DISASTER MANAGEMENT. An application of project management

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1 DISASTER MANAGEMENT An application of project management This report reflects on the application of lessons and practices of project management in improving the effectiveness of disaster management because disaster management is itself a form of public project. Saurabha Acharya 6/3/2013

2 TABLE OF CONTENTS LIST OF TABLES... 2 LIST OF FIGURES... 2 ABBREVIATIONS AND ACRONYMS... 2 INTRODUCTION... 3 Purpose of the report... 3 Scope of project management in disaster management... 3 APPLICATION OF PROJECT MANAGEMENT... 4 Formulating a project plan... 4 Work breakdown structure (WBS)... 5 Organizational breakdown structure (OBS)... 5 Risk analysis... 7 Scheduling resources and cost estimation... 8 Dynamics of disaster management... 9 Reducing project duration Leadership, management and team work Outsourcing Project closure CONCLUSIONS REFERENCES

3 LIST OF TABLES Table 1: Sample WBS for disaster management and planning... 6 Table 2: Example of risk response matrix for flood/inundation... 8 Table 3: Resource sheet... 9 Table 4: Rationale, target and strategies to reduce project duration Table 5: Dimensions of leadership in disaster management LIST OF FIGURES Figure 1: Project management vs. disaster management... 3 Figure 2: Framework for disaster management... 4 Figure 3: Disaster management phases... 5 Figure 4: Disaster Management Arrangement structure... 6 Figure 5: Risk management process... 7 Figure 6: Threat level, response and resource mobilization... 8 Figure 7: Disaster operations stages, levels of activation and phases ABBREVIATIONS AND ACRONYMS DM OBS PM QDMA UNHCR WBS Disaster Management Organizational Breakdown Structure Project Management Queensland Disaster Management Arrangement United Nations High Commissioner of Refugees Work Breakdown Structure 2

INTRODUCTION An increasing number of natural disasters have created serious focus on disaster management. But, how can we effectively manage disasters from a project management perspective?

4 INTRODUCTION An increasing number of natural disasters have created serious focus on disaster management. But, how can we effectively manage disasters from a project management perspective? A brief review of literature makes a strong connection between disaster management and project management. Crawford et al. (2012) highlight that disaster management is conducted through multiple projects. Moe & Pathranarakul (2006) state that disaster management positions itself as a form of public project management. Baroudi & Rapp (2010) solidify the linkage between project management and disaster management by highlighting that both have four similar phases. Moe & Pathranarakul (2006) define different phases of project management and disaster management and provide the similarities as summarized in Figure 1. This linkage provides a basis to examine how project management skills can be applied to provide solutions to disaster management efforts. FIGURE 1: PROJECT MANAGEMENT VS. DISASTER MANAGEMENT Purpose of the report The aim of this reflective report is to examine how project management lessons facilitate disaster management with two objectives: a. To identify key lessons of project management. b. To demonstrate its application for disaster management. Scope of project management in disaster management Disaster management entails reducing risk and establishing a capability for effective response and recovery. Project management is a body of knowledge that provides a systematic approach to achieving a certain goal. Project management provides leadership and clarity of thought to solve unique challenges of inherent urgency and high risk involved in disaster management through a structured methodology (Killough, cited in Learnard & VanOrnum 2011). Therefore, there is a scope 3

5 for project management in disaster management. This report uses the framework for disaster management provided by Carter (2008) and State of Queensland (2011) to demonstrate necessary application project management lessons in natural disaster management esp. flood management wherever applicable. APPLICATION OF PROJECT MANAGEMENT Disaster management begins with a clear disaster management policy that provides a framework to define various projects as outlined in Figure 2. Disaster management Policy Identification of threat Threat 1: Flood Threat 2: Bush Fire Threat 3: Earthquake Risk Analysis Risk Analysis Risk Analysis 1. Preparedness 2. Mitigation 3. Prevention 4. Response 5. Relief 6. Restoration 7. Rehabilitation 8. Reconstruction 1. Preparedness 2. Mitigation 3. Prevention 4. Response 5. Relief 6. Restoration 7. Rehabilitation 8. Reconstruction 1. Preparedness 2. Mitigation 3. Prevention 4. Response 5. Relief 6. Restoration 7. Rehabilitation 8. Reconstruction FIGURE 2: FRAMEWORK FOR DISASTER MANAGEMENT The disaster management handbook provided by Carter (2008) can be succinctly summarized into four phases as shown in Figure 3, within which project management can be applied. Formulating a project plan Project management helps develop project scope with strategic priorities, deliverables, objectives, limitations and milestones. It provides guidelines for disaster management with different levels of plan with differing requirements encompassing multiple other project plans and activities as shown in Figure 3. These individual projects needs to be coordinated for effective disaster management, which is the scope of program management and disaster management organization. 4

6 Disaster Management Policy Phase 1 Prediction Phase 2 Preparation Phase 3 Response Phase 4 Recovery 1. Identify threat 2. Analyse Impact 1. Prevention 2. Mitigation 3. Preparedness 1. Warning 2. Emergency response 3. Emergency relief 1. Restoration 2. Rehabilitation 3. Reconstruction FIGURE 3: DISASTER MANAGEMENT PHASES 1 Work breakdown structure (WBS) The process of segmenting task is important in disaster management. All projects involved in this disaster management program, and all project s activities outlined in different phases in Figure 2 can be formalized through WBS by, Determining necessary activities, predecessors, duration, resources, costs, responsibilities and accountabilities. Perfecting project plan and WBS by accommodating risks, resources and different circumstances. A careful and detailed construction of WBS is very crucial to the success of the project for following reasons (UNHCR 2000): To provide a framework for action. To set timetable for implementation. To become a tool for monitoring. A sample WBS provided in Table 1 shows how WBS can be used for disaster management and creating different projects. Organizational breakdown structure (OBS) On the basis of WBS, a comprehensive OBS can be drawn up involving local, state, federal, agencies, local community and so forth to create an organization or a disaster management structure as shown in Figure 4 (State of Queensland 2011). Necessary hierarchy, leadership, responsibilities, and 1 Preparedness refers to developing viable disaster management plans, maintenance of resources and training of personnel. Prevention refers to measures aimed at impeding the disaster from happening or reducing harmful effects on communities. Mitigation refers to measures those aim to reduce and moderate impact of disasters. 5

7 accountabilities can be determined within this structure to create a framework for co-operation, community mobilization, coordination during different response levels. TABLE 1: SAMPLE WBS FOR DISASTER MANAGEMENT AND PLANNING FIGURE 4: DISASTER MANAGEMENT ARRANGEMENT STRUCTURE 6

Risk analysis Risk analysis is a critical step in disaster management because it provides a basis for initiating majority of the disaster management activities.

8 Risk analysis Risk analysis is a critical step in disaster management because it provides a basis for initiating majority of the disaster management activities. Project management provides a very structured methodology for risk analysis, which facilitates: Identification of a list of threats and a list of risk factors. Formulation of a risk response matrix with risk profile, action plan and strategies to effectively manage disasters. The risk management process shown in Figure 5 is a good representation of risk management process, which is used by State of Queensland (State of Queensland 2011). The final objective of risk management is to come up with a risk response matrix. Risk response matrix in Table 2 shows how risk value 2 and risk profile can be used to come up with triggers, response and responsibilities for disaster management. FIGURE 5: RISK MANAGEMENT PROCESS Risk response matrix (see Table 2) facilitates the following: To create new projects. To implement appropriate response strategies like, building infrastructure, raising awareness etc. 2 The risk value is calculated by ranking the likelihood, impact and detection difficulty on a scale. Or by using probability that can be extracted from past data and dollar value of impact of floods in terms of loss in vegetation, loss of cattle, costs of recovery and rehabilitation and so forth. 7

9 To provide an answer to all necessary questions in an event of a flooding or disasters usually documented and referred to during disaster management. Where resources are limited, prioritization to critical services and sectors can be determined. TABLE 2: EXAMPLE OF RISK RESPONSE MATRIX FOR FLOOD/INUNDATION Scheduling resources and cost estimation In an event of a disaster, there is an increase in demand for resources -heavy demand on certain resources and less on others. The resource demand requires participation of various organization, agencies and personnel resources to meet peak requirements. Depending upon the threat level appropriate response level and appropriate resource scheduling and mobilization can be achieved (see Figure 6). Establishing priorities and threat level Level 1 response (National Level) Level 2 response (State Level) Level 3 response (Districtl Level) Level 4 response (Local Level) Resource scheduling and mobilization FIGURE 6: THREAT LEVEL, RESPONSE AND RESOURCE MOBILIZATION 8

10 Scheduling resources include: Management of limited resources and its effective channelization. Assigning responsibilities and accountabilities to conduct all tasks. Allocation of resources and responsibilities in pre-disaster phase. Resource scheduling by managing resource constraints, splitting tasks, outsourcing, and optimal utilization during and after disaster. All activities in the WBS (see Table 1) can be assigned a particular resource (see Table 3). TABLE 3: RESOURCE SHEET ID Resource Name Type Initials Group Max. Units Std. Rate Ovt. Rate Cost/ 1 Attorney Genral's Department Work A National 100% $0.00/hr $0.00/hr 2 Australian Government Crisis Coordination Center Work A National 100% $0.00/hr $0.00/hr 3 State disaster management group Work S State 100% $0.00/hr $0.00/hr 4 State disaster coordination center Work S State 100% $0.00/hr $0.00/hr 5 District disaster management group Work D District 100% $0.00/hr $0.00/hr 6 Distric disaster coordination center Work D District 100% $0.00/hr $0.00/hr 7 Local disaster management group Work L Local 100% $0.00/hr $0.00/hr 8 Local disaster coordination center Work L Local 100% $0.00/hr $0.00/hr 9 Stakeholders Work S Local 100% $0.00/hr $0.00/hr 10 Infrastructure development department Work I State 100% $0.00/hr $0.00/hr 11 Third party partners Work T Outsourcing 100% $0.00/hr $0.00/hr A comprehensive WBS will provide a foundation for cost estimation. It involves: Estimation using bottom-up or top-down approach and its methods. Calculating costs of the smallest work packages and aggregation. Inclusion of direct (labor, material and equipment), indirect (general and administrative expenses) and overhead costs. Providing a strategic fit between costs and disaster management priorities. By estimating the cost of each activity, a disaster management project can come up with an aggregate amount, which provides a basis for creating budgets and is essential for committing resources to the project, project control, monitoring and tracking progress. Dynamics of disaster management Project management provides capabilities in nine knowledge areas: scope, integration, time, cost, quality, human resources, communications, risk and procurement (Project management Institute 2008). These knowledge areas have wide-reaching applications in post-disaster management: When multi-priority response and relief is required. When strong leadership requires unusual pressures and making harsh decisions. When intuitive thinking and immediate decisions are required. 9

The schematic in Figure 7 (Carter 2008) provides a snapshot of disaster operations, activation levels, phases and stages as a general guideline to initiate disaster management activities.

11 The schematic in Figure 7 (Carter 2008) provides a snapshot of disaster operations, activation levels, phases and stages as a general guideline to initiate disaster management activities. Responding to threat level before, during and after disaster requires high vigilance (alert), high situational awareness with readiness (lean forward), and mobilization of resources (stand up) and getting back to normal (stand down). FIGURE 7: DISASTER OPERATIONS STAGES, LEVELS OF ACTIVATION AND PHASES Managing dynamics of disasters requires: Constant focus on critical activities (or critical path). Effective use of resources to minimize human and financial costs. Prioritizing different tasks to finish the project within time budget and scope. The dynamics of disaster requires great leadership skills to respond with each level of activation. Project decision-making game, simulation of Rock and Bands that was conducted in the class mirrors this dynamics of disaster management. Reducing project duration In an aftermath of a disaster, reducing project time and cost is a very important activity. The rationale, target and strategies are outlined in Table 4. Usually natural disasters needs to be tackled 10

12 aggressively to get the community back to normalcy. Reducing project duration requires knowledge of project priorities and the multi-dimensional impact of the disaster, which can be done through utilization of the skills of project management. TABLE 4: RATIONALE, TARGET AND STRATEGIES TO REDUCE PROJECT DURATION Rationale Target area Strategies (Unconstrained resources) - Establishing normalcy - Highways/roads - Adding resources - Reducing cost pressures - Bridges - Outsourcing work - Reducing supply issues - Cultivable land - Scheduling overtime - Restoring public services - Hospitals - Establish project team - Facilitate humanitarian services - Drinking water - Do it twice - Other public utilities - Tying incentive to milestones Strategies (Constrained resources) - Fast-tracking - Critical-chain - Reducing project scope - Compromising quality Leadership, management and team work Leadership in disaster management requires study of leadership requirements at each response level and training and attuning appropriate personnel. Leadership and organization structure must be established at different level with clear strategies for accepted leadership (see Table 5). Good leadership is essential for effective management of disaster management team. TABLE 5: DIMENSIONS OF LEADERSHIP IN DISASTER MANAGEMENT Leadership Structure Level Leadership requirements Strategies for building leadership -Community Level - Making tough decisions - Legislations -Local Level - Dealing with unusual pressure -Training -District Level - Leading and managing - Establishing organization -State Level - Compromising and consolidating - Developing hierarchy & structure -National Level - Objective-oriented - Good decision-maker Similarly, team-building and team work is critical for disaster management. Simulations, training, team-building, role play, drills etc. will help the disaster management team understand each other, create an environment to work in unison and swiftly respond to disasters with less hesitance and confusion. It will help determine areas for training, learning and delegating responsibilities based on capabilities. However, leadership, management and team work should be made an ongoing activity of disaster management. Outsourcing Disaster management requires considerable amount of resources for pre-disaster and post-disaster activities in the form of technical expertise, equipment, logistics, and many other resources. When core competencies lie with foreign companies to perform a particular activity, and if cost savings, 11

13 project duration reduction and better quality is assured, outsourcing can be done. But, clear guidelines and understanding, better control and monitoring must be ensured through project management. Project closure Post- disaster management phase of recovery is the phase that leads towards project completion. But, when is the right time to kill the disaster management projects? General guidelines include the following: Disaster management project should continue until major recovery works (restoration and reconstruction) are completed and major functioning of the disaster area is restored. Project managers must examine recovery projects that might have direct bearing on existing and future national development plan. Those recovery programs that may prolong must be aligned to national development plan. Areas for handover of recovery projects to contractors, local, district or state or national government from the disaster management organization must be found. This provide a basis for national development plan to take over major projects freeing up disaster management organization to direct its resources to disaster management phases of prediction and preparation to get ready for response and recovery for an impending disaster. To sum up, disaster management is an ongoing project with different objectives during different times. CONCLUSIONS Disaster management certainly requires project management skills because it is a form of public project. Since project management provides a structured methodology to achieving a certain goal with nine knowledge areas of scope, integration, time, cost, quality, human resources, communications, risk and procurement Therefore, the scope of application of project management in disaster management is rational. During the study it was found that application of project management knowledge in disaster management in formulating project plan, WBS, OBS, risk analysis, management of dynamics of disaster management, reducing project duration, leadership management and teamwork, scheduling resources and cost estimation, outsourcing and project closure. This basically sums up that most of the implementation aspect of disaster management activities is facilitated by project management. As it is a form of public project and facilitated by multiple projects directed towards prediction, preparation, response and recovery, it falls under the purview of project management, where all project management skills are applicable wherever necessary. REFERENCES Baroudi, B & Rapp, RR 2010, Disaster Restoration Projects : a a conceptual project management perspective, Australasian Journal of Construction and Building, Conference Series, vol. 1, no. 2, pp

14 Carter, WN 2008, Disaster management: a disaster manager s handbook, Asian Development Bank, Mandaluyong City, viewed 1 June 2013, < Crawford, L, Langston, C & Bajracharya, B 2012, Building capability for disaster resilience: 28th annual conference of association of researchers in construction management, viewed 22 May 2013, < Learnard, C & VanOrnum, R 2011, Project Management Institute Testifies on Disaster Relief Project Management, viewed 23 May 2013, < Management-Institute-Testifies-on-Disaster-Relief-Project-Management.aspx>. Moe, TL & Pathranarakul, P 2006, An integrated approach to natural disaster management: Public project management and its critical success factors, Disaster Prevention and Management, vol. 15, no. 3, pp , viewed 22 May 2013, < Project management Institute 2008, Project management body of knowledge guide, 4th edn, Project Management Institute, Pennsylvania. State of Queensland 2011, Queensland disaster management arrangements participant guide, viewed 1 June 2013, < Resources/Documents/SEM2004 QDMA PG V2.2 LLR.pdf>. UNHCR 2000, Planning and emergency response, viewed 2 June 2013, < 13

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