ISDR. Special Issue on Drought Risk Reduction United Nations International Strategy for Disaster Reduction Regional Office for Africa

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1 Specia Issue on Drought Risk Reduction 2012 ISDR United Nations Internationa Strategy for Disaster Reduction Regiona Office for Africa UNISDR Africa UN Compex Bock N, Leve 2 PO Box 47074, Gigiri, Nairobi, Kenya Te: Fax: ISDR-Africa@unep.org ISDR United Nations Internationa Strategy for Disaster Reduction Regiona Office for Africa

2 Africa Informs Specia Issue on Drought 2012 Africa Informs is a pubication produced by UNISDR Africa. We share updates, ongoing campaigns, nationa patform activities, essons earnt, and genera news information on disaster risk reduction in the Sub Saharan Africa region.

3 Disaster Reduction in Africa ISDR Informs Produced by United Nations Internationa Strategy for Disaster Reduction Regiona Office for Africa (UNISDR Africa) Overa Guidance and Supervision Dr. Pedro Basabe Head of UNISDR Regiona Office for Africa Genera Production and Editing Ms. Rhea Katsanakis Copy Editors Ms. Sarah Wakasa Ms. Caire Babo Photographs UNISDR, IRIN News, Oxfam GB Design & Layout UNON Pubishing Section Printed by UNON, Pubishing Services Section, ISO 14001: certified. Discaimer The information and opinions expressed in this pubication do not necessariy refect the views of the UNISDR Secretariat. The artices presented are a compiation of inputs from different DRC stakehoders. Find out more about disaster risk reduction with UNISDR Secretariat Geneva, Switzerand Te: /8907 Fax: isdr@un.org UNISDR Africa UN Compex Bock N, Leve 2 PO Box 47074, Gigiri, Nairobi, Kenya Te: Fax: ISDR-Africa@unep.org The production and printing of this pubication is made possibe thanks to the financia support of the European Commission Humanitarian Aid Department (ECHO). To subscribe quartery newsetters pease send your fu name, organization and address to ISDR-Africa@unep.org. 2

4 Tabe of Contents Acronyms...2 Foreword...5 A. Institutionaization of Drought Risk Reduction, egisation, poicy and panning...7 Disaster Risk Reduction: Looking into the Future Disaster Resiience East African Community (Eac)... 8 Overview of Drought Risk Reduction in the Igad Region Towards the impementation of the Uganda Nationa Disaster Preparedness and Management Poicy An innovative approach to drought management in Kenya: the estabishment of the Nationa Drought Management Authority and Nationa Drought and Disaster Contingency Fund B. Drought Eary Warning, Drought Risk and Vunerabiity mapping incuding Data Coection...17 Managing the risk, not the crisis. Lessons from the Horn of Africa Disaster Risk Profiing in Ethiopia: Stepping Stone to Disaster Risk Reduction Bridging the gap, Cimate Forecasts and Disaster Risk Reduction: Case of Ethiopia Drought Eary Warning System in Karamoja C. Buiding Capacity for Drought Risk Reduction...27 Pastoraist Fied Schoos: Drought Risk Reduction in Practice Disaster Loss Databases as a Too for Drought Risk Reduction Panning Appication of Cimate Information, GIS and Remote Sensing for Drought Risk Reduction The Muti-Stakehoder Approach: Drought Risk Reduction In South Africa D. Improving Access to Services in Drought prone areas...39 South-South Adaptation Knowedge Sharing: Senega Eco-Viages and Kenya Eco-Communities Kenya edges coser to mainstreaming DRR in Schoos. Heath and Cimate Change Disaster Risk Reduction: An NGO Partnership Approach to Buiding Community Disaster Resiience Buiding in Africa Connecting with Change: A Risk Management Approach to the Drought Crises E. Drought Preparedness, Contingency Panning, Contingency Funding, Eary Action Measures...51 Karamoja Productive Assets Programme (Kpap) By Wfp Comprehensive Drought Risk Management in Ethiopia: The Liveihoods, Eary Assessment and Protection Project (LEAP) F. Coordination and Partnership for Drought Risk Reduction...57 Drought Risk Reduction Specia Topic: The Importance of a Coordinated Approach Ending Drought Emergencies: wi the promises of the Nairobi Strategy be met? How functiona coordination mechanisms can acceerate drought risk reduction

5 Acronyms ACMAD ACTED AMCEN AUC AWG CMDRR CORDAID CSCDRR COP15 DRMFSS DRR EAC ECCAS ECOWAS ECHO EWS FAO HOA HFA ICPAC IGAD IOC IPCC IRIN MDG NAPA NASRDA NDMA NDMC NEPAD NPCA NMHS PRSP RECs REGLAP RCM SADC UN UNCD UNDAF UNDP UNDP BCPR DDC UNEP UNFC UNICEF UNISDR UNOCHA WB GFDRR WDR WFP WHO WMO African Centre of Meteoroogica Appication for Deveopment Agency for Technica Cooperation and Deveopment Africa Ministeria Conference on the Environment African Union Commission Africa Working Group on Disaster Risk Reduction Community Managed Disaster Risk Reduction Cathoic Organisation for Reief and Deveopment Aid Civi Society Coaition on Disaster Risk Reduction 15th Session of the Conference of the Parties Disaster Management and Food Security Sector Disaster Risk Reduction East African Community Economic Community of Centra African States Economic Community of Western African States European Commission Humanitarian Aid Department Eary Warning Systems Food and Agricuture Organization Horn of Africa Hyogo Framework for Action IGAD Cimate Prediction and Appications Centre Intergovernmenta Authority on Deveopment Indian Ocean Commission Internationa pane on cimate change Integrated Regiona Information Networks Miennium Deveopment Goa Nationa Adaptation Programmes of Action Nationa Space Research and Deveopment Agency Nationa Disaster Management Agency Nationa Disaster Management Counci The New Partnership for Africa s Deveopment Panning and Coordinating Agency Nationa Meteoroogica and Hydroogica Services Poverty Reduction Strategy Paper Regiona Economic Communities Regiona Liveihoods Advocacy Project Regiona Coordination Mechanism Southern African Deveopment Community United Nations United Nations Convention to Combat Desertification United Nations Deveopment Assistance Framework United Nations Deveopment Programme United Nations Deveopment Programme Crisis Prevention and Recovery Dryands Deveopments Center United Nations Environment Programme United Nations Framework Convention on Cimate Change United Nations Chidren s Fund United Nations Internationa Strategy for Disaster Reduction United Nations Office for the Coordination of Humanitarian Affairs Word Bank Goba Faciity for Disaster Reduction and Recovery Word Disasters Report Word Food Programme Word Heath Organization Word Meteoroogica Organization 4

6 Foreword The 2010/2011 drought, which affected the Horn of Africa, in particuar the pastoraist communities in Kenya, Ethiopia and Somaia, and caused migration across the borders, immense oss of ivestock as we as human osses, with more than 13 miion peope affected 1, was not un-expected. Indications of the drought conditions were received as eary as September 2010; nevertheess few coordinated preventive measures were undertaken to respond to the predictions. Athough possibe drought mitigation measures are known by many actors who are working in drought prone areas in the region, it was ony when The CNN Effect tricked in, when pictures of starving chidren, dying ivestock and dried out waterhoes were shown on TV, that internationa aid agencies and the government started to act. This is not ony to the despair of affected communities, who fee eft aone unti ives and iveihoods have aready been ost, but aso to the frustration of both deveopment and humanitarian actors as they have stressed in numerous discussions which took pace in the Horn of Africa. The question posed over and over again is: Why was there no eary action foowing the eary warning? There are many conficting professiona opinions circing around answering this question. The fourth Africa Drought Adaptation Forum, organized by UNISDR Regiona Office for Africa and the UNDP DDC Office in Nairobi in October 2011 discussed key gaps affecting the ong-term drought adaptation and mitigation efforts in the Horn of Africa with experts, government officias and community members from the African continent as we as from Asia and Europe. One chaenge, which cas for improvement of the existing eary warning systems in the Horn of Africa, is the sow dissemination of warnings which do not reach the oca eve in some cases. If they do, sometimes they are not understood by end users, and if understood, capacity to actuay act on them is weak. Some partners indicate that athough there are dedicated deveopment funds as we as there are dedicated humanitarian funds, there is a time gap between the two. Whie deveopment funding is very sow in process and it cannot ad hoc be appied for, humanitarian funding is faster to access but is granted ony once a humanitarian crisis has aready unfoded. The critica period in which cimate and meteoroogica forecasts indicate the high probabiity of a drought condition to materiaize but in which no expert can give indications which are 100 per cent sure to happen, neither of the two funding streams are avaiabe. This is unfortunate though the period which decides the intensity of the impact of the drought on ives and iveihoods, and this is the period in which drought risk reduction measures have the highest chance of success. Equay sim are budgetary provisions from government side since there is hardy aocation for disaster risk reduction or mitigation funds, athough some governments do have emergency funds estabished, which ike the humanitarian funding can be accessed for response and reief activities, but ony when the time window for drought risk reduction activities has aready cosed. Another chaenge for eary response is the adequate panning which is often acking. Whie there are deveopment pans as we as contingency pans, which are highy response focused, there are no pans which can be triggered by the eary indications of the crisis, and which can be appied when it is sti eary enough for drought risk reduction measures to be carried out. This shows again the need for bridging the gap between deveopment and humanitarian action. Finay it is evident, that drought prone areas in the Horn of Africa do not have access to basic services. Apart from water and food, which come to mind immediatey, access to education and heath services is either reduced or amost nonexistent especiay for pastoraist communities which are dependent on fodder for their ivestock. There is no access to markets which means that in case of drought, pastoraists cannot destock ocay, but need to trave very far to se their ivestock; by the time they reach the big markets in the big cities the condition of the animas has often deteriorated so much, that ony a sma percentage of their economic vaue can be recovered. In this Specia Issue on Drought of the UNISDR Africa Informs Magazine, which has been possibe through the financia contribution of ECHO, we are ooking at drought risk reduction through the ens of the Hyogo Framework of Action (HFA), the goba framework for disaster risk reduction. We woud ike to feature the exceent work which is being done throughout the African region, by putting it into perspective as a hoistic approach is necessary to achieve better resiience to drought in the future. By Pedro Basabe, Head, UNISDR Regiona Office for Africa 1 A Dangerous Deay, Save the Chidren/OXFAM, January

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8 Photo/IRIN News Institutionaization of Drought Risk Reduction, egisation, poicy and panning 7

9 Disaster Risk Reduction: Looking into the Future Disaster Resiience East African Community (Eac) A specia date with the EAC Deputy Secretary Genera in charge of Productive and Socia Sectors (DSG,PSS), Mr. Jean Caude Nsengiyumva Interviewer: What is your perception of Disaster Risk Reduction and its appicabiity to EAC panning? EAC DSG: According to UNISDR, Disaster Risk Reduction is defined as the concept and practice of reducing disaster risks through systematic efforts to anayze and manage the causa factors of disasters, incuding through reduced exposure to hazards, essened vunerabiity of the peope and property, wise management of and and environment, and improved preparedness for adverse events. Two key words appear immediatey one ooks at this definition; concept and practice. Concept refers to ideoogica perception of a phenomenon or an occurrence. It is the first impression or conceptuaization of an event. If the concept is weak, the outcome of the process wi have itte or no impact. The other word practice refers to rehearsa or the exercise that you repeatedy do to perfect your performance. The definition goes further to inform that, to reduce disaster risks, we need to anayze and manage. Anayze refers to inspection or an evauation of what is existing with a view of taking stock of what you own and possess. Finay to manage woud refer to the accompishment of an undertaking or bring to fruition what you have initiated. A good disaster risk reduction set-up wi ca for a simpe concept which is suitabe for impementation and community friendy with simpe practices, focused anaytic thinking and good management principes. This wi guarantee a very high impact on disaster risk reduction phiosophy. This is the thinking that EAC wants to advance as we move forward to integration of DRR into our deveopment programmes. Remember that the majority of our communities are poor and we need to be innovative to move ahead with them as we improve on their iveihoods through improved resiience to disasters. Interviewer: Coud you briefy highight what exists at the EAC in terms of DRR appication? EAC DSG: At the conceptua eve, EAC has aready drawn its disaster risk management framework which has been adopted for impementation by the meeting of the Counci of Ministers in charge of Environment and Natura Resources. The framework starts with critica anaysis of what exists in the region in terms of DRR capacities. What is avaiabe at each Partner States eve? Which disasters are of priorities and what are root causes of community vunerabiities? At the practica eve, the EAC intends to invove the communities themseves at a eves to map out their disaster and risks in a participatory manner. This wi enhance ownership, trust and commitment by the communities. However, this practice wi aso be supported and suppemented by modern technoogy to further ascertain the accuracy. The advancement of space technoogy via Remote Sensing and Geographic Information System (GIS) wi be appied for accuracy and suppement community initiatives. Interviewer: What do you think are the major disaster risk chaenges facing the EAC region? EAC DSG: The chaenge of managing disasters is one of the most compex deveopment issues in our region today with droughts, foods, and other cimate-reated hazards constituting a critica part of these chaenges that, if unchecked, are ikey to sow down growth and the integration process in the region. Disasters in East Africa are having a ot of impact in terms of both human and economic oss because of the high vunerabiity of the region s peope and institutions. Cimate change and variabiity have compounded the chaenges to the extent that avaiabe indigenous knowedge can no onger provide soutions to address new chaenges. It has resuted into more severe disasters in the region particuary resuting from food and droughts. Emerging sma scae hazards such as fash foods, andsides, frost, hai and ightening has gone unnoticed at the nationa eve but have serious impacts at the oca eve. The frequency of these has aso increased due to cimate change. Changing rainfa patterns has resuted 8

10 into shifting of disaster hot spots to new areas making the community very vunerabe because they are not used to such disasters. For instance, weath of oca knowedge on food coping mechanisms in new drought areas cannot be appied by oca communities which are mesmerized by such occurrences. In another exampe, highand maaria cases being reported in areas where they have never been before catches the community unaware resuting in oss of ife. There is need therefore, to mobiize resources to prepare for unusua events and emerging new disaster patterns. Interviewer: In view of those chaenges you have highighted, what are the key initiatives that EAC is undertaking to address them? EAC DSG: The EAC has deveoped various toos to address disaster risk management and cimate change adaptation chaenges. The EAC Cimate Change Poicy emphasizes on DRR as a too for cimate change adaptation. The fourth EAC Deveopment Strategy aso emphasizes on the impementation of the Hyogo Framework for Action and the African DRR Strategy. A Cimate Change Strategy and a Cimate Change Master Pan to impement the Poicy have been deveopment. The DRR framework inked to the above wi aso cuminate into an EAC disaster risk management strategy and guideines for its impementation. The question we are asking ourseves is whether these toos are adequate and robust enough to dea with these new and emerging dimensions of the changing environment? The EAC woud ike to take an orientation where pans are put on paper today and they are put into practice tomorrow. Strategies and poicies on paper aone wi not suffice, but if backed up with practica soutions, innovative approaches and community based programming, then and ony then wi our presence be reevant and appreciated by the communities whom we are privieged to serve. Interviewer: Coud you eaborate on the approaches that you intend to appy in addressing DRM issues in the region? EAC DSG: Without reinventing the whee, at both the regiona and nationa eves, the EAC wi carry out the impementation of its DRM framework but focusing more on disaster risk reduction interventions across a broad spectrum that wi ensure substantia reduction of disaster risks; promotion of preparedness for risks; deveopment of risk transfer undertakings; managing of residua risks; and coping with current cimate impacts and adapting to future changes. What do I mean by this? The EAC whie deveoping its capacity for DRR wi tap on existing capacities and institutiona set-up. The risk identification wi be carried out nationay and regionay to inform the deveopment of hazard eary warning systems and disaster preparedness in genera. We sha request and convince the partner states to set aside some minimum budget in their deveopment panning for disaster risk reduction and cimate change adaptation. We wi urge partner states to initiate risk financing arrangements to aeviate macro and micro economic osses due to disasters. This can be based on we-known good risk transfer modes ike the weather indexing mode which has paid off in Maawi and other regions. The EAC is cognizant of the fact that, disasters can never be fuy controed. As such, in order to mitigate risks, the Secretariat wi deveop and recommend to partner states minimum operating procedures for improving emergency response and risk reduction in recovery. Finay, we cannot run away from the impacts of the changing cimate. We wi work with partner states on adaptation to cimate change programmes to hep communities cope with current cimate variabiity whie mitigating the impacts of future changes. Interviewer: Coud you comment on the existing DRM structure in the EAC Secretariat? EAC DSG: Currenty, disaster risk management is under the Department of Environment and Natura Resources. The Disaster Risk management framework that the EAC wi be impementing, has recommended the creation of Disaster Risk Management Unit under the direct supervision contro of the Secretary Genera s office. The EAC Secretariat is currenty undertaking an institutiona review with the objective of streamining operations, harmonizing activities, maximizing productivity and effective resource utiization. The DRM structure wi be considered aongside other proposas but wi be created in due course. Thank you very much Deputy Secretary Genera Interview conducted by: Juius N. Kabubi EAC-Disaster Risk Reduction Advisor E-mai: jkabubi@eachq.org or February

11 Overview of Drought Risk Reduction in the Igad Region By Adan Bika, DRR Advisor to the IGAD Secretariat On one hand drought risk management or disaster risk management in genera is often entrusted to institutions that have their traditiona strength in emergency response. These institutions are sow in adapting a more proactive drought risk reduction and preparedness approach and as this requires the cooperation of other productive and socia sectors, adjustments coud not be made on time. In a number of countries the DRR systems do not address the fu range of the twin hazards of confict and drought, athough the two affect each other. (Photo/IRIN News) Drought is the singe most important chaenge in the Greater Horn of Africa. Disasters induced by drought account for about ninety percent of a disasters in the Region. Drought sets off a vicious cyce of socioeconomic impacts beginning with crop-yied faiure, unempoyment, erosion of assets, decrease in income, worsening of iving conditions, poor nutrition, and, subsequenty, decreased coping capacity, and thus increasing vunerabiity of the poor to another drought and other shocks as we as the risk of poitica instabiity and, in some cases, confict. The situation is compounded by the ong-term trends reated to popuation growth, urbanization and environmenta degradation, couped with other natura hazards. The combination of a of these factors turns shocks such as droughts and other type of hazards into catastrophic osses for the most vunerabe groups. A recent assessment undertaken in Horn of Africa countries by Ministries of Finance and the Goba Faciity for Disaster Reduction and Recovery (GFDRR) has ceary demonstrated the coossa osses and damages to the overa nationa economies in the region. Drought is a sow-onset hazard, which provides time to consider and address its compex root causes, such as peope s vunerabiities and unsafe conditions reated to poverty, fragie oca economy, iveihoods at risk, ack of strategies and pans, imited institutiona capacities and resources. Understanding the root causes shoud aow government authorities to undertake effective drought mitigation and preparedness measures.the understanding that drought is a major threat to ives and iveihood is amost universa especiay in ight of the recent crisis in the Greater Horn of Africa. The question remains why are there deays in impementation? On the other hand drought has become more frequent and often does not aow time for recovery and rehabiitation of iveihoods before the next crisis hits. Another chaenge is that the scae and severity of the crisis of 2011were not fuy appreciated. And asty, other competing nationa priorities imited the focus on the crisis, and confict in parts of the region restricted access to vunerabe popuations. This is in no way an excuse for the ack of eary response, even as eary warning indications pointed towards a deveoping humanitarian crisis, but expains additiona factors which contributed to it. The major expanation for the ate action can be found in what happened prior to the crisis. History of Disaster Management Institutions in the Igad To their credit, the IGAD member states have designated institutions that hande humanitarian issues. These institutions are housed in various ine ministries and have made attempts to deveop various poicies. With the exception of Uganda most states have their disaster management poicies in draft stage and are in a situation in which they use draft poicies as a guide to hande the crisis but ack fu ega impementation basis. The ack of poicy approva ceary creates a gap that eads to weaknesses that impacts effective drought management negativey. Without the poicy anchorage and subsequent ega framework, sow-onset hazards do not compete effectivey for attention with issues that deveop more rapidy. The current situation is rooted in the origin of the institutions, as many of them were put in pace as a reaction to a particuar crisis in the past and were retained to work on a onger-term basis ater on. A good exampe is the existence of the Department of Refugees & Resettement under the Ministry of Loca Government and Department of Reief & Rehabiitation in the Ministry of Labor and Socia Deveopment, which were put up in Uganda to hande a refugee crisis. In 1999, the two were merged to form the Department of Disaster Preparedness and Refugees, due to the cose reationship in their mandates. The new Department was paced under the Office of the Prime Minister to strengthen its poitica infuence. Given main 10

12 function of coordinating a payers in Disaster Management it remained argey under-staffed and response-oriented In Ethiopia the 1973 famine took pace against a background of a non-existent Disaster Management System and an adhoc response to the crisis resuted in massive fataities, and ed to the formation of the Reief & Rehabiitation Commission (RRC), which in 1995 evoved into the Disaster Prevention and Preparedness Commission (DPPC). Further evoution ed in 2004 to the formation of Disaster Prevention and Preparedness Agency (DPPA), shifting the focus from crisis management to risk management in The Disaster Risk Management and Food Security Sector (DRMFSS) is the institution handing drought management in Ethiopia since The situation is simiar in a other IGAD states and woud require a compete evauation of these institutions if there are were to take up new chaenges ike cimate change. The Confict Component to the Crisis The effects of drought are mutipied by cimate change and human vunerabiity such as poverty, over expoitation of water resources, the poor maintenance of infrastructures of water suppies, insufficient restriction on water usage, overgrazing and deforestation. The effects of drought were very severe in Somaia where a arge proportion of the popuation was affected. These were exacerbated by the unreiabe rains and proonged dry seasons. The recent drought indicates in many viages and towns in Somaia that it has gravey affected the genera iveihood of rura peope and their ivestock. The environment in Somaia has been degraded by peope who depend on charcoa for their surviva. But wars and civi unrest have aso become a serious cause of food insecurity in the region, disrupting food production and marketing activities. In a number of countries the disaster risk management systems do not address the fu range of the twin hazards of confict and drought, athough the two affect each other. The concept of disaster risk management incudes a parts of administrative and poicy panning; it is a cross-cutting issue that affects every sector of society, but aso shoud incude man-made and natura disasters. Towards a Comprehensive Poicy Drought risk reduction poicy deveopment and impementation is not a standaone undertaking of the disaster management institutions, but needs other sectors to be cosey invoved. For exampe is increased food production in a cimate-smart way one soution for In reation to the poicy eement outined in the drought risk reduction framework the foowing guiding principes are provided: 1 Poitica commitment, high-eve engagement, strong institutiona setting, cear responsibiities both at centra and oca eves and appropriate governance are essentia for integrating drought risk issues into a sustainabe deveopment and disaster risk reduction process, 2 A bottom-up approach with effective decentraization and active community participation for drought risk management in panning, decision making and impementation, is essentia to move from poicy to practice, 3 Capacity buiding and knowedge deveopment are usuay required to hep buid poitica commitment, competent institutions and an informed constituency, 4 Drought risk reduction poicies shoud estabish a cear set of principes or operating guideines to govern the management of drought and its impacts, incuding the deveopment of a preparedness pan that ays out a strategy to achieve these objectives, 5 Drought-reated poicies and pans shoud emphasize risk reduction (prevention, mitigation and preparedness) rather than reying soey on drought (often turned into famine) reief, 6 Drought monitoring, risk assessment and other appropriate risk reduction measures are principa components of drought poicies and pans, 7 Institutiona mechanisms (poicy, egisative and organizationa) shoud be deveoped and enforced to ensure that drought risk reduction strategies are carried out, and 8 Sound deveopment of ong-term investment in risk reduction measures (prevention,mitigation and preparedness) is essentia to reduce the effects of drought. 2 ong term drought management, another is storage and stockpiing of food reserves. Poicies need to address different sectors such as agricuture, ivestock, empoyment, energy, food processing, storage, and marketing, which a have an impact on effective drought management. Disaster risk reduction poicies are one precondition to impement the first priority of the Hyogo Framework of Action, which has been acknowedged by a number of IGAD member states. 1 Drought Risk Reduction Framework and Practices: Contributing to the Impementation of the Hyogo Framework for Action Pubished by the United Nations secretariat of the Internationa Strategy for Disaster Reduction (UNISDR), Geneva, Switzerand, in partnershipwith the Nationa Drought Mitigation Center (NDMC), University of Nebraska-Lincon, Lincon, Nebraska, U.S.A. August Drought Risk Reduction Framework and Practices: Contributing to the Impementation of the Hyogo Framework for Action, page 19 11

13 In the UNISDR Drought Risk reduction Framework and Practices 2 pubication the main eements of a drought risk reduction framework have been proposed in ine with the five priorities of the Hyogo Framework for Action, as foows: I) Poicies and governance for drought risk reduction, ii) Drought risk identification, impact assessment and eary warning, iii) Drought awareness and knowedge management, iv) Reducing underying factors of drought risk, and v) Effective drought mitigation and preparedness measures. Most eements of such a drought risk reduction framework are not yet fuy in pace in IGAD member states and governments shoud emphasize the estabishment of the same. Coordination needs among Igad Member States Without doubt a ot of knowedge on drought is avaiabe in the IGAD region, it is important that information is shared among stakehoders to ensure mutua benefits are drawn from coective experience. Poitica commitment, higheve engagement, strong institutions and appropriate governance are essentia for buiding and maintaining the necessary support to formuate and impement drought poicies and to integrate drought risk reduction into a disaster risk reduction and sustainabe deveopment process. The process of drought risk reduction and its mainstreaming into nationa deveopment frameworks shoud be participatory, invoving a wide range of stakehoders such as nationa and oca governments, community-based and civi society organizations, regiona and sub-regiona organizations, mutiatera and biatera internationa bodies, the scientific community, the private sector and the media. Drought risk reduction shoud therefore be integrated into the aready existing nationa patforms for disaster risk reduction, which have been estabished in most IGAD countries and comprise of a stakehoders reevant to drought. Instead of deveoping a new mechanism subpatforms on drought risk reduction shoud be estabished out of the wider patform for disaster risk reduction. IGAD has aso recenty estabished an IGAD sub-regiona patform for DRR, which gathers a DRR nationa foca points to discuss trans-boundary concerns and supports a consoidated approach to disaster risk reduction, entaiing drought risk reduction in the IGAD region. By strengthening coordination efforts, we wi utimatey be abe to address drought risk more efficienty and hopefuy experience fewer osses due to drought which is not a sudden and unexpected phenomena but a reaity we have to ive with and we can ive with in the Horn of Africa. 12

14 Towards the impementation of the Uganda Nationa Disaster Preparedness and Management Poicy By Samue Akera, UNISDR DRR Advisor to Uganda After neary a decade of being revised, the Uganda Nationa Disaster Preparedness and Management Poicy has been approved by Cabinet in Apri This makes Uganda the ony country in the Greater Horn of Africa with an approved Disaster Risk Reduction poicy. It aso further demonstrates a cear commitment of the Government of Uganda to impement the five priorities of the Hyogo Framework for Action (HFA), particuary priority 1 Ensure that disaster risk reduction (DRR) is a nationa and oca priority with a strong institutiona basis for impementation. The Disaster Preparedness and Management Poicy recognizes the vunerabiity of Ugandans to at east 20 different hazards, incuding drought, foods and andsides. Avaiabe statistics demonstrate the chaenges posed by both natura and human induced hazards to economic growth of Uganda. According to the Uganda Bureau of Statistics (UBOS), between the years 2000 to 2005, 65.7 per cent of househods in Uganda experienced at east one type of disaster. As additiona evidence a preiminary anaysis conducted in December 2011 from the recenty created Uganda nationa disaster oss database reveas that more than 50 percent of the popuation in Uganda is affected by drought whie 18 percent are affected by foods. The estabishment of the nationa disaster oss database is an initiative of UNISDR to support the Uganda nationa patform for DRR. It is based on a methodoogy and software too caed Disaster Inventory System (in its Spanish origina name DesInventar Sistema de Inventario de Desastres ) and incudes historica data on a hazards and their reated osses, detaied by province and county, which have occurred in a given country over a time period of 20 to 30 years. In Uganda for exampe, the Mt. Egon districts have over the years experienced andside disasters of various magnitudes. The worst andside was recorded in March 2010 in Bududa district when 365 peope were kied instanty. With more than 200,000 Ugandans affected every year by disasters, it is now apparent that not ony is disaster oss and damage on the rise, but aso that disasters are increasingy becoming a major obstace to sustainabe deveopment Is Uganda the ony country in the Greater Horn of Africa with an approved Disaster Risk Reduction poicy. It demonstrates a cear commitment of the Government of Uganda to impement the five priorities of the Hyogo Framework for Action (HFA) and the achievement of the Miennium Deveopment Goas (MDGs) in Uganda. With the impact of cimate change, Uganda is aready experiencing stronger impact of natura hazards, and the disaster patterns are increasing. The mission of the disaster preparedness and management poicy is therefore to create an effective framework through which disaster preparedness and management is entrenched in a aspects of deveopment processes, focusing on saving ives, iveihoods and the country s resources. The poicy is centered around seven poicy objectives which are directy in ine with the five priorities of the Hyogo Framework for Action. The approva of the Disaster Preparedness and Management Poicy is certainy a step in the right direction. However, there is now urgent need to transate the approved poicy into tangibe actions. In ine with this view, the Department of Disaster Preparedness and Management in the Office of the Prime Minister, the ead Government institution for DRR in Uganda requested technica assistance from UNISDR Regiona Office for Africa and UNDP to ead the Nationa Patform for DRR in deveopment of a strategic pan for impementing the approved poicy. The Nationa DRR Advisor depoyed by UNISDR and supported by funds from the European Union to work with the Nationa Patform for DRR in Uganda, deveoped a roadmap for the deveopment of a five-year strategic nationa action pan ( ). The road map was presented to the nationa patform for DRR in September As Uganda wants to deveop the strategic nationa action pan using a muti-stakehoder approach it was agreed that the process woud be a bit more engthy but highy incusive. The strategic nationa action pan wi be a medium term too to further strengthen the nationa patform for DRR by acting as a guide to designing, panning, financing, impementing, monitoring and evauating of DRR activities in Uganda. In the ong run, this wi aso contribute to efficient decentraization of disaster risk reduction and management to district disaster management committees which wi hopefuy enhance DRR capacities at oca eve. 13

15 An innovative approach to drought management in Kenya: the estabishment of the Nationa Drought Management Authority and Nationa Drought and Disaster Contingency Fund By Vanessa Tistone, 1 MEL Manager, REGLAP The current crisis in Kenya has highighted the need for new thinking on drought management in the ASALs, as we as an urgent need for increased co-ordination and coherence in ong-term and short-term efforts to promote resiience. This artice ooks at the innovative approach being proposed by the Kenyan Government in creating the Nationa Drought Management Authority (NDMA) and its associated Nationa Drought and Disaster Contingency Fund (NDDCF). This approach views drought as very different from rapid onset disasters, the management of which has far more in common with sustainabe deveopment than with disaster response. The NDMA has just been approved and wi need poitica wi and the efforts of a stakehoders to make sure that it is estabished as quicky and effectivey as possibe, whie ensuring it stays true to its origina intention of bringing new thinking to tacking drought in the dryands. It aso requires the urgent approva of the Sessiona paper on the Nationa Poicy for the Sustainabe Deveopment of Northern Kenya and other Arid Lands to provide a compete poicy framework for the NDMA. The artice is structured around frequenty asked questions on the NDMA. What is the poicy framework behind the NDMA? The draft Sessiona Paper on the Nationa Poicy for the Sustainabe Deveopment of Northern Kenya and other Arid Lands envisages the estabishment and operation of a Nationa Drought Management Authority (NDMA) and Nationa Drought and Disaster Contingency Fund (NDDCF) under chapter 6 (Institutiona Framework for ASAL). The paper is currenty in the Cabinet Office. Given the busy poicy and egisative agenda, it was decided to seek approva for the NDMA through an Executive Order, signed by the President, whie the poicy awaits approva. Estabishment of the NDMA is aso buttressed by the foowing motion passed in the Nationa Assemby on 22 Juy 2009: THAT, aware that northern Kenya and other arid ands face perennia drought of a cycic nature; mindfu that this occasions severe negative economic, socia and environmenta effects; noting that currenty responses to drought are reactive due to ack of proactive measures; concerned that the country acks a ega framework designed to mitigate these probems; this House urges the Government to estabish a Drought Management Authority responsibe for drought preparedness and response, incuding forecasting, impact assessment and management poicy, drought preparedness and mitigation. Why is there a need for a drought management authority in addition to a disaster management directorate? The NDMA is intended to bring new thinking to tacking drought in the dryands (Photo/Oxfam)) Droughts are predictabe, sow-onset phenomena, the management of which requires a very different ski-set and mind-set to disaster response. Drought eary warning and response is a particuar speciaism that has far more in common with sustainabe deveopment than with disaster response. In an idea word droughts shoud never become disasters. If drought management were to become a sub-set of disaster management, it is ikey to get overshadowed by the more high-profie work that s needed when disasters strike. This is particuary probabe as drought argey affects the ASALs, which are sti recovering from decades of marginaisation and under-deveopment 1 Based on interviews with staff of the Ministry of State for Deveopment of Northern Kenya and other Arid Lands. 14

16 and need continued specia attention and focus. The crucia part of drought management is ensuring that action is undertaken during the norma or aert stages of the drought cyce (i.e. when there is no disaster ). This requires a shift in thinking and practice, and unti this is achieved we wi continue to have drought emergencies. How wi the proposed NDMA reate to the Disaster Management Directorate? The Disaster Management Directorate, as outined in the Nationa Disaster Management Poicy, wi focus on rapid onset disasters, preparedness and response. The thrust of the Disaster Management Poicy gives imited attention to the issues of sow onset disasters and the need for ongterm deveopment. When both the NDMA and Disaster Management Directorate are estabished they woud work cosey together, if and when droughts evove into crises. Which institution with the Drought Management Authority reate to? The Nationa Drought Management Authority is paced under the genera direction of the Minister responsibe for drought management. At present this is the Minister of State for Deveopment of Northern Kenya and other Arid Lands. Which areas of the country wi the NDMA focus on? The NDMA is a nationa institution. Contingency funds shoud ony be made avaiabe to counties that a) have a functioning community-based eary warning system in pace, and b) have an effective contingency panning system and co-ordination structures in pace. At present these are the 28 (arger) districts where the Arid Lands Resource Management Project (ALRMP) has been working. How wi the NDMA ensure that ongterm deveopment pans focus on buiding resiiency to drought? the responsibiity of the county panning unit). The precise institutiona arrangements at county eve, incuding ongterm coordination structures for a stakehoders, are being worked out. At a nationa eve, the NDMA wi provide eadership in ensuring impementation of the Ending Drought Emergencies country strategy paper presented at the Horn of Africa Summit in September This paper argues that it is ony through investment in the ong-term foundations for deveopment that drought emergencies wi be ended. The NDMA wi ensure coordination of a stakehoders through the Kenya Food Security Meeting (KFSM) and the more technica Kenya Food Security Steering Group (KFSSG) structures (to be reviewed) and through wider ASAL deveopment coordination structures, ed by the ASAL Secretariat. What measure wi be in pace to prevent corruption? The most sensitive area is reated to the disbursement of Drought Contingency Funds (DCF). In this regard, the EUfunded Drought Management Initiative (DMI) has faciitated a review of the business process for DCFs and finaised specifications for web-based software (a fund management too) that wi hep the Nationa Drought Contingency Fund to systematicay organise information reated to the use of contingency funds. This is expected to improve reporting and monitoring of the use of DCFs, and therefore enhance accountabiity and transparency. Moreover, both the NDMA and the NDDCF wi have their own audit functions, which shoud ensure enforcement of tight contro measures at the district eve. It has been agreed that the contingency fund (the Nationa Drought and Disaster Contingency Fund) wi have two components: one that disburses funds for eary response to drought (i.e. we before signs of crisis are apparent) and a second that disburses funds for quick action in the wake of rapid-onset disasters. The two components wi have separate management arrangements, in ine with the genera intention to separate these two distinct functions, but combining them in one body is judged to be a more cost-effective option that wi avoid the proiferation of mutipe institutions. An important roe for the county drought managers wi be to ensure that drought risk reduction is appropriatey mainstreamed within county deveopment pans (which are 15

17 16

18 Photo/ Oxfam Drought Eary Warning, Drought Risk and Vunerabiity mapping incuding Data Coection 17

19 Managing the risk, not the crisis. Lessons from the Horn of Africa By Debbie Hiier, Humanitarian Poicy Adviser, Oxfam nutrition, and are becoming more sophisticated and predictions more reiabe. They produce a weath of information, on a reguar basis, which is widey accessibe. This information can be used to stimuate a response both in terms of scaing up ong-term programming, and preempting the need for emergency intervention. Why did this not happen? There may be scope for fine-tuning the EWS to ook at chronic vunerabiity. However it is cear that the EWS provided accurate and timey information that enabed those in positions of power to pan and respond. FEWSNET and FSNWG reports were graded as very good to exceent in terms of their accuracy in predicting the severity and onset of the crisis. 2 There were strong and cear warnings for the food security crisis in the Horn of Africa as eary as November 2010, with the spectra of ocaized famine conditions in Somaia ooming for the first time in March. 1 Athough many agencies started to intervene from December, the internationa humanitarian community as a whoe did not respond at scae unti after the rains had faied at the end of May. By the time the humanitarian response reay geared up Juy-September - many peope had gone into debt, many had ost their iveihoods, some irretrievaby, many were suffering extreme hardship, particuary women and chidren, and some were osing their ives. This faiure foows the patterns of previous droughts - the Sahe in 2005 and 2010, in Kenya in 2005/6 and 2008/9 and represents a systemic faiure that must be tacked by the internationa community. Did the EWS do their job? Photo/Courtesy oxfam The eary warning systems anayse a range of factors, incuding weather, agricuture, ivestock, markets and Whie the eary warnings were cear, the scae (numbers of peope) and depth (severity) of the crisis sti caught many by surprise. This is party because needs assessments carried out by UN agencies or governments which are a key driver for donor interventions are pubished severa months after the assessment was done and criticay do not incorporate forecasts or predictions based on a changing situation. Thus the UN appea for Somaia, aunched in November 2010, had reativey ow figures for those in need of assistance in 2011 and faied to sufficienty refect the La Niña predictions. Utimatey, the eary warning systems performed but were ignored. Decision makers must be chaenged to deveop a system that they wi respond to. Eary response requires acting on uncertainty A humanitarian actors governments, UN agencies, donors, impementing NGOs want to be certain about the scope and depth of a ooming food crisis before responding at scae. The internationa humanitarian system ony becomes fuy operationa when Integrated Phase Cassification (IPC) phase 4 emergency has been reached. 3 But it is we understood that saving iveihoods as we as ives requires an earier response. 1 FEWSNET FSNAU, WFP, KFFSG, FAO, FSNWG: East Africa Food Security Aert March 15, Beow-average March to May rains forecast in the Eastern Horn current crisis ikey to worsen 2 Mija-tesse Ververs (2011) East Africa Food Security Crisis an overview of what we knew and when before June img/documents/eary-warning-and-information-systems-in-east-africa-acaps-eary-warning-and-information-systems-in-east-africa.pdf 3 Phase 4, the Emergency, is characterised by the foowing: when the househod group experiences short-term instabiity; and the househod group has extreme food consumption gaps resuting in very high acute manutrition or excess mortaity; or the househod group has extreme oss of iveihood assets that wi ikey ead to food consumption gaps. See IPC Acute Food Insecurity Reference Tabe for Househod Groups, 18

20 The Government of Kenya has expicity recognised that response is reactive and dominated by crisis management rather than anticipatory and preventive risk management. 4 Cruciay, waiting unti the emergency is fuy estabished transfers the risks and consequences of inaction onto vunerabe peope themseves. Responding on the basis of forecasts instead of hard data requires a shift in deaing with uncertainty. 5 Forecasts invove uncertainty: they are inevitaby based on data which is not totay comprehensive and are tinged with judgement; the earier the warning, the ess accurate it is ikey to be. Yet this uncertainty is not unquantifiabe standard risk management techniques aow us to convert this uncertainty into risk, which can then be managed and minimised. The probabiity that a hazard wi occur shoud be considered against its impact. Using this ogic, it woud have been cear from around January 2011 that the high probabiity of poor March May rains in the Horn of Africa, magnified by the faiure of the previous rains in ate 2010, woud constitute a critica risk that needed to be addressed immediatey. The principes of risk reduction and management are we accepted in other fieds, such as insurance, where paying money upfront is regarded as a responsibe approach to prevent high osses in the event of a crisis, and pubic vaccination campaigns, to prevent epidemics and reduce medica costs. These principes must be embedded in short-term emergency response, onger-term deveopment work and government investment programmes. Agreeing triggers for earier response Whie many peope on the ground, particuary communities themseves, were aware of the impending crisis in January/February 2011, they were not abe to get traction further up the chain from the peope with the power to make decisions about funding and other resources. What shoud the process be? Once the EWS has fagged a potentia probem, this shoud immediatey activate a process of further investigation detaied monitoring which can be used to design interventions and the operationaisation of emergency pans. These pans need to be cear on who shoud do what, and when, but currenty there is no shared understanding of this. USAID promotes the use of triggers, but eaves their deveopment up to individua impementing agencies. 6 We need a common approach to using triggers, so that decision makers know exacty what they ought to be doing as the situation deteriorates and the consequences if they fai to act on those triggers. A actors need to work together to deveop a system of triggers that: recognises the nationa government as primary duty-bearer for meeting citizens food needs; refects the high eves of chronic manutrition in some areas; refects the exponentia rather than inear deveopment of manutrition; does not ead to interventions that undermine communities capacity to cope; is context-specific for different iveihoods zones; is agreed between different actors, just as the IPC has deveoped a standardised approach. Agreeing triggers for response is not ikey to create an automatic warning response system this is not a panacea but it wi be one important too to press for eary response. It is expected that there wi be a range of triggers for different sorts of response. So, for exampe, at an eary stage the trigger might be for advocacy, but as the situation deteriorates, it might be for a iveihood response, and subsequenty for a food/nutrition response. 4 Government of Kenya (2011). Ending drought emergencies in Kenya: A commitment to sustainabe soutions. Country Programme Paper. 7 September Forecasters warned of Horn of Africa drought ast year, 14 Juy 2011, news/forecasters-warned-of-horn-of-africa-drought-ast-year.htm 6 USAID (2007) Trigger indicators and eary warning and response systems in muti-year tite II assistance programmes, Office of Food for Peace Occasiona Paper 5, November

21 Disaster Risk Profiing in Ethiopia: Stepping Stone to Disaster Risk Reduction and preparedness but aso strengthening response, recovery and rehabiitation. With a view of estabishing this information system, DRMFSS aunched an innovative programme on Disaster Risk Profiing. This programme envisaged profiing every district in the country on risk eements (hazards, vunerabiity and capacity) with a view of: A B C examining underying causes of disaster risk and designing risk reduction programmes defining the kind of eary warning and response system that needs to be estabished in different risk contexts informing a comprehensive contingency pan at district eve Ethiopia has registered steady and high economic growth in the ast severa years; however, being one of the most disaster prone countries gobay, the impact of disasters on roing back the socio-economic gains cannot be underestimated. Ti haf a decade ago, the approach of Government of Ethiopia was to manage these disasters through conventiona and mosty ad-hoc response. The Hyogo Framework for Action (HFA) ed to a reaisation in the country that Disaster Risk Management (DRM) is a more effective and economic way of mitigating the effect of disasters. It inspired the Government of Ethiopia to undertake a Business Process Reengineering (BPR) which changed the focus from reactive crises management to a comprehensive and proactive DRM. A new institutiona structure caed Disaster Risk Management and Food Security Sector (DRMFSS) within the Ministry of Agricuture was estabished in 2008 to impement the new approach. DRMFSS adopted the fu cyce of DRM (consisting of prevention, mitigation, preparedness, response, recovery and rehabiitation) to guide the undertaken programmes with a redirected focus on DRM. One of the first steps required to impement a DRM system based on risk reduction was an information system that coud answer questions ike: Chidren fetching firewood - Girs fetch firewood in the Borena zone in Ethiopia's Oromiya region. (Photo/IRIN News) Where do disasters take pace? Why do they take pace there? Who gets affected? What makes them vunerabe to these disasters? The answers to these questions are critica for an effective DRM system with the focus being on prevention, mitigation The Disaster Risk Profies form the basis of impementation of the new proactive risk reduction approach of the Government of Ethiopia. This aso strengthens the impementation of HFA approach in the country (see Box). A. Designing DRR Programmes DRR programmes contribute to management of causa factors of disasters, reduction in exposure to hazards and vunerabiity, besides wise management of and and environment. Using Probem Tree Anayses, Disaster Risk Profies for a district hep identifying the causa factors of hazards. This aso eads to prioritisation and targeting of existing sectora deveopment programmes, identification of risk hot-spots and take preventive action and finay informing the kind of scientific action-based research taking pace in the country. B. Eary Warning System An eary warning system becomes meaningfu and effective ony when it provides triggers on hazards reevant for a specific area. Ethiopia suffers from a mutitude of hazards, but most of these hazards are specific to precise areas - not every area in a district suffers from the same kind of hazards. Therefore, it makes more sense to have ocationspecific reevant eary warning systems. The Disaster Risk Profies give ready and rea-time information to achieve these objectives (e.g. kind of hazards and their interreations in a district). This information can then be used not ony to decide what kind of hazards need to be monitored but aso redesigning the eary warning toos (coected on weeky, monthy and quartery basis) to suit the reevant requirements. 20

22 Box HFA Priority Areas Make Disaster Risk Reduction a Priority Know the Risks and Take Action Buid Understanding and Awareness Reduce Risk Be Prepared and Ready to Act Programme Interface Disaster Risk Profies prioritise risk reduction both at nationa and oca eves with an institutiona framework for impementation. The programme heps identify and assess risks and their underying causes, hence enhancing eary warning and response. Profies at community/oca eves enhance knowedge to buid a cuture of safety and resiience. A database on hazards and vunerabiity enabes precautionary actions for reducing underying risk factors. The profies form the basis for informing an effective and efficient eary warning system and contingency panning. C. Contingency Panning A Contingency Pan provides the basis for a rapid and appropriate response in case a disaster strikes. The contingency panning process invoves five essentia steps: risk anayses; identifying, defining and prioritizing contingencies; anaysing scenarios for the panning process; preparing a pan for each seected scenario; and maintaining and updating the pans. Of these steps, the Disaster Risk Profies provide ready information on the first three impying thereby that whie preparing the Contingency Pans these steps need not be repeated. Impact of the Programme The Disaster Risk Profiing programme is a fuy government ed and operated programme and presents a cassic case of streamined capacity deveopment of government at a eves. The aunch of this programme was marked by secondment of a technica staff to DRMFSS by the UN Word Food Programme. Once the methodoogies, indicators and study toos were deveoped and tested in fied, trainings were conducted at the federa eve that were cascaded down to the owest administrative eves a by government staffs. The data coection process now is competey managed by government staff. So far, data for over 100 districts have been coected, consisting of over 50,000 househods, over 1800 Focus Group Discussions with communities and over 800 interviews with key district eve government and non-government staffs. Besides community invovement in profie deveopment process, the profies aso have a component on gender eements, besides a reated study being conducted on gender based profies. The programme has generated huge interest among a actors and stakehoders in DRM. It is being funded by a series of donors, whie the government and GFDRR putting the impementation of this activity on top of their agenda. Such profies aso work as baseines for project impementation by NGOs and other agencies. This has aso ed to standardisation of risk assessments in the country, wherein the assessment methodoogy has been endorsed by the Centra Statistica Agency. The impementation of Disaster Risk Profiing programme is eading to an informed decision-making process in Ethiopia. This is being regarded as a best-practice case in the IGAD region that needs repication in other parts of the word. For more information, pease visit: 21

23 Bridging the gap, Cimate Forecasts and Disaster Risk Reduction: Case of Ethiopia By Beachew Debeke, Drr Advisor to the Ethiopian Government, Drmfss Communities are increasingy vunerabe to the impact of disasters such as drought, hence the importance of having effective eary warning systems in pace which can save both ives and property. UNISDR has suggested that death tos from disasters can be reduced primariy due to the impementation and maintenance of eary warning systems and disaster preparedness activities. Recent advances in understanding ocean-atmosphere interactions and their interconnections over distant and areas have enhanced the abiity to forecast cimate variabiity at seasona-to-inter-annua timescaes, thus providing a potentiay powerfu too for aerting society about cimate risks with sufficient ead time to mobiize appropriate preparedness measures (Stern et a 1999; Cane 1986). In the past decade, seasona and inter-annua forecasts have been appied in a number of different settings, ranging from resource-endowed environments, where the forecast can enhance the effectiveness of weestabished emergency response systems, to regions of the deveoping word where the potentia benefits of forecasts are high, but the capacity to utiize the information is ow. Long-range forecasts in comparison have been quite effective in the case of high-income regions. In the Horn of Africa where cimate reated hazards are common, weather prediction and forecasts rarey reach peope at risk. If they do receive cimate forecasts, most of the popuation residing in rura settings in the Horn of Africa have chaenges understanding and appying the cimate forecasts to reduce their vunerabiity to the impact of disasters. In Ethiopia, the Nationa Meteoroogica Agency (NMA) has been producing weather forecasts covering different time frames such as one to three day forecast, decada outook, monthy outook, seasona outook and agrometeoroogica anaysis for support of agricutura production through cimate information. The NMA has been disseminating weather forecasts through nationa teevision and radios by focusing on major cities on a daiy bases, the NMA aso quartery produces anayses based on cimatic and administrative regions with in the country. NMA has been aso distributing the forecast through the website ( and presenting it monthy to the disaster risk management patform meeting in the country. In addition, NMA organizes the Nationa outook forum at the end of each season which informs stakehoders about the seasona forecasts. In the Ministry of Agricuture and Rura Deveopment (MoARD), the Disaster Management and Food Security Sector (DRMFSS) has been producing fortnighty eary warning buetins and monthy eary warning and response anaysis buetins. For the purpose of coordination there is an eary warning committee in each administrative structure i.e. at federa, regiona state, zona, woreda 1 and Kebee 2 eve Even though cimate science in Ethiopia provides vauabe information through the Nationa Meteoroogica Agency and DRMFSS provides an anaysis of the same information and taiors it into a drought buetin, the major chaenge remains which is the fow of information towards end users in an understandabe manner to insti the practice of eary action in face of disaster into communities and DRR practitioners. To address this gap of information fow and provide understandabe eary warning messages, UNISDR funded by ECHO, together with DRMFSS and the support of a West African expert, who had supported simiar activities in the Sahe Region, carried out an eary warning eary action workshop in November 2011, bringing together cimate scientists, disaster managers and community representatives to bridge the gap between cimate science and users of cimate science information for disaster risk reduction. Gaps in Eary Warning - Eary Action Panning In the eary warning eary action workshop, disaster managers, community members and cimate scientists had an open diaogue based on a presentation of the weather forecast and other products by the NMA and a coupe of gaps and chaenges were identified during the discussion. Whie the cimate products and services are containing a ot of information they are not understandabe for communities and disaster managers, or the information was understandabe but not taiored towards the needs of disaster managers. The information dissemination through nationa media has been focusing on cities and specific administrative regions, has been imited to weather forecasting. Further 1 Woreda is simiar or equas district 2 Kebee is a smaer administrative unit at community eve 22

24 the weather forecasts are probabiistic, and there is not effective dissemination mechanism in pace. Data coection is expensive and there is imited capacity in country to cover data coection. It aso became evident that the NMA provided eary warning information was not being used at community eve. The participants identified a ack of understanding of the information in the form it is being presented and pubished in. Communities tend to use and trust in traditiona forecasts, which is aso due to their imited knowedge about cimate and weather forecasting as we as due to their reigious beiefs which is based on the understanding that God is the ony one who determines the future. Another imitation of the existent eary warning information system seems to be the ack of a cear mandate, meaning that eary warning experts are providing conficting information. There are capacity gaps between the experts who are producing cimate forecasts and the end users, such as DRR practitioners and government officias. The information fow is difficut especiay at the oca eve because the responsibiity of the NMA for distribution covers ony the nationa eve. It was agreed that eary warning information needs to be simpe, cear and actionabe as we as transated into oca anguages, understandabe and accessibe and presented in user-friendy manner. It needs to be timey, it needs to rebuid confidence and trust and incorporate traditiona forecasting information and indigenous knowedge about weather-forecasting. The participants aso brainstormed reasons why eary warning does not necessariy trigger eary action. They stressed that there are no contigency pans in pace and no funding to put those in pace. There is no aid-independent ocay sustained eary warning system in pace which can trigger eary action at community eve; existing eary warning systems are dependent on externa donors. The eary warning information is not packaged for community use; there is no harmonization between the mutipe existing DRR projects and the government/nationa eve panning. This seems to be a probem of accountabiity and the cear assignment of roes and responsibiities in a comprehensive eary warning system which goes beyond inner-institutiona arrangements. Possibe Soutions Recommendations to overcome shortcomings and achieve successfu eary warning and reated eary action were, that there is need for a cear and coherent nationa framework on cimate information production and dissemination. There needs to be cear information from the federa to the wereda eve, a better ink between cimate forecasters and end users, an active participation of NGOs and extension agents from the government in information transfer to community and contingency pans at community eve which are funded adequatey. Foow Up Actions Panned First discussion were hed with DRMFSS on impementation of the given recommendations, however DRMFSS is highy focused on finaizing the Disaster Risk Management Strategic Programme and Investment Framework (DRM SPIF) and the approva of the same and the drafted DRM poicy, before addressing the weak eary warning system. Meanwhie UNISDR with the kind support of ECHO is hoping to support a strengthening of the EW system together with its partners in cose coordination with the DRMFSS. 23

25 3. Eary Warning - Eary Action Pan of Action (derived from the UNISDR organized eary warning eary action workshop) To support, improve and make effective use of avaiabe meteoroogica forecasts/eary warning information for better eary action, the meeting deveoped action points: Agenda item 1: Bridging the gap between nationa and wereda eves for cimate service provision at community eve: Action points: Capacity deveopment: Reguar meeting forum of the eary warning committees at a eves with cear mandate and cear accountabiity > continuous process and support for training at a eves: train communities on eary warning eary action, to disseminate information through a eves, this incudes ;uniform government ed training/workshop bringing together a stakehoders at each eve i.e. one nationa workshop ed by DRMFSS with a the regiona Disaster Preventions and Preparedness Bureaus (DPPBS), eary warning committees and deveopment partners for harmonization. The trainings needs to cascade down the structure from nationa to regiona to wereda and community eve. Communization channes: Regiona States Disaster Preventions and preparedness Bureaus (DPPBS) to take responsibiity to move information down to the community eve. This wi incude soiciting appropriate technoogy and means to disseminate information in a timey manner. Agenda item 2: Making cimate information more reevant and saient for community end-users Action points: Capacity deveopment: Nationa Meteoroogica Agency to give Eary Warning Eary Action (EWEA) training during the regiona, wereda and kebee reinvigorating EWEA workshops. Integrating oca/traditiona forecasts into scientific forecasts: More research information is needed in terms of how to integrate into nationa forecasts for better and deveop more downscaed forecasts Identification of end-users for improved taioring: Get feedback from end-users during regiona, wereda and community eve workshops and estabish a EWEA onine forum of a actors. Agenda Item 3: Enabing community-based Eary Warning > Eary Action (EWEA) Action points: Funding: Disaster Risk Management funding is donor dependent, hence wereda Eary warning committee(ew) to train community at wereda EWEA workshops to empower EW committees to use eary warning and to trigger eary action using oca resources Organizations to ead and invove in impementing the action pan: DRMFSS, Regiona DPPBs, NMA, NGOs, DRMTWG (Disaster Risk Management Technica Working Group), UN Agencies(UNISDR,UNOCHA and others), Wereda Disaster prevention and preparedness offices. 24

26 Drought Eary Warning System in Karamoja By Maika Ongwang, ACTED Uganda Background Since 2008, ACTED has been a member of the Dan Church Aid ed Consortium comprised of the Institute for Cooperation & Deveopment (C&D), and Caritas Moroto (SSD). The consortium has been supporting oca and nationa authorities to design, impement and monitor a Drought Eary Warning System (DEWS) in Karamoja, Uganda. This project, funded by ECHO, started with a piot project in Nakapiripirit district in 2008, where ACTED was running a piot EWS inspired by the Kenyan Drought EWS mode. The data coection for this piot EWS was done by Community Anima Heath Workers, whie the data anaysis and production of Drought Buetins was done by ACTED. In 2009, ACTED decided to buid on this experience and expand the project to the whoe region of Karamoja (initiay five districts which have been spit in seven districts). ACTED took this opportunity to re-design the project and to adapt it to the context of Karamoja and to the avaiabe resources, both at government and community eve. This work has been achieved in cose coaboration with oca and nationa government representatives, oca and internationa organizations, UN agencies and the communities. A of these actors reached a consensus on the ist of indicators to be used as we as the modus operandi of the system for data coection, anaysis, dissemination and how it shoud be integrated within the oca government. The oca government has expressed the desire to own this project and receive the necessary technica support from ACTED for its impementation. A series of workshops were hed to determine the core principas of the Drought Eary Warning System. The first was the Nationa Drought Eary Warning Workshop hed in Karamoja from 7 to 9 Apri The second was the Eary Warning System Data Anaysis Workshop aso hed in Karamoja from the 15 to 16 June The core principes agreed from the two regiona EWS workshops are as foows: 1. The DEWS project is to be designed in consensus with district officias, representatives of nationa government (Office of Prime Minister), UN agencies (UNICEF, WFP, OCHA, FAO, UNDP, WHO), and oca and internationa NGOs. 2. There is government ownership of the system whereby districts run the project reying upon existing government structures and the nationa government gives support. 3. ACTED wi buid the capacity of the district and nationa governments to contro the budget. 4. The DEWS reies on existing government institutiona resources to ensure ow impementation cost. 5. The DEWS is adapted to the context of Karamoja for indicators and the chain of communication. Athough, sti highy inspired by the Arid Lands system in Kenya. 6. Each district produces its own Drought Buetin, whie the Office of the Prime Minister gathers and disseminates the data at nationa eve. The Drought Eary Warning System consists of coecting data on a monthy basis from the communities, district offices and the Department of Meteoroogy, anaysing it at district eve in coaboration with district heads of department, producing a monthy drought buetin and disseminating key messages to the communities and deveopment partners. A steps of this system are fuy integrated within the structure of the oca government. The ist of indicators covers six main sectors (ivestock, crop, water, nutrition, iveihood, security) and compies information on the eve of vunerabiity of the popuation as we as the risk of drought. Assessing the efficiency of the system and review of a few components in 2010 Foowing the first year of impementation of the Drought Eary Warning System, ACTED carried out a monitoring and evauation assessment to identify the gaps and subsequenty adjust the DEWS as necessary to enhance the efficiency, reevance and reiabiity of the system. Foowing the assessment, the ist of indicators was revised and reduced (from 36 to 26 indicators), the number of sentines (i.e. data coectors) sites was reduced, 75 parishes were resamped and a data quaity contro system was put in pace. Foowing these adjustments, the system became fuy operationa in December 2010.This meant that the sentines were undertaking routine data coection; data was sent to district officias; districts heads of departments met to discuss the data coected and produce Drought Buetins with the necessary recommendations to communities on a monthy basis. New innovations and further improvements in 2011 Since the beginning of 2011, new innovations and components of the project have been designed and put in pace. One such exampe is the Nokia Data Gathering appication, which is instaed on Nokia 2710 phones for instant data coection. This new system pioted in five out of seven districts of Karamoja consist in entering the data coected at community eve into an appication upoaded 25

27 on the phone and sending it directy to a server. From this server the data can be retrieved and automaticay downoaded by the District Eary Warning Foca Person (DEWFP) in charge of producing the Drought Buetins. This system is sti being tested and it has aready shown great resuts in terms of reducing time for transporting and entering the questionnaire (and therefore reducing time for the pubication of the Drought Buetins), monitoring and motivation of the sentines. Simiary, to refect the changes in indicators and to improve on the ayout of the Drought Buetin, a new appication, the DEWS Too, was designed by the same deveoper of the Kenyan EWS software (REWAS). In addition, new eements introduced in 2011 incude: Dissemination of warnings and recommendations to the community using radio spot messages and SMS These messages are written by district heads of department after the anaysis of the data for the production of the Drought Buetin. They give recommendations to the community on how to prevent ivestock diseases and what to do in case of symptoms of ivestock disease, post-harvest handing practices, usage of borehoes water for human heath, and how to provide adequate water to animas in times of dry weather etc. A wide community awareness component incuding dramas and songs Every month, drama groups raise the communities awareness on the importance of istening to the warning messages on the radio and of foowing the recommendations given by district authorities in order to avoid/reduce osses of ives and assets. Support of the Department of Meteoroogy in issuing monthy weather forecasts Since September 2011, the Department of Meteoroogy has begun to issue weather forecasts for each district of Karamoja on a monthy basis. The Department of Meteoroogy has improved the capacity of the Drought Eary Warning System to predict more accuratey the risk of drought and possibe impact of the weather on the popuation. This has been achieved after coecting historica weather data from many districts of Uganda and estabishing modes and correations with Sea Surface Temperature. The definition of an Eary Warning Phase Cassification Methodoogy/Framework in coaboration with Integrated Food Security Phase Cassification (IPC). The actua Eary Warning Phase cassification impementation is panned to take pace in 2012 and wi improve the eve of anaysis of the DEWS data and the abiity of the system to issue reiabe warning messages. The Eary Warning Phase Cassification wi guide the district heads of departments on how to estabish warning stages through anayzing the data coected by the DEWS. In the end, the fina concusion of the anaysis shoud guide communities, oca and nationa government representatives, and deveopment partners on the eventua need and eve of urgency at which actions shoud be impemented. Even though throughout the impementation of the Drought Eary Warning System in Karamoja, the sub-region has not experienced any severe drought, the system has aready shown its abiity to detect sma crises (mainy water, veterinary, harvest reated) and its efficiency in mobiizing efforts and resources from the oca government and other deveopment partners (incuding UN agencies). Based on this success, ACTED intends to continue supporting the oca and nationa government in order to fine tune the system and make it more accurate and reiabe, enhance its capacity to initiate eary action, reinforce the invovement of the government; and widen the dissemination mechanisms. For more information pease go to ACTEDs website: www. acted.org Contact information for ACTED in Uganda: Maika Ogwang EWS Speciaist Maika.Ogwang@acted.org Office Te: (0) Sebastien Lambroschini Director, Horn of Africa Sebastien.Lambroschini@acted.org Office Te: (0)

28 Women, chidren and donkeys at the end of a convoy, bordering the arid pain at the feet of the Mogia Mountains in Northern Kenya. (Photo/ IRIN News) Buiding Capacity for Drought Risk Reduction 27

29 Pastoraist Fied Schoos: Drought Risk Reduction in practice By Deborah Duveskog, Community Deveopment Officer, FAO The PFS concept is currenty being taken up by numerous NGOs and actors operating in Kenya, Uganda and Ethiopia. By inking the PFS earning principes to processes of Community-managed Disaster Risk Reduction (CMDRR), a powerfu patform for technicay sound coective action has emerged in severa of the intervention sites especiay in Karamoja, Uganda and Turkana, Kenya. Pastoraist Fied Schoos Kotea PFS Turkana, Kenya. (Photo/courtesy) A Pastoraist Fied Schoo (PFS) can be described as a schoo without was, where pastoraists earn through observation and experimentation how to dea with risks and hazards affecting their iveihood. The purpose of PFS is to improve the decision-making capacity of participants and their wider communities and to stimuate oca innovation that can hep increase resiience to drought and other hazards. PFS activities are guided by some key principes and core activities: Learning is by doing, which means through practica activities and exercises; The heard and the andscape is the main earning ground, around which a PFS activities are organised; The earning is probem based. Participants appy different anaytica methods to hep them gain the abiity to identify and sove any probem they may encounter in their daiy ife and; Discovery-based earning toos trigger a spirit of curiosity and innovativeness. Trained faciitators guide the earning process, not by teaching but by faciitation and by mentoring and supporting the participants to take responsibiity for their own earning. A PFS foow the same systematic action earning process where the key steps are observation, refection, group discussion, anaysis decision making and action panning. This cyce is internaised by comparative experiments and monitoring of these trias through the Pastoraecosystem anaysis (PESA) process. The pastoraists system of ivestock production is compex, based on rich experience and cuture that is passed down from one generation to the next. New deveopments such as cimate variabiity or emerging diseases means that pastoraists need to suppement their traditiona knowedge and practices. This new knowedge and innovation is reaized through participatory earning in PFS. The PFS approach, in contrast to most conventiona extension approaches, strengthens the capacity of oca communities to anayse their iveihood systems, identify their main constraints and test possibe soutions. By merging their own traditiona knowedge with externa information, pastoraists can eventuay identify and adopt the most suitabe practices and technoogies to their iveihood system and needs to become more productive, profitabe and responsive to changing conditions. CMDRR invoves anaysis by the community of risks and hazards such as drought and buiding an understanding of the differences between hazards and disasters. For exampe in Ametheck community, Turkana, their hazard anaysis identified deforestation and rainfa variabiity as causes of their food insecurity and huger. Warning signs defined by the group as indicators for the situation deteriorating incuded fowering of acacia trees, water wes drying up, appearance of the comet star and frogs no onger making noise. Seasona caendars are aso commony used as a basis for contingency panning where rainfa patterns are compared to aspects such as pasture conditions, water avaiabiity, ivestock conditions and death rates, mik suppy, and grain prices. PFS groups use this eary warning information as a basis for deveopment of their action pans and earning curricuum. Potentia soutions are then identified in PFS groups and new ideas tested through comparative experimentation. Some groups have focused on buking of fodder for ivestock or improved management of water resources thereby increasing their preparedness in case of drought. Other groups have managed to improve their pasture management through re-seeding or rotationa grazing schemes thereby preventing the adverse effects of ack of rainfa. 28

30 A strong shift of mindsets among PFS participants have been observed foowing their action earning process, from focus on subsistence or surviva to a more businessoriented attitude. Some PFS groups have gained substantia income through, for exampe, fodder production and sae, and anima fattening. Through this they have diversified their incomes and iveihood sources by taking up crop production or poutry keeping as compimentary activities to their ivestock keeping. An understanding for panning and mitigation of disaster has aso taken root and recognition of how socia eements such as conficts and gender inequaities are exacerbating the effects of disasters. By combining technica sound interventions with socia earning and wider community empowerment in this manner the potentia for reducing the risk of shock on the fragie communities iveihood base has been increased. 29

31 Disaster Loss Databases as a Too for Drought Risk Reduction Panning By Rhea Katsanakis, UNISDR ROA A precondition to successfuy address drought risk is adequate risk identification. In most African countries, no comprehensive statistics are quantifying the impact of disasters on its peope. After UNISDR Regiona Office for Africa assessed existing disaster databases in Ethiopia, Kenya and Uganda, it was evident that no systematic gathering of data had been taking pace. Background Desinventar In 1994, a group of researchers, academics, and institutiona actors inked to the Network of Socia Studies in the Prevention of Disasters in Latin America (Red de Estudios Sociaes en Prevención de Desastres en América Latina - LA RED) initiated the creation of a common conceptua and methodoogica framework to address the ack of systematic, homogeneous, and compatibe records of disaster typoogies. Most disaster databases ony considered disasters resuting from events of huge proportions and high impact, and hid the thousands of sma and medium scae disasters that occur every year in each country. Unti the mid-1990 s, systematic information about the occurrence of disasters of sma and medium impact and disaggregated data about the effects of arge scae disasters was not avaiabe in most countries in the word. LA RED and its affiiates conceptuaized a system of acquisition, coection, retrieva, query and anaysis of information about disasters of sma, medium and greater impact, based on pre-existing officia data, academic records, newspaper sources and institutiona reports which was pioted in nine countries in Latin America. This effort was then picked up by UNDP and UNISDR who sponsored the impementation of simiar systems in the Caribbean, Asia and Africa. The deveoped conceptuaization, methodoogy and software too is caed Disaster Inventory System - DesInventar Sistema de Inventario de Desastres. It faciitates diaogue for disaster risk management between actors, institutions, sectors, provincia and nationa governments. DesInventar is a conceptua and methodoogica too for the generation of Nationa Disaster Inventories and the construction of databases of damage, osses and in genera the effects of disasters. The Disaster Information Management System is a too that supports in anayzing the disaster trends and their impacts in a systematic manner and by using it, improved prevention, mitigation and preparedness measures can be panned to reduce the impact of disasters on the communities data bases are currenty pubicy avaiabe on-ine; in Sub-Saharan Africa, Mozambique, Mai and Djibouti have estabished disaster oss databases. The idea of a pubicay accessibe database is that it can be utiized by a stakehoders and at the same time represents a common assessment of the situation, as data comes from different sources, which aso reinforces credibiity. Impementation in the Horn of Africa UNISDR, with the financia support of ECHO, agreed with government officias of the three project countries on the estabishment of nationa disaster oss databases based on existing data from the countries, as none of the three countries had comprehensive data bases of this kind in pace. A three governments initiated the estabishment of disaster oss databases, and identified the most appropriate institution in the respective country in which the database shoud be based in; namey the Nationa Disaster Operations Centre (NDOC) in Kenya, the Disaster Risk Management and Food Security Sector (DRMFSS) in Ethiopia, and the Northern Uganda Data Center (NUDC) in Uganda. A three institutions were aready doing data coection and have IT toos and trained staff in pace, but had to digitaize their data, or buid a baseine on disaster osses based on historica data of 20 to 30 years to compare disaster risk then and now. With the support of the UNISDR depoyed DRR Advisors to the three governments, reinforced by three Nationa UN Vounteers per country to carry out the data coection and feeding it into the on-ine system, the estabishment of the disaster oss databases was initiated between September and November The process was carried out in three phases. During a regiona workshop in Nairobi, faciitated by a UNISDR expert on Desinventar the methodoogy and its appication was presented to government officias from Ethiopia,

32 Kenya, Uganda and Tanzania as we as civi society and UN agencies participants, who then returned for more detaied discussions to their respective countries. In a second step after the governments of Ethiopia, Kenya and Uganda had agreed that the estabishment of a disaster oss database was not dupicating existing databases, and was a good too for disaster risk reduction panning, UNISDR organized nationa workshops on appication of disaster oss databases and methods of data coection, in which the UN Vounteers were trained. The data coection then started straight away. The databases are expected to be finaized and ready for endorsement by mid In a third step, UNISDR wi support the three countries through the data coection process and support the officia endorsement of the nationa disaster oss databases when they are finaized. At the same time UNISDR organized a training of trainers on nationa disaster oss databases for staff members of the Regiona Center for Mapping of Resources for Deveopment (RCMRD) in Nairobi, to enhance regiona capacities to support estabishment of nationa disaster oss databases throughout the region. The same wi be repeated with a Senegaese Institution to support Francophone African countries. 31

33 Appication of Cimate Information, GIS and Remote Sensing for Drought Risk Reduction By Byron Anangwe, Regiona Center for Mapping of Resources for Deveopment, RCMRD Geographic Information System and Remote Sensing Technoogy can be appied for disaster management, especiay when it comes to disaster risk and exposure mapping. Other than focusing on training GIS experts in disaster management, the Regiona Center for Mapping of Resources for Deveopment (RCMRD), based in Nairobi and supporting 18 member states in East and Southern Africa, has started to train disaster risk reduction and management practitioners in the easy appication of GIS and Remote Sensing for disaster risk reduction and management. UNISDR, with funding from ECHO, initiated coaboration with RCMRD to strengthen the inkage between appication of cimate service products, IT technoogies and disaster risk reduction. Cimate information is important not ony for Eary Warning Systems (EWS) but aso for onger-term mitigation activities, especiay with respect to sow onset disasters such as drought to which the countries in the Horn of Africa are prone to. For appropriate use of cimate services products and GIS, capacity buiding for disaster managers was identified as a crucia prerequisite to strengthen disaster risk reduction as we as other geo-spatia appications of disaster managers work. UNISDR, with funding from the ECHO Drought Decision for the Greater Horn of Africa, supported the Nationa Meteoroogica Services in their project countries, Ethiopia, Uganda and Kenya, with equipment and training to strengthen their capacity in providing services taiored towards disaster risk reduction. This woud be used for deveopment of buetins and forecasts with strong reevance for disaster risk reduction practitioners such as NGOs, government and UN Agencies, who coud then disseminate the information to community members who can carry out actions to enhance their resiience to drought and foods, based on the eary warning and forecasts. Scoping Missions and Probem Anaysis As first part of the coaboration, RCMRD carried out missions to Ethiopia, Kenya and Uganda to determine capacities in terms of technica, equipment and human resources of key institutions in the country invoved in deveoping EW buetins. The mission aso determined which guidance was needed to disaster managers and key institutions invoved in disaster management to successfuy use EW buetins. Uganda is prone to fooding in the northeastern parts of the country around Lake Chogga, and prone to drought in the Karamoja region. Areas with a high degree of and degradation when affected by fooding are prone to andsides in the east and southwestern parts of the country. The technica arm of the meteoroogica service is ocated in Entebbe at the Airport whie administrative units are ocated in Kampaa about 40 km away. The agency has the mandate to monitor weather patterns through modes, projections and forecast. It has an eaborate network of 1000 weather stations of which ony 100 are presenty active. Equipment and technica and human capacity are required to improve the accuracy of the projections and forecasts, athough there has been some support from the AU/EU funded AMESD Project. There is no Geonetcast station, providing environmenta information in pace. The Government in Uganda treats provinces as semiautonomous units of the centra government so that Kampaa City Counci as a oca government institute is in charge of management and administration of both the Kampaa City and the Kampaa Province. The panning department acts as foca point in EW and disaster risk reduction, mitigation and management. It aso has a system for tracking of diseases. Fooding is a common resut of the topography of Kampaa where unpanned housing units in the ow ying areas have encroached on food pains. According to the Nationa Disaster Management Department in the Office of Prime Minister skis and toos to enhance disaster risk identification are urgenty needed to enhance the capacity of a fu-fedged data center which is aready in pace. Other toos needed to increase performance of the data center are GIS and remote sensing toos for panning and management, the automation of data records as we as standardization of data coection protocos. The existing staff needs to be trained in information sharing and dissemination, risk and vunerabiity mapping and information management. The center has sufficient hardware in pace but enhanced skis are required to better utiize avaiabe resources as we as harness additiona resources. The Ministry of Water is a key payer in the identification of disaster hotspots and the protection of water resources as human activity and practices ead to the degradation of wetands with adverse effects on rainfa patterns and fooding. Vunerabiity assessments which coud be carried out by the ministry are important in assessing possibe damage caused by fooding and a strong synergetic reationship with the Disaster Management Department is crucia for effective disaster risk reduction in the country. 32

34 Ethiopia is prone to disasters such as fooding in 63% of the ow ying areas and droughts in the northern, eastern and southern parts of the country. Land degradation due to human activity has increased andsides. Ethiopia has an eaborate network for dissemination and coation of disaster reated data, technica supported by UN Agencies in the country. The Disaster Management and Food Security Sector (DRMFSS) in the Ministry of Agricuture has the mandate for co-ordination of a actions and activities reating to disasters, whie iaising with stakehoders and government ministries. It is we equipped with IT hardware but there is ack of capacity of its staff to utiize the equipment appropriatey. Additiona human capacity is urgenty required though some of this is provided through seconded staff by UNDP. The Nationa Meteoroogica Agency (NMA) aso has equipment in pace, but its staff acks skis to fuy use the avaiabe IT toos. The NMA has an African Monitoring of Environment for Sustainabe Deveopment (AMESD) Programme station for extended use of Earth observation technoogies, as we as a Geonetcast porta, however not fuy functiona. In Kenya, the Nationa Disaster Operations Centre based in the Ministry of Specia Programmes, which is in charge of disaster response but has imited human resources and itte funding from the centra government. The staff acks appropriate IT skis as we as hardware though it has an anaogue ibrary and we equipped situation room. The agency has a network and inkages with the majority of DRR actors in the country. The Kenya Meteoroogica Department serves as the Regiona Office of the Internationa Meteoroogica Organisation and as such hosts a Resource Centre for capacity buiding. It maintains modes that monitor fooding in Kenya as we as the region providing monthy meteoroogica buetins through the media. It is we equipped and hosts an AMESD Station as we as a Geonetcast station. As overa resut of the three country visits, it became evident that disaster risk reduction agencies ack synergies with partners such as the Kenya Red Cross Society and the Famine Eary Warning and Services Network (FEWSNET) Regiona Office, which are active in prediction and eary warning, but are not currenty cosey inked to the nationa DRR institutions. Capacity Buiding As second part of the coaboration between UNISDR ROA and RCMRD, a workshop series on appication of Geo-Spatia Techniques to Eary Warning and Disaster Risk Reduction was carried out in Ethiopia, Kenya and Uganda, bringing together actors from the Meteoroogica Department as we as participants deaing with Disaster Risk Reduction. The workshops focused on capacity buiding for disaster managers and officers in appropriate use and appication of geo-spatia technoogies, namey remote sensing, geo-information and goba navigation systems, for disaster risk reduction. The institutions participating presented various DRR projects in which they had appied spatia technoogies. They were then trained in understanding of sateite remote sensing products and their appication and the harnessing of on-ine toos. The participants were introduced to map reading, sateite image interpretation and data mining, sateite positioning, GPS techniques and navigation with GPS. Exercises on software instaation were carried out using GIS software i.e. ILWIS and QGIS, data anaysis was presented for assessment and change detection and pre and post event map production and the Disaster Charter were discussed. Finay participants visited partner institutions to strengthen coaboration such as RCMRD SERVIR Lab, FewsNET Office and Department of Remote sensing and Resource Surveys in Kenya, to Kampaa City Counci GIS Unit and the Disaster Management Department and Makerere University and the Geography Department to assess the GeoNetCatst Unit in Uganda, and the Information Science and Technoogy Division at the UNECA and the Office of the Geo-Information Management Network (GiMAN) in Ethiopia. The participants acquired skis and information on how to integrate GIS, remote sending and use of GPS in eary warning as we as how to harness use of the internet as we as software instaation. As foow-up activities it was recommended to faciitate the access to the Disaster Charter for the three countries, continue capacity buiding on software and hardware for mapping, carry out a foowup training on Rapid Mapping for eary warning and DRR for 2 weeks using open source mapping software systems, to provide a GeoNetcast Instaation and Training of 5 days, and finay to conduct exchange visits between countries to share experiences and best practices for disaster risk reduction managers. There is need in deveoping continuous capacity in DRR for new and current staff of reevant agencies as we as to deveop modes for DRR institutions to retain staff, which is currenty changing a the time. Each agency woud need to understand activities of DRR institutions in their neighboring countries to ensure cross-border risk assessment and reduction. This wi aso be important for exchange of best practices from the region. Lasty avaiabe IT toos need to be better appied to DRR. 33

35 34

36 The Muti-Stakehoder Approach: Drought Risk Reduction In South Africa By Makaa Jeffrey Ngaka, Senior Agricutura Economist, Department of Agricuture, Forestry and Fisheries, South Africa 1. Historica Background Drought has become a permanent feature of the South African agricutura sector. This is usuay interspaced with fooding arguaby due to cimate variabiity. As a resut, South Africa has a ong history of drought risk management. This has evoved tremendousy during the mid-90s in response to changing focus from reactive to more proactive approaches to drought risk management. Most importanty, it changed as a resut of the government s gradua but focused process of transformation in the agricutura sector. This process started with the deveopment and aunch of the Green Paper on Disaster Management in Its purpose was, inter aia, to provide a stakehoders with an opportunity to refect on the approaches to disaster management and risk reduction and to provoke thinking around future strategies that wi match with internationa trends and those that are more appropriate to current and future needs within the country as we as in the Southern African region. This was foowed by deveopment, in 1999, of the White Paper on Disaster Management. The fundamenta purpose of the White Paper was to advocate an approach to disaster management that focuses on reducing risks - the risk of oss of ife, economic oss and...aims to protect the environment. This paved way for the deveopment and promugation of the Disaster Management Act (DMA), (Act no 57 of 2002) which made provision for an integrated and coordinated disaster management poicy that focuses on preventing or reducing the risk of disasters, mitigating the severity of disasters, emergency preparedness, rapid and effective response to disasters and post-disaster recovery at various eves of government. One of the key components of the act is that it requires a spheres of government nationa, provincia, and oca to deveop their disaster management pans. The impementation of the act started in Apri 2004 for nationa and provincia spheres and in Juy 2004 for the municipa spheres of government. As a resut of these deveopments, there has been a growing emphasis on the move from reactive, crisis management approaches to a proactive, risk management approach. In ine with the DMA, the Department of Agricuture, Forestry and Fisheries (DAFF) deveoped an Agricutura Drought Management Pan (ADMP) which strives to create a baance between prevention, mitigation, preparedness, response, recovery and disaster-reated deveopment. A key thrust of the ADMP is a paradigm shift from reactive to proactive approach to agricutura drought management and it ceary ays out the roes of various institutions incuding the roe of the farming community. This pan advocates a number of good farming practices and conservation measures incuding adherence to advisories. 2. Drought Eary Warning Systems (Photo/ Courtesy) The Drought Monitoring Desk at the South African Weather Services (SAWS) provides information on observed rainfa and ong range forecasts which is accessibe to the pubic. Seasona forecasts and daiy extreme weather warning are aso issued by the Department of Agricuture, Forestry and Fisheries (DAFF) based on information from the Weather Services. The effectiveness of the drought eary warning system depends argey on four key eements, namey: (i) prior-risk knowedge, (ii) monitoring and warning service, (iii) dissemination and communication, and (iv) response capacity. DAFF further estabished the Nationa Agro-meteoroogica Committee (which comprises 35

37 of the Agricutura Research Counci (ARC), Provincia Departments of Agricuture (PDAs), South African Weather Services (SAWS), academic institutions etc.) to assist with the impementation of the system. An exampe of drought eary warning systems incude a system, deveoped by the Agricutura Research Counci, known as Umindi (Zuu word for watchman ), which provides information on drought conditions based on the interpretation of sateite and cimate data. The information is used for crop estimation by the Nationa Crop Estimate Committee (NCEC) and is aso disseminated through the provincia departments, the Nationa Agro-meteoroogica Committee (NAC) and subsequenty to the farming community. Furthermore, a book on Strategies for coping with drought has been pubished by DAFF in the eeven officia anguages for the farming community and has aso been disseminated through the reevant stakehoders. To improve the uptake of weather and cimate products, the DAFF, in coaboration with Provincia Departments of Agricuture, is packaging and transating the information into easy understandabe messages for the communities. This is usuay foowed by an assessment of uptake of eary warning information (EWI) to evauate the effectiveness of the information and preparedness of the farming community to utiize and act on it for drought panning. 3. Information Management and Communication The roe of communication technoogy is integra in drought disaster risk management to communicate awareness messages with the vunerabe communities in time. Athough appication of communication technoogy has a roe in a reduction measures namey, mitigation, preparedness, prevention, response and recovery, some of the appication has traditionay been in response and recovery phases. Various communication systems are avaiabe incuding the Internet, mobie phones, fax, e-mai, radio and teevision as we as face-to-face visits. There are, however, both socia and technica aspects to the appication of these communication technoogies and the effective appication depends on their appropriateness in a socia and economic context in which they are appied. Communication technoogies wi hep estabish preparedness for disasters, track approaching hazards, aert authorities and warn those who are ikey to be affected and buid resiience within communities. Because communication is vita during the whoe cyce of disaster risk management, it is important that communication infrastructure in disaster prone areas is estabished we. The dissemination of information required at a decisionmaking eves and impementation thereof hods the key to a risk reduction strategy. Poitica decision-makers, administrative officias, and most importanty the vunerabe individuas require information to mitigate, prepare for and respond to hazards and disasters. They shoud be aware of risks and the options avaiabe when disasters occur. The information required incudes knowedge of the avaiabiity of resources (financia and human capacity) to disseminate information, and communicate in times of emergencies. Farming communities directy affected by a hazard or a disaster shoud be fuy informed of actions they shoud take and assistance they are or are not entited to so that they can make provision for this in their panning. Effective communication and information dissemination enhance and continuousy improve disaster risk management, Eary Warning and advisory information. 4. Institutiona Framework For Drought Disaster Risk Reduction In South Africa The Nationa Disaster Management Center (NDMC) within the Department of Cooperative Governance and Traditiona Affairs (COGTA) coordinates a disaster risk issues incuding drought at nationa eve. DAFF forms part of the Nationa Disaster Management Advisory Forum (NDMAF) which reports to NDMC. The NDMAF provides a mechanism for reevant roe payers to consut one another and to coordinate their activities on disaster management issues. At the provincia eve the Provincia Disaster Management Centers (PDMCs) coordinate and at municipa eve the Municipa Disaster Management Centers (MDMCs) coordinate municipa disasters within their jurisdiction. Specificay focusing on the agricutura sector, DAFF through the Cimate Change and Disaster Management directorate (CCDM) coordinates disaster risk activities which incude drought whie in the Provinces the Provincia Agricutura Disaster Risk Management Units (ADRMU) ead regarding disasters in their respective areas. At the district eve, District coordinators assist. There are severa committees which assist in coordinating disaster risk activities in South Africa, namey the Nationa Agricutura Disaster Risk Management Committee (NADRMCO) which is nationa, both nationa and provincia senior management members participate; the Nationa Agricutura Disaster Management Forum (NADMF) operates at nationa eve, and coordinates post-disaster activities. The Eary Warning Committee (EWC) at Provincia eve assists with dissemination of eary warning information. And asty the Provincia Agricutura Disaster Management Forum (PADMF) at Provincia eve coordinates post-disaster activities. 36

38 Institutiona Framework for Drought Disaster Risk Reduction in South Africa 37

39 5. Drought Response, Recovery and Rehabiitation As drought as a hazard cannot be addressed the focus is on improving the coping capacity thus reducing its severity and impacts. If drought occurs and the severity and magnitude is such that communities cannot cope by using their own means and resources and it is proven that amongst other factors prevention and mitigation measures were taken into account, a state of disaster is decared in ine with the DMA. Decaration of state disasters usuay eads to the estabishment of disaster assistance schemes. The post disaster support measures for the farming communities usuay address both the short-term (e.g. suppy of fodder) and ong term (e.g. revitaization of infrastructure for ivestock drinking water) deveopment needs. In ensuring appicabiity as we as sustainabiity with regard to post disaster interventions, DAFF continuousy conducts research to update and review the programmes. Furthermore, the department promotes the impementation of disaster risk reduction measures such as reduction of ivestock to protect and conserve the natura resource base. South Africa advocates addressing drought in the context of sustainabe deveopment by among other measures: buiding technica capacity of affected communities to dea with impacts of drought, desertification and cimate change, improved fied training and capacity buiding to grow cimate-resiient crops to maintain soi productivity and increase food production in drought-affected dry ands as we as by encouraging Index-based weather insurance as an emerging innovative market scheme for managing risks associated with drought. As drought may become more frequent and severe in nature, more importance shoud be paced on water-sharing agreements between countries in search for practica options to ensure equa access whie avoiding potentia water conficts. South Africa aso supports the estabishment of disaster management capacities and centres at regiona eves, in particuar where they do not yet exist as outined in the African Regiona Strategy for Disaster Risk Reduction. These to incude capacity to identify and assess disaster risks; enhancing disaster reated knowedge management systems; integrating disaster management programmes with the on-going sustainabe deveopment pans. 38

40 (Photo/ IRIN News) Improving Access to Services in Drought prone areas 39

41 South-South Adaptation Knowedge Sharing: Senega Eco- Viages and Kenya Eco-Communities By Conor Phiips - UNOPS Project Manager for Eco-Communities, Kenya United Nations Office for Project Services (UNOPS) Kenya office is currenty carrying out the assessment phase of a Kenyan Ministry of Environment and Minera Resources (MEMR) initiative that seeks to assist communities with adaptation to cimate change through sustainabe rura deveopment. Exampes of simiar initiatives appying an eco-viage mode have been impemented around the word for the ast 20 years. Africa s first piot was carried out in 2001, when NGOs in Senega pioted a network of rura eco-viages. There are currenty 50 such viages within the country, which are predominanty operated by NGOs, however, in 2009 the government adopted the approach and founded the Ministry of Eco-Viages, Artificia Lakes, and Basins, with the intention of roing out the project to a of Senega s 14,000 viages. The above mentioned Senegaese and Kenyan ministries are setting up a knowedge sharing partnership, which incudes exchange visits of reevant technica staff to each other s projects to earn from both successes and faiures. The Senegaese Exampe: Mbackombe Piot Eco-Viage Approximatey 500 peope ive in Mbackombe, a custer of viages 130km south of Dakar. This is the fagship piot ecoviage for the Agence Nationae de Eco-viages (ANEV), a department of the newy formed eco-viage ministry. ANEV is covering five viages in the current piot and another ten are being covered by funding from the Goba Environment Faciity, UNDP, and a variety of smaer sources. The key components of the initiative in Mbacombe are renewabe energy, cimate-smart farming, a pant nursery and tree pantation, microfinance, and eco-housing, a of which are aiming to reduce strain on resources whie promoting deveopment. ANEV beieves that emphasizing the interconnection of these different project components is critica to achieve community ownership and foow-up and thus ong-term project success and sustainabiity of impemented measures. Water Conservation in Senega Between rainy seasons, water for the viage becomes scarce, particuary during drought years. Even foowing the instaation of a soar pump suppied water reservoir by an NGO two years ago, agricuture has remained predominanty rain-fed because the quantity of stored water is too itte to maintain a sufficient farming area using traditiona irrigation methods. To improve avaiabiity of water for both househods and agricuture, severa ecoviage components aim at reducing the water stress. Photo/UNOPS One exampe is a drip irrigated 10-hectare pot in which each househod in the community is aocated space to test newy earned farming techniques. The drip irrigation method is being carried out through a hosepipe with sma hoes. The hosing, which heps to target water distribution and minimize evaporation, is aid in eveny spaced shaow furrows in the community pots. Pot owners pay the equivaent of $0.05 for 20 iters of water for the drip system, ensuring both a community water committee managed fund for system repair and a financia incentive to imit water overuse. Comparison between the Senegaese and the Kenyan initiatives Whie Mbackombe ies within a region that receives between 500 and 750mm of precipitation per year, the Kenya eco-community projects wi take pace in varied iveihood zones with a broad range of annua precipitation. This requires initiatives that are taiored to the unique set of needs identified in the communities. In an upcoming piot site in Kenya s Turkana region precipitation is between 250 and 500mm per year, so if drip-irrigated systems are to be used, aterations from the Mbackombe mode wi be necessary, such as, for exampe, smaer pot sizes and 40

42 drought-resistant pant varieties to respond to the ower rates of rainfa. Minimizing Wood Use Both the Senegaese and the Kenyan projects seek to minimize environmenta degradation by reducing the use of other important natura resources, such as wood. Eradication of tree cover both acceerates erosion of topsoi and decreases soi water retention, contributing to agricutura chaenges, particuary during drought periods. Both countries intend to use a variety of methods to address the issue of deforestation, incuding, where appropriate, wood ot creation, fue-efficient stove promotion, and renewabe energy suppy. In addition, the Senega project is pioting a method of wood and meta free housing construction using a team of buiders from Burkina Faso. The buiders are skied in a traditiona Burkinabe construction method of mud-brick houses, which maintain a coo interior in the hot season, is costefficient by requiring about 1/3 of the cost of wood and concrete houses, and has an estimated ifespan of 25 years. ANEV beieves that upon seeing the demonstration house, community members in the eco-viages and beyond wi be encouraged to adopt the mode, which oca buiders have been trained to repicate. Lessons Learned Piot projects are rarey without teething probems. The tree pantation in Mbackombe, for exampe, has been amost competey decimated by ivestock and the cost of fencing the area is not economicay viabe. That is why Ibrahim Sa, ANEV s monitoring, evauation, and impementation manager indicates the piot phase is so crucia to the sustainabiity of the project. One of ANEV s methods to achieve sustainabiity of the eco-viages is to demonstrate a variety of techniques to the popuation over the course of five years - those that are popuar wi be adopted and brought to new eco-viages, those that are not wi be discontinued. In the case of the wood ots, rather than abandoning the initiative, the community has suggested incorporating beehives, purchased through a microfinance faciity provided by an NGO, the Senegaese Eco-viage Microfinance (SEM) Fund. The hives need to be frequenty attended, which ensures humans wi be often present to protect the ot from animas. This method of tria-and-error in ecoogicay diverse areas of Senega wi hep to better define what components work in eco-communities. Knowedge sharing between Kenya and Senega aso heps to acceerate uptake of successes of the mode and decrease the ikeihood of the same mistakes being repeated across the continent. Mr. Sa has a vision to create an African network of environmentay sustainabe communities, thus increasing the knowedge base behind this innovative method to address goba warming and its many reated symptoms. Burkinabe buider working on wood-free buiding design in Mbackombe 41

43 Kenya edges coser to mainstreaming DRR in Schoos. By Moses Mung'oni, DRR Advisor for Kenya, UNISDRS ROA have made preiminary attempts to hoisticay address the question of mainstreaming DRR into the education system in Kenya. This committee has set its eyes on promoting the incusion of disaster risk reduction knowedge into primary and secondary schoo curricua and taking an inventory of schoos in Kenya to ensure strong and DRR compiant infrastructure at a earning institutions. The infant committee aims to achieve these through: Schoo chidren in Nairobi, Kenya as they marked the 2011 Internationa Day for Disaster Reduction on 13 October, under the theme Step Up for Disaster Risk Reduction. Photo/UNISDR In 2001, a fire broke out at Kyangui Schoo in Machakos District in Kenya eading to the death of 67 boys. A one storied dormitory, books and persona items of the students were destroyed. The schoo cosed down and most students with trauma reated compications had to be transferred to other schoos. Disaster incidences in Kenyan Schoos, Viages and Cities are not new. Kenya s disaster profie is dominated by droughts, andsides, ightening/thunderstorms, fires, foods, strong winds, terrorism, technoogica accidents, diseases and epidemics. In the recent past, these hazards have increased in number, frequency and compexity. The eve of destruction has aso become more severe with more deaths of animas, oss of iveihoods, and destruction of infrastructure among other effects resuting in osses of varying magnitudes. Quite a sizeabe chunk of resources that woud otherwise have been directed to the much needed deveopment has had to be diverted towards responding to the need of those affected. In ine with priority three of the Hyogo Framework for Action on Disaster Reduction, efforts are gathering pace among stakehoders in the education sector in Kenya to mainstream DRR in schoos in response to the need to reduce the risk of disasters. This is in ight of the fact that schoo chidren are best paced to propagate knowedge on DRR to communities. Schoo chidren have aso carried the burden of the effects of disasters incuding having to drop out to support their sibings in pursuit of iveihoods. Schoos have quite often payed the crucia roe of hosting communities that are dispaced by disasters. The UNSIDR in coaboration with the Ministry of State for Specia Programs, Ministry of Education, UNICEF and other stakehoders under the umbrea Nationa Patform on DRR Advocating for increased demonstration by government poicy makers of their poitica commitment to mainstream DRR into schoo curricua or informa education activities. Obtaining poicy-makers support for mainstreaming DRR into curricua and promoting safe schoo programmes. Reviewing the current curricuum to identify strong areas & gaps in DRR. Deveoping both teacher and pupi support materia to fi the DRR gaps Mobiizing teachers and organising teachers training on DRR to meet the needs for mainstreaming DRR into curricua. Making an inventory of schoos and taking necessary risk reduction measures to ensure that schoo buidings and faciities are resiient to disasters With technica support from the UNISDR, the Kenya Institute of Education in coaboration with UNICEF and UNDP are aready a step ahead in deveoping teachers support materia on DRR and wi soon be aunching a teachers resources book on DRR. Technica support has aso been provided by UNISDR in training cose to 100 curricuum deveopers from the Kenya Institute of Education on DRR with financia support from UNICEF. These are expected to embark on the ong term task of reviewing the education curricuum with the aim of identifying opportunities for mainstreaming DRR. It is expected that these initiatives wi ead the way in buiding a cuture of safety and resiience to disasters at a eves by use of knowedge, innovation and education which is the third priority of the goba DRR Framework, the Hyogo Framework for Action (HFA). The Kenya activities aso feed into the UNISDR ead One Miion Safe Schoos and Hospitas Campaign, which encourages an individua, a famiy, a community, an organization, a government, a business or any other entity to make a pedge for a safe, disaster-resiient schoo or hospita to make them withstand the impact of disasters and safeguard institutions and their cients, schoo chidren and patients. More information on the campaign and how to make a pedge on: 42

44 Heath and Cimate Change Disaster Risk Reduction: An NGO Partnership Approach to Buiding Community Disaster Resiience Buiding in Africa By Lynn Wison - SeaTrust Institute on behaf of SeaTrust Institute and Nurses Across the Borders Humanitarian Initiative As cimate change creates more erratic weather patterns, storms become more severe and drought more frequent throughout much of Africa. Buiding capacity at a eves to adapt and create resiience to the effects from drought is particuary crucia in African dryands where the expansion of drought is threatening arge portions of the continent. Drought accounts for the majority of disasters reported as having affected more peope, as we as eading to more deaths and economic osses, than any other hazard. i1 Through training nurses and other heath workers in meaningfu ways to 1) ead and engage communities in deveoping sef-defined combined cimate change adaptation (CCA) and disaster risk reduction and management (DRR/M) strategies affecting drought prone areas, 2) coect oca data, and 3) participate in poicy decisions that affect disaster preparedness, panning and responses, the South-North NGO partnership Nurses Across the Borders Nigeria and SeaTrust Institute buids capacity to combat drought in Africa. These efforts hep African countries address unmet Miennium Deveopment Goas (MDGs) and Hyogo Framework for Action : Buiding the Resiience of Nations and Communities to Disasters (HFA) Priorities for Action through integrating traditiona and modern risk management knowedge, science and strategies. Training nurses and other heath workers in the coordinated aspects of cimate change and heath aso directy addresses cas in the Extended Programme of Action for the Impementation of the Africa Regiona Strategy for Disaster Risk Reduction ( ) and Decaration of the 2nd African Ministeria Conference on Disaster Risk Reduction ( ) for promoting integration of DRR in the forma and informa education systems and specificay the heath sector as a major area of activity. Over 650 miion peope in Africa are dependent on rainfed agricuture in areas that are aready affected by water scarcity and and degradation. FAO reports that cimate change wi ikey acceerate drought occurrence causing as much as two-thirds of the region s arabe and to be ost by through increasing eves of desertification and soi sainization. Whie African dryands have aways been subject to recurring droughts, these have increased in frequency in recent years, occurring in 2005, 2006, 2008 and Athough considered as a viabe method for reducing the scae of emergency response needed to combat drought by maximizing the potentia of the dryands in a sustainabe manner and it makes productive use of what coud otherwise be ide ecosystems 4, pastoraism becomes an increasingy ess viabe adaptation option due to and tenure issues as we as increasing water stress. New approaches to buiding disaster resiience to drought in atrisk African regions are urgenty needed. A efforts to address the effects of drought, whether through cimate change, agricuture, water, migration, forestry or other sectors, use human heath as the utimate measure of success or faiure. Heath effects commony associated with drought incude asthma, cardiopumonary diseases, cardiorespiratory diseases, headaches and nausea associated with dust and compromised air quaity, heat exposure stress and mortaity. Compromised water avaiabiity for drinking and food production directy eads to dehydration and starvation. Other ess commony considered heath effects incude meningococca (epidemic) meningitis, owered immunity to maaria and other mosquito vector borne diseases when droughts break out, and diseases from contamination of drainage canas and rivers. As water becomes scarce, peope turn to compromised water sources; diarrhoea disease is a significant cause of chid mortaity in Africa. Extreme utravioet radiation (UVR) exposure frequenty is associated with areas experiencing drought; UVR exposure increases cancers, skin issues, cataract and other eye diseases, reducing the effectiveness of the immune system. In 2000, excessive UVR exposure aone was impicated in 1.5 miion disabiity adjusted ife years (DALYs) ost and 60,000 premature deaths from skin, eye and cardio-respiratory diseases FAO. (2010). Cimate change impications for food security and natura resources management in Africa. Twenty-sixth regiona conferences for Africa. Luanda, Angoa. 3 IFAD. (2011). Press reease No.: IFAD/48/2011 Horn of Africa: The rains wi fai in 2015, 2016, or 2017, but must we aso fai? [onine] Avaiabe at: 4 Haji, A Improving the Current Liveihoods Deveopment Poicy in Pastoraist Communities: The Case of Afar Pastora Tribe in Ethiopia. Unpubished paper. 5 See Confaoniere, U. et a., Human Hea. In M. Parry, O. Canziani, J. Pautikof, P..v.Linden, and C. Hanson (Eds), Cimate Change 2007: Impacts, Adaptation and Vunerabiity. Contribution of Working Group II to the Fourth Assessment Report of the Intergovernmenta Pane on Cimate Change. Cambridge, UK: Cambridge University Press. 43

45 Cas by the IPCC for coser integration of disaster risk management and cimate change adaptation poicies and practices to achieve measurabe benefits at oca, nationa and goba scaes ed SeaTrust Institute and Nurses Across the Borders Nigeria to create programs that aow communities to deveop strategies using oca cimate and heath issues and knowedge, and to disseminate the strategies widey by training nurses and midwives - who constitute the argest singe professiona group in any heath setting wordwide to deiver the programs in oca communities. By incuding nurses in deveoping and impementing socia deveopment poicies and pans to reduce the vunerabiity of popuations most at risk, communities define evidence-based oca heath outcomes that become key indicators of successfu DRR/M and CCA strategies. Loca to Goba Opportunities and Actions Drought knows no nationa, poitica or socia boundaries. Yet disaster prevention actions are governed by nations and by the avaiabiity of services as defined by socia conditions. Therefore, effective DRR and CCA efforts need to incude geographic as we as poitica and socia constraints. By combining organizationa programs, technica abiities and resources reated to cimate change and heath science, communications and databases technoogies, ife cyce approaches to managing cimate reated diseases and heath issues, humanitarian reief response and training capabiities, SeaTrust Institute s and Nurses Across the Borders s integrated initiatives operate at mutinationa, nationa and oca scaes. Leaders of the two organizations serve as co-chairs of the UNFCCC Coaition on Heath and Environment: Cimate Change Initiative in coaboration with WHO; together they reguary chair side events, workshops and represent the partnership at internationa meetings on cimate and heath for disaster reduction and cimate change adaptation goba eaders. These goba activities support the oca programs and projects Capacity Buiding for Nurses on Cimate Change and Human Heath and Surveiance of Changes in Diseases; and the Goba Response by First Responders to Cimate Change Disasters. The cose affiiation between these two NGOs everages a wide range of partners and experts dedicated to integrating human heath with cimate change adaptation and disaster reduction efforts to buid and support resiient communities. Stronger efforts at the internationa eve do not necessariy ead to substantive and rapid resuts at the oca eve. At the same time, ocay successfu efforts are not necessariy everaged at the internationa eve. That is why these NGOed initiatives ink oca projects to internationa cimate change adaptation and disaster risk reduction efforts and events through strong reationships with UNISDR Africa, WHO, ECOWAS, the African Union and other mutinationa and mutiatera agencies. Maintaining the necessary continuity by the joint NGO initiative eaders aso requires everaging partnerships with country eve ministers, other NGOs, scientific and technica experts, universities and oca community heath professionas. Disaster risk reduction has the potentia to integrate emergency responses to drought with ong-term panning and deveopment efforts, to reduce the ikeihood that hazards become disasters. In dryand areas, bending DRR/M with CCA highights the underying causes of vunerabiity through participatory experiences such as this joint NGO partnership that buids disaster resiience by providing guidance and toos for pacing the community in charge of panning, preparing for, and managing their responses. Loca Programs and Initiatives 1) Capacity Buiding for Nurses on Cimate Change and Human Heath and Surveiance of Changes in Diseases This capacity buiding approach invoves engaging in oca projects that hep nurses and other heath professionas taior their own oca adaptation strategies around their specific oca cimate change and heath issues. Participants coect meaningfu heath and cimate surveiance data through avaiabe technoogies, and participate in poicy discussions and decision making that affect the communities in which they ive, work and serve. Through using heath as the indicator for success in cimate change decisions, the work crosses the boundaries of cimate change science and risk from cimate change reated disasters as we as buiding sef-reiant cimate resiience that aows communities, through the eadership of their heath providers, to borrow and integrate the appropriate science and technoogy from the North and adapt it in within African institutiona, cutura and societa frameworks. Because major drivers for human heath have aways been poverty and confict, using heath as an indicator for disaster risk management strategies and impementation incorporates DRR/M into the panning, and into the very fabric of communities as part of buiding resiience. Heath workers become exceedingy vauabe resources and integra payers in a aspects of disaster management and risk recovery and active contributors to cimate change adaptation strategies. Activities: Nurses/Heath Professiona Capacity Buiding and Data Surveiance Program 6 See Davis, K., and Kingsbury, B., Indicators and Interventions: Pitfas and Prospects in Supporting Deveopment Initiatives at rockefeerfoundation.org/news/pubications/indicators-interventions. 44

46 Uses ocay reevant cimate, other disaster reevant information, and heath data Data surveiance of changes in heath conditions and supporting information using avaiabe technoogies Faciitated scenario deveopment using a process for sef-defined vunerabiity assessments, data seection and appication within potentia DRR/CCA scenarios Vunerabiity and adaptive capacity mapping Anaytic techniques for making informed choices from the scenarios Deveoping a poicy action voice in oca CCA and DRR strategies through evidence-based arguments using heath as the indicator Access to externa data anaysis for wise practices comparisons Nurses mentorship program pairing U.S. and African nurses to support oca earning and train-the-trainer expansion of the program to the community eve by in-country heath professionas 2) Goba Response by First Responders to Cimate Change Disasters. Goba Response by First Responders to Cimate Change Disasters is a coaborative effort between SeaTrust Institute, Nurses Across the Borders and the African Environmenta Action Network (EANet-Africa) to target first responders for training reated to the heath aspects of disaster risk reduction. This initiative was aunched during a six-hour interactive event, Goba Disaster Management: The Roes of Nurses and Heath Workers, hed on November 29, 2011 in the African Paviion during COP 17 in Durban, South Africa. buiding system in remote communities. The core project directors and eaders of the South-North partnership have the goa of empowering heath workers, and inking research and capacity buiding with goba poicy and action to buid momentum for heath as the universa societa and poitica driver of cimate poicy. Expanding the initia program to incude other first responders is a natura extension, combining coping and response with resiience and capacity deveopment with a focus on incusion of both youth and women on the front ines of disaster management. Nurses are ideay positioned as trusted professionas and community educators to carry the messages and engage oca peope in focused DRR/M and CCA impementation and oca strategic deveopment. By buiding the capacity of oca nurses throughout Africa to monitor and report changes in cimate reated diseases, train communities in disaster reduction through a focus on heath issues, participate in poicy discussions about disaster panning and mitigation, and materiay participate in buiding scenarios as a part of regiona disaster panning efforts, these heath professionas expands risk management work beyond traditiona anayses to incorporate comparative pathways to DRR/M that are community driven, repicabe and continuay draw upon the best scientific and technoogica goba expertise. The knowedge gained from working with and earning from trained disaster risk reduction professionas benefits the heath community immensey, and is essentia for deveoping oca capacity and innovation through knowedge and education to buid a cuture of safety and resiience at a eves. Forward Steps This initiative received a specia endorsement from Dr. Victor Fodeke, Advisor, Cimate Change COP 17 & African Paviion Side Event for the African Union. Dr Fodeke stressed the need to engage first responders in cimate change disaster preparation, highighting the appropriateness of starting with nurses as key first responders. He congratuated participants for being part of the goba aunch of the Goba Response by First Responders to Cimate Change Disasters, because the oss of one ife is too much and a the money in the word cannot repace one singe person. If we fai to pan, we pan to fai. This initiative is inked with the capacity buiding program for nurses in that it begins with nurses as the first responders for piot projects. Nurses were seected as piot first responders because of their roes in disaster reief, the eve of trust nurses hod in communities, their scientific information and process capabiities, and roes as community eaders and teachers. They are idea candidates for train the trainer programs that repicate the capacity It has become cear that uness oca capacities are buit and underying vunerabiities reduced in this increasingy unpredictabe environment, the greatest threat posed by cimate change is the acceerating and ampifying effect it has on existing risks and vunerabiities. Examining and addressing these risks and vunerabiities through the ens of heath and engaging nurses, other heath workers and first responders wi create the desired outcomes of these projects between SeaTrust Institute and Nurses Across the Borders in coaboration with key partners who are heping to aunch the piot projects in Africa, EANet-Africa and UNISDR. As has been shown in a variety of contexts, the process of creating, using and disseminating indicators can, in themseves, be usefu interventions; 6 heath serves as such an indicator in these initiatives to address drought through buiding oca capacity to deveop and impement disaster risk reduction and cimate change adaptation strategies. More robust and ocay accepted strategies resut in more resiient communities. 45

47 Piars of SeaTrust Institute/Nurses Across the Borders Work 1 Engagement with and support of oca popuations in sef-determined cimate change adaptation and disaster risk strategies 2 Cimate change and heath training of heathcare workers, particuary nurses incorporating oca data surveiance and poicy action engagement 3 Coaborating with partners and affiiates to inform poicy at a eves through a Loca to Goba and Back Again approach to capacity buiding, research and active UN participation by key personne in our South- North partnership Contact Points: Dr. Lynn Wison SeaTrust Institute, USA wison@seatrustinstitute.org, Ur: org Pastor Peters Omoragbon Nurses Across the Borders, Nigeria , nursesacrosstheborders@yahoo.com, Ur: www. nursesacrosstheborders.org 46

48 Connecting with Change: A Risk Management Approach to the Drought Crises By Stephen McDowe, Regiona Advisor IFRC and Aexandra Crosskey, Independent Consutant for Save the Chidren The atest drought in the Horn of Africa has posed chaenges for the humanitarian/deveopment community. It has ed Save the Chidren and IFRC to expore their programming and consider what programming modaities have been successfu and what needs to change to more effectivey manage the effects of the next drought. There was eary warning of the ast drought at grassroots, nationa and internationa eves. Action was taken on the basis of that eary warning, but it didn t have the impact intended, and one year on, miions of peope continue to strugge with severe hardship. By connecting our anaysis of the changing context, our understanding of how the effects of drought can be managed, and the processes that move peope towards reducing risk we can obtain insights into how assistance can be provided more effectivey. during periods of crisis, Manage the Risk not the Crisis. Thirdy, recognise that many peope are seeking aternative and compementary options to pastoraism and create Safer Transitions for these popuations. Engaging with change The arid ands have never been static, but the types of changes and the scae of those changes currenty being seen are unprecedented. Popuation increases of perhaps five times over the ast five decades, together with significant deveopmenta changes, have imposed news sets of probems and created new opportunities. These are a whoe range of factors that infuence this changing context; we wi focus here on urbanisation and rura services/business environment to iustrate the concept of Engaging with Change. Urbanisation Looking at popuation movements in Wajir County, North Eastern Kenya as we as in Gode, Degahbur and Doo Ado towns of Somai Regiona State of Ethiopia, it is cear that the way in which peope ive together is changing. In Wajir there has been increased popuation movement to urban, peri-urban and rura centre settements, with new settements springing up even during the ast 3-4 months. Informa discussions in Wajir revea the scae of this increase: a member of the Wajir District Pastora Association thought settements had increased from 4 to 100 over the ast 10 years, whie community eaders in Wajir reported a 40% increase in househods in their setted communities over the ast six months. They aso predicted that ess than 10% of these househods pan to return to their pastoraist origins. This type of movement in and out of settements and urban centres wi require further investigation and monitoring to confirm its scae and permanence. A boy drinks water from the jerrycan at one of the mobie water points in Pabbo that formery was an IDP camp. (Photo/ IRIN News) The earning and anaysis we conducted highights how gains in effectiveness can be achieved by strategicay strengthening three specific programming components. Firsty, in periods between drought crises, Engage with Change i.e. support participatory deveopment processes and innovations that increase resiience of vunerabe communities and thus reduce their exposure to hazards and put them at risk of negative outcomes. Secondy, Experience from Ethiopia shows that push factors such as hazards, oss of iveihood assets, conficts, popuation pressure, and the ack of aternative iveihood options have stronger effects on pastoraists movements towards semi-urban centres and new iveihoods than do pu factors (e.g. improved basic services, security). Present trend anaysis shows that these push factors are increasing, meaning that more and more househods wi move out of pastora iveihoods. Yet this does not mean that a pastoraist connections are severed. Setted househods may sti have ivestock ooked after by pastora reatives, and may support pastoraists with marketing transactions in a compex system rooted in strong socia and cutura ties. 47

49 One coping strategy widey empoyed by pastora communities is the spitting of famiies, with femae-headed househods moving into settements, whie the mae famiy members (adut and youth) either continue to herd ivestock or ook for urban empoyment. Women and chidren may be purposey sent to settements to access aid as part of a broader famiia iveihood diversification strategy. The youth are a massive and growing demographic often overooked in studying these process of urbanisation. They are osciating between their traditiona roes and the modern word. Save the Chidren s conversations with young peope in Wajir, Gode, Degahbur, and Doo Ado indicates that athough they are attracted to the modern word, they strugge to find the skis or opportunities to find work and buid a future. At the same time, they are proud of their deep-rooted passion for animas and pastoraist identity. Young women are douby chaenged: they are increasingy educated and have access to the non-traditiona word, and ike young men they too strugge to find their pace and work in towns or rura settements. Additionay, they must aso confront pressures and expectations to assume a traditiona roe in their communities. Changing Rura Services and Business Environment IFRC hosted an informa meeting of humanitarian agencies in August 2011 in order to ook for different approaches to drought response in this context of rapid change, and to identify high impact opportunities to reduce risk to drought. Participants consistenty emphasised the crucia importance of engaging with county eve government services and businesses. They noted that services in rura areas are now being addressed through innovative partnerships between government, the private sector and consumers. Veterinary services are evoving through partnerships between private sector drug providers and veterinarians; rura water is moving away from modes of either community management or government provision to hybrids where private sector actors fi gaps when community or government provision modes fa short; and changes in road and communication infrastructure as we as the growing presence of financia and teecommunication services are dramaticay increasing the inter-connectedness of these communities. This demonstrates that innovation to promote resiience can happen at scae and on a sustainabe basis. Incorporating change into programme interventions Providing the right kinds of protection, reief and access to services requires taking into carefu consideration a of the groups affected by growing urbanisation and changing modes of pastoraism. These transitions need to be supported in order to avoid hardship and insufficient fufiment of basic needs/rights for vunerabe chidren during these phases of change. To ensure that the design of interventions is appropriate for the specifics of the situation and the particuar iveihood zone, it can be usefu to combine the assessment of different iveihoods systems with a community-based and needs-based participatory approach. This avoids a scenario in which assistance is provided based upon out of date assumptions about who is a pastoraist and what kind of support they need. Through this approach, and to engage with change, vunerabe pastoraists can be supported by diversification of iveihoods, and connecting with innovative soutions and partners. Types of interventions incude: Drought-proof, sustainabe income-generating opportunities; Keep ivestock better inked with markets and processing faciities; Changes in the provision of heath, education and water (e.g. the estabishment of ibraries that trave on the backs of cames); Access to financia services and ce phone networks. Managing the risk not the crisis In addition to incorporating an anaysis of changes in different paces across the ASALs, it is necessary to investigate assumptions underpinning existing drought responses so that they better support diversity and change in times of crisis. Better drought cyce management There is a vast range in terms of eves of resiience and coping within a community, and these fuctuate over the course of the drought cyce. Appropriate assistance therefore requires different support to different peope at different times, and at the same time a recognition that the core of their coping strategies is their iveihood capita and the oca enabing environment. In the recent drought crisis, agencies have faced criticisms for their deayed reactions to eary warnings. But our anaysis suggests that even where there was eary action, it regrettaby did not deiver the impacts intended. There are severa expanations for this outcome: Risk reduction interventions were not enough to reduce vunerabiity. Many of our community deveopment activities were risk reduction activities, but they were not transformative enough to ensure that communities were both ess vunerabe and better positioned to cope with drought. This does not mean they were poor deveopment activities, ony that they coud not reduce vunerabiity and increase coping capacities to an extent that woud have been necessary to reduce risk in the most severe drought for 60 years. The rate of change in rura iveihoods is rapid. As such, our drought responses aimed at supporting famiies and their chidren to move out of poverty and to fufi basic rights must continue supporting 48

50 househods based increasingy in settements or peri-urban areas. A four distinct phases of Drought Cyce Management must be sustained during a crisis. We have earned that it is vita to continue with (norma) deveopment or preparedness/mitigation interventions throughout a crisis incuding through the aert, response and recovery phases. Heath, education, and protection interventions in particuar must continue, in order to achieve compementary impacts and maintain/improve resiience. Drought response is sometimes embedded in the causes of the probem. The drought reief provided by humanitarian agencies has become inter-woven into drought coping mechanisms in many communities. Many permanent settements have actuay evoved as a response to decades of reief assistance, especiay food aid and water trucking. Despite the undeniabe importance of the humanitarian imperative, heping communities to remain in these unpanned settements or providing reief that acts as a disincentive to change, has increased eves of dependency often perpetuated by each subsequent reief response to drought. Change the scae: integration Supporting the range of requirements at different points during the drought cyce is a daunting task. A esson earned in the Ethiopian context is to appy a cross-sectora approach to enhance resiience, and to focus and buid on customary institutions as the backbone of appropriate interventions. Doing so enabes the impementation of crisis responses at scae, and making investments that enabe change to continue through the crisis and serve the wider community ong after the crisis has passed. Our earning showed that sector integration is an effective drought Disaster Risk Reduction measure not surprising given that drought disasters have compex causes and drivers. For instance, the Food Security framework aone does not enabe sufficient conceptuaisation of economicay viabe househods ; it therefore needs to be combined with the Sustainabe Liveihoods Framework. Integration across institutions, as we as across sectors, is an important component of this approach. A andscape approach in supporting county/district/woreda eve panning informed by community-ed interventions increases resiience of these vunerabe communities before, during and after the crises. This requires a bottomup approach, in which community-based processes inform county/district/woreda eve panning to enabe environments for sustainabe iveihoods. Such activities promote a deiberate, panned action and one that seeks to work at scae. Participatory Natura Resource Management (PNRM) is a usefu too for bringing together customary institutions and government. Save the Chidren has found that PNRM boosts customary institutions and adaptive capacities, promotes community ownership, reduces dependency, and creates space to innovate, be progressive, and gain direct benefits from community-own work. Safer Transitions We are concerned that over decades, many reief responses have become embedded in drought vunerabiity by heping househods to adopt or hang-on to unviabe rura iveihoods and in inappropriate ocations. To compement drought reief, agencies shoud support communities to use the crisis as an opportunity to safey transition those hanging onto unviabe rura iveihoods, and make sure the new communities can ive safey and with dignity. These activities don t need to ook different in terms of the activity itsef, but rather in terms of what they seek to achieve, where they are targeted and where they are not targeted. Strategies incude identifying obstaces and impediments to those who want to move or migrate temporariy or permanenty, and assisting their transition where possibe. This is not to suggest that we shoud make things easy, but rather that we support sef-hep capacities and communities own initiatives to strengthen resiience. And we must support hangers on to find aternative iveihoods, to be fexibe, to identify opportunities and to make use of them. They wi need these skis for permanent adaptation to changing conditions. Activities incude: Assisting with short-term abour migration Supporting skis training to deveop aternative or compementary iveihoods options (eectric, brickaying, IT, phones, mechanics, book-keeping, functiona iteracy, business skis deveopment, primary education for oder students) Faciitating access to pasture and water for migrating peope and ivestock. Connecting with Change These preiminary insights into the changing context in the ASALs and drought risk reduction programming, emphasise opportunities for humanitarian agencies to engage differenty. Some may argue that they are aready doing this, and in fact, we woud argue that it is not that something new needs to be done but how it is done that shoud change. A weath of effective and innovative work is being undertaken, but for it to have the desired impact, approaching the probem differenty might deiver greater impact. Against the backdrop of change, humanitarian and deveopment agencies need to rethink the manner in which they serve their communities. For further information pease contact: stephen.mcdowe@ifrc.org aexandracrosskey@yahoo.co.uk 49

51 50

52 Photo/ IRIN News Drought Preparedness, Contingency Panning, Contingency Funding, Eary Action Measures 51

53 Karamoja Productive Assets Programme (Kpap). By WFP Karamoja is part of the semi-arid, pastoraist bet of the Horn of Africa. It is the poorest and most marginaized region in Uganda, with over 80 percent of its peope iving beow the poverty ine. Due to its geographica ocation, Karamoja is prone to natura disasters - particuary droughts - which are becoming more frequent and severe as a resut of cimate change. At the same time, the sub-region is aso affected by chronic insecurity, due to inter-ethnic tensions and catte raiding. Over time, the combination of frequent natura disasters, on-going vioence, severe environmenta degradation and high poverty rates has not ony eroded peope s capacity to cope but eft them heaviy dependent on food aid, which was the principa assistance modaity of WFP s programmes in the region unti The Karamoja Productive Assets Programme (KPAP) is a arge-scae food and cash for work and asset creation programme that marks a shift to support government efforts to promote recovery and onger-term deveopment in the region 1. Launched in 2010, KPAP has been supporting 76,000 chronicay food insecure househods with abour capacity (roughy 38 percent of the popuation) to transition from dependence on food aid towards sef-reiance. The objectives of the programme are twofod, firsty to prevent the spread of negative coping strategies during the traditiona hunger season and secondy to stimuate recovery. In ine with the Governmenta strategy for Karamoja, the KPAP is a three-tiered programme consisting of: pubic works, meaning that beneficiaries quaify for conditiona food or cash transfers in exchange for their participation in pubic works activities. The types of activities supported incude: ivestock watering points; and/soi conservation measures; reforestation and road rehabiitation. Househod income support, meaning that beneficiaries receive both soft and hard inputs aimed at strengthening and diversifying their iveihoods systems. The types of activities supported incude: drought-resistant stape crops e.g. cassava and miet; vegetabe gardens; fruit orchards; gum Arabic; dairy production and energy-saving stoves. Capacity deveopment, which means that WFP and impementing partners systematicay engage with communities and district oca governments at ceary defined points in the annua programme cyce. Given the context of food aid dependency, community acceptance of the programme is essentia. To this effect, standardized core messages have been imparted to communities about the roes and responsibiities of stakehoders in the project, beneficiary entitements and obigations and the importance of sef-reiance and buiding resiience. Karamoja consists of three different ecoogica zones, which has inevitaby infuenced iveihood patterns aong divergent ines 2. Recognizing the intrinsic differences between each iveihood zone is different, househods are offered different menu of pubic works/househod income activities in each zone. Activities supported under the programme must aways be appropriate for the iveihoods zone, as we as technicay suitabe for ow-skied manua abour. Around 10 percent of househods (who ive in and around the seven major trading centres of Karamoja) have been switched from food to cash transfers, in order to foster market deveopment which has been constrained by the ow purchasing power within househods. District oca governments pay a forma, active and cearyspecified roe in terms of approving activities carried out under the programme, and monitoring and evauating the performance of sub-projects against their stated objectives. The programme aso focuses on buiding government capacity to improve sustainabiity. KPAP reies on strong technica and operationa partnerships. FAO payed a key roe in deveoping the investment menu for KPAP and is advising district oca governments, WFP, and other impementing partners on a range of technica issues on the programme pertaining to iveihoods promotion and environmenta management. This is essentia for quaity assurance on sub-projects, as we as harmonization with the work FAO itsef is supporting through Agro- Pastoraist Fied Schoos (APFS). Nine NGO partners aso worked cosey with WFP to adjust geographica coverage and ensure adequate impementation capacity across the region, aowing a rationa arge scae effort to be mounted. Reevance for Resiience Buiding KPAP strengthens househods resiience to shocks and adverse events by buiding sustainabe iveihoods. A iveihood is sustainabe when it can cope with and recover from shocks, and when it can maintain or enhance its 1 Since 2011, the KPAP has been an impementing arm of a broader framework/programme of the Government of Uganda known as the Second Northern Uganda Socia Action Fund (or NUSAF2 ). Governmenta ownership both at nationa and district eve is an extremey important aspect of the programme. 2 Karamoja has three iveihood zones: (1) Agricutura; (2) Agro-pastora and; (3) Pastora. In recognition of this, the KPAP menu is taiored to each of the iveihood zones. The menu has been discussed at ength with the Government of Uganda and FAO, with modifications having been made aong the way. 3 Lindsey Jones, Susanne Jaspars, Sara Pavaneo, Eva Ludi, Rache Sater, Aex Arna Natasha Grist,SobonaMtisi Responding to a changing cimate: Exporing how disaster risk reduction, socia protection, and iveihoods approaches promote features of adaptive capacity. Overseas Deveopment Institute: working paper

54 capabiities and assets whie not undermining the natura resource base 3. In particuar, KPAP buids resiience in three main ways: firsty through preserving and buiding-up the asset base of househods under the pubic works component of the programme, WFP is providing househods with access to food/cash transfers during the traditiona ean season when the sae of assets (most often ivestock) is a common negative coping strategy. Productive assets are therefore preserved aowing househods to better absorb and manage stresses during unexpected shocks. The second approach is the strengthening and diversifying of iveihood systems. Under the househod income support component of the programme, WFP is providing househods with the means both to cimate-proof their existing iveihood practices (e.g. by improving the access of ivestock to water sources), and to diversify into new iveihood activities (e.g. by suppementing catte-rearing with basic agricuture). In this way aowing beneficiaries to better adapt to changing cimate patterns by heping them mitigate risk and avoid the spread of risk across mutipe iveihoods. The third approach is about ensuring the continuity and sustainabiity of the programme. Emergency response can be expensive and can be unpredictabe as fows of reief aid are often insufficient. However, ensuring the continuity and sustainabiity of programmes is necessary to securing resuts in terms of buiding more resiient iveihoods. The cost effectiveness of KPAP accounts for the sustainabiity and high coverage of the programme. Whie the 2009 food aid operation, covering the same target group as the KPAP, cost approximatey USD $120 per beneficiary per annum, the KPAP costs approximatey USD $50 per beneficiary per annum. KPAP therefore advances the agenda for prevention over response. 53

55 Comprehensive Drought Risk Management in Ethiopia: The Liveihoods, Eary Assessment and Protection Project (LEAP) Managing Disaster Risk Ethiopia is particuary vunerabe to droughts and foods, both of which are expected to increase in intensity and frequency under cimate change scenarios. As the iveihoods of more than 80 percent of the Ethiopian popuation fuy depend on agricuture, cimate risks represent a serious threat for the most vunerabe communities and farmers. To address this chaenge, the Government of Ethiopia (GoE) aunched a comprehensive Nationa Food Security Programme (NFSP) in 2004 and subsequenty estabished a Productive Safety Net Programme (PSNP). The PSNP aims to enabe miions of chronicay foodinsecure rura peope move out of hunger and poverty shifting from recurrent emergency assistance to more secure and predictabe forms of socia protection. It aso promotes the iveihoods of vunerabe househods through asset creation, resiience buiding and disaster risk reduction interventions conducted through pubic works using food and cash as payment. In support to the NFSP, WFP and the Word Bank are working with the Government of Ethiopia to hep deveop an integrated nationa risk management framework through the Liveihoods, Eary Assessment and Protection (LEAP) project. LEAP combines eary warning, contingency panning, risk profiing and contingency finance to support the fexibe scae-up of the nationa eve productive safety nets. Eary Warning WFP provided technica assistance to hep the GoE deveop an advanced food security eary warning too that converts agro-meteoroogica data into crop or rangeand production estimates. This aows quantifying the financia resources needed to scae up the nationa PSNP in case of a major drought. The meteoroogica information comes from a network of automated weather stations and sateite data. In order to improve the quaity and avaiabiity of this data, the LEAP project aso supports the Nationa Meteoroogica Agency improve the meteoroogica infrastructure with the instaation of automated weather stations in highy food insecure areas of Ethiopia. inform CONTINGENCY PLANNING The deveopment of contingency pans at nationa and regiona eve improved the management of disaster risks and the effectiveness of governments emergency response. MONITORING & ASSESSMENT INPUT DATA Disaster Risk Profies Agro-Meteoroogica Data Food Security Assessments EARLY WARNING LEAP advanced drought monitoring and eary warning too converts agro-meteoroogica data into crop or rangeand production estimates and aows quantifying the financia resources needed to respond to drought. activates feed triggers CONTINGENT FUNDING The estabishment of a US$ 160 miion Word Bank contingent fund aows the GoE respond to drought before it impacts on ives and iveihoods. Supports the scae-up of SOCIAL PROTECTION When a shock occurs, the reease of contingent funds aows a timey and effective scae up of the Nationa Productive Safety Net Programme. This programmes prevent vunerabe househods from seing iveihood assets in times of crisis and promote community disaster risk reduction activities. Risk profiing and Contingency panning inform As part of LEAP, direct and indirect technica support is provided to the government risk anaysis and contingency panning activities at nationa, regiona and community eves. When cimate stresses are detected by the LEAP eary warning systems the activation of contingency pans and the avaiabiity of risk anaysis enabe the government to respond in a timey and cost effective way, targeting the most vunerabe communities. Contingent Financing Through LEAP, WFP faciitated the GoE access to internationa risk transfer mechanisms and supported the estabishment of a US$ 160 miion contingent fund through Word Bank. The contingent fund aows the government to timey scae up the PSNP before a shock impacts on peope s ives and iveihoods. LEAP crop monitoring and EW outputs are used as a transparent, objective and verifiabe indicator to trigger the reease of part of the fund to activate the government response. 54

56 Capacity Buiding A core component of the LEAP capacity buiding approach is the provision of trainings to GoE technica staff, aimed at buiding the government capacity to provide trainings at sub nationa eve. Technica support is aso provided through secondments of technica staff to the government and faciitation in the estabishment of government partnerships with nationa and internationa universities and research institutes. The provision of computers, servers and meteoroogica infrastructure based on actua needs aso represents an important factor in strengthening the GoE eary warning and monitoring capacity. Project Impact LEAP heped the government of Ethiopia estabish a nationa disaster risk management framework and increase the timeiness, transparency, and cost effectiveness of iveihood assistance interventions. During the first project phase a nationa food security eary warning too was created, and a training mechanism was estabished, with government and partner staff trained and enabed to train regiona officers. The creation of the eary warning mechanisms resuted in the reguar generation of crop monitoring and drought eary warning information, which is now used by the GoE for decision making process. The project aso strengthened the nationa meteoroogica infrastructure and improved the access to existing meteoroogica data through a cose coaboration with the Nationa Meteoroogica Agency. Inter-ministeria coaboration was aso enhanced, with officia partnership agreements estabished and diaogue and information exchange promoted as part of the project impementation. Government access to the most advanced disaster risk monitoring toos and technoogies was aso promoted through the estabishment of partnerships with nationa and internationa universities and research institutes. The second LEAP phase (2012) aims to support the improvement of the LEAP food security eary warning too, incuding the creation of an index to monitor the pastora areas, integration of seasona projections to improve the understanding of the new rainfa patterns and integration of LEAP outputs with iveihood baseines for comprehensive eary warning and assessment. In 2012 LEAP wi aso seek to strengthen the nationa meteoroogica infrastructure and deveop the nationa disaster risk management expertise promoting nationa trainings, GoE partnerships with nationa and internationa universities and staff exchanges. Sustainabiity and Repicabiity The LEAP approach is set to ensure the sustainabiity and continuity of the estabished risk management framework. This is pursued through: Government project ownership and project management structure fuy integrated into the government eary warning-eary response institutiona mechanism; Continued transfer of technica knowedge and expertise to oca actors; Creation of a risk financing mechanism aimed at increasing the cost effectiveness of iveihood protection interventions; Use of innovative technoogy with imited running costs. This incudes the use of free sateite data for crop monitoring and the instaation of fuy automated weather stations. Based on the successfu experience in Ethiopia, WFP and partners with the support of the GoE are now exporing options for repicating the LEAP approach in other countries heping those to shift from managing disasters to managing risks and improve the food security of vunerabe communities. For more information, pease visit: and 55

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58 Photo/ IRIN News Coordination and Partnership for Drought Risk Reduction 57

59 Drought Risk Reduction Specia Topic: The Importance of a Coordinated Approach By Eric Patrick for United Nations Deveopment Programme -Dryands Deveopment Centre Overview This artice begins with an overview of the inherenty interconnected nature of drought impacts, compares this to the even bigger chaenge of managing potentia impacts from cimate change, and argues that mutipe forms of coordination the need for some of which often go overooked are required in order to be more effective. It is then argued that part of the reason for the reativey imited progress in reducing the impact of droughts is due to the faiure to appreciate the differentia impacts on different parts of the economy and this is taken as a starting point for a coordination process. Institutiona factors, however, incuding competition for resources, are aso highighted as a cuprit and it is argued that a reaistic assessment is foundationa to generating critica poitica wi from the key stakehoder, another prerequisite for a successfu process. Areas where coordination may be critica are then proposed. Some exampes of more innovative approaches to drought risk management, with an emphasis on the coordination aspect, are provided from various parts of the word comes next. Finay, severa step-wise approaches to engendering a coordinated approach to drought risk management are highighted together with some resources for practitioner peer earning. Managing Drought: a dry run for a coordinated response to cimate change? Drought has repeatedy been shown to be the natura hazard which has the greatest human mortaity and economic impacts (for exampe the Goba Assessment of Risk 2011 UN ISDR). It is important to note that droughts do not just affect dryands, which require a particuary wide range of integrated deveopment interventions, and where the impacts are often directy on the human wefare (the cassic famines of Sahe) but aso areas which are not reguary affected; in fact these areas are typicay more strongy affected economicay as they are usuay more important in the nationa economy and are ess we prepared / adapted. Unike most other natura hazards, drought is both (a) sow onset and (b) is part of a short term natura cycicaity of weather patterns (as opposed to aridification, which is a ong term process of the cimate becoming drier due to either natura and/or human drivers). Both these facts, in principe, shoud aow for management of the risk of drought impacts as a norma part of panning at various scaes. Drought is often bamed on cimate change, which is a convenient but often inaccurate and unhepfu expanation which can shift the discussion beyond human infuence and therefore out of poicy discussions beyond when a decaration of emergency (and drought reief) shoud take pace. There does seem to be evidence that the pattern of rainy seasons is shifting in many paces, which is ikey due to cimate change, can increase the risk of an agricutura drought even if the actua amount of rainfa has not changed, as panting may have taken pace at the wrong time. On the other hand, uncertainty about the timing, amount, duration and ocation of rainfa has aways been characteristic of drought prone agro-eco zones and can be managed. The recent IPCC Specia Report on Managing the Risks of Extreme Events and Disasters (November 2011) reports observation of onger and deeper droughts in various regions. In terms of projections, the number of hot days is expected to increase by a factor of 10, which can induce a simiar end state as ower rainfa through higher evaporation (ie from reservoirs) / transpiration (from pants, trees) demands. Hence it is more important than ever to get drought risk management we coordinated, which in fact coud be seen as a dry run for future conditions more widey. Managing the risk of cimate change impies a high burden of coordination at mutipe scaes; perhaps some good principes can be derived from drought risk management experiences. Different drought risk poicies are required for different parts of the economy, as is coordination between them In the popuar imagination dryands are remote and rura; however the reaity is more compicated as many arge cities are found in dryands (such as Los Angees, New Dehi, Cairo etc) but their economic reach aows them to compensate in their immediate suppy zones through either an engineering (diverting the Coorado river) or trade based soutions (importing food from non drought affected areas); in short the economic dynamics of cities generates adaptive potentia yet authorities at the municipa eve may be hostage to ack of coordination with panning at higher scaes. A country such as Egypt has structura water and food deficits; urban mouths are fed through effectivey 58

60 importing the rainfa which went into buying-in cereas ( virtua water ) equivaent to the annua fow of the Nie! This demonstrates the potentia for trade to reaocate the reationship between peope and the geographic distribution of water resources. In principe the density of cities affords authorities the potentia for efficient distribution; however different eves of disposabe income and poitica infuence at the househod eve may mean that this potentia does not necessariy transate into food going to those most in need. On the other hand, food aid targeting in rura areas is more expensive per unit and there is often a ack of current information even of where peope may be, given that migration is the most common traditiona response to drought. As can be seen, different poicies are required for ow and high density areas. Furthermore, urban centres often become refuge zones for dropouts from the rura economy, whose iveihood asset base may have been undermined by successive weather and reated price shocks. Hence panning coordination needs to refect an understanding of economic geography and of how this is infuenced by drought on both an event-specific basis and over the ong term. For a variety of reasons this sort of hoistic anaysis is rarey undertaken as a basis for drought poicy formuation; typicay because it is assigned to a ower eve entity (such as the Ministry of Agricuture or Water or Meteoroogy) which acks the range of expertise and authority. Drought impacts have a particuary strong knock on effect on the economy, especiay where an economy depends significanty on agro-industria production, as suppy is not avaiabe to add vaue to in addition to the impacts on agricutura producers; but aso and often most greaty in monetary terms due to oss of power to urban and industria sectors. In a diversified economy such as Austraia the oss in terms of Gross Domestic Production can be on the order of 1%; in deveoping countries the figure can be ten to fifteen times as high or even more. Time series of annua mean rainfa and nationa GDP show a remarkabe correation in various countries such as Ethiopia and Morocco. Poicy coordination in the rea word: competing perspectives and institutiona interests Drought poicy formuation processes need to both distinguish between and take into account (i) the genera deveopment chaenges of reguary drought prone areas such as dryands in addition to (ii) the specific impacts of drought on popuations, their resource base and iveihoods; and the atter in (iii) different ecoogica and/or economic zones, as they may have different degrees of rainfa dependence and different types and degrees of coping and adaptive capacity. This is expained and iustrated in more detai beow and this emphasis is necessary because most drought poicy and panning exercises start from apparenty sef-evident but simpistic and often miseading assumptions (such as drought means ack of water, so we need to dri wes to cite a Specia Envoy to a drought affected region, or food insecurity means not enough food production in dry areas so we need irrigation which is often not cost effective or environmentay sustainabe) may not in fact represent the most effective aocation of fungibe capita. Furthermore the resources for investing in drought risk reduction are poiticay scarce and hence contested; thus to be poiticay viabe and sustainabe institutiona soutions need to be seen to engage and benefit a range of infuentia stakehoders. This is especiay true in the case of advocating for budget aocations to prevent the impacts of something which might not happen; or if it wi happen, with uncertain timing and ocation. Making the case and putting it into practice both start from hoistic anaysis and investment in engagement of key stakehoders; drought events themseves provide a window of opportunity amongst shifting institutiona attention spans but the background work needs to have been done in order to be in the position to take advantage of these opportunities. Finay, the consequence of faiing to do so tends to reinforce aid fatigue for reguary drought affected areas and narratives about hopeess systems. Areas where coordination for drought risk management shoud be considered As has been demonstrated, it is indisputabe that drought risk reduction in particuar requires an integrated and coordinated approach. Coordination may in a particuar case be required in one or more of the foowing areas among other possibe areas - and shoud start where there is ow hanging fruit: (i) Coordination is needed between units created by bureaucratic divisions at government eve: Between the cassic economic (productive) sectors and their corresponding (and ikey competing) ministries; for exampe poicies to promote agricuture such as research and deveopment for drought toerant crops can have the perverse effect of undermining other more inherenty suitabe sectors such as ivestock production. Between productive, tax generating and socia, tax spending sectors such as heath and education; for exampe, droughts can cause parents to keep chidren out of schoo and food shortages affecting young chidren can have ifeong effects, which in turn wi affect the productive sectors. However by time these impacts are fet the current government may be out of power and therefore may not have a poitica incentive to do so; furthermore, the 59

61 consequences of ack of investment in droughtprone areas may be externaized as a humanitarian emergency and therefore becomes the responsibiity of the internationa community under the current internationa poitica economy. Between areas of poicy; disaster, agricuture, environmenta but aso other ess obvious but reevant areas; the process which ed to Kenya s draft poicy on dryands deveopment is a good exampe of an inter-ministeria process; furthermore this poicy informs Kenya s ong term strategy document Vision 2030 (ii) Coordination across space and their corresponding institutions: Between objectives and modaities for urban and rura deveopment (often itte attention is paid to the economic geography of the reationship between urban centres and their hinterands; some urban centres even grow up around drought reief distribution ocations and road networks emerge for the same reason) Between spatiay defined units of administration at various scaes, as drought may affect a arge area, incuding cross border within and/or between countries. There have been good exampes of internationa agreements for food trade and regiona physica or virtua grain banks; however in practice these are often disregarded or misaocated during a crisis due to domestic poitica pressure and opportunities at various eves groups invoved in each as we as their sources of financing (whose rues often precude good use of funds designated for ifesaving activities to aso address underying sources of vunerabiity to impacts from future droughts)/ The area of eary recovery attempts to bridge this gap, in this case in the context of drought cyce management. Other attempts have generated many new acronyms but a represent ways of trying to break the moud, with varying degrees of success against deepy entrenched habits, processes and incentives. Between the pubic and private sector (some enabing conditions / pre-conditions for private sector investment in drought prone areas are inherenty pubic goods such as major road networks, security when transporting goods etc). Is there a business case / demand for particuar pubic investments or are these made for poitica reasons or just out of good intentions? On what basis are aternatives being compared; many drought risk reduction activities have a weak empirica basis for investment of scarce capita and peope often resort to common sense ideas which may not in fact prove to work. Simiary, there may be a minimum set of conditions necessary before the power of the private sector can be tapped; addressing ony one or two dimensions may even be a waste of money. Finay, there can be a ot of mistrust and different sets of assumptions / perspectives between private and pubic sector actors which may need to be overcome, and sometimes corrupt reationships between them. (iii) Coordination across time: Across time, poiticay (droughts may strike during points in an eectora cyce which resuts in inaction and/or poiticization); Across time, operationay, during and between droughts (drought cyce management) (iv) Coordination between types of approaches: Between efforts to address chronic and acute vunerabiity (much drought reief is actuay permanent transfers to areas or production systems which are manifesty unviabe this needs to be expicity recognized in order for a sound anaysis of options to be possibe); what is the roe of eary recovery to bridge this gap?; rues around what funding can be spent on can infuence effectiveness and this bureaucracy is another area where significant benefits of coordination coud be reaized (v) Coordination between types of actors: Between deveopment and humanitarian activities (for exampe, between drought reief and investment in dryands deveopment); and between the actor Drought risk management through various forms of coordination There are many good exampes of drought risk management; however these may rarey be understood in terms of the coordination dimension. Conversey the root of faiure of many good DRM efforts is often found in the ack of coordination. This section briefy introduces some exampes of DRM practice from various areas of the word to iustrate aspects of coordination. Much good practice remains undocumented. Hence peer-to-peer earning needs to be increasingy faciitated in this area and systematicay documented in the forms of practica guidance materia. A good exampe of such a mechanism is the Africa-Asia Drought Risk Management Peer Assistance Project, a Japanese funded practica network impemented by UNDP-DDC ( A reated activity is the Africa Drought Risk and Deveopment Network, managed by UN-ISDR and UNDP-DDC, which has hed 4 practitioner forums to date to highight and debate various aspects of DRM across individuas who might not otherwise interact. This diversity of engagements with drought refects the compex nature of the phenomenon and our often scattered approach to it. In this section we pick up on some of the areas of coordination introduced 60

62 above, providing a more detaied discussion as we as citing some exampes of where this has been attempted and with what resuts. This can ony provide a rough survey at best and the reader is encouraged to avai themseves of the onine resources for practitioners mentioned, as we as guidance materia highighted in the Resources section at the end of this artice. Coordination by poicy reated entities Coordination is often assumed to mean forma coordination between poicy making or poicy deivering entities, meaning departments or other institutionaized authorities at various (but mainy nationa scae). Some exampes are whoe-of-government approaches when the impacts of drought are considered to be an existentia threat. For instance, a root probem narrative emerged in Ethiopia about an imbaance between the ocation of resource users and resources in this sti primariy rura society. As such, the soution is seen to be a centray organized resettement program, with mixed resuts for a number of reasons. Another exampe of nationa eve coordination is the Chinese programme to transfer resources from areas affected by dust storms (mainy the eastern coasta cities) to the desertification contro activities in the source areas, thousands of kiometers away. Internationa agreements in East Asia aso take this to a higher scae. Coordination of information and anayses as a basis for agreed priority actions Coordination around the definition of a drought, its extent and severity, whie seemingy simpy a technica exercise, often has arge poitica impications as they are often the basis of decarations of emergencies which, in turn, can trigger the reease of raising of funds. There have been various criticisms of the way in which chronic drought reief, irrespective of the actua weather conditions, have been poiticized and created dependency parts of South Asia and Africa. Coordination between scientists at an internationa eve (such as agreement on a Standardized Precipitation Index); between humanitarian actors (such as various agencies working in Somaia who adopted an Integrated Phase Cassification to monitor drought as it evoves) or its equivaent in the US, the Nationa Drought Monitor (based on consensus across numerous observers); or at a sub regiona eve between Met Depts and met data using ministris through seasona Cimate Outook Fora in the Greater Horn or regiona vunerabiity assessments in Southern Africa invoving a wide range of practitioners in nationa Vunerabiity Assessment Committees; or through regiona institutions in the Sahe such as Agryhmet provide greater credibiity and hence ower poitica risk. A coordinated response starts with a generay agreed upon anaysis, which in turn depends on a credibe methodoogy. Joint assessments in the fied, for exampe convened through the Kenya Food Security Meeting, provide information pooing opportunities which are aso operationay usefu. Vunerabiity Assessment Mapping (used in particuar by humanitarian actors) have a simiar purpose and, being buit on a computer patform, can aso be usefu for a range of anayses. However various entities have deveoped their own systems for their own purposes and there can often be disagreement on which, if any, shoud be used by everyone. Furthemore, these systems often originated from the need to produce numbers and ocation for reief distribution and have a difficut time when top oaded with types of data they were not designed for and to answer other types of questions (for exampe the impact of HIV/AIDS on food insecurity). Hence ideay nationa systems woud be deveoped which take into account the broad needs of panning and the reationship to drought, incuding onger term trends. Monitoring systems do exist, such as FEWSNET, but tend to be high on sateite data and not necessariy we integrated into government decision making and coroary information systems. Aternativey a nationa committee coud be formed, as happens in a number of countries to sift through various forms of data produced by various systems. However the data producers may be more technica than the data consumers and unabe to express the data in terms of the decision making criteria actuay used. Vunerabiity assessments in particuar can be usefu to revea underying dynamics which coud then inform poicy formuation and drought panning; for exampe in Ethiopia anayses concuded that roads were usefu both for the rura poor (to get food reief in) and for the high income producers (to get their products to market). A very arge programme of road construction in Ethiopia has resuted in part from such insights. Coordination of financing Amongst many other aspects of coordination which coud be covered, coordinated financing is critica both across sectors and time. This coud be triggered by eary warning or coud be part of an ongoing financing mechanism; a good exampe is a budget reaocation process which begins at the municipa eve in areas of Brazi when drought is forecast in order to create a resource to address needs as they emerge. The private sector can provide a simiar service in the form of index based weather insurance (which heps overcome some imitations of cassic, evidence-of-oss, based insurance) and interesting piots have been attempted (underwritten by externa parties) in Maawi (transferring the responsibiity for cerea deivery to the private sector and taking advantage of the internationa grain hub in South Africa), Ethiopia (to forward finance drought reief costs) and esewhere for possibe use at nationa eve. However these have yet to be reay institutionaized for a number of reasons, in part the poitica risk of paying premiums to compensate for something which may not end up happening. Other ideas incude virtua grain reserves in the form of cash; however in the case of one Southern African country deveoping a drought poicy this option was dropped because of a ow 61

63 eve of trust between ministries as to who woud manage the funds. Nationa and regiona physica and virtua grain reserves typicay founder for simiar, management reated reasons. Insurance financing for the weather risk (hurricanes) have been attempted in Centra America and esewhere, as opposed to waiting for pubic re-insurance through a hoped-for internationa humanitarian response. Pubicy funded equivaents tend to be broad, ongoing socia safety nets which are ideay actuay needs targeted; exampes incude the Nationa Rura Empoyment Guarantee scheme in India and the Bosa Famiia in Brazi, both of which have been disproportionatey significant in drought prone areas. These programs reay represent a decision to transfer weath to areas which typicay have poor resource endowments and as such are forms of dryands deveopment which aso reduce vunerabiity to drought shocks. Specificay with respect to drought, coordination of financing has been very successfu with very arge numbers of doar-a-day farmers buying commercia weather insurance in India, with the risk passed on to the internationa financia poo through purchase of re-insurance. Due to the compex mix of objectives, the right mix of financia instruments wi need to be put together. Line ministries are rarey technicay competent in this area; hence ideay the invovement of the Ministry of Finance either in an advisory or centra roe. Their engagement is made easier when the arguments about drought impacts utiize the anguage they understand; economics both direct and indirect osses as we as opportunity costs. Concusions: Critica prerequisites for a successfu process As with Disaster Risk Reduction, drought risk management shoud be conceived from an integrating office such as the Ministry of Panning, Ministry of Finance, a regiona deveopment authority, the Prime Ministers Office, the Ministry of Nationa Deveopment etc, informed by the key stakehoders. However there needs to be buy-in beyond the symboic pacement of the process in a high status office. This wi ony take pace when the key institutiona actors and others are convinced of the significance of the issue for their concerns, that budget aocations are on the ine, that it is being pushed from the top, that funding wi be sustainabe and that other types of resources (technica support etc) wi be avaiabe. Due to this demanding set of conditions, success is more ikey if there are partnerships in the case of aid recipient countries between externa and interna actors, with the caveat that this can create the risk of the perception of poicy capture by a major externa partner and/or resentment of the activity as the pet project of an individua or ministry who is seen as having captured the externa resources. Resources for estabishing stakehoder processes towards better drought coordination A ten step process to deveop a drought pan, widey used in the United States and adapted in the Near East and esewhere, can be a usefu reference (US Nationa Drought Mitigation Centre: drought.un.edu). A five step process of mainstreaming drought risk management can be found in a drought mainstreaming primer produced by UNDP- DDC (2011), which incorporated a wide range of what we know about process reated aspects of what works as we as providing various case studies in more detai than can be covered in this artice (avaiabe at: dryands/docs/mainstreaming%20drm-engish.pdf) For comments or questions contact the UNDP DDC at ddc@undp.org Photo/Courtesy 62

64 Mobiity is the key to the resiience of mobie ivestock keeping Ending Drought Emergencies: wi the promises of the Nairobi Strategy be met? By Safia Abdi, Cordaid/REGLAP Country Lead for Kenya The drought, in the East and Horn of Africa, is estimated to have affected 13 miion peope, of which 4.5 miion are Kenyans. Lives and iveihoods have been ost. The drought has aso generated extensive debates on how to end repeated drought emergencies, with discussions hitting media headines and forming the agendas of nationa and internationa conferences. Some key statements have cut across a the debates acknowedging that: Whie drought is an unavoidabe natura phenomenon, it need not and shoud not ead to famine and other disasters. Long-term under-investment in the foundations of deveopment in drought prone areas has caused the increase in vunerabiity that has ed to this crisis. There is a need for urgent investments in programmes and actions that buid resiience. Whie the drought s impact on ives and iveihoods may be ocaised, it affects the overa socioeconomic growth of the country. Despite the eary warnings about ooming drought, many responses have been reactive rather than proactive. With cimate change, drought wi become more severe and frequent, and therefore cimate-resiient iveihood options need to be supported. Mobiity, the key to the resiience of mobie ivestock keeping, shoud be supported through ensuring rights to communa grazing areas and migration routes both within countries and across borders. There is a need for socia safety nets for vunerabe popuations though strategies such as cash transfers, but with additiona cear programs to ensure that ong term sustainabe iveihood options are deveoped for the vunerabe. On September 9th 2011, the Leaders of Eastern and Horn of Africa countries and the African Union, in the presence of the United Nations, Deveopment Partners and the Internationa Agencies, gathered in Nairobi Kenya to deveop a strategy to end drought emergencies. In this summit most of the countries, incuding Kenya, presented country programme papers outining their strategies for ending drought emergencies. The fina product of the summit was the adoption of The Nairobi Strategy: Enhanced Partnership to Eradicate Drought Emergencies. The Nairobi Strategy provides detais on how to dea with Somaia s governance and refugee issues, and genera strategies for overcoming drought emergencies. Here we concentrate on the drought component, aongside a regiona strategy for IGAD to support the successfu roout of country pans via its own regiona strategy for disaster resiience and sustainabiity. Some of the key strategies for overcoming drought emergencies were given as: 1. Acceerate investment in the foundations of deveopment: This incudes pro-poor infrastructure and human capita, secondary roads, water, energy, education and heath. [North Eastern Kenya is desperatey under-served, with 74% - 97% of the 63

65 popuation iving beow the poverty ine, primary schoo net enroment at ony 36% compared to the nationa average of 93% and ony 48% of chidren immunized, against 77% nationay.] 2. Strengthen adaptive capacity and iveihood choices: This incudes environmenta protection, integrated resource and water management; rangeand management, fodder and crop production, reforestation, sma business support, socia protection, and assistance to pastoraists to hep reconstitute their ivestock and start a sedentary ife. 3. Promote integrated and and water management incuding both ground and surface water deveopment for irrigation, ivestock and human use. 4. Faciitate forma trade and promote efficient fow of commodities in the region. 5. Support pastoraism as provided for by the African Union Pastoraist Poicy Framework. Support incudes protecting property rights and ivestock assets, providing market, veterinary heath and financia services, and supporting ivestock mobiity. 6. Fast track cimate change adaptation initiatives so that drought risk reduction and cimate change adaptation are integrated into deveopment panning and resource aocation frameworks. 7. Ensure that more effective institutiona frameworks are in pace to promote deveopment of arid and semi-arid ands and manage droughts in more sustainabe ways, for exampe the Nationa Drought Management Authority (NDMA). 8. The strategy aso recognizes the need for Governments to work cosey given that arid cimatic conditions cut across boundaries. These strategies are audabe, athough there are others, e.g. arge-scae irrigation in the ASALs and sedentarisation of pastoraists, which require carefu and urgent consideration of the environmenta, socia and economic impacts and the impications on resiience of vunerabe househods. There is aso a need to ensure that dryand dweers themseves have the information, capacities and opportunities to determine the use of their ocaised natura resources and decide their futures. Most of the strategies are not new, what is new is the nationa, regiona and internationa determination to end drought emergencies incuding pubic demand for change in governments approaches to drought. This is an enormousy positive forward-ooking step, yet the key wi be its impementation. Three months down the ine there are some positive signs. At the end of November, a Kenyan Stakehoders Meeting was convened, incuding a the major ministries and internationa agencies, in order to deveop a roadmap for nationa impementation. IGAD aso hed a meeting of regiona stakehoders to ascertain its roe in impementing the regiona strategy, estabishing a stakehoder group in order to ensure reguar foow-up and effective impementation of the pans. Donors have aso made commitments to support this strategy and IGAD: Donors are panning to hep countries deveop investment pans and to support IGAD to ead a regiona patform to promote this process. The governments, the UN, the internationa community, NGOs, the private sector and citizens wi a need to act to ensure that the intent of the Nairobi strategy and the country pans are maintained, and that a efforts are focused on promoting sustainabe iveihoods, the resiience of dryands popuations and ensuring that the peope themseves are centra in deciding investment priorities. For further information contact s.abdi@cordaid.or.ke 64

66 Uganda Nationa Patform for DRR How functiona coordination mechanisms can acceerate drought risk reduction By Rhea Katsanakis, UNISDR ROA Drought impact on communities can be mitigated ony if its root causes are being addressed and therefore the risk is being managed and not the crisis, as OXFAM and Save the Chidren ca for in a recent paper entited A dangerous deay. One of the chaenges in drought risk reduction, and therefore one of the root causes of drought disasters is a weak institutiona basis at nationa eve, which in turn imits governments to act eary. The first priority of the Hyogo Framework for Action (HFA) reads Ensure that disaster risk reduction is a nationa and oca priority with a strong institutiona basis for impementation, one of its key activities emphasizes on the importance of DRR institutiona mechanisms (nationa patforms). This refers to a muti stakehoder coordination mechanism which is a nationay owned and ed forum for disaster risk reduction, which serves as catayst for nationa consutations and consensus buiding, enhances coaboration and coordination amongst nationa stakehoders, increases eves of knowedge and skis on risk reduction and supports the identification of urgent needs in the area of reducing disaster risk. The patform manages the progress towards achievement of DRR objectives rather than producing a «pan», eads, monitors, evauates and reports and aso faciitates the aocation of resources from donors, deveopment banks and UN agencies. The nationa patform contributes to the deveopment of a comprehensive nationa DRR system, as appropriate to each country, and functions as its custodian; it is not necessariy a new institution, but reies on the advantages of existing structures and processes. In reation to drought risk reduction this means that a functiona nationa patform for disaster risk reduction enabes the disaster risk reduction actors in a drought affected country to carry out eary action activities in an effective and coordinated manner, ed by the institution at government eve in charge of DRR. A functiona patform as an effective coordination and consensus buiding mechanism therefore is essentia to acceerate drought risk reduction activities. The UNISDR Regiona Office for Africa has since its existence in the year 2002 supported the estabishment of nationa patforms for DRR. These nationa patforms were in the Africa Region compemented by the Africa Regiona Patform which was aunched in 2008 and the Sub-Regiona Patforms for DRR which were estabished in 2011 for ECOWAS, ECCAS, EAC and SADC. The regiona patforms are important especiay to buid consensus among member states as most of the natura disasters affecting the Africa region have cross-boundary impact and bi-atera or muti-atera coordination is needed to address pastoraist movements, trade etc. as we as interventions at the border area. 65