1. Lecture No. 14 Disaster Management System in Pakistan
Hazards Planning and Risk Management
Lecture No. 14
Disaster Management System in Pakistan
Fall 2016
US – Pakistan Center for Advanced Studies in Water

2. Objective
To review the evolution of legal framework for disaster risk management in Pakistan

3. Reading Material
Disaster Risk Reduction Approaches in Pakistan edited by Atta-Ur- Rahman, Amir Nawaz Khan, Rajib Shaw (Google Book Preview)
NDMA website:
More material available on wordpress:

4. Relief and Response Oriented System
Till 2005 EQ, conventional relief and response oriented model for coping and managing the risk of disasters in Pakistan
focusing on reactive strategy of relief and response
Flood being the most frequently occurring phenomenon, managed to take attention of policy makers in late 60’s and a Flood Control Programme was launched for the first time
National Disaster Plan drafted in 1974 by Federal Emergency Relief Cell
Plan was neither finalized nor implemented

5. Legal Frame Work for Disaster Management

6. The Calamity (Prevention and Relief) Act of 1958
National policy for disaster management prior to the passing of National Disaster Management Ordinance,
Focus was also limited to emergency response, relief and compensation
Lists down a set of specific calamities to address, which include;
“flood, famine, and locust or other pests, hailstorms, fire or epidemics or any calamity which in the opinion of the Govt. warrants action”
Source: National Disaster Risk Management Framework, Pakistan – NDMA
It is implemented by the revenue staff, from province to district and down to tehsils (sub-district).

7. The Federal Emergency Relief Cell (ERC)
Till 1970, Pakistan Civil Defense (working under Civil Defense Act amended in 1993) was the focal agency for responding to disasters
Emergency Relief Cell (ERC) was established in the aftermath of cyclone in the then East Pakistan (Bangladesh),
ERC became the government’s focal point for emergency relief in disaster hit areas
Central disaster management structure working under the Federal Cabinet Division
ERC on the directions/approval of the Prime Minister, provides relief assistance to supplement the efforts of the Provincial Governments, if their resources are not adequate enough to over come the effects of calamity
Source: GoP
Under the Rules of Business 1973, the subject “Disaster Relief” has been allocated to the Cabinet Division. Responsible for organizing disaster response by the federal government.

8. Federal Flood Commission (FFC)
Created in 1977 after the massive floods of 1973 & 1976
Responsible for
Preparation of flood protection plans for the country
Planning and execution of flood protection and preventive measures across the country

9. Pakistan Emergency Services Ordinance 2002
Pakistan Emergency Service Ordinance and Pakistan Emergency and Fire Code in 2002, in the aftermath of fire in the 17-storey Shaheed- e-Millat Secretariat in Islamabad
The ordinance sought to provide for the setting up of a new federal Pakistan Emergency and Fire Council which was tasked with formulating and then implementing a code of rules, regulations and specifications regarding the safety of life and property from fires, explosions and other hazardous materials
The proposed Rescue and Fire Service, an amalgamation of the Civil Defence Department and the Fire Brigade, was also mandated to inspect any building or premises for hazardous conditions as mentioned in the proposed Pakistan Emergency and Fire Code, and also to investigate the cause, the origin and the circumstances of all such incidents.
But nothing was achieved on this front as well.

10. Source: http://www. ndma. gov
DCO=district coordination officer
DPO=District Police Officer

11. 2005 ---- Change of Perception
Devastating Earthquake in October 2005
exposed the vulnerability of the existing emergency and disaster response capabilities
Pakistan became a signatory of the international disaster risk reduction protocol, Hyogo Framework for Action
Introduction of National Disaster Management Ordinance (NDMO) in 2006
a significant shift from conventional model to more proactive pattern of governance based on Disaster Risk Reduction
proposes a comprehensive disaster management framework including pre-disaster as well as post-disaster aspects
Till 2005 one can only trace fragmented and isolated efforts for developing national level disaster risk management.
The EQ 2005 changed Pakistan’s perceptions about how to manage disasters. (losses were 20% of the national budget).
Both these developments worked as catalyst leading to the promulgation of National Disaster Management Ordinance in 2006
He-yoo-go Kou-beh
The Hyogo Framework for Action (HFA) is a 10-year plan to make the world safer from natural hazards adopted by 168 Member States of the United Nations in 2005 at the World Disaster Reduction Conference.

12. National Disaster Management Ordinance, 2006 (NDMO)
Passed on December 21, 2006
Role of policy and legal framework for disaster risk manager
Government of Pakistan has established policy and institutional mechanisms at national, provincial and district levels
Under the Ordinance a National Disaster Management Commission (NDMC) and a National Disaster Management Authority (NDMA) have been established
The National Commission:
Ensures the implementation of National Disaster Management Ordinance
Notifies the provincial, regional and state governments to establish disaster management authorities at provincial and district levels
Policy and legal framework arrangements in a given context play pivotal role of planning, implementation and monitoring the processes of disaster risk management.
2010 floods has revealed a number of inadequacies and issues in the existing framework.

13. NDMA - Mission
To manage complete spectrum of disasters by adopting a disaster risk reduction perspective in development planning at all levels, and through enhancing institutional capacities for disaster preparedness, response and recovery
Visit NDMA website at

14. It is the implementing, coordinating and monitoring body for DM
NDMA: Key Functions
It is the implementing, coordinating and monitoring body for DM
Prepares national plan for approval by NDMC
Provides technical guidance to national and provincial stakeholders about formulation of plans, strategies and programs for disaster risk management.
Promote general education and awareness on DM issues
Capacity development of national, provincial and local stakeholders in collaboration with PDMAs and DDMAs
Source: and other
NDMA: focal point for coordinating and facilitating the implementation of strategies and programs on disaster risk reduction, response and recovery

15. National Disaster Risk Management Framework (NDRMF) developed by NDMA
defines strategies and priorities of the Government of Pakistan in the area of disaster risk management for the next five years

16. National Disaster Risk Management Framework (NDRMF)
Nine priority areas identified
Institutional and legal arrangements for DRM
Hazard and vulnerability assessment,
Training, education and awareness,
Disaster risk management planning,
Community and local level programming,
Multi-hazard early warning system,
Mainstreaming disaster risk reduction into development,
Emergency response system, and
Capacity development for post disaster recovery.
Nine priority areas (consistent with the thrust lines enshrined in Hyogo Framework for Action - HFA) identified to establish and strengthen policies, institutions and capacities over the next five years include…..

17. Continued…
Roles and responsibilities of key national, provincial and local stakeholders have been defined in the framework
All stakeholders are expected to undertake following actions to promote disaster risk management
Integrate risk assessment in the planning and design stages of all new infrastructure/projects,
Assess vulnerability of people, infrastructure, assets and services related to their sector,
Develop disaster risk management plans,
Integrate vulnerability reduction measures in new construction,
Develop technical capacities of their departments/sectors to implement disaster risk management strategies, and
Allocate funds for disaster risk management in annual development budgets.
National Disaster Management Fund established and managed by the NDMA;

18. Continued…
Other responsibilities of the stakeholders include:
Conduct post disaster damage and loss assessments,
Organize emergency response as per the mandate of the department; and
Organize recovery and rehabilitation as per the mandate

19. Principles Established in the Framework
Promoting multi-stakeholder, multi-sectoral and multi- disciplinary approaches
Reducing vulnerability of most vulnerable social groups,
Strengthening community and local level risk reduction capacities,
Combining scientific and people’s knowledge,
Developing culturally, socially, economically and environmentally relevant technologies,
Strengthening sustainable livelihood practices,
Acquiring specific capacities in view of the hazard-risk profile of the area and country, and
Working with other countries, and the international community to promote disaster risk reduction.

20. Provincial Disaster Management Authorities (PDMA)
Federal structure replicated in the provinces
Coordinates and monitors implementation of the national policy, national plan and provincial plan,
Prepare provincial DM plan, lay down guidelines for making of provincial line departments and district DM plan
Responsible for managing disasters in the province

21. District Disaster Management Authority
Headed by the Nazim and comprise DCO, DPO and EDO (Health).
It is entrusted with making district DM Plan.
Coordinates monitoring of national and provincial DM policies as they relate to the district.
Identification and mitigation of disaster risks.
Lays down guideline for making DM plans by respective departments and monitor their implementation.
Reviews and upgrades local early warning systems. Guidance is included for disaster mitigation functions and for capacity building of district staff.
EDO=Executive District Officer

22. National Disaster Management Plan 2012
Pakistan first National Disaster Management Plan was approved in Feb 2013
developed in cooperation with the Japan International Cooperation Agency (JICA)
Project span
Aimed at enhancing the capacity to prepare and response to disasters by proactive approach in line with National Disaster Management Act
Disaster Risk Reduction Approaches in Pakistan
edited by Atta-Ur- Rahman, Amir Nawaz Khan, Rajib

23. National Disaster Risk Reduction Policy 2013
National Disaster Management Commission approves DRR policy on 21st February 2013
This policy covers disasters risk reduction in a more holistic way and introduces a proactive and anticipatory approach by laying special emphasis on risk assessment, prevention, mitigation and preparedness
To promote priority measures to ameliorate existing vulnerabilities to hazards
To ensure that future development initiatives add resilience
To provide guideline for timely, dedicated and adequate investment on hazard mitigation and preparedness interventions at all levels to reduce the cost incurred by response and recovery efforts
NDMA, being the lead focal agency for disaster preparedness and management, has therefore, embarked upon formulation of a comprehensive National Disaster Risk Reduction Policy through wider consultations with all stakeholders including all provinces, state of AJ&K and regions.

24. Principles Multi-hazard approach
Vulnerability and risk analysis as the basis of DRR
Strengthening community participation and resilience
Strengthening the resilience of vulnerable groups
Compatibility with local customs and norms
Clearly defined division of roles and responsibilities between different layers of government
Promoting inter-organizational partnerships
Transparency and accountability in all DRR interventions

25. Policy Objectives
Creating an integrated national capacity to identify and monitor vulnerability and hazard trends including potential climate change impact
Creating Multi-Hazard Early Warning capacity while building upon existing systems and emphasizing the information and warning needs of vulnerable end-users
Strengthening an integrated disaster preparedness and response capacity from the local to the national level
Promoting development planning that considers and addresses disaster risks alongside environmental and climate change concerns

26. Policy Objectives
Strengthening the structural and non-structural resilience of key infrastructure and lifelines in Pakistan
Strengthening capacity at national and provincial levels to facilitate and provide support to the implementation of DRR policies, plans and programs across sectors and in high-risk areas
Strengthening Local Level Risk Reduction capacity focusing upon communities, and supportive linkages with Union Councils, tehsils and districts
Ensuring DRR is systematically integrated into recovery and reconstruction programming, “building better, safer and stronger” and informing DRR mainstreaming in general

27. Organizations Working on Disaster Management
Source: National Disaster Risk Management Framework, Pakistan – NDMA
National Crisis Management Cell Working under Ministry Of Interior)
Rescue 1122

28. Other Institutions and Stakeholders
Irrigation and Agriculture Departments
UN agencies
NGOs
Media
Donors
Vulnerable communities
National Institute of Oceanography
Space and Upper Atmosphere Research Commission (SUPARCO)
Pakistan Meteorological Department
Water and Power Development Authority
Pakistan Agricultural Research Council (PARC)
Dams Safety Council
National Institute of Disaster Management (NIDM)
Environment Ministry
Provincial Revenue Departments
NVM (National Volunteer Movement),
Geographical Survey of Pakistan
Edhi Ambulance Service
Pakistan Red Crescent Society (PRCS)
Pakistan Armed Forces
Provincial revenue departments have policies, systems and procedures in place for disaster relief, particularly for floods and droughts.
Pakistan armed forces are generally well experienced in managing various kinds of disasters.
A number of departments including agriculture and irrigation departments have been implementing drought mitigation strategies.
National Institute of Oceanography
Tide Gauge Network for monitoring of sea level variations along Pakistan coast

30. Policies & Protocols
National Disaster Risk Management Framework, Pakistan - NDMA
A list of national sectoral policies and international protocols that have implications for disaster risk management and vice-a-versa.

31. Structure for Disaster Risk Management
National Disaster Risk Management Framework, Pakistan - NDMA

32. Disaster Early Warning
Pakistan Meteorological Department (flood, cyclone, droughts, Seismic monitoring)
Flood Forecasting Division (FFD)
National Seismic Monitoring and Tsunami Early Warning Centre
Tropical Cyclone Warning Centre
Drought Monitoring and Warning System
Space and Upper Atmosphere Research Commission (SUPARCO) (flood, cyclone, drought)
Irrigation Department and IRSA for floods
WAPDA
WAPDA: collection of rainfall data from telemetric rain gauge stations and provide hydrometric flood data at water regulation barrages.
irsa indus river system authority

33. NDMA Website

34. Discussion/Comment/Question