Management: A Disaster Manager's Handbook

1 Asian Development Bank6 ADB Avenue, Mandaluyong City1550 Metro Manila, PhilippinesTel +63 2 632 4444 Fax +63 2 636 978-971-561-006-3 Publication Stock No. 041508 Printed in the PhilippinesDisaster Management: A Disaster Manager's HandbookThis Handbook is a ready reference guide for those actively involved with management of natural disasters before, during, and after Disaster situations in developing member countries. It draws upon Disaster management practices in Asia and the Pacific and endeavors to relate realistically to the needs of national Disaster the Asian Development BankADB s vision is an Asia and Pacific region free of poverty. Its mission is to help its developing member countries substantially reduce poverty and improve the quality of life of their people. Despite the region s many successes, it remains home to two thirds of the world s poor: billion people who live on less than $2 a day, with 903 million struggling on less than $ a day.

2 ADB is committed to reducing poverty through inclusive economic growth, environmentally sustainable growth, and regional integration. Based in Manila, ADB is owned by 67 members, including 48 from the region. Its main instruments for helping its developing member countries are policy dialogue, loans, equity investments, guarantees, grants, and technical MANAGEMENT: A Disaster Manager s HandbookDISASTER MGMT_FINAL_APPROVED 2/3/12 11:02:54 AMDisaster ManagementA Disaster Manager s HandbookW. Nick Carter 1991, 2008 Asian Development BankAll rights reserved. Published 2008. Printed in the Philippines. Cataloging-In-Publication DataPublication Stock No. 041508 ISBN 978-971-561-006-3 Cataloging-In-Publication DataCarter, W. management: a Disaster manager s City, Phil.: Asian Development Bank, Disaster management.

3 I. Asian Development views expressed in this book are those of the authors and do not necessarily reflect the views and policies of the Asian Development Bank (ADB) or its Board of Governors or the governments they represent. ADB does not guarantee the accuracy of the data included in this publication and accepts no responsibility for any consequence of their of the term country does not imply any judgment by the authors or ADB as to the legal or other status of any territorial encourages printing or copying information exclusively for personal and noncommercial use with proper acknowledgment of ADB. Users are restricted from reselling, redistributing, or creating derivative works for commercial purposes without the express, written consent of ADB Avenue, Mandaluyong City1550 Metro Manila, PhilippinesTel +63 2 632 4444 Fax +63 2 636 orders, please contact.

4 Department of External RelationsFax +63 2 636 of Acronyms ixPreface xiForeword xiiiIntroductory Notes xviiPART I - BASIC Disaster MANAGEMENT ASPECTSC hapter 1 The Significance of Disaster 3 The Traditional Disaster Threat 3 The New Disaster Threats 4 The Geography of Disaster 5 The Modern Loss Factor 6 Major Aspects of Significance 6 Chapter 2 The Disaster Threat 9 The General Effects of Disaster 10 Outlines of Individual Disasters 10 Process of Defining the Disaster Threat 21 Use of Disaster Threat Information 22 Chapter 3 National Disaster Management Policy 25 Clear Definition of National Policy 25 The Process of Policy Definition 26 Main Elements of National Policy 29 Arrangements for Monitoring and Review 31 Chapter 4 Major Requirements for Coping with Disaster 35 Scope of Disaster -Related Action 35 The Philosophy for Coping with Disaster 36 Foundation Factors 37 Organization 37 Planning 41 Use of Resources 43 Specialist Skills 45 Training Needs 46IV Disaster ManagementChapter 5 The Disaster Management Cycle 49 The Disaster Management Cycle 49 Composition of Main Activities 51

5 Application to Practical Disaster Management 56 Chapter 6 Disaster and National Development 59 Disaster and the National Image 59 The Impact of Disaster on National Development 62 National Development and Disaster Management Policy 66 Chapter 7 Disaster Legislation 71 The Need for and Value of Legislation 71 Main Areas Covered by Legislation 72 Sample Draft of a National Disaster Act 73 Chapter 8 Counter- Disaster Resources 81 Types of Resources 82 Evaluation of Resources 84 Roles and Responsibilities of Resource Organizations 86 Annex: Military Forces in the Counter- Disaster Role 94 Chapter 9 International Disaster Assistance 101 Modern Concept of International Disaster Assistance 101 Types of International Assistance 102 Sources of International Assistance 104 Arrangements by Recipient Countries 105 Local Problems Arising from International Assistance 108 The Relationship between Donors and Recipients 109 Chapter 10 Leadership in Disaster 111 Leadership under Crisis Conditions 111 Some Ramifications of Political Leadership 113 Leadership in the Direction of Response Operations 116 Leadership in Resource Organizations 118 Community Leadership 119 Some Leadership Attributes and

6 Desirabilities 120 Contents VChapter 11 Organization 125 Factors Affecting Organizational Systems 125 Organizational Components 129 Organizational Structures 138 Chapter 12 Plans 145 The Need for Counter- Disaster Plans 146 Some General Considerations Applicable to Planning 146 The Format of Plans 150 The Planning Process 152 Critical Areas in Planning 154 Aspects for Consideration during Planning 161 Annex: Suggested Outline for a Main Action Plan 170 Chapter 13 Use of Resources 173 The Need for Optimum Use of Resources 174 Functional Requirements of Resource 176 OrganizationsManagement of Resources for Optimum 178 EffectivenessActivation of Resources 180 Graduated Response 182 Commodity Management 183 Annex.

7 Suggested Format for Standard 185 Operating ProceduresPART II LONG-TERM MEASURESC hapter 14 Prevention 191 The Need to Consider Disaster Prevention 191 Problem Areas in Prevention 192 Positive Approaches Toward Prevention 193 Resources Relevant to Prevention 195 Chapter 15 Mitigation 197 Guiding Principles of Mitigation 199 Examples of Mitigation Measures 200 Problem Areas in Mitigation 200 Requirements for Effective Mitigation 202 Major Mitigation Components 203 Resources Relevant to Mitigation 207VI Disaster ManagementFormulation and Implementation of 209 Mitigation ProgramsPART III MAJOR FACTORS PRIOR TO Disaster IMPACTC hapter 16 Preparedness 213 The Nature of Preparedness 214 Some Problem Areas in Preparedness 214 Summary of Preparedness Needs 216 Maintenance of Preparedness Levels 220 Funding 223 Warning Aspects 224 Precautionary Measures Prior to Disaster Impact 224 Resources Relevant to Preparedness Arrangements 227 PART IV RESPONSE TO Disaster IMPACTC hapter 17 Response 231 Important Characteristics of Response 232 Some Problem Areas in Response 234 Requirements for Effective Response 237 Follow-on from Response Operations 246 Human Factors in Response 248 Resources Relevant to Various Aspects of Response 249 Annex.

8 Notes on Evacuation 251 Chapter 18 Logistics 259 General Description of Logistics 259 The Importance and Place of Logistics in Disaster Management 260 Response Aspects 260 recovery Aspects 264 Preparedness Requirements 265 Management, Administrative, and Accounting Considerations 269 Contents VIIPART V MAJOR POST-IMPACT FACTORSC hapter 19 recovery 275 Key Points from Disaster Analysis 276 Transfer of Responsibilities from Response to recovery 276 Continuation of Response Activity 277 The Basis for recovery Action 278 Problem Areas in recovery 278 Major Requirements for Effective recovery 279 Human Factors in recovery 285 Resources Relevant to recovery Programs 288 Projection of the recovery Process 289 Chapter 20 Post- Disaster Review 291 The Importance of Post- Disaster Review 292 Reasons for Omission of Post- Disaster Review 292 Aspects Covered in Post- Disaster Review 293 Major Investigations into Disasters 293 Use of Results 294 PART VI Disaster MANAGEMENT

9 SUPPORT REQUIREMENTSC hapter 21 Training 297 Individual Country Requirements 298 The Need for Training 298 Training Policy 299 Types of Training and Trainee Categories 299 Implementation of Training 301 Public Education 304 Annex: Examples of In-Country Training Programs 305 Chapter 22 Public Awareness 307 The Importance of Public Awareness 308 Responsibility for Public Awareness Programs 309 Main Aspects of Programs 310 Information Format 311 Information Channels 312 Organization of Programs 312 Effectiveness of Information 313 Maintenance of Awareness Levels 313 VIII Disaster ManagementChapter 23 Research 315 The Extent of Modern Disaster -Related Research 315 The Importance of Research 317 Practical Use of Research Information 318 APPENDIXESA ppendix A Vulnerability Analysis 323 Appendix B Warning and Warning Systems 333 Appendix C Survey and Assessment 343 Appendix D Examples of Disaster Legislation 355 Cook Islands 355 Papua New Guinea 365 Queensland.

10 Australia 375 LIST OF ACRONYMSADPC Asian Disaster Preparedness CenterAIDAB Australian International Development Assistance BureauAODRO Australian Overseas Disaster Response OrganizationASEAN Association of Southeast Asian NationsCCG Central Control GroupDMC developing member countryEOC emergency operations centerGIS Geographic Information SystemNATO North Atlantic Treaty OrganisationNDC National Disaster CouncilNDMO National Disaster Management OfficeNEOC National Emergency Operations CenterNGO nongovernment organizationOGC Operations Control GroupPIDP Pacific Islands Development ProgramUK United KingdomUNDRO United Nations Disaster Relief OfficeUNHCR United Nations High Commission for RefugeesUS United StatesUSAID United States Agency for International DevelopmentPrefaceThis book stems from a regional technical assistance project that was approved by the Asian Development Bank in January 1990 under the title Regional Study of Disaster Mitigation.